HomeMy WebLinkAbout08-20-07_Bozeman 2020 Community Plan Update _9
Report compiled on August 14, 2007
Commission Memorandum
REPORT TO: Honorable Mayor and City Commission
FROM: Chris Saunders, Assistant Planning Director
Jody Sanford, Senior Planner
SUBJECT: Bozeman Community Plan Update – Presentation by Clarion Associates of
Fort Collins, CO
MEETING DATE: Monday, August 20, 2007
RECOMMENDATION: Provide the representatives from Clarion Associates with feedback on
the draft Bozeman 2020 Community Plan Analysis (dated August 2007).
BACKGROUND: The City of Bozeman has initiated the process of updating the City’s growth
policy, the Bozeman 2020 Community Plan. Clarion Associates of Fort Collins, CO has been
retained to provide an analysis of the current plan, and provide recommendations and guidance for
preparation of the update.
Representatives from Clarion Associates met with the City Commission and Planning Board on May
29, 2007 to solicit feedback and suggestions for the plan update process. During their May visit,
Clarion representatives also held public focus groups for the following topics: Land Use, Housing,
Economic Development, Environmental Quality, Community Quality, and Transportation.
During this visit to Bozeman Clarion Associates will meet with the City Commission and Planning
Board, City department heads, and Planning Department staff. They will incorporate comments and
suggestions received into the final draft of the report.
UNRESOLVED ISSUES: None.
FISCAL EFFECTS: Fiscal impacts are undetermined at this time.
ALTERNATIVES: As suggested by the City Commission.
CONTACT: Please feel free to email Chris Saunders at csaunders@bozeman.net or Jody Sanford
at jsanford@bozeman.net if you have any questions prior to the public hearing.
APPROVED BY: Andrew Epple, Planning Director
Chris Kukulski, City Manager
ATTACHMENTS:
Draft Bozeman 2020 Community Plan Analysis (August 2007)
41
Bozeman 2020
Community Plan
Analysis
Prepared by Clarion Associates
for City of Bozeman
August 2007
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Bozeman 2020 Community Plan Analysis Table of Contents
Clarion Associates (August 2007) Page i
Table of Contents
Part I: Introduction........................................................................................1
Purpose of the plan analysis project..................................................................................1
Project description........................................................................................................1
Project process ............................................................................................................1
Features of effective community plans ...............................................................................2
Elements of useful community plans...............................................................................2
Organization of this Analysis............................................................................................3
Part II: Overall Plan Assessment and Key Themes........................................5
Introduction....................................................................................................................5
Overall assessment of the Bozeman 2020 Community Plan.................................................5
2020 Plan strengths .....................................................................................................5
2020 Plan areas for improvement .................................................................................7
Need more time in some areas to fully implement the 2020 Plan Vision ............................8
The 2007 update to the 2020 Plan ................................................................................8
Key Theme 1: Address high rates of growth and development ............................................9
Add additional growth and land use policies ..................................................................9
Redefine land use designations .....................................................................................9
Link Land Use and Design chapters...............................................................................9
Address regional coordination .................................................................................... 10
Key Theme 2: Enhance Plan’s focus on multi-modal transportation ................................... 10
New strategies to reduce congestion............................................................................ 10
Maximize the benefits of transit ................................................................................... 11
Enhance focus on multi-modal alternatives................................................................... 11
Key Theme 3: Address current community issues and trends............................................. 11
Increase breadth of economic development strategies ................................................... 11
Put more emphasis on Arts & Culture........................................................................... 12
Address link between land use and design and form-based planning.............................. 12
Key Theme 4: Incorporate recent and current facility and sub-area plans........................... 13
Use current trends and public opinion information........................................................ 13
Streamline 2020 Plan chapters.................................................................................... 13
Key Theme 5: Make the Vision compelling and accessible ................................................ 14
Key Theme 6: Make the plan more user-friendly.............................................................. 14
Create an Executive Summary..................................................................................... 14
Elevate some sub-topics to chapter status..................................................................... 15
Create an Action Plan to implement the goals and objectives ......................................... 15
Improve document formatting for ease of use............................................................... 15
Make the plan more accessible on the Internet.............................................................. 16
Part III: Chapter-by-Chapter Analysis ......................................................... 17
Introduction.................................................................................................................. 17
Purpose.................................................................................................................... 17
Organization of Part III, Chapter-by-Chapter Analysis.................................................... 17
General Recommendations for All Chapters..................................................................... 17
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Improve functionality through formatting.........................................................................17
Create a consistent organizational structure for all chapters .............................................19
Consolidate “implementation policies”............................................................................20
Indicate the purpose of key sections of each chapter........................................................20
Streamline chapters with related facility or sub-area plans................................................21
Establish broad policy direction through the 2020 Plan....................................................21
Move summaries of facility or sub-area plans out of chapters...........................................22
Chapter 1: Dealing with Change ......................................................................................23
Chapter 1 Overview.......................................................................................................23
Recommendation: Mostly organizational changes with minor content changes.................23
Make organizational changes specific to Chapter 1.........................................................23
Chapter 2: Introduction....................................................................................................25
Chapter 2 Overview.......................................................................................................25
Recommendation: Overall, many organizational and housekeeping changes ..................25
Policy revisions needed ..................................................................................................25
Make organizational changes specific to Chapter 2.........................................................25
Specific housekeeping changes are needed.....................................................................26
Chapter 3: Background....................................................................................................27
Chapter 3 Overview.......................................................................................................27
Recommendation: Minimal housekeeping and organizational changes............................27
Chapter 4: Community Character (Community Quality).....................................................28
Chapter 4 Overview.......................................................................................................28
Recommendation: Modest substantive changes ..............................................................28
Policy revisions needed ..................................................................................................29
Make organizational changes specific to Chapter 4.........................................................30
Specific housekeeping changes are needed.....................................................................31
Chapter 5: Housing .........................................................................................................32
Chapter 5 Overview.......................................................................................................32
Recommendation: Minimal substantive changes, mostly chapter reorganization...............32
Policy revisions needed ..................................................................................................32
Specific housekeeping changes are needed.....................................................................32
Make organizational changes specific to Chapter 5.........................................................33
Chapter 6: Land Use........................................................................................................34
Chapter 6 Overview.......................................................................................................34
Recommendation: Reorganization and revisions to land use designations and
land use map................................................................................................................34
Future Land Use Plan map revisions................................................................................34
Policy revisions needed ..................................................................................................36
Make organizational changes specific to Chapter 6.........................................................38
Specific housekeeping changes are needed.....................................................................39
Chapter 7: Economic Development...................................................................................40
Chapter 7 Overview.......................................................................................................40
Recommendation: Expand and refocus policy guidance in this chapter ............................40
Policy revisions needed ..................................................................................................40
Chapter 8: Environmental Quality and Critical Lands.........................................................43
Chapter 8 Overview.......................................................................................................43
Recommendation: Limited updates to this chapter ..........................................................43
Policy revisions needed ..................................................................................................43
Make organizational changes specific to Chapter 8.........................................................44
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Specific housekeeping changes are needed.....................................................................44
Chapter 9: Parks, Recreation, Pathways and Open Space...................................................45
Chapter 9 Overview.......................................................................................................45
Recommendation: Streamline this chapter to reflect the Parks, Recreation, Open Space and
Trails (P.R.O.S.T.) plan...................................................................................................45
Policy revisions needed ..................................................................................................45
Make organizational changes specific to Chapter 9.........................................................46
Specific housekeeping changes are needed.....................................................................46
Chapter 10: Transportation ..............................................................................................47
Chapter 10 Overview.....................................................................................................47
Recommendation: Changes to this chapter should reflect the Transportation Plan ............47
Policy revisions needed ..................................................................................................47
Specific housekeeping changes are needed.....................................................................48
Chapter 11: Public Services and Facilities..........................................................................49
Chapter 11 Overview.....................................................................................................49
Recommendation: Primarily organizational and housekeeping changes...........................49
Policy revisions needed ..................................................................................................49
Make organizational changes specific to Chapter 11.......................................................50
Specific housekeeping changes are needed.....................................................................50
Chapter 12: Subdivision Review........................................................................................51
Chapter 12 Overview.....................................................................................................51
Recommendation: Limited revisions for this chapter........................................................51
Policy revisions needed ..................................................................................................51
Suggested New Chapters...................................................................................................53
Overview: Four New Chapters.......................................................................................53
Recommended New Chapters ........................................................................................53
Chapter 13: Implementation.............................................................................................55
Chapter 13 Overview.....................................................................................................55
Recommendation: Significant changes to this chapter to enhance functionality.................55
2020 Plan Appendices ......................................................................................................59
Appendix Overview........................................................................................................59
Recommendations .........................................................................................................59
Part IV: Approach to Plan Update Process ....................................................61
Introduction ......................................................................................................................61
Purpose of this section....................................................................................................61
Organization of Part IV: Approach to plan update process..............................................61
Suggestions for 2020 Plan Public Process ...........................................................................61
Recommendations for public outreach ............................................................................61
Targeted approach to revising and updating the document .................................................62
Phased approach...........................................................................................................62
Appendix..........................................................................................................65
Appendix A: Summary of Key Issues..................................................................................67
Appendix B: Memorandum regarding Implementation Policy Status ....................................69
Appendix C: Plan Examples..............................................................................................71
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Part I: Introduction
Purpose of the plan analysis project
Project description
The City of Bozeman retained Clarion Associates, a national planning consultant, to complete an
assessment of the Bozeman 2020 Community Plan (2020 Plan) in anticipation of its five-year update
to the plan document. The 2020 Plan Analysis project provides a third party review of the 2020 Plan
identifying strengths and weaknesses of the document, checking for compliance with Montana State
growth policy requirements, and offering suggestions for improvement based on national best
practices and community-identified concerns. It will set the foundation for the plan update
commencing in fall 2007, which planning staff will conduct in-house.
Project process
The 2020 Plan Analysis project consisted of two phases as follows.
Phase 1: Document Review and Community Focus Groups
To begin the project, Clarion met with staff, reviewed background materials and met with community
members. Clarion reviewed the 2020 Plan document for consistency with the requirements of
Montana State requirements for growth policies (the 2020 Plan is Bozeman’s growth policy) and
assessed its strengths and weaknesses. In addition, we reviewed a wide variety of recent City of
Bozeman planning documents to understand how they relate to and implement concepts of the 2020
Plan.
Clarion and City of Bozeman Planning Division staff held a series of meetings with the community and
elected and appointed officials to identify the key issues in the Bozeman community that may drive the
2007 update to the 2020 Community Plan. Meetings held in May 2007 included:
A joint meeting of the Planning Board and City Commission,
Eight focus groups geared to address topics covered in the 2020 Community Plan (i.e., Land
Use (2), Transportation (2), Environmental Quality, Community Quality, Housing, and
Economic Development),
An evening meeting open to any interested members of the public, and
Meetings with planning staff.
Attendees at the meetings discussed a wide variety of issues and concerns in Bozeman and the
relationship of issues to the 2020 Community Plan, presented in Appendix A: Summary of Key Issues.
Phase 2: Issues Identification and Analysis
During the second phase of this project, Clarion prepared the Summary of Key Issues identified during
the meetings and this analysis of the 2020 Plan and recommendations for updating it. The result is
this Analysis.
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Features of effective community plans
What is it that sets apart an effective plan from one that addresses the nuts and bolts of planning, but
lacks a compelling thread or is difficult to implement? In our practice, we have found that truly
effective Community or Comprehensive Plans contain a number of common elements. The following
recommendations reflect an American Planning Association training session conducted by Clarion
Associates entitled, Best Practices for Leading-Edge Community Plans.
Elements of useful community plans
A useful Community Plan should include the following elements:
1. Compelling Vision: The plan contains a clear and compelling vision for the future of the
community that is easy to identify and describe and can be presented simply or
graphically.
2. Strong Rationale for Plan Direction and Policies: Effective plans include strong, clear
rationale for recommended policies and actions. Elected officials and citizens must
understand why a particular course of action is needed or desired if they are going to
support its implementation, particularly if it involves change or tough decisions.
3. Appropriate Technology and Lots of Graphics: The plan should use graphics and
images as much as possible to depict planning concepts. Maps should be legible and
useful. Technology should be state-of-the-art, yet appropriate to the planning tasks at
hand.
4. Contemporary Planning Approaches: The plan should also advance best practices in
the planning and development fields for contemporary issues such as conservation and
sustainability, neighborhood design and mixed-use development, partnerships and
coordination, and implementation tools. It is also important that plans incorporate such
topics in compelling and meaningful ways.
5. Integrated Plans: The plan should tie together and, to the extent possible, be done in
concert with other plans in the community. For instance, transportation or parks and
open space plans should relate to and inform the community plan.
6. Clear-Cut Implementation Strategies: The last thing a community wants to see is its
brand new community plan gathering dust on a shelf. Therefore, a community plan
should include actions and strategies to carry it out—starting the day after adoption. In
many instances, elements of plan implementation can be carried out concurrent with the
planning process, setting the stage for action and demonstrating early progress towards
plan goals.
7. Public Backing: The plan is grounded in diverse public support built up by meaningfully
engaging the public and allowing for widespread outreach during the planning process.
This analysis provides recommendations on how to update and bolster the 2020 Plan to make it even
more compelling, address new “best practices” and community needs, and provide a clear action
plan to carry it out into the future.
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Bozeman 2020 Community Plan Analysis Part I: Introduction
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Organization of this Analysis
This Analysis is organized in four parts plus appendices:
Part I: Introduction, describes the 2020 Community Plan Analysis project and provides
general background on features of effective community plans.
Part II: Overall Plan Assessment and Key Themes, describes six major issues or ideas
identified during the plan analysis project that guide the recommendations for the 2020 Plan
update.
Part III: Chapter-by-Chapter Analysis, provides detailed comments about the 2020 Plan,
and specific recommendations for updates to each chapter of the plan document.
Part IV: Approach to Plan Update Process, gives recommendations for public outreach
for the update, and sets out a suggested approach to accomplishing the recommendations of
this analysis.
Appendices: The appendices contain the issues summary, summary of implementation
policy state, and examples from other community plans to illustrate recommended concepts,
formats, and approaches.
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Part II: Overall Plan Assessment and Key Themes
Introduction
Part II of this document describes an overall assessment of the 2020 Plan and the key themes of the
2020 Community Plan Diagnosis findings. The key themes are overarching issues of community
concern or attention for consideration in the 2007 update, which form the basis of our specific
recommendations.
This chapter is organized in two parts as follows:
First, an overall assessment of the 2020 Plan indicates plan strengths, areas for improvement,
implementation status, and an approach to the 2007 update.
Next, we present the six key themes of the 2020 Plan analysis.
Following the assessment and key themes, Part III, Chapter-by-Chapter Analysis, analyzes each
chapter of the existing plan and makes specific recommendations that incorporate the concepts and
ideas of this chapter.
Overall assessment of the Bozeman 2020 Community Plan
Overall, we find that the 2020 Plan is consistent with the State requirements for a local growth policy;
contains policies that are based on a strong rationale; is based on extensive public participation; and
incorporates many current best practices in the planning field. We have identified policy areas to add
to the 2020 Plan or to enhance during this update, as well as areas for improvement in the 2020
Plan, particularly in the formatting, presentation, and user-friendliness of the document as a tool for
the Bozeman community to use.
2020 Plan strengths
The 2020 Plan contains many strengths that serve as a
positive foundation for the update. These are
summarized below:
Excellent rationale and supporting data
A great strength of the 2020 Plan is that the rationale
for the plan policies is exceptionally well grounded. It is
evident that city staff conducted extensive research and
gathered a great deal of data to inform the community
and to serve as the basis for its growth policies. As
indicated above in Part I, Introduction, strong policy
rationale is a feature of effective community plans.
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Incorporates many current best practices
The 2020 Plan and many of the subsequent planning documents reviewed for this project contain
planning policies that are based on current best practices in the planning field. The inclusion of so
many best practices and current ideas in the City’s planning documents indicate that City of Bozeman
planning staff is engaged in ongoing learning within the planning field and uses innovative techniques
to address emerging issues in the Bozeman community.
Based on a valid community process
The process of involving the public in the 2020 Plan was
extensive. From our experience, an important feature of
effective community plans is that they are based on a
legitimate and far-reaching public process. Because the
Bozeman community was so actively involved in creating the
vision contained in the 2020 Plan, the 2020 Plan has served
as a legitimate guide for the community.
Consistent with Montana statutory requirements
The 2020 Plan is consistent with growth policy requirements
in the Montana Statute Annotated. In our opinion, the plan
contains all required elements and meets the intent of state
law to guide local growth and development while respecting
private property rights.
New planning documents since adoption are consistent with the 2020 Plan
The 2020 Plan is the guiding policy document for the community and for the development of all
subsequent planning documents. We find that planning documents developed since 2001 are
generally consistent with the policy direction in the 2020 Plan, and serve to implement aspects of the
2020 Plan Vision. The adoption of a new Bozeman planning study area is an example of a how the
City has used the overall direction of the 2020 Plan to guide coordinated neighborhood, facility, and
sub-area planning efforts and to respond to changing conditions in the community.
Excellent progress on 2020 Plan implementation
The City of Bozeman has made considerable progress on the implementation steps included in the
2020 Plan. The list of implementation steps in Chapter 13, Implementation, is extensive, and a great
deal has been accomplished since 2001.1 Some of the notable accomplishments include:
Revision of the Unified Development Ordinance (UDO) in to include development standards
that implement a wide variety 2020 Plan goals and objectives.
Updates to the Design Objectives Plan, Historic Preservation Guidelines and Neighborhood
Conservation Overlay and Entry Way Overlays to address issues of community character.
Updates to major facilities plans including Water, Wastewater, Fire, and Transportation (in
progress).
1 This statement is based on our review of planning documents completed since 2001 as well as the Planning Department
staff memorandum of June 2007 entitled, “Implementation Policy Status.”
Bozeman public involvement (City of
Bozeman).
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Development of the second Bozeman Parks, Recreation, Open Space, and Trails Plan
(currently in Public Review Draft).
Completion of a housing inventory and adoption of an affordable housing strategy.
Adoption of the North East Historic Mixed Use District.
2020 Plan areas for improvement
We have identified areas for improvement in the 2020 Plan for the City to address. Much of this
Analysis document necessarily focuses on detailed discussion of these areas for improvement. Some
of the areas for improvement are listed below and discussed in more detail in the Key Themes, later in
this part.
Updates needed to address growth and new topics since 2001
The 2020 Plan is in need of targeted updates due to growth
and other changes in the community since 2001. Growth
has been greater than anticipated in Bozeman and the
surrounding area since 2001. In addition, during this time,
new areas of attention have emerged in the community. The
2020 Plan is due to be strengthened in these areas.
“Housekeeping” updates needed to refresh data and
information
New data to update trends information is available. Also,
the implementation status of many topics in the 2020 Plan
document has changed since 2001, as addressed in the
June 2007 Memorandum entitled, “Implementation Policy Status” (City of Bozeman Department of
Planning and Community Development). (See Appendix B.) For example, neither the transit system
nor the new library had been built when related sections were written. The 2020 Plan needs to be
refreshed with current information to reflect changes on the ground as well as data updates.
Make the 2020 Plan document more user-friendly
Elected and appointed officials, as well as other community members report difficulty locating needed
information in the 2020 Plan. Many key community partners indicated that they are not familiar with
the content of the document and the guidance it provides. Furthermore, the Vision and other policy
guidance in the 2020 Plan is difficult to locate and use due to the length, structure, and style of the
document.
Clarify how facility and sub-area plans implement the 2020 Plan
While a close reading of the planning documents adopted by the City of Bozeman since the 2020
Plan reveals consistency with the 2020 Plan, we believe that the City could improve the community’s
understanding of how facility and sub-area plans implement the 2020 Plan. By using more explicit
language linking the facility or sub-area plans to relevant 2020 Plan goals, objectives, and policies,
the City could better demonstrate how the community Vision contained in the 2020 Plan is being
translated into more specific standards and actions in subsequent plans.
New Bozeman Library.
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Some implementation steps need revision
It is inevitable that some policies in a community plan will need
adjustment or redirection over time. Bozeman staff has indicated
certain policies and direction in the 2020 Plan are not as effective as
anticipated and need a revised approach. Some of policies in the
2020 Plan that should be reconsidered with this update include the
Neighborhood Centers concept, approach to Neighborhood and Sub-
area plans, and Growth Policy Review criteria.
Need more time in some areas to fully implement the
2020 Plan Vision
While in some areas the 2020 Plan remains strong and in others
improvements are needed, there are other instances where more time
may be needed to determine if the Plan is on track or if change is
needed. These are summarized below:
Lag between new standards and development
Many of the implementation steps require more time to be visible on the ground in Bozeman, such as
new design and development standards in the Unified Development Ordinance. Much of the
development being built in the Bozeman area today was approved before 2020 Plan adoption and
the 2004 revision of the UDO and therefore does not meet all of the current standards. We
understand that such developments will continue to be built for many years. One challenge of this lag
(between standards and what is built) is that the community does not understand that what they see
being constructed may no longer be allowed in current regulations.
Incomplete implementation steps
Despite impressive progress, some implementation steps from this ambitious plan are as yet
incomplete. As with any city, the resources available in the City of Bozeman are finite. When
possible, financial and human city resources should continue to be allocated to complete high priority
implementation measures of the 2020 Plan.
The 2007 update to the 2020 Plan
Montana State Law requires that a community update its growth policy every five years. As indicated
in this overall plan assessment, we find that the 2020 Plan is consistent with state requirements, is
based on a solid foundation of data and community participation, and contains many current best
practices. Therefore, we recommend that the City approach the 2007 update to the 2020 Plan as a
series of targeted revisions, rather than a complete overhaul of the Plan. Part IV of this document,
Approach to Plan Update Process, provides more detail on our recommendations for how to
approach the recommendations in this Analysis.
Following this introduction, the remainder of Part II, Overall Plan Assessment and Key Themes,
identifies six key themes for the updates to the community plan that elaborate on and expand this brief
discussion of areas for improvement in the 2020 Plan.
The 2020 Plan approach to
doing Neighborhood Plans
needs refinement.
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Key Theme 1: Address high rates of growth and development
Rapid and sustained growth is the single biggest change
agent in the City of Bozeman and the surrounding area and
is one of the most consistent issues of concern in the
community. The community’s desires today are consistent
with the policies and guidance found in the 2020 Plan
Guiding Principles and Land Use chapter. However, the
high importance and impact of rapid growth merit significant
attention in the 2007 update. Staff and elected officials
acknowledged repeatedly that coordination and interface
with Gallatin County and with other jurisdictions that control
lands in and around the City is a key facet of addressing
current growth-related concerns. Staff further indicates that
the rapid pace of growth has resulted in portions of the Land
Use element being out-of-date. Recognizing this, the elected
officials have directed staff to update the Land Use element
first. We support the concept that updating the Land Use
chapter should be a high priority within the 2020 Plan
update.
Add additional growth and land use policies
Due to continued strong growth in and around Bozeman, the Land Use chapter needs to be updated.
In addition, planning efforts since 2001 such as the new growth policy planning area for coordinated
planning with facilities prepared by staff and adopted by the City Commission should be incorporated.
A more detailed discussion of specific changes to the Land Use chapter is found in Part III, Chapter-
by-Chapter Analysis.
Redefine land use designations
Land Use designations on the Future Land Use Plan map will also require some reconsideration or
refinement. Community members and staff find certain land use categories and zoning designations
to be confusing, vague, or non-representative of the development taking place. Examples include the
Business Park category, which does not represent contemporary development practices; and the
Future Urban category, which seems to lead to confusion about anticipated timing of urban
development. We suggest a comparison of Land Use designations and zoning districts to make terms
clearer and consistent, to reflect desired development patterns (as indicated in standards), as well as
consideration of possible new or revised land use designations.
Link Land Use and Design chapters
Continued emphasis on the quality of development is another important growth-related issue in the
City of Bozeman. The design section of the Community Character chapter of the 2020 Plan
addresses quality of development. Those familiar with the City’s design standards gave high marks to
the design-related portion of the 2020 Plan and the resulting 2005 Design Objectives Plan (DOP).
Many community members are unaware of the most current design regulations, and based concerns
about design quality on some projects built in recent years that were approved under earlier
New housing development on
Bozeman’s northwest side of town
(Clarion). Continued growth means the
Land Use chapter of the 2020 Plan
needs to be updated.
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standards. Some noted that visual quality of a structure is of equal or greater importance to them
than the structure’s use. Overall, the design policies are strong, and the DOP is consistent with, and
faithfully implements, the 2020 Plan design section. However, policy recommendations in the Plan
will need to be updated in some instances to reflect adoption of the DOP as well as standards in the
development regulations. We find that both land use and design considerations are addressed in the
City’s development regulations. More explicit links should be made between the Land Use element
policies and the design-related policies of the Community Character element of the 2020 Plan.
Particularly, clear policy direction should be stated to indicate how to consider both use and form
considerations during development review decisions.
Address regional coordination
Interface with Gallatin County and other regional jurisdictions to manage growth patterns and growth
quality is one of the critical issues facing Bozeman. This issue is of particular importance, as the City
now has a window of opportunity to explore more formalized cooperation with Gallatin County, and
because of discussions regarding Transfer of Development Rights, coordinated development
standards, and recent successes on a regional transit system. It will be critical to Bozeman’s
sustainable future to address regional issues that cross jurisdictional lines, such as air and water
quality, with neighboring jurisdictions.
We recommend several enhancements to the 2020 Plan to elevate regional coordination policies and
implementation strategies, including the following:
Interlocal Agreements with Gallatin County: Direct staff to pursue interlocal agreements
with the County regarding coordination of development standards in joint planning areas,
regarding targeted growth areas, annexation, a proposed regional Transfer of Development
Rights program, and other urban edge growth issues.
Regional Coordination with Local, State, and Federal Entities: Identify specific
recommendations for cooperation with jurisdictions beyond Gallatin County that have
impacts on land use planning. Such entities may include federal agencies that manage
nearby lands, the City of Belgrade, and large land holders such as Montana State University
and the Montana State Lands Board.
Approach Issues Regionally: Indicate the desire to approach to air quality, transit, and
other regional issues cooperatively with other jurisdictions.
Key Theme 2: Enhance Plan’s focus on multi-modal transportation
Transportation and traffic congestion impact community livability, economic development, and
air quality in Bozeman. The rapid rate of growth in the Bozeman area continues to drive demand
for a truly multi-modal transportation system. The City recently completed a study of
bike/pedestrian facilities, and is in process of updating the Transportation Plan. Enhancing the
focus of the 2020 Plan to further advance a multi-modal transportation system is an important
issue for Bozeman and a key theme for this Analysis.
New strategies to reduce congestion
Despite a variety of efforts to reduce traffic congestion (e.g., recent improvements to collector
streets and revised street development standards for new streets), traffic congestion remains a
problem at peak travel times in Bozeman. Travel alternatives and street connectivity are related,
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ongoing issues that the City should also consider. The update to the 2020 Plan will need to direct
additional policies and strategies to continue to improve traffic congestion and reduce the impact
of growth on congestion.
Maximize the benefits of transit
An important new aspect of the Bozeman area transportation system developed since the
adoption of the 2020 Plan is the Streamline public transit system. The City contributes financially
to this system and has a seat on the advisory board. The 2020 Plan document should include
clear policy guidance and implementation items that address the importance of transit as a
strategy to achieve the community vision of a multi-modal transportation system. In addition,
staff should consider how transit may relate to and advance goals in additional chapters of the
plan. For example, the 2020 Plan could incorporate transit stops in the existing “center-based”
land use planning concept, or be identified as part of the
City’s strategies to promote public health by providing
service to Deaconess Health Services.
Enhance focus on multi-modal alternatives
The 2020 Plan should continue to address multi-modal
transportation alternatives, including pedestrian and
bicycle facilities. Given the importance of a truly multi-
modal system for Bozeman, the 2007 update should
consider additional policy direction and implementation
steps that may advance the community further in this
goal. As the Transportation Plan is developed, it should
guide updates to the 2020 Plan to ensure that non-
automotive travel options receive appropriate attention
and resource allocations in the future.
Key Theme 3: Address current community issues and trends
Several topics addressed briefly by the 2020 Plan are more important as issues of community
concern and attention today than they were in 2001. In particular, Bozeman community
members express heightened interest in economic development, arts and culture, and linking the
issues of land use and development design. The 2007 update should continue to advance the
community vision in the 2020 Plan by addressing these areas of increased community attention
more fully in the update.
Increase breadth of economic development strategies
Bozeman elected officials and community members indicate a strong desire to increase the range of
issues and strategies addressed in the Economic Development chapter of the 2020 Plan. Currently,
Chapter 7, Economic Development, outlines a fairly limited economic development strategy. The City
has not yet allocated resources to complete 2020 Plan implementation step #109, which calls for the
development of a City of Bozeman Economic and Business Development Plan. Economic
development topics for the 2007 update include:
The Plan update will need to focus on
transportation alternatives, including
pedestrian and bicycle facilities. (Photo:
LSA).
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Enhancing the scope of the City’s economic development strategy to include key areas such
as workforce development and building on the research and training offered by Montana
State University.
Adding policy direction that emphasizes growing local businesses over attracting established
businesses to move to the community from elsewhere.
Continuing emphasis on the need for a formal Economic and Business Development Plan.
Recognizing the strength of existing economic development organizations in the community,
and finding appropriate ways that the City can complement and support the efforts of these
organizations.
This Analysis indicates detailed recommendations for enhancing Chapter 7 in Part III, Chapter-by-
Chapter Analysis.
Put more emphasis on Arts & Culture
The arts and culture community in Bozeman has been building strength and momentum around the
idea of developing an Arts and Culture Plan for the Bozeman area. Several private arts facilities have
been established in Bozeman since 2001. Arts enthusiasts indicate there is a need for better
coordination and communication to avoid scheduling conflicts and improve synergy in the community.
Currently, Arts and Culture is a sub-section of Chapter 4, Community Quality, in the 2020 Plan. The
focus of the section is directed mainly toward art in the Bozeman community as a means of attracting
visitors to the community. Today, the interest in the Bozeman community is more to promote art and
culture as an important community asset and aspect of community livability for the residents of
Bozeman. As with the topic of Economic Development, above, it will be important that the City
recognize and coordinate with existing organizations, rather than duplicating or taking over the role of
such organizations.
Art and Culture should be elevated to a stand-alone chapter of the 2020 Plan. At that time, the
existing section should be expanded to address additional topics such as:
Public art,
Art and events in public gathering spaces,
Coordination of the arts community (i.e., a community arts calendar), and
Multi-use facilities and coordinated fundraising.
This Analysis indicates detailed recommendations for creating a new Arts and Culture chapter of the
2020 Plan in Part III, Chapter-by-Chapter Analysis.
Address link between land use and design and form-based planning
The 2020 Plan addresses the issues of land use and design quite thoroughly in Chapters 6 and 4,
respectively. Increasingly, however, the Bozeman community seeks to link these two concepts. As one
focus group member stated, “I care more about the aesthetic impact of the building than exactly what
is in it.” While certainly there are limits to this idea, it is a sentiment expressed in many communities
today.
Traditional zoning districts are primarily distinguished by the uses that are allowed. Nationwide, as
communities adopt design standards (such as the Design Objectives Plan in Bozeman) local
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communities are finding that a wider range of uses is compatible and acceptable in close proximity to
one another. Local development standards, including the Bozeman Unified Development Ordinance,
increasingly link design and allowed land use, by implementing hybrid “form-based” and “use-based”
development standards. We recommend that the Land Use and Community Character chapters of
the 2020 Plan be updated to include policy guidance directing how Bozeman should balance design
and use considerations when making decisions about proposed development.
Key Theme 4: Incorporate recent and current facility and sub-area
plans
The City of Bozeman has completed an impressive array of plans since the 2020 Plan was
adopted in 2001, including:
Fire Protection Master Plan;
Bozeman Police and Municipal Court Facilities Needs Assessment and Facilities Plan;
Water and Wastewater Facilities plans;
The Parks, Recreation, Open Space and Trails Plan (draft);
The Transportation Plan (in progress);
Updated Design Objectives Plan for entry corridors; and
Design Guidelines for Historic Preservation and the Neighborhood Conservation Overlay
District.
These recently completed and in-progress planning efforts should inform and be incorporated into the
2007 update to the 2020 Plan.
Use current trends and public opinion information
Each of these recent plans involved well-executed research and public participation, all of which is
quite current. The City should capitalize on the knowledge and content from these recent planning
efforts in this update, to serve as the basis for revisions to the inventory information and policy
direction in related chapters of the 2020 Plan, and as a starting point for the 2020 Plan update
outreach process.
Streamline 2020 Plan chapters
In some cases, the 2020 Plan chapters include information that is redundant to, or less current than,
the material that is now available in these detailed stand-alone functional and facilities plans. These
detailed, current plans allow for the 2020 Plan chapters to be streamlined to provide broad-level
policy direction and guidance, while detailed data, inventories, and standards is kept in the facility
plans. We suggest that the 2020 Plan chapters that are implemented by facility plans should now be
revised to focus on key policy issues.
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Key Theme 5: Make the Vision compelling and accessible
The 2020 Plan contains many powerful
and innovative ideas, each of which
can lead the City towards a better
future. However, they are imbedded in
the body of the text of the document in
a rather disconnected manner. We
have found in our experience with
other progressive communities that a
cohesive vision can serve as a unifying
element of the Plan. The Vision and
supporting Guiding Principles should
be a strong section that can also
stand-alone outside of the Plan
document (e.g., on a poster or in an
Executive Summary or brochure), and
serve as a guide for high-level policy
and decision-making. To further
reinforce this recommendation, we
also suggest that the 2020 Plan
chapters be reorganized to bring the goals in each chapter forward where they are easy to
locate, and relate them to the Vision/guiding principles. These relatively simple changes will go a
long way towards unifying the 2020 Plan and enabling it to serve as a unifying document for the
community’s development.
Key Theme 6: Make the plan more user-friendly
Staff, elected and appointed officials, and community members consistently reported difficulty
finding the information in the 2020 Plan that they need for guidance and decision-making. The
2020 Plan is difficult to navigate due to the lack of a coherent system of visual cues or page
headers. Many of the most important lists of criteria, goals, and other policy direction are difficult
to locate and its applicability is not clearly indicated. Because the 2020 Plan is intended to guide
all city plans and decisions, it is critical to make the valuable policy guidance it contains easy to
find and use. Some simple formatting could go a long way toward making the plan much easier
to navigate, as suggested below.
Create an Executive Summary
The 2020 Plan is a large document that can be intimidating to an unfamiliar reader. Many
community members will not read the full document, so it is very helpful to include the most
pertinent information in a brief but meaty summary. Also, a summary is a very useful tool to
present a broad-brush picture of key community issues and values to a variety of audiences, from
developers as they begin planning, to businesses considering relocating, to potential grant-
funders or potential employees, and many others.
The 2020 Plan’s vision and big ideas should be compelling
and accessible. The example above is from the Town of
Pagosa Springs, Colorado Comprehensive Plan.
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Elevate some sub-topics to chapter status
Some critical information for decision-makers (e.g., the Planning Board and City Commission) is
buried within long chapters. The Plan would be easier to use for decision-makers if such
information were located in stand-alone chapters. Two topics that we suggest should be moved
to new chapters are:
Regional Coordination and Cooperation; and
Criteria for Review and Amendments to the Plan.
Create an Action Plan to implement the goals and objectives
The Implementation chapter of the 2020 Plan contains a long list of implementation steps with
little indication of priority level, timing, or responsibility for achieving them. Reorganization of the
Implementation chapter could improve community understanding of how the City will accomplish
the 2020 Plan’s Vision and what can reasonably be accomplished in the near, middle, and far-
term. We suggest an “Action Plan” format, and provide an example of one in Appendix C and
below. This could also serve as an ongoing work program for planning staff and the Planning
Commission.
The simple Action Plan shown above lists strategies, type of action to take place (e.g., LUDC, means “Land Use
Development Code revision”), and timing (e.g., 1 means “within one year”). A more complex Action Plan could
also assign responsibilities. As the City completes action items, it could update an Action Plan such as this from
time to time.
Improve document formatting for ease of use
Document formatting can greatly improve user-friendliness of any document. The 2020 Plan is very
text-heavy and densely worded. It is difficult to locate information or understand the hierarchy of
ideas in the plan due to the current format and organization that is not consistent between chapters.
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We suggest a variety of formatting techniques such as:
Use formatting elements such as using a hierarchy of fonts, headers, and similar visual cues
to help the reader track the hierarchy of ideas;
Add side-bars or pull-out boxes to highlight “big ideas”; and
Increase the use of graphics, photographs, and other visual aides.
These formatting concepts are discussed further in Part III, Chapter-by-Chapter Analysis, General
Recommendations for all Chapters.
Make the plan more
accessible on the Internet
As currently formatted and
organized, the 2020 Plan is
difficult to use as a web-based
document. We suggest
streamlining the document for a
variety of reasons, which will
result in a document that is less
bulky, and easier to use on the
Internet. We also suggest that
the City consider creating a
version of the Plan with web-
friendly formatting such as
hyperlinks between chapters and
related topics. There are many
emerging examples of web-
based plans (see sidebar for
examples of web-based plans).
Bozeman could consider creating a version of the updated Community
Plan with web-friendly formatting (Example: Henderson, Nevada -
Comprehensive Plan).
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Part III: Chapter-by-Chapter Analysis
Introduction
Purpose
The purpose of Part III, Chapter-by-Chapter Analysis, is:
To apply the general concepts from Part II: Overall Plan Assessment and Key Themes to
each chapter of the 2020 Plan.
To provide specific recommendations for how to approach updates to each chapter.
To serve as a resource to staff as various chapters of the plan are updated.
Note that Part III necessarily focuses on aspects of the 2020 Plan where we find potential for
improvement. The 2020 Plan has many strong points, some of which are discussed in Part I,
Introduction, and Part II, Overall Plan Assessment and Key Themes. For the sake of brevity, the
strengths are not repeated here.
Organization of Part III, Chapter-by-Chapter
Analysis
The first section of Part III, General Comments for All Chapters,
focuses on formatting and organizational recommendations that
apply to all chapters of the 2020 Plan. Next, we review each
chapter and note additional comments that apply to the specific
chapter, and provide some specific examples relating to the
comments. The individual chapter comments generally address
content and policy revisions, but specific organizational or
formatting considerations are also noted where appropriate.
Additionally, the appendices offer samples of plan chapters from
other communities that illustrate examples of the types of
formatting and organizational suggestions offered.
General Recommendations for All
Chapters
Improve functionality through formatting
As discussed in Key Theme 6, formatting and organizational
changes can greatly improve the functionality of the 2020
Plan to make it easier to navigate and use. While the 2020
Plan chapters contain a great deal of important information
and policy direction, it is often difficult to locate and apply the
information due to the current plan’s format and
Use of Terms
In this document, the following
planning terms are used as
indicated:
“Vision Statement” means
a description of the ideal
picture of the future. The term
includes items named in the
2020 Plan as vision and
guiding principles.
“Policies” or “Policy
guidance” refers to goals,
objectives, and other statements
that set the direction for City
programs and other efforts, and
that are used to guide staff and
decision-makers’ actions.
“Implementation steps”
refers to specific actions
designed to realize the vision
and implement policies. In the
2020 Plan, these are referred to
as “implementation policies.”
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organization. A few simple ideas that could improve the plan’s functionality are suggested,
below.
Use illustrations, photos, and graphics to convey ideas
First, illustrations, graphics, and photos improve reader understanding
and reduce the need for lengthy descriptions, helping to streamline the
document. We recommend using graphics and photographs where
possible to illustrate design concepts and land use designations.
Converting tabular data to graphs or charts, which are easier to
understand and adding photographs of new development that has
occurred since 2001 that implements 2020 Plan concepts, could
illustrate positive examples of desired development patterns.
Use page headers and footers to guide the reader through the
plan
Adding chapter and subsection headers and footers would better orient the reader and allow users to
more easily find information of interest and track where they are in the document. Also, as chapters
are updated, we suggest including the date of the last adopted/amended version of the chapter in the
header or footer.
Highlight big ideas in each chapter
The plan contains many “big ideas” that are central to positive change for the community. But
contained as they are dispersed in the body of the text, they are easy to overlook. Formatting
elements such as sidebars or other means of reinforcement can call attention to key concepts from
each chapter, section, or paragraph with or without significant reorganization of the chapter contents.
Use visual cues to distinguish the hierarchy of ideas
A set of consistent subheadings will help readers to understand the hierarchy of ideas being presented.
The hierarchy of topic headings can be established through font sizes, changes in color, italicization,
indenting, and/or highlighting. These signals help readers distinguish relationships between topics
and sub-topics. Establish a consistent template, and use it as each chapter of the document is
updated.
Add descriptive subheadings
We recommend adding more subheadings within the text portions of the document to identify ideas
and topics within the numbered Sections. Such headings allow the reader to more quickly scan the
document for key topics and information.
Example: Section 10.2 Link Between Transportation and Land Use/Development, is three pages
long with no subheadings. This section would benefit from sub-heading such as “Transportation
Shapes Uses,” “Historical Transportation Development in Bozeman,” “Rational for Coordinated
Transportation and Land Use Planning,” and “Transportation Systems and Center-Based
Planning.”
Formatting elements to
improve functionality:
9 Subheadings
9 Graphics
9 Photographs with captions
9 Headers and Footers
9 Side-bars
9 Highlighted boxes
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Create a consistent organizational structure for all chapters
Currently, the chapters of the 2020 Plan are organized in an inconsistent manner. We recommend
developing a consistent organization and applying it to each chapter. This chapter structure would
greatly improve the ability for readers to find key information, policy direction, and
background/inventory material. We suggest organizing the policy chapters according to the following
four headings, described further in the sections below:
A) Purpose/Vision Statement
B) Chapter Goals and Objectives
C) Cross-references to related chapters
D) Background and inventory data
A. Include a Purpose/Vision statement for each chapter
First, it would be helpful for each chapter to contain a clear statement of its overall intent, drawing on
the Vision Statement (pages 1-1 to 1-2) that applies to the chapter topic, and/or portions of the
existing introductory paragraph(s). See the sample chapters included with this document for examples
of purpose statements.
B. Consolidate chapter Goals and Objectives
Second, a growth policy is, at heart, an advisory document that provides policy direction. Currently,
much of the 2020 Plan policy guidance is blended with historical information, inventories, trends, and
future projections, or is included at the end of each chapter. Locating the goals and objectives for
each chapter toward the front of the chapter could greatly facilitate using the document—without
having to sort through background information first.
We further recommend placing policy and decision-making criteria under distinct sub-headings where
staff, developers and decision-makers can easily reference them.
Example: Section 4.0.4 includes a list of “key elements of traditional development patterns” on
page 4-8 that is buried in the body of the chapter. We suggest placing this and similar lists in a
sidebar or pull-out box, with a heading and purpose statement.
C. Cross-reference related topics in other chapters
Because the topics and policies within the plan overlap substantially, it would be helpful to briefly
describe the link between the goals/objectives of the particular chapter at hand with other chapters.
Ideally, this material would be formatted in as a short (one or two paragraph) narrative description
with a table showing overlapping topics, such as the example provided on the next page.
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D. Consolidate inventory and background material
The 2020 Plan contains data and background information in each chapter. While such material may
be valuable for understanding policy rationale or as an inventory of existing conditions, as currently
formatted, it dilutes the ability of the user to pull out key policy guidance. Rather than mixing inventory
and background materials with goals and objectives and criteria, we recommend consolidating it in a
section within each chapter, or in an appendix.
Each location has advantages and disadvantages. Keeping it within each chapter would keep the
inventory materials with other related material but makes the body of the plan longer. An appendix
location would allow the City to easily update such information, which tends to become outdated
quickly. (Also see comments, below, on streamlining the level of detail of inventory/background
information in chapters that are implemented through facility plans.)
Consolidate “implementation policies”
The inclusion of implementation policies in each chapter is redundant. We suggest removing them
from the individual chapters. As indicated in the key themes and detailed in the analysis of Chapter
13, Implementation, we suggest reorganizing implementation items into an “action plan” format that
will demonstrate the link between overall plan/chapter goals and specific implementation steps, with
all required action items consolidated in a single chapter.
Indicate the purpose of key sections of each chapter
For each chapter of the 2020 Plan document, key sections, such as design principles, should include
a purpose statement (i.e., who should use the information contained there, and for what purpose).
This is particularly critical for the policy principles and guidance portions of each chapter, including
the Vision section of Chapter 1, Dealing with Change, and policy direction in the substantive chapters.
As is noted throughout this report, our reasoning for this suggestion is that it is not always clear how
some of the information contained within the plan is to be applied.
Example of cross-reference approach from
Steamboat Springs Community Area Plan
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Example: Section 6.1.2, Land Use Principles, should identify applicability at the start of the
section:
Staff when developing all land use planning documents such as neighborhood plans; and
Developers when proposing developments and zoning map amendments; and
Elected boards and commissions when reviewing proposed development to determine
compatibility with the 2020 Plan.
Streamline chapters with related facility or sub-area plans
Many of the substantive chapters set the framework for topics that are also addressed through more
detailed facility plans (e.g., Parks or Transportation). It is important to consider the appropriate level
of detail for the 2020 Plan. The 2020 Plan should set broad policy, while the facility and sub-area
plans are more specific. The City has developed and adopted several of these facility or sub-area
plans since adoption of the 2020 Plan. These plans generally would be expected to contain more
current as well as more detailed information. Each chapter of the 2020 Plan that is tied to a facility
plan should contain strong cross-links and references, to guide the user to the appropriate related
plan.
Generally, the existing 2020 Plan chapters that are implemented
through facility plans contain too much specific inventory and
conditions information. We recommend streamlining the inventory
information in the 2020 Plan, so the detailed historical and
inventory information is primarily housed in the facility plans. By
keeping detailed information in those plans, the City will be able
to more easily keep information current—and will only have to
update it in one document. Detailed implementation steps should
be located within the facility plans, as well.
Establish broad policy direction through the 2020
Plan
As expressed in the first three implementation policies of the plan
(at right), the 2020 Plan should be an umbrella policy document
that establishes broad direction for other city actions including
development of related plans and standards.
Provide the highest level of direction
The 2020 Plan fails in some cases to set broad guidance, and
instead, inventories the policies of existing facility or sub-area
plans (e.g., page 4-6 summarizing the intent of the Sign Code).
The language of the 2020 Plan must clearly lead, not follow, and
must coordinate specific sub-area and facility plans. Even when
an existing plan exemplifies the desired policy direction, the 2020
Plan should state the desired policy direction to be used in future
planning efforts.
Bozeman 2020 Community
Plan
IMPLEMENTATION POLICY
#1: The Bozeman 2020
Community Plan is the guiding
policy and decision making tool
for decisions made by elected,
appointed and administrative
officials.
IMPLEMENTATION POLICY
#2: The Bozeman 2020
Community Plan shall guide all
capital facilities planning and
constructions, which shall
further the community vision
described in the Bozeman 2020
Community Plan.
IMPLEMENTATION POLICY
#3: …all municipal ordinances
[shall] comply with and advance
the goals, objectives, and
community vision described in
the Bozeman 2020 Community
Plan…
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Add guidance for new best practices
Many City of Bozeman plans and regulations developed since 2001 incorporate cutting edge
planning trends and concepts. Some of the best practices contained in the facility or sub-area plans
and standards are not clearly indicated in the policy guidance in the 2020 Plan, such as the link
between community health and design of the built environment. The 2007 update to the 2020 Plan
should add policy guidance on planning concepts that have recently emerged and are appropriate for
Bozeman.
Avoid specific standards
In some instances, the 2020 Plan contains overly-specific standards. The 2020 Plan update should
avoid setting detailed standards (such as the spacing standard for street trees) or determining specific
implementation actions (such as capital expenditures). These should be contained in facility plans and
in regulations.
Move summaries of facility or sub-area plans out of chapters
Many of the chapters contain summaries of existing facility and sub-area plans. We suggest locating
these embedded plan summaries to an appendix or separate chapter, where staff may readily update
the information as new plans are adopted. It would be helpful if each facility and sub-area plan
includes an executive summary that could be the basic information to include in the 2020 Plan.
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Chapter 1: Dealing with Change
Chapter 1 Overview
The Dealing with Change chapter sets out the rationale for the 2020 Plan and establishes the broad
Vision for the Bozeman Community. It addresses topics including:
Vision for the future of Bozeman,
Guiding principles for the community plan,
Response to change,
Coordination and cooperation (with Gallatin County),
Tools to shape change.
Recommendation: Mostly organizational changes with minor content changes
Chapter 1 contains some key elements of a community plan. Most of the recommendations for the
chapter are organizational; however, we also recommend a few revisions to policies to address shifts
in emphasis since 2001.
Make organizational changes specific to Chapter 1
This chapter contains important components of the vision and purpose of the plan, but they are
difficult to find due to organizational and formatting issues. Restructuring Chapter 1 will help make
the vision more compelling and accessible. (See Key Theme 5.)
Make the Vision accessible
One very important function of a growth policy is to set out a vision for the future. A rigorous public
process in 2000-2001 resulted in a community-based vision for Bozeman, which is found on pages
1-1 to 1-3. Ideally, the vision should be located front and center in the 2020 Plan, and be able to
stand-alone. We recommend that the Vision for the Future be reformatted in a manner that makes
the vision more compelling. For example, the vision statement addresses a broad range of topics and
themes; unique identity, economy, downtown, natural resources, etc. A newly organized Vision
Statement, with headings and supporting visuals, can paint a more compelling picture of the City’s
future, without rewording or fundamentally changing the vision. Information such as the explanation
of the relationship of the vision to the remainder of the plan document, which now precedes the vision
itself, should follow the vision statement.
Move guiding principles for the plan to Chapter 2
Guiding principles for the 2020 Plan are located on page 1-3 at the end of the “Vision for the Future”
section. These guiding principles are a compelling statement of what the 2020 Plan can and should
do for Bozeman that should be made more prominent. These principles should be moved to the start
of the material that describes the plan, its purpose, and its organization, which are located in Chapter
2, Introduction, and should be linked to the Plan’s vision.
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Make the Coordination and Cooperation section a new, stand-alone chapter
As described in Key Theme 3, Regional Cooperation and Coordination is an issue identified in the
Bozeman community as deserving of greater attention at this time. Therefore, we recommend that the
Cooperation and Coordination section of this chapter be moved to a new, stand-alone chapter. At
the same time, expand the section from its current focus on Gallatin County to address regional
coordination with a wider range of jurisdictions.
Identify and emphasize the tools section
Section 1.4, Shaping Change, discusses types of tools (regulatory and non-regulatory) that may be
used to implement the vision. This heading should be more specific to enable a user to locate these
important contents such as “Tools for Implementing the Vision.” At the same time, add subheadings
such as “Regulatory Tools” and “Non-Regulatory Tools” to identify key concepts.
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Chapter 2: Introduction
Chapter 2 Overview
Chapter 2 describes the 2020 Plan planning area, the need, purpose and legal requirement for a
growth policy, and the process and criteria for updates to the plan. Specifically, it includes the
following sections:
Planning area,
Plan organization and administration,
State requirements,
Need for a plan,
Review and amendments to the plan,
History of planning in the Bozeman area,
Plan elements, and
Planning process.
Recommendation: Overall, many organizational and housekeeping changes
We recommend a number of organizational and housekeeping changes for this chapter to make
the key information more accessible and to improve its user-friendliness. We also suggest
enhancing the purpose section somewhat.
Policy revisions needed
Add public safety and welfare basis to the Purpose section
Staff has indicated that information made available to the community about the impetus for planning
and development standards (i.e., to protect public health and welfare) has been well received. We
agree with staff that such information would be useful to include in the 2020 Plan and suggest that
the purpose section of this chapter is the appropriate location. This section could also address the
limits of local government to control all of the factors that drive change, including matters of state,
federal, and county jurisdiction, and factors such as the national and regional economy.
Make organizational changes specific to Chapter 2
The content of Chapter 2 is different from the substantive chapters that follow it. The general
organizational comments may not apply as readily to this chapter, therefore we offer specific
recommendations for organizing this chapter. We suggest that the material in this chapter be
addressed in the following order:
1. Purpose statement that includes the Guiding Principles for the plan (now located on page 1-3
in Chapter 1, Dealing with Change).
2. Planning Area.
3. Need for a Plan. Make the State Requirements section a subsection at the end of this
section.
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4. Consolidated Plan Organization, Administration, and Plan Elements sections, using
subheadings.
5. The History of Planning in Bozeman—should either be placed at the end of the chapter,
or as an appendix.
We recommend putting the Review and Amendments section in a stand-alone chapter. See the
New Chapters section of this document for detail on this new chapter. In addition, put the
Related Documents section in an appendix, expanding on the existing Appendix F, Other
Documents, where this material may more easily be kept up-to-date.
Specific housekeeping changes are needed
Some content in this chapter require updating to reflect implementation progress since 2001 and the
current update. These are:
Update Planning Area section with new joint planning area map. Replace table of
annexations with a map showing lands annexed by decade.
In the Need for a Plan section, include information on this 2007 update to the 2020 Plan
(e.g., under section 2.3.2, Why a New Plan Now?).
Update the Related Documents list to reflect the substantial number of new plans that
have been completed since 2001 (note our recommendation above, to move this
material to Appendix F).
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Chapter 3: Background
Chapter 3 Overview
Chapter 3 contains contextual information about the Bozeman area and community. Specific topics
include:
Historical perspective,
Physiography,
Attractions,
Community characteristics, and
Projections.
Recommendation: Minimal housekeeping and organizational changes
This chapter needs very little revision. However, the Community Characteristics and Projections
sections will need to be revised to reflect recent growth trends and projections data, depending
on availability of more recent information. Given rapid growth in Bozeman, this information
tends to get outdated quickly. In addition, staff should consider whether to move some of this
inventory and trends data to an appendix, where it can more readily be updated.
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Chapter 4: Community Character (Community Quality)
Chapter 4 Overview
The Community Character (also called “Community Quality”) chapter addresses those things that
“make Bozeman a special, attractive, and enjoyable place to live.” It contains a variety of topics
including:
Community design (including design review programs, overlay districts, sign code, urban
development design, and suburban development design),
Neighborhood design,
Design guidelines (commercial and residential),
Public landscaping and architecture,
Urban forestry,
Public health,
Arts and culture,
Downtown Bozeman, and
Historic preservation.
Recommendation: Modest substantive changes
We recommend modest substantive changes to this chapter but suggest significant reorganization
needed for clarity of ideas and ease of use. The core of this chapter is urban design. The first three
sections, all regarding design issues, comprise more than half of the chapter. Overall, community
members who are familiar with the design section of this chapter, and the 2005 Design Objectives
Plan that implements it, are satisfied with the direction of policy and the adopted design guidelines.
Those who were not familiar with these design documents expressed a desire for development quality
standards that are consistent with existing policies and standards.
We do not recommend significant changes to the substantive design content of this chapter; it
addresses contemporary planning “best practices” and ideas. However, it would help to consolidate
and simplify the presentation of the design principles. In addition, we recommend moving Arts and
Culture and Historic Preservation into stand-alone chapters. We also recommend some modest
updates for health policies to reflect new directions in that field.
Change chapter title to better reflect contents
The titles “Community Quality” and “Community Character” are both used in the plan, therefore, the
title should be consistent—using one, not both. We recommend a new title of “Community Character
and Design,” to reflect the chapter’s emphasis on built form.
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Policy revisions needed
Add policy guidance to encourage health through design of the built environment
We recommend enhancing the Public Health section to directly address active living through design of
the built environment (for instance, walkable neighborhoods). Many Bozeman development standards
already promote this aim; therefore, this suggestion is not intended to redirect City policies or actions,
but rather to acknowledge the support in the community for the existing approach and to establish
support its continuance.
The text of the final paragraph of the section, (pages 4-17 to 4-18), establishes links between
community health and a variety of other topics addressed by the 2020 Plan. We suggest a matrix
approach to bolster the portion of each chapter that addresses such linkages, as provided in Appendix
C and on page 20.
Example: The matrix should indicate the existing coordination of public health objectives with
community design, land use, and transportation planning goals and objectives, such as 4.9.1,
Community Design, which includes a call for neighborhoods that include walking and bicycling
infrastructure, and others.
Add built environment and public health link as an objective
We recommend that one or more of the Public Health goals/objectives be written to encourage
linking the design of the built environment to community health. A potentially appropriate location for
such an objectives statement(s) would be an objective under Goal 4.9.6, Public Health, that promotes
“a holistic approach to community health.”
Add Downtown goals and objectives
Currently, this chapter does not contain goals or objectives corresponding with Section 4.7,
Downtown. However, Chapter 6 (Section 6.6.4) contains goals that should be consolidated into this
chapter (or into Chapter 6). The text of this section expresses the community’s desire to maintain
Downtown as a vibrant center in Bozeman. Several implementation policies (notably #49 and #55)
direct enhancement and preservation of Downtown. The ultimate character and function of
Downtown will likely come up as a discussion topic during the plan update process.
Bozeman Downtown is a vibrant center
of the community. The 2020 Plan
update should consolidate goals and
objectives for Downtown.
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Make organizational changes specific to Chapter 4
Varied content will require substantial cross-referencing
Because of the variety of topics the Community Character chapter covers, it should cross-reference
overlapping issues and make linkages to other chapters. For instance, the health section could
reference the importance of walkable neighborhoods (transportation), mix of land uses (land use), with
design.
Format design criteria in separate subsections with clearly stated purposes
The Community Character chapter contains helpful design criteria in sections 4.0 to 4.4. However, it
is not clear to the reader how this material is to be applied. Each of these sections is discussed briefly
below.
Section 4.0.3 contains a summary of existing regulatory programs grouped under the heading of
“Existing Design Review Programs,” including:
Conservation Overlay District,
Entryway Corridor Overlay District, and
Sign Code.
These criteria provide important guidance for developers attempting to meet the design intent of the
design concepts and for decision-makers determining compatibility of development proposals with the
2020 Plan. It would be helpful if each district or guidelines element could be organized in a similar
manner, with subheadings of Purpose; Applicability; and Description of Standards or Guidelines.
Cross-references to the UDO should also be included.
Sections 4.0.4 and 4.0.5 contain planning concepts and design criteria related to Urban
Development Design and Suburban Development Design. It is not evident to the reader what the
intent is of these two sections. They provide useful background and historical context on Bozeman’s
development patterns, but would benefit from more clarity on the purpose, intent, and applicability of
this information.
Section 4.1, Neighborhood Design, contains suggestions for a Neighborhood Planning process. It
refers to the formation of an Inter-Neighborhood Council. This section should be updated to reflect
any actions taken in that regard. We suggest that this section be renamed “Neighborhood Planning
and Design,” to reinforce its emphasis on plan-making for neighborhoods.
Section 4.2 is entitled Design Guidelines; however its purpose is not clear. Is it intended to be used
as guidelines for commercial development, or is it a statement of policy that guidelines should be
prepared? Again, the purpose and intent should be clarified.
Make new Arts and Culture and Historic Preservation chapters
The community is now more focused on Arts and Culture and Historic Preservation than in 2001,
when the plan was adopted. Because of renewed focus, these subjects may merit becoming stand–
alone chapters.
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Section 4.6, Arts and Culture. The Arts & Culture community in Bozeman is gaining in strength and
numbers. Members of the arts community have organized a Cultural Council that is seeking better
long-range planning for the arts and better coordination
between the City, the arts community, and other community
organizations to reach shared goals. Based on this increased
focus and interest in the community, we suggest developing a
new Arts & Culture chapter. In addition, the City should test
and revise Arts and Culture goals and objectives through the
public planning process to determine if new goals are
necessary and to consider what action steps could further the
plan goals. (See Part III, Chapter-by-Chapter Analysis,
section on New Chapters, for additional details.)
Section 4.8, Historic Preservation. The Bozeman community
has a strong focus on historic preservation, with seven
designated historic districts in the City and a strong, intact
historic character in the Downtown. In 2006, the City updated
the Historic Preservation Guidelines and Neighborhood
Conservation Overlay District to conform to and better
implement the 2020 Plan goals and objectives. Based on the high level of community interest and
recent planning work accomplished in this area, we recommend making a new Historic Preservation
chapter. At this time, no new policy direction appears necessary for Historic Preservation, but topics
may arise during the update process.
Specific housekeeping changes are needed
Update language to reflect the 2005 Design Objectives Plan
When the City adopted the 2020 Plan in 2001, the community
needed updated design guidelines. The text of Section 4.2, Design
Guidelines, discusses this need and suggests foci for the new
guidelines. Since this time, Bozeman has developed and adopted
the 2005 Design Objectives Plan. Therefore, this section should
reflect the completed state of the guidelines—either removing the
direction or retuning it.
Update language to reflect the 2006 Historic Preservation and
Neighborhood Conservation Overlay District
Bozeman updated its Historic Preservation Guidelines and the
Neighborhood Conservation Overlay District in 2006. Therefore,
sub-section 4.0.3, Existing Design Review Programs, and Section 4.8, Historic District, should—in the
update—indicate the impetus for and completion of that plan update, and include any new emphasis
or intent that emerged from it. Also, the City should eliminate or update Section 4.8, which refers to
activities anticipated “in the coming months” (page 4-23).
Historic preservation is important to the
community. The 2020 plan update
could make Historic Preservation a
stand-alone chapter to highlight it as a
core value.
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Chapter 5: Housing
Chapter 5 Overview
This chapter addresses housing types (supply) and needs
(demand) in Bozeman. Topics include:
Housing quantity, size, age, occupancy, tenure, and
affordability,
Homelessness,
Special needs populations,
Rental rates, vacancy,
Displacement,
Impacts of MSU on housing, and
Housing supply and diversity.
Recommendation: Minimal substantive changes, mostly chapter reorganization
This chapter can benefit most by reorganization following the general outline as indicated in
General Comments for All Chapters, early in Part III. More detailed guidance is provided below.
We suggest updates to some data as well.
Policy revisions needed
Address link with residential design standards
Housing quality is an important topic in this chapter as well as in
Chapter 4, Community Character. This chapter should link the
topics, and should note that quality design enhances the
appearance and livability of housing and neighborhoods; at the
same time, it adds value to homes that are intended to be
affordable, increasing their market price. The 2020 Plan should
provide policy guidance on balancing affordability and design.
Develop a Strategic Housing Plan
The 2020 plan indicates (on page 5-13) that the City might best address the issue of housing by
developing a Housing Plan, and implementation policy #45 directs the City to prepare and
implement a Strategic Housing Plan.
Specific housekeeping changes are needed
Include adopted affordable housing efforts and strategies
Staff indicates that the City has undertaken a variety of strategies to address the need for affordable housing in
Bozeman. Many of these are regulations required of new development in the Unified Development Ordinance,
(updated in 2004) to require minimum residential densities. The City more recently amended the UDO to
The update to the 2020 Plan
should indicate how
Bozeman has tackled issues
of housing diversity and
affordability with innovative
approaches since 2001.
Historic home, Bozeman.
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require that ten percent of lot area in new subdivisions be configured in lots of 5,000 square feet or less. The
update to the 2020 Plan should indicate how Bozeman has tackled issues of housing diversity and affordability
with innovative approaches since 2001. It should also reflect the recently adopted Ordinance 1710 on
workforce housing.
Update the inventory and trends data
This chapter should be revised to include more recent data points, such as housing permits issued
since 1999, and recent windshield survey information. Also, add information on the average size of
built structures when it becomes available.
Make organizational changes specific to Chapter 5
Reorganize to address topics of high importance first
Some of the housing-related topics of greatest interest to and
impact on the community, such as affordability, are located
near the back half of this chapter, making it harder to find
these topics. While reorganizing this chapter with a goals
and objectives section, it would be helpful to place topics of
highest community concern earlier, and address issues of
lesser impact on the community later in the section. For
example:
First, address issues of high community concern
such as affordability (Section 5.1) and displacement
(Section 5.4).
Next, include general interest topics such as supply and demand (subsection 5.0.1) and
rental vacancy rate (Section 5.3).
Finally, include issues such as homelessness (subsection 5.1.3), impact of MSU on housing
(Section 5.5), and special needs populations (Section 5.2), which the plan indicates have
modest impacts on housing in Bozeman.
New home in Bozeman
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Chapter 6: Land Use
Chapter 6 Overview
This chapter guides future land use within the Planning Area and includes the following sections:
Past Land Use Patterns,
Land Use Vision (Centers, Sense of Place, Integration of Action),
Land Use Principles,
Neighborhood and Sub-area Plans,
External Influences on Land Use Planning,
Land Use Designations and Map (Existing Land Uses, Future Land Use Plan Map, Annexation),
Overlay Districts (Existing Overlay Districts, Capital Facilities Priority Area),
Land Use and Facility Plans,
Implementation and Administration, and
Land Use Goals, Objectives, and Implementation Policies.
Recommendation: Reorganization and revisions to land use designations and
land use map
Due to rapid growth, staff will need to spend considerable effort on land use during the plan update.
Updates will likely involve substantive changes to the chapter organization, the Future Land Use Plan
map, and the land use designations to reflect current practices, best practices, and market needs.
Future Land Use Plan map revisions
Revise Future Land Use Plan map changes and designations
The Future Land Use Plan identifies future growth areas and land uses in the community. It also helps
implement the policies in the plan relating to growth and livability of the community. The current
Future Land Use Plan contains twelve land use designations. Their organization and description
appears to be conventional—single-use categories segregated from one another. However, in
practice and described in the plan, these categories actually allow a mix of uses (e.g., residential and
non-residential. We recommend that the description of land use designations be clarified to explicitly
note that the intent is to be flexible and allow for some mix of uses. This would make the plan more in
sync with the City’s newly revised Unified Development Ordinance (which is a hybrid form-based code
and traditional zoning code) and with current values of the community.
Clarify the Residential designation and add criteria
The Residential designation encompasses all types of residential and does not clearly provide criteria
on where types of residential should occur and their relationship with each other (e.g., higher density
near transit and neighborhood centers) or guide how neighborhood commercial might be integrated
into residential areas so it occurs regularly in neighborhoods (e.g., on the south side of town). We
recommend clarifying, and perhaps adding where missing, criteria.
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Update the Future Urban boundary
The Future Urban category designates areas where staff does not consider development to be likely to
occur during the 20 year term of the plan. The intent is that this boundary will change every five
years—with each plan update—which needs to be clarified in the Plan. In addition, the 2020 Plan
assumes the Residential designation contains adequate area to accommodate growth within the 20-
year horizon. During the six years since the last plan, growth has been greater than expected. Based
on current market demand, it appears some expansion into areas designated Future Urban will be
necessary in the new 20-year horizon; the City will need to determine for this update where the
community is likely to expand into the Future Urban area, and if the designation needs to be revised.
The boundary should continue to be evaluated during each plan update.
One additional consideration is the establishment of a process for amending the Future Urban
boundary between Community Plan amendment cycles (see also recommendations to add a Plan
Review and Amendments chapter, contained on page 54). While the Future Urban category
designates areas where development is considered likely not to occur over the time period of the
Community Plan, from time to time circumstances may arise where a revision to the boundary needs
to be considered. A request to amend the boundary could come from the city due to infrastructure
changes or for economic development purposes, or could be initiated by a property owner. Any such
process should include criteria to be used when the city evaluates a proposed amendment to the
boundary. Such criteria might include:
Policy compatibility—that the proposed amendment is consistent with community goals,
principles, and policies as expressed in the Community Plan;
Fiscal Impacts –that the proposed amendment has a positive fiscal benefit to the community;
Reasonable Accommodation—that the proposed activity cannot be accommodated on lands
within the existing planning area;
Land suitability—that the land proposed for inclusion contains no sensitive environmental
resources or hazard constraints that make the area unsuitable for its proposed use; and
Logical change or modification of the boundary—that the amendment is a logical change to
the Future Urban designation. Factors to be considered might include an efficient increment
for extending urban services, a desirable community edge, a change that is contiguous to
existing developed areas of the city, and a location that contributes to the desired compact
urban form of the city.
Modify or replace the Business Park designation
The current Business Park land use designation provides for office uses and technology-oriented light
industrial uses in a suburban, low intensity pattern. Contemporary development trends have shifted
away from this pattern for several reasons:
It is focused on a single-use pattern, without providing for supporting retail, services, and
other uses that can support employment-oriented areas;
It is land-consumptive and not conducive to transit or other alternative transportation modes;
and
It does not reflect market trends towards mixed-use and “flex-space” employment areas.
The City might consider several alternative approaches to updating this land use designation,
including creation of a new, Mixed-Use Employment land use designation; or modification of the
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Business Park designation to allow for a mix of uses, require higher densities and more efficient use of
land, and design standards that promote connectivity.
Add a new Downtown or Central business designation and address downtown needs
Currently the downtown area is designated as Community Commercial (and is a bit hard to
distinguish from the other commercial colors on the map). The Community Commercial description
applies community-wide and, while this category is intended to be a mixed-use, pedestrian-oriented
district, the Downtown may have specific needs in terms of setbacks, parking, building relationship to
street, infill, and intensity. Therefore, we recommend modifying the land use map and adding a new
Downtown category to be more consistent with downtown patterns and zoning (Central Business
zoning district).
Bozeman values its Downtown and has on-going debate about what the future of Downtown should
be, in terms of its built character and function. The 2020 Plan update should also address the height
and scale of buildings in Downtown.
Policy revisions needed
Revise individual policies to conform to big ideas
The Future Land Use Plan should focus on implementing the six “big ideas” (listed on page 38 of this
analysis), but it does not quite make the connections in some cases, such as with neighborhood
centers. For instance, some policies suggest ½ mile spacing for neighborhood centers, but on the
plan they only appear every 1 ½ to 2 miles in the south part of the community. Furthermore, the land
use designations do not describe how they might be designated in locations not shown on the map
through criteria.
Change rationale for neighborhood and sub-area planning
The neighborhood planning approach that has occurred since 2001 is different than what the 2020
Plan describes. Chapter 6, Land Use, contains some of the description for the neighborhood
planning approach. Chapter 4, Community Character, also contains a description of the desired
neighborhood planning and design process. It would be helpful to consolidate these descriptions and
modify them to reflect current practice: a more voluntary approach by neighborhoods and
organizations versus the mandatory city-led approach that is described.
Refine and clarify centers concept
The neighborhood centers concept described in the 2020 Plan is a contemporary planning idea and
is beginning to take shape in some of Bozeman’s new neighborhoods. While it will take time for
some of the new centers to be developed and mature in to workable centers, the plan update may
also need to refine the concept in terms of timing of the centers relative to residential development,
location (e.g., for the southwest side of town), and scale. Clarification is also needed to distinguish
the neighborhood “commercial” centers versus neighborhood “foci” or “civic” centers described in the
UDO (10.42.020).
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Multi-family units articulated so as to appear as separate homes
from the street. (Sparks, NV)
Increase emphasis on infill
Currently the plan has an objective to
“support and encourage compatible infill
development to avoid sprawl and
unnecessary expense,” but does not clearly
describe what type of infill development is
compatible. While the plan has a
definition of “compatible” in the glossary,
that definition describes performance
impacts (i.e., odors, noise, etc.), but not
design. In addition, the infill objective is
listed under a goal that addresses Centers
(designating them as a desirable
alternative to strip commercial). We
suggest adding more “infill” examples and
principles to the 2020 Plan to explain how
infill can be compatible from a design
standpoint (e.g., height, setbacks, scale of
buildings, and design features), and
exploring additional incentives to
encourage it.
Existing homes
Infill Development
Building height and mass transitions
at shared property line with a
minimum step-back of 10 feet
Similar roof pitch and overhang
Existing homes
Infill Development
Building height and mass transitions
at shared property line with a
minimum step-back of 10 feet
Similar roof pitch and overhang
Traditional
Side Yard
Traditional
Side Yard
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Make organizational changes specific to Chapter 6
Move this chapter near the front of the Plan and eliminate repetition
Because the Land Use chapter sets broad direction for the community to grow and it is also one that
developers, elected and appointed officials, staff, and other members of the community use
frequently, it would be helpful to place it toward the beginning of the plan (i.e., before Community
Design). Furthermore, the Land Use chapter overlaps with and is somewhat redundant to the
Community Character chapter. Placing them closer to one another and providing better cross-
references will eliminate some redundancy and clarify the intent of the 2020 Plan growth policies.
Emphasize the six big ideas of the Future Land Use Plan
Page 6-3 presents six big ideas, and then describes them
over the course of the next two pages in narrative form. We
recommend putting more emphasis on these themes for the
Future Land Use Plan and placing them up front in this
chapter.
Future Land Use Plan map—more accessible
The Future Land Use Plan map, that is widely used, is
currently embedded within the Land Use chapter. We
recommend preparing the new map at a larger scale (e.g.,
20x30 inches or 24x36 inches) and making it easier to
locate within the plan. One possibility identified by staff is to
place it in a binder pocket.
Address Regional Coordination separately
We have suggested in previous sections that the regional
coordination policies, because they are important to future
growth of the area, could be placed in a stand-alone
chapter. We recommend removing the sections in Chapter
6 that discuss “external influences on land use planning” to
the new Regional Coordination chapter.
Highlight land use principles and mixed-use ideas
This chapter contains direction about land use planning “best practices” for planning, including a
community based on neighborhoods and centers, mixed-uses, variety of housing, and infill. We
suggest revisions to make these principles very clear, straightforward, and separate them from the
background information (e.g., history of zoning and value of mixed-use development). Pull out the
historical information and put it in a sidebar of “interesting facts and trends.”
The Future Land Use Plan’s
six big ideas are:
1. A plan based on centers, not
sprawling commercial
2. A community comprised of
neighborhoods (existing and
new)
3. A community with a sense of
place
4. A Future Land Use Plan that is
integrated with other facility
planning and policies and
programs
5. A plan that integrates and
respects natural features
6. A city with urban density
neighborhoods to provide
walkable neighborhoods with a
wide range of housing types.
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Clarify and simplify direction about neighborhood and sub-area plans
Page 6-8 describes the elements a neighborhood or sub-area plan
must contain, but this information is buried in long text. In addition,
important guidance for developing a sub-area plan is buried in this
section (for instance, who participates, how the public interacts, who
prepares it, which bodies review it, who initiates it, how many public
hearings it takes, etc.). Adding a subheading would make this key
information more accessible. Additionally, the requirements should
reflect current practice in Bozeman—neighborhood or sub-area
plans are prepared on an as-needed basis, rather than as part of a
city-prescribed requirement.
Consider changing chapter name to better reflect contents
This chapter deals with more than just land use—it also steers
growth patterns and annexations. A broader title might be more
descriptive, such as Land Use and Growth.
Specific housekeeping changes are needed
Update map and data (in progress)
The Existing Land Use Map is out of date and needs revision. The land use inventory data also needs
to be updated. In communities like Bozeman where rapid growth causes a map such as this to
become out of date quickly, existing land use inventory maps are often placed at the end of the
chapter or in an appendix so that they may more readily be revised between plan updates.
Background information about how the map was prepared, such as on pages 6-10 through 6-15
relating to existing land uses, should be updated and moved to the appendix also.
Indicate a purpose for land use inventory information
Additionally, the information beginning on page 6-15 (supply and demand analysis for future land
use, and expected demand), is interesting information, but it is out-of-date and does not clearly
describe how the information relates to the Future Land Use Plan. Does the community have enough
residential land? Does it have enough industrial land? This section should indicate how the
information has been or will be used, such as to designate land uses or make development decisions.
Reformat and simplify Land Use descriptions for ease of use
The Future Land Use Plan (2020 Community Plan) description is difficult to locate in its current
position starting at the bottom of page 6-20, where the plan begins to describe the 12 land use
designations. The land use designations are complete, but would be easier to use if descriptions were
shorter and followed subheadings to describe their intended character, density/intensity, general
location, pattern of development, etc. Being able to pull out each category or designation at a
glance (using a table or other format mechanism) would improve the ability of users to understand
them and compare them to the Future Land Use Plan map. An example format of land use categories
is included in Appendix C.
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Chapter 7: Economic Development
Chapter 7 Overview
This chapter contains information and policy guidance on
topics related to the economic health of Bozeman. Sections
of this chapter are:
Current employment,
Future employment,
Land use activities,
Montana State University, and
Bozeman’s support for economic development.
Recommendation: Expand and refocus policy
guidance in this chapter
The economic development chapter is somewhat limited compared to many chapters of the 2020
Plan because the strategy does not address some very important components of economic
development (i.e., workforce development). Overall, this chapter needs refocusing and expansion in
the policy direction to guide development and adoption of an Economic and Business Development
Plan. While we support expanded policy guidance in this chapter, the separate plan continues to be
warranted as indicated in 2001, and is the appropriate venue for more detailed inventory and
implementation content.
Policy revisions needed
Develop an Economic and Business Development Plan
We recommend that the intent of implementation policy #109, which calls for developing a Bozeman
Economic and Business Development Plan, be brought forward in the update to this chapter. The
goals that are currently listed in this implementation step comprise good policy direction, and should
be moved to the Goals and Objectives portion of the revised economic development chapter.
Define the role of the City in economic development
Members of the community have suggested the City needs to increase efforts to support economic
development, but also that the City should not duplicate or contradict the efforts of other
organizations in the community whose core function is economic development. We recommend that
this chapter be framed to acknowledge two distinct roles for the City of Bozeman in economic
development:
1. The City should conduct its core functions (zoning, incentives, infrastructure, design and
development standards, community quality, development review) in a manner that supports a
healthy economy and desirable investment environment; and
2. The City may also facilitate, support, and complement the efforts of other organizations in the
community (including but not limited to: the Gallatin Development Corporation, Montana
Bozeman Downtown.
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State University, the Gallatin Valley Independent Business Alliance, and the Bozeman Area
Chamber of Commerce).
Explain how city activities promote economic development
Section 7.5, Bozeman’s Support for Economic Development, does not explain to the community how
the listed city activities promote a strong economy in Bozeman. Related to the recommendation
above about defining the role of the City in economic development, enhance this section to provide a
brief (one or two sentence) explanation for how the following city actions support economic
development:
Infrastructure investments and maintenance,
High quality urban services,
Blight prevention, and
Direct business support.
Address an expanded list of economic development topics and concerns
We recommend that the City add sections to this chapter, based on current community concerns, to
address a broader range of economic development issues. Topics to address should include:
Growing the local workforce,
Building on the strengths of MSU and coordinating economic development initiatives,
Growing and retaining local businesses,
Entice businesses that offer living-wage jobs,
Linking with other chapters that address Downtown, and
Others as may emerge in the public process.
Link zoning and land availability for desirable businesses
Section 7.3, Land Use, begins to address the issue of land
availability to ensure a healthy economy. This section should be
expanded to provide policy direction to city staff about an
adequate land supply for business activities that are desirable in
Bozeman. Specifically, this chapter should provide policy
direction on topics such as:
Zoning adequate land for desired business types:
Some desirable uses, such as small-scale light industrial
businesses, reportedly have difficulty finding available
space/land in Bozeman. The 2020 Plan document
should direct that the Economic and Business
Development Plan establish types of businesses desired
in the community and ensure annually that adequate
land is available that is designated for such desirable
uses.
Address the land use mix in Bozeman: As indicated
in this chapter, it is important that residential,
commercial, and industrial land be available and
balanced with one another. This chapter should
Innovative zone districts
can support community
economic development
goals:
Local-serving districts that
restrict businesses serving
primarily tourists.
Protective industrial districts
that restrict retail to help
keep affordable space
available to industrial users.
Employment-base districts
that restrict warehousing
and similar low job-density
businesses from the city
core.
Downtown districts that
restrict retail business size to
protect “mom & pop”
businesses, retain character,
ensure lively street fronts,
etc.
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provide further policy direction to staff on the mix of land available.
Use zoning districts to keep space for desired business types: Nationally, many
communities are creating custom zoning districts that attract and retain desirable businesses
and meet economic goals identified by the community. (See sidebar.) The 2020 Plan could
direct staff to explore zoning districts as a means of pursuing the mix of business types desired
by the Bozeman community.
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Chapter 8: Environmental Quality and Critical Lands
Chapter 8 Overview
This chapter addresses environmental issues that
relate to land and property, public health, and the
quality of life of Bozeman. Topics addressed in this
chapter are:
Critical Lands Study,
Wetlands,
Floodplains,
Watercourses,
Groundwater,
Geologic constraints,
Fish and wildlife habitat, and
Other Critical Land and Environmental Issues, including: Noxious weeds, noise pollution,
light pollution, viewsheds, and air quality.
Recommendation: Limited updates to this chapter
This chapter is in need of a few basic updates beyond the general formatting and organizational
comments that apply to all chapters.
Policy revisions needed
Address environmental topics of growing community concern
Several environmental quality topics are of increasing concern to Bozeman residents and should be
addressed in the update to this chapter. We suggest adding or expanding sections to address several
environmental quality topics to address issues of growing interest and concern in the Bozeman
community including:
Air quality,
Water quality and supply,
Alternative energy, and
Climate change.
Link Environmental Quality with the Regional Coordination chapter
This chapter should indicate the need to coordinate standards for public infrastructure with Gallatin
County to address environmental quality issues, such as water quality protection, that may cross
jurisdictional boundaries.
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Make organizational changes specific to Chapter 8
Use pull-out boxes and formatting for definitions and criteria
This chapter contains many lists and similar items that should be moved to pull-out boxes, side-bars
and similar. These include:
The definition of a wetland (page 8-3) and of a floodplain (pages 8-10),
Lists of state and federal programs (e.g., pages 8-3, 8-10, and 8-22),
List of benefits of wetlands (page 8-3 ),
List of types of wetlands present in Montana (page 8-4), and
Factors that increase incidence of flooding (page 8-10).
Regroup material in Section 8.2, Wetlands Issue and Analysis
Inventory, analysis, and tools to address loss of wetlands are interspersed. Move inventory
information such as permit issues and types of permits to the end of the chapter or an appendix.
Specific housekeeping changes are needed
Reference new data and studies
The update to this chapter should reference new studies completed since the 1997 Critical Lands
Study that relate to habitat, wetlands, or other topics in this chapter. As in other chapters, we
recommend that the 2020 Plan refer to related studies or append summaries of such documents,
rather than incorporate detailed information into the chapter.
Revise to reflect the 2004 update to the Unified Development Ordinance
This chapter indicates a need to update the City’s development standards and subdivision
requirements to better address environmental quality topics such as:
Wetlands,
Floodplain,
Groundwater,
Vegetated buffers to watercourses,
Stormwater detention ponds,
Steep slopes, and
Light pollution.
The 2004 update to the Unified Development Ordinance incorporated many best practices for
protection of environmental quality. This chapter should be updated to reflect the significant progress
made since the adoption of the 2020 Plan.
Update wetlands section with Review Board information
A City of Bozeman wetlands review program has been developed. The sub-section on page 8-6 that
calls for review at the city level should be revised to reflect this development. This section and sections
on permitting (page 8-5) should also be revised to acknowledge the change in federal control over
some wetlands since the recent Supreme Court decision on navigable waters.
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Chapter 9: Parks, Recreation, Pathways and Open Space
Chapter 9 Overview
Chapter 9 addresses some of the most highly valued assets of the Bozeman community—recreation
facilities and access to parks, open space, and public lands. Topics in this chapter include:
Demand for parks and park standards,
Park types (tot lots, neighborhood, community, regional, specialty, linear),
Parkland acquisition, maintenance, development, aggregation and consolidation,
Recreation,
Facility standards,
Pathways (bicycle, pedestrian, trails), and
Open space.
Recommendation: Streamline this chapter to reflect the Parks, Recreation, Open
Space and Trails (P.R.O.S.T.) plan
As directed in the 2020 Plan, the City recently developed a P.R.O.S.T. Plan with extensive public
outreach. This 2020 Plan chapter should now be refocused on broad policy guidance and contain
less specific inventory, data and information. As the City updates the 2020 Plan, this very detailed
chapter should become streamlined significantly.
Policy revisions needed
Draw from the P.R.O.S.T plan public process to update policy direction
The recent development of the P.R.O.S.T. plan involved
extensive public outreach. Revisions to the policy direction in
this chapter should draw on that process to inform and direct
revisions. A variety of concepts that are in the text of the existing
chapter that appear to be consistent with the draft P.R.O.S.T.
plan are not clearly stated in policy guidance in this chapter, but
should be.
Examples:
“Continue to provide parks, recreation, open space and
trails facilities that meet or exceed national per capita
standards.”
“Prioritize facilities acquisition based on community
preferences detailed in the P.R.O.S.T. plan and/or other
citizen surveys.”
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Keep detailed inventories, specific needs, and similar information in the P.R.O.S.T. plan
As discussed in other chapters, it is important to keep the 2020 Plan chapter focused on setting
broad-level policy guidance, while the functional P.R.O.S.T. plan should contain much more detailed
information. We recommend that staff update references to needs and other data to current
information gathered in development of P.R.O.S.T. plan, but keep detailed facilities and programs
inventory data, needs information, and specific level of service standards in the P.R.O.S.T. plan.
Example: Detailed list of Recreation programs (on page 9-17) should not be included in the 2020
Plan.
Link health, the built environment, and P.R.O.S.T. facilities concepts
Link this chapter to other chapters that address parks, trails, and alternative transportation, such as
land use, transportation, and community design.
Make organizational changes specific to Chapter 9
Format the list of park types as a sidebar
Section 9.1.4, Parks by Type, spans several pages and describe types of parks. While this information
informs certain policy objectives relating to the mix of park types, it is rather lengthy and diverges from
the primary purpose of the 2020 Plan, which is to give policy direction. We suggest that a more
succinct definition of each park type be included as a sidebar to the goals portion of this chapter
(when the chapter is re-organized following the general comments for all chapters). To the extent that
detail is lost by this change, it can more appropriately be provided in the P.R.O.S.T. Plan.
Specific housekeeping changes are needed
Update data to reflect growth rates
The projections in Table 9-4, Assessment of Bozeman Recreational Facility Needs, are based on
growth rates that were lower than actual growth since 2000. This information should be updated,
and would best be placed in the P.R.O.S.T. plan rather than in the 2020 Plan. If included in the
2020 Plan, it should be in brief summary format. The table is an unnecessary level of detail for a
community plan.
Remove specific standards for facilities development.
This chapter contains a variety of very specific standards for facilities development that are overly
detailed for the 2020 Plan.
Example: Section 9.6.3 Width of Trail Dedication/Easement is overly-specific for the 2020 Plan
and should be contained in more specific documents such as the P.R.O.S.T. Plan or in trail
dedication and development standards.
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Chapter 10: Transportation
Chapter 10 Overview
The transportation chapter addresses a variety of modes for moving goods and people. Topics
include:
General Transportation System (Transit, Air, Rail, Pathways),
Link between Transportation and Land Use/Development,
Transportation Plan, including: Street network, functional classification and limitations,
coordination of multi-modal transportation,
Modes and Limits,
Transportation Demand Management, and
Pathways.
Recommendation: Changes to this chapter should reflect the Transportation Plan
This chapter should be updated to address changes in the transportation system, such as the new
regional transit system, and to reflect new community goals and priorities as may emerge in the
Transportation Plan. As with all chapters that are implemented through facility plans, we recommend
that this 2020 Plan chapter contain broad policy guidance, while the Transportation Plan should
contain detailed policies and standards and background analysis.
Policy revisions needed
Provide policy guidance for transit
Recent development of a fledgling regional public transit system is a new part of the transportation mix
in Bozeman. Transit development appears compatible with many of the goals and objectives
expressed in the 2020 Plan. We suggest that that the goals and objectives of the chapter should be
revised to increase the emphasis on transit and to direct the City’s continued involvement in any future
expansion of the transit system.
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Link the multimodal goals of this chapter to health and the built environment
The goals of this chapter that the transportation system be multi-modal and interconnected are related
to topics addressed in several other chapters. The section of this chapter that indicated liked topics
with other chapters should include health and the built environment, alternative
transportation/recreation routes, and a built environment that is bike and pedestrian-friendly
community.
Provide policy direction and place detail in Transportation Plan
As for other chapters that are implemented through facility plans, this
chapter should be revised to streamline the information provided and reduce
redundancy with the Transportation Plan. This chapter should primarily
contain broad level policy direction, including guidance for what to address
in Transportation Plan. Specific inventory and tables, such as Table 10-2,
Roadway Characteristics, should be contained in the Transportation Plan or
roadway standards for the City, rather than in the 2020 Plan.
Specific housekeeping changes are needed
Use new bike/pedestrian data
Staff indicates that new Bike/Pedestrian path data is available showing
demand and use. This material should be referenced and used to guide appropriate revisions to this
chapter. However, we recommend that such data should not be reproduced in this chapter but either
appended to the 2020 Plan or be referenced in the 2020 Plan and included in the Transportation
Plan.
Add public transit system to the Transit section
Section 10.1.2, Transit, should be updated to reflect the recent development of a public transit system
in the Bozeman area.
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Chapter 11: Public Services and Facilities
Chapter 11 Overview
This chapter addresses the services and facilities that local government provides to ensure the health,
safety, and general welfare of citizens, including:
Wastewater,
Water,
Stormwater,
Solid waste management,
Transportation,
Parks and recreation,
Fire protection,
Police protection,
Education,
Library services,
Irrigation water,
Sunset Hills cemetery, and
Other City of Bozeman services.
Recommendation: Primarily organizational and housekeeping changes
We recommend enhancements to a few policy issues for this chapter, but no changes in policy
direction appear necessary. Recently updated facilities plans such as the Water and Wastewater
Facilities Plans, and the new Fire Facilities Plan, should be considered in updating to this chapter. As
for other chapters implemented through facility plans, we suggest that the 2020 Plan goals should
provide broad direction, while Facility plans contain more detailed information and guidance for
program implementation.
Policy revisions needed
Address Water quality
Provide policy guidance on water quality and enhance the
linkage between water quality and inter-local cooperation.
Consolidate information on growth patterns and provision
of public facilities
The development of public facilities infrastructure is a huge
driver of growth in any community, including in Bozeman. This
chapter should contain a section dedicated to explaining the
interrelationship of growth and public facilities. Currently, this
relationship is dealt with on a topic-by-topic basis, such as in the
final paragraph of both the water and wastewater sections. The
section should describe both how growth creates demand (as
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included on page 11-1) and how public facilities, or lack thereof, shape growth in Bozeman. For
example, areas to the south of Bozeman may soon experience more growth due to barriers to
infrastructure development that are now being resolved.
Make organizational changes specific to Chapter 11
Include protection of public health in the purpose section
The purpose section of this chapter that we suggest creating in the general comments for all chapters)
should tie the policy rationale for public provision of facilities back to issue of protection of public
health. City staff indicates that this important reason for pubic facilities standards should receive
greater emphasis in the 2020 Plan update. We suggest that it is appropriate to include mention of
public health protection in the purpose section of this chapter.
Cross-reference the Coordination and Cooperation chapter
This chapter should address the issue of coordinating standards for public facilities with County in
likely annexation areas. Coordination is important to the efficient provision of public facilities. The
goals of this chapter should be linked to topics in other chapters, such as public health and
environmental quality.
Specific housekeeping changes are needed
Review Fire Protection section in accordance with recent law
SB 51 updates the Montana Statues Annotated to include fire protection in the required topics for
local growth policies. Section 11.7, Fire Protection, appears to meet the minimum requirement of
created by SB 51. We suggest that the City review this section given the greater emphasis on fire
protection in state law since the 2020 Plan was developed.
Add information on the new library
Section 11.10, Library Services, was written before the new library was built. As such, it indicates that
library facilities and services are below standards and inadequate. Staff should update the Library
section to reflect the recent community accomplishment of building the new Library.
Reduce redundancy with facility plans
As indicated for other chapters of the 2020 Plan implemented through facility plans, this chapter
should be streamlined. Detailed data and information should be removed from the 2020 Plan where
it is redundant to the information contained in facilities plans, or where it is more appropriate to be
included in the facilities plans.
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Chapter 12: Subdivision Review
Chapter 12 Overview
This section, which is required content for growth policies in the State of Montana, describes the
subdivision review criteria, procedures, and required public hearings in the City of Bozeman. This
chapter is divided into the following major sections:
Review criteria,
Definitions and procedures, and
Public hearings.
Recommendation: Limited revisions for this chapter
Beyond the organizational suggestions for all chapters, this chapter needs revision only to the
extent that the City would like to take advantage of new flexibility offered in Montana State Law
through SB 201. The City of Bozeman staff and elected officials should consider SB 201 and
determine what changes are desired, if any.
Policy revisions needed
Link design and land use review chapters
When this chapter is updated, the section that cross-references related topics in other chapters should
also cross-reference design and land use.
Highlight the key content such as criteria and hearing procedures
The six subdivision review criteria are the core content of this chapter. It would be helpful to highlight
these key ideas through formatting changes such as:
In Section 12.1, list the criteria as a bullet list or in a pull-out box.
In Section 12.2, Definitions and Review Procedures, use bold subheadings such under the
name of each criteria, such as “Definition of Agriculture” and “Presumptions for Evaluating
Effect on Agriculture.”
Also, the importance of the public hearing procedures in Section 12.3 merits a subheading or pull-out
box to make this material easy to locate.
Add goals and objectives based on existing policy guidance
This chapter has no stated goals or objectives. The text includes policy guidance statements that
could easily be converted into goals/objectives such as:
“All subdivisions must be reviewed to ensure their compliance with the Bozeman 2020 Plan.
Subdivisions that do not comply should not be approved” (page 12-1, second paragraph);
and
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“…review of subdivisions [shall] provide for orderly development, provide for parks and open
spaces, coordinate roadways and avoid congestion, protect property rights, protect
purchasers from fraud, and avoid endangerment of pubic health and safety” (page 12-1,
last paragraph).
We recommend that this chapter include goals and policies, based on the existing policy direction
embedded in the text.
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Suggested New Chapters
Overview: Four New Chapters
As addressed within comments for Chapters 1, 2, and 4, we recommend that some sections
within these chapters be enhanced and reorganized as stand-alone chapters. These sections,
which address topics of considerable interest in the Bozeman community, will be easier to locate
and use as separate chapters than as currently organized. The recommended new chapters are:
1. Regional Coordination and Cooperation
2. Arts and Culture
3. Historic Preservation
4. Community Plan Review and Amendments
Recommended New Chapters
Suggestions for the organization and content of these chapters follows.
1. Add a Regional Coordination and Cooperation chapter
This Analysis discusses the idea of creating a new regional coordination and cooperation chapter to
consolidate all the ideas and strategies related to coordination between the City and its other public
agency and semi-public partners in the region to advance common aims such as land use planning,
transportation planning, environmental protection, and the like. The new chapter should include a
purpose statement, possible new goals and objectives, and should site relationship to plan elements.
New goals and objectives might address policy direction for topics such as:
A Transfer of Development Rights (TDR) program and receiving areas,
An inter-local agreement between the City and Gallatin county for annexation, and
Public facilities and public improvements standards in the area around the city boundary.
2. Add an Arts and Culture chapter
As stated previously, it would be helpful to add a new Arts and Culture chapter to emphasize the
rising importance of arts and culture in the community—both for economic and social well-being
reasons. The chapter could include a purpose statement—to support and promote community-
led efforts as well as new goals and objectives. Goals might focus on topics such as:
Working with the Bozeman Cultural Council,
Addressing Public Art, and
Redirecting arts and culture focus toward making the community livable for residents as well
as a marketing and economic development benefit.
3. Add a Historic Preservation chapter
Historic Preservation is another topic of long term community interest that seems to be rising in
community value. A new chapter could address new goals and objectives to protect Bozeman’s
character and physical history.
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4. Add a Plan Review and Amendments chapter
The purpose of this new recommended chapter is to clearly provide direction to decision-makers
for updating and amending the plan. Typically plans set forth the procedures for regularly
updating the plan (e.g., every five years) and also procedures for amending the plan on a more
regular basis and criteria for doing so. The 2020 Plan contains this direction, but it is currently
buried in Chapter 1. (See notes, Chapter 1.)
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Chapter 13: Implementation
Chapter 13 Overview
This chapter describes the tools available to the City to realize the plan vision, and to consolidate the
implementation measures for all plan goals and objectives. The chapter is organized into two major
sections:
1. Tools (Capital Improvements Planning, Capital Construction and Financing, Subdivision,
Zoning, Building and Fire Codes, Budgeting, Economic Development, Data Inventory and
Management, Intergovernmental Cooperation, and Cost-Benefit Analysis); and
2. Policies.
Recommendation: Significant changes to this chapter to enhance functionality
We propose significant changes to enhance the functionality of this chapter as a tool for the City
to use to convey the actions and priorities for realizing the 2020 Plan’s vision. Also, this chapter
needs substantial updates to reflect the progress made on many of the implementation steps.
Reorganize Chapter 13 as an Action Plan
As currently formatted, the main body of this chapter is a very long list of “implementation
policies” that is difficult to navigate and understand. This chapter needs significant
reorganization into an Action Plan to make the 2020 Plan vision achievable. As an Action Plan,
this chapter will convey to staff, elected officials, and the public a clear sense of how the City will
advance and accomplish the vision, goals, and objectives in the substantive chapters. We
suggest a variety of specific formatting changes to recreate this chapter as an Action Plan.
Bozeman may draw on Appendix C, a sample Action Plan from another community, as an
example.
Distinguish between policies and action steps
The content of the implementation policies varies from broad to specific. As the plan notes on page
1-8, “Some of the individual implementation policies… are very broad and on-going (Implementation
Policies 1-3 in particular)…,” whereas, some are specific that the city will undertake once. In our
experience, the best community plans distinguish between the broader on-going “policies” and more
specific “action items” as follows:
Policies are general rules that the City should follow when developing programs, allocating
funds, and undertaking other efforts, in order to meet the intent of the Vision, Goals, and
objectives.
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Action Items are specific tasks or standards that the City should accomplish which move
toward the community vision, goals, and objectives.
Create groupings of policies and action items
In order to make the Action Plan navigable, it is essential to organize the plan into groupings. The
groupings should reflect an existing broad organizational aspect of the plan – such as by the chapter
topics or by the vision statement bullets. These topic headers will help readers find information of
interest to them in the action plan.
Prioritize action items
The Action Plan should indicate the priority level of each
action step. Assigning a priority level can be challenging but
has many benefits, including:
Acknowledges issues of top concern to the
community,
Makes expectations more realistic, and
Focuses limited city resources such as dollars and
staff time.
Priority levels should be clearly defined. High priority assignment should be limited to reflect the
reality of available staff and financial resources.
Indicate key community and regional partners
In some cases, the goals and objectives of the 2020 Plan direct the City to work with other
jurisdictions, organizations, and community members to accomplish goals in the plan. We
recommend that the action plan indicate who such partners are for actions that rely heavily on
coordinated efforts. This serves as a reminder to the community that the vision for Bozeman cannot
Examples of policies (numbered) and action steps (lettered)
#1) The Bozeman Community Plan is the guiding policy and decision-making tool for
decisions made by elected, appointed, and administrative officials.
a. Develop one planning area for use in all city-wide land use plans and facility plans.
b. Ensure that all facility or sub-area plans are consistent with the policy direction in the
2020 Community Plan.
c. Require that proposed development be consistent with the 2020 Community Plan in
order to be approved.
#49) Promote Downtown as a culture center of Bozeman through support of art in public
places including visual, literary, and performing arts on both public and private property.
a. Support the development of an Arts and Culture plan lead by members of the arts and
cultural community in Bozeman.
b. Seek opportunities where public spaces and projects may be coupled with private efforts
to enhance arts and culture in Bozeman.
c. Host a community arts and culture calendar to facilitate coordination and reduce conflict
between event dates.
Example priority levels:
1= In the current fiscal year
2= Within two to three years
3= Within five years
4= As opportunities arise
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An example from the Design Objectives Plan, which does
indicate the how it related to the 2020 Plan, is shown
above.
be accomplished by the City alone, and will succeed only with the involvement and cooperation of
others.
Annually, update the Action Plan status and priority levels
An advantage of the Action Plan organizational format is that it readily serves to inventory
achievements toward the Plan vision. We recommend that Bozeman consider an action step
directing an annual status update to the Action Plan, including prioritization of outstanding action
items. This will inform the community and elected officials of accomplishments as well as funding
or other resource needs.
Update implementation items to further plan goals
Using the status memo created by staff for
this project, remove steps that are complete,
consider next steps for advancing goals and
objectives, revise steps/policies that are not
working as envisioned, and retain those that
are ongoing or partially complete.
Direct facility and sub-area plans to
specify how they implement the 2020
Plan
The existing implementation policies 1, 2,
and 3 indicate that all plans must conform
to and advance the goals of the 2020
Plan. In our review of Bozeman planning
documents, we find that facility plans are
consistent with the 2020 Plan. However,
many of the plan documents fail to
indicate which 2020 Plan goals,
objectives, or implementation items they
support. We suggest adding an action
item that direct all future functional and
facilities plans to contain a section that
explicitly indicates which 2020 Plan goals,
objectives, and action steps the plan
implements. This will insure that when
staff or consultants create the plans, they
will have to look to the 2020 Plan policy
guidance, and will demonstrate to the
community that the facility plans do respect and support the community’s vision that is expressed
in the 2020 Plan.
Consider Adding a Plan Evaluation Process
As the city implements the Community Plan, it might want to consider adding an annual review
process as a means of assessing its progress in achieving its goals and policies. This could take the
form of an annual report prepared by the planning department, to chart progress and identify areas
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needing more focus and attention. The review process could focus on progress achieved through
development decisions as well as by ongoing policies and programs. The assessment will enable city
officials to clearly see the cumulative impact of separate development decisions. The primary
objective of this assessment will be to determine, on a periodic basis, if the City is making progress
towards its target goals. The results will either serve as an affirmation of success or illustrate the need
for changes or additional policies to help shift development in the direction of the Plan.
An assessment program could consist of two distinct types of measures:
Quantitative Measures: A number of goals established by the city have measurable outcomes that
can help the city track changes and assess its implementation performance in a quantitative way.
Examples of these might include achieving a better jobs/housing balance (measured by tracking the
ratio of jobs to households); increasing the amount of parkland (measured by tracking the acres of
parkland per capita); and increasing the amount of retail space near neighborhoods to serve the
needs of residents (measured by tracking the amount of retail space that is within walking distance of
neighborhoods).
Qualitative Measures: The Plan contains a number of goals and policy objectives not calculable in
quantifiable measures. Qualitative review will focus on whether the policy action has been completed
(e.g., design guidelines created, plans adopted) and whether or not these policy tools have then been
adhered to or used successfully to bring about the desired built environments or conditions within the
city. This review process should focus on “big picture” items and the report should be succinct,
identifying larger patterns or areas where attention and action is needed to begin or continue
implementation of the Plan.
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2020 Plan Appendices
Appendix Overview
The appendices to the 2020 Plan include reference and draft materials. The specific contents are:
Appendix A. Statement of Coordination and Cooperation between the Gallatin County and
Bozeman City Planning Boards
Appendix B. Draft Intergovernmental Agreement 7-31-01
Appendix C. Public Participation/Education Program Overview
Appendix D. Wetland Permits Issued in the Bozeman Area: 1990-2001.
Appendix E. Capital Facility Plans
Appendix F. Other Documents
Appendix G. Relationship of Land Use Designations with Existing Zoning Categories
Recommendations
Replace or revise outdated material
Some of the information in the appendices is now outdated, such as:
Appendix D, Wetland Permits Issued in the Bozeman Area: 1990-2001;
Appendix E, Capital Facility Plans; and
Appendix F, Other Documents.
Other appendices will need updating with the 2007 update process, particularly:
Appendix C, Public Participation/Education Program Overview, and
Appendix G, Relationship of Land Use Designations with Existing Zoning Categories.
Add inventory information and data
As indicated in many of the chapters above, we recommend housing much more of the inventory
information that is currently located in the substantive chapters in the appendix. The City can more
easily update appendices than plan text, and we suggest that staff add and revise appendices between
Community Plan updates, as important data and information becomes available.
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Part IV: Approach to Plan Update Process
Introduction
Purpose of this section
The purpose of Part IV, Approach to Plan Update Process, is to provide recommendations for the
update to the 2020 Plan, including public outreach strategies, and a targeted and tiered approach to
accomplishing the recommendations of this analysis.
Organization of Part IV: Approach to plan update process
This portion of the document suggests a strategy for how to accomplish the detailed suggestions for
each chapter that are contained in Part III, Chapter-by-Chapter Analysis. It is organized in two
sections:
1. Suggestions for public outreach, and
2. A targeted approach to updating the 2020 Plan.
Suggestions for 2020 Plan Public Process
According to discussions with staff and the community, the 2020 Plan adopted in 2001 involved
widespread outreach during the two-year planning process. In general, community members
indicated that they are content with how the City conducted the outreach. Our understanding is that
for the 2007 update, the City intends to proceed more quickly, in a targeted way, yet provide ample
opportunities for the public to weigh-in at pivotal points. This approach may require different
strategies from those used in 2001, to obtain community input in a more focused manner. Our
recommendations for outreach during the 2020 Plan update process are summarized below.
Recommendations for public outreach
Engage stakeholders in creative, focused efforts
During the initial meetings in Bozeman, we met many citizens and other stakeholders with strong
interests in the planning process, many of whom seemed eager to participate in the update in some
manner. We recommend the City consider creative, focused ways to engage these motivated
individuals in the planning process, either in focus groups or forums on specific topics, or in randomly
selected panels at strategic points in the planning process. Since the update is likely to proceed in
segments rather than all at once, a targeted approach will allow for input on specific topics of interest
to citizens or stakeholders at appropriate points in the process.
Clarify roles and expectations for the community
If a more focused process is anticipated for the Plan update, it will be important to clearly
communicate to interested citizens and stakeholders how the process is to proceed, and why it differs
from that used in 2002 to develop the original plan. It is our experience that previous successful
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efforts often establish expectations that the update will follow a similar model. If the update is to
follow a different process as suggested, this must be clearly communicated to establish a new set of
expectations, otherwise prior participants may continually compare the update process to the former
process.
Use web-based technology as a means for public input
Many successful planning efforts today incorporate a robust, dedicated web site as a central
communication tool. A well constructed website can be used make information available throughout
the process, and as a means of gathering input and feedback on various ideas and proposals during
the plan process. Techniques such as “topic of the week,” online surveys, blogs, and virtual meetings
can all be used to raise awareness and generate interest. Web sites for plans often attract a different
audience than the typical meeting-only based process—offering both can increase the range of
participants and viewpoints heard.
Targeted approach to revising and updating the document
Phased approach
We suggest prioritizing the work to be done, to reflect issues of highest concern identified in Part II,
Overall Plan Assessment and Key Themes, and to set the stage for a phased approach to completion
of the update. We suggest the following is approach to updating the document:
Establish and embrace the community’s vision as an early element of the update process,
Establish priorities for the work to be completed,
Address multiple chapters’ housekeeping and organizational items through one unit of work,
and
Establish new plan format with first chapter revisions.
Establish and embrace the community’s vision as an early element of the update process
As previously noted in this Analysis, the Plan would benefit from testing and bringing forward the vision
in a clear and more compelling way. Establishing this as a first step would serve two purposes: create
a “buzz” about the update process, and serve as a roadmap for the rest of the work to be completed.
In this manner, the vision could be used at each step along the way as a point of comparison – “does
this new/updated element of the Plan help us achieve our vision”?
Establish priorities for the work to be completed
Given staff resources, it is likely that the update will be completed in phases. Early in the process, staff
should work with the Planning Board and Zoning Commission and City Commission to establish
priorities for the sections of the plan to be completed first. Based on our review and community
discussions, we recommend that the land use element be updated first.
Address multiple chapters’ housekeeping and organizational items through one unit of work
Many of our recommendations involve similar revisions to multiple chapters. Rather than addressing
each chapter in turn according to determined priorities, we recommend that many of these objectives
could be accomplished as a single unit of work, including:
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Updating multiple chapters’ sections relating to newly adopted plans (i.e., P.R.O.S.T.,
Transportation, and public facilities plans), and
Removing obsolete or completed objectives from all chapters, and
Shifting sections within some chapters or to create stand-alone chapters, and
Reorganizing all implementation policies from all chapters into a standalone Action Plan.
Establish new plan format with first chapter revisions
Many of our recommendations for reformatting and reorganizing the Plan’s chapters apply to all of
the chapters. We recommend that you establish the new format and structure with the first chapter
rewrite, to serve as a model for subsequent chapter revisions. Completing substantive revisions without
addressing chapter organization and format changes will make the process more cumbersome and
ultimately require extra work. An added plus of this approach will be a tangible example for plan users
of the benefits of Plan reorganization and reformatting.
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Appendix
This appendices are as follows:
Appendix A: Summary of Key Issues
Appendix B: Memorandum regarding Implementation Policy Status (staff)
Appendix C: Plan Examples (Document format, Action Plan, and Land use categories)
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Clarion Associates (August 2007)
Appendix A: Summary of Key Issues
114
BOZEMAN 2020 COMMUNITY PLAN ANALYSIS
SUMMARY OF KEY ISSUES
June 2007
Prepared by: Clarion Associates
Introduction
Clarion Associates and the City of Bozeman Planning Division staff held a series of meetings in
May, 2007. The purpose of the meetings was to identify the key issues in the Bozeman
community that may drive the 2007 update to the 2020 Community Plan. The meetings were
publicized in the Chronicle newspaper, on public access television, and through direct mailings to
community groups. Meetings held included:
A joint meeting of the Planning Board and City Commission
Eight focus groups to address various topics addressed in the 2020 Community
Plan (i.e., Land Use (2), Transportation (2), Environmental Quality, Community
Quality, Housing, and Economic Development)
An evening meeting open to any interested members of the public
Meetings with planning department staff
Attendees at the meetings discussed a wide variety of issues and concerns in Bozeman and the
relationship of issues to the 2020 Community Plan. A brief summary of the key issues identified
in the community, including a list of related topics discussed, follows:
Key issues that will drive the update to the 2020 Community Plan:
1. Regional Coordination
Interface with Gallatin County and other jurisdictions to manage growth patterns and quality is
one of the critical issues facing Bozeman. This issue is of particular importance, as the City may
now have a window of opportunity to explore better, more formalized cooperation with Gallatin
County. Specific topics under this issue heading include:
Inter-local agreements for development review and approval
Defined community edge (i.e., urban vs. rural development)
Water quality protection
Air quality in the Gallatin Valley
Transfer of Development Rights program
Transportation and transit
Coordinated development standards (City and County)
Local responses to climate change
116
2
Growth, Land Use and Development
Rapid and sustained growth is the single biggest change agent in the City of Bozeman and the
surrounding area. Development quality is also very important to the community. Specific topics
under this broad issue heading include:
Growth—locations and types
Land use designations
Linking land use and design
Linking land use and transportation
Commercial and business locations and integration with residential (land use mix)
Parking requirements, especially Downtown
Street connections and grid
Stronger guidance for planning review
Bicycle- and pedestrian-friendly development
Height limits in the Downtown
Transit-oriented design
Maintaining and Enhancing Community Livability
The quality of life offered in Bozeman is one of its unique assets. Residents value the character of
the community and the lifestyle offered very highly. A wide variety of elements that contribute to
livability discussed include:
Maintain our unique community character
Health and the built environment
Workforce development and composition
Relationship between the City and Montana State University
Strong and vibrant Downtown
A more targeted approach to business attraction and retention
Traffic congestion
Alternative transportation
Enhanced focus on arts and culture for community in addition to tourism
Housing affordability compared to wages
Energy efficiency
Community gathering places & civic spaces
Making the 2020 Community Plan document more usable
For the 2020 Plan to fulfill its potential as a guiding document to coordinate community efforts
and to achieve the Vision and Guiding Principles, it must be more functional and accessible.
Specific topics under this issue heading include:
Highlight the 2020 Community Plan Vision
Improve functionality of the 2020 Community Plan document
Make the document a “living” document with stable Guiding Principles
Provide more guidance for development plan review
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Appendix B: Memorandum regarding Implementation Policy
Status
118
planning • zoning • subdivision review • annexation • historic preservation • housing • grant
administration • neighborhood coordination
City of Bozeman
Department of Planning and Community Development
Alfred M. Stiff Professional Building
20 East Olive Street
P O B 1230
phone 406-582-2260
fax 406-582-2263
planning@bozeman.net
www bozemannet
MEMORANDUM
TO: BOZEMAN 2020 COMMUNITY PLAN UPDATE FILE
FROM: CHRIS SAUNDERS AND JODY SANFORD
DATE: JUNE 2007
RE: IMPLEMENTATION POLICY STATUS
The following review has been prepared of the status of the implementation policies adopted with the
Bozeman 2020 Community Plan. The items are taken directly from chapter 13.
“13.2 IMPLEMENTATION POLICIES
The goals and objectives of the Bozeman 2020 Community Plan cover a wide range of issues. Often an
implementation policy taken to advance one goal may also apply to others. In order to facilitate comparison
and review of the policies, all of the implementation policies have been gathered into this chapter. They are
organized by number and not by topic. In each chapter of the plan where goals and objectives have been
prepared, the implementation policies which will carry out those goals and objectives have been identified
and are listed and referenced by the numbers shown below. If a discrepancy is discovered between the text
of an implementation policy listed in this chapter and the text of an implementation policy listed in another
chapter, the text of this chapter shall be considered to be correct and take precedence.”
Implementation Policy Status of Completion
1) The Bozeman 2020 Community Plan is the guiding
policy and decision-making tool for decisions made by
elected, appointed, and administrative officials.
On-going, has generally been upheld in land
use decisions.
2) The Bozeman 2020 Community Plan shall guide all
capital facilities planning and construction, which shall
further the community vision described in the Bozeman
2020 Community Plan.
On-going, has been used to help prioritized
investments to encourage infill, compact
development, and compliance with adopted
transportation standards.
3) Review, and revise as necessary, all municipal
ordinances to comply with and advance the goals,
objectives, and community vision of the Bozeman 2020
Community Plan, with zoning and subdivision
amendments to be completed within one year of plan
adoption.
On-going, the zoning and subdivision
standards have been revised several times to
incorporate principles including mixed uses,
urban density, sense of place, and increased
clarity and objectivity of standards. New design
guidelines have also been developed.
4) Collect data and prepare maps and reports as part of
regular City operations on items of identified community
concern, such as crime, parks, wetlands, and viewsheds, to
facilitate the equitable evaluation of community impacts
of development. When possible seek cooperative ventures
with public and private parties to increase the usefulness
of the data collected.
On-going. This has been done in several areas
including a new parks and trails map,
cooperative wetlands map with the water
quality district, and significant expansion of the
GIS program and web service of that data.
5) Ensure that municipal ordinances provide for adequate Standards have been incorporated in chapters
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Implementation Policy Status of Completion
mitigation of identified development impacts. 18.34, 18.36, and 18.06 to facilitate review and
identification of development impacts.
Standards have been adopted through land use
regulations, impact fees, annexation policy, and
other documents to provide for mitigation.
6) Devise standards, procedures, and requirements for the
preparation, review, and adoption of neighborhood and
subarea plans.
The 2020 plan describes the purpose of area
plans. These have been created and adopted in
two instances, Bozeman Creek and Deaconess.
This program has been less successful than was
anticipated. Many of the coordination purposes
have instead been provided by the City’s
facility plans and staff.
7) Develop a reliable support program for the preparation
and implementation of neighborhood and subarea plans,
that requires some monetary or in-kind contribution from
landowners within the area.
Not in place at this time.
8) Establish strong working relationships between City
officials and staff and representatives of other
governmental or non-governmental service providers
through regularly scheduled meetings or other means.
On-going, the City and County Commissions
have begun regular discussion meetings.
Planning Dept has begun program of regular
guest speakers from other agencies to help
increase awareness of needs of others and areas
for cooperation. Several multi-jurisdictional
efforts have been continued such as TCC and
the health board.
9) Continue to support and participate in existing
cooperative intergovernmental groups such as the
Transportation Coordinating Committee, Gallatin City-
County Board of Health, and the Gallatin Valley
Roundtable.
On-going
10) Establish interlocal agreements to address areas of
common concerns and issues.
An interlocal agreement regarding
development standards in areas adjacent to the
City was considered in 2001-2002. The County
Commission declined to enter into the
agreement. The subject is again under
discussion.
11) Provide assistance to other communities by sharing
materials, knowledge, and training opportunities with
elected officials and community volunteers.
On-going, the City planning staff present at
conferences, provide training regarding
planning to new citizen board members, and
invites other staff at other jurisdictions to
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Implementation Policy Status of Completion
participate in web seminars and other types of
training. The City Planning Dept library has
been added to the electronic catalog of items
available through the public library enabling
community members to find information
regarding planning.
12) Establish a regional planning coordinating committee
based on the model of the Transportation Coordinating
Committee to address planning issues with regional
impacts.
This has not yet occurred.
13) Continue cooperation and coordination with the
Gallatin County Planning Board to support policies and
programs that encourage development within
municipalities and establish clearly defined urban growth
areas.
The City and County have by unwritten policy
encouraged parcels adjacent to the City to
annex prior to development. This may become
more formalized through an interlocal
agreement now under discussion as part of the
County’s TDR initiative
14) Pursue state legislative changes as needed to advance
the goals, objectives, and community vision of the
Bozeman 2020 Community Plan.
The City has encouraged relevant bills as they
have arisen. The City has actively participated
in developing bills regarding annexation,
zoning, subdivision, watercourse protection
and impact fees. Not all have seen success.
15) Cooperate with School District Number 7 on the
siting and redevelopment of neighborhood-based schools
that will support and integrate with the land use pattern of
the Bozeman 2020 Community Plan.
The City Planning Dept has a representative to
the district’s long range planning committee
who serves as a point of contact.
16) Research incentives and regulations and publicize
existing incentives, in accordance with the Bozeman 2020
Community Plan, that encourage development within the
City of Bozeman.
The City has provided a greater degree of
administrative level development reviews,
simplified it’s design review program by
developing more clear and objective design
guidelines, and actively pursued provision of
infrastructure in support of development that
is compatible with the 2020 plan’s goals.
Incentives have been publicized through
personal discussion with potential developers
and in various formal settings.
17) Revise existing development design review programs
to include objective review criteria. Any new design review
programs, for residential and/or commercial
development, should also include objective review criteria.
Complete, new illustrated design guidelines for
both the Neighborhood Conservation Overlay
and Entry Way Overlays have been adopted.
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18) Review and evaluate development procedures and
requirements and make changes, as needed, to improve
predictability, clarity, timeliness, effectiveness, and
simplicity, while ensuring adequate review of community
and environmental impacts.
The City has prepared a unified development
ordinance to reduce redundancy and conflict in
regulations, various revisions have been made
to review procedures so that standards are
applied more consistently, and comprehensive
submittal requirements have been established
so required data is available and unneeded
information has been eliminated from
submittals.
19) The annexation policy of the City shall if necessary be
revised to seek to regularize City boundaries, eliminate
existing gaps in the City's jurisdiction, annex all areas
adjacent to the City which are developed at a density
greater than one dwelling unit per acre, and address other
issues as identified in the Bozeman 2020 Community Plan.
The annexation policy was revised in 2006. The
City has sought to encourage annexation of
inholdings within the City but does not itself
initiate compulsory annexation.
20) Implement and maintain a land inventory system to
track the size and development of the City.
This has been developed and is updated
annually.
21) Provide to the City Commission a semiannual report
summarizing all development activity in the previous six
months. The report shall include annexation, subdivision,
and land development activity and an inventory of
available land for development in each land use category.
This has been done annually through a formal
report. The Planning Director has provided
informal verbal reports on a more frequent
basis.
22) If the annual growth rate of the City either increases
or decreases by 50 percent or more in a single year, if the
City increases in population or area by more that 15
percent during the period between otherwise scheduled
reviews; or if the inventory of land uses within the City
shows one land use exceeding the national averages for
cities of comparable size by more than 30 percent, then
the Planning Board shall initiate a review of the growth
policy to ensure that the goals, objectives, and text of the
plan adequately reflect that status and the needs of the
community. Should the review indicate the need for
changes to the plan to respond to altered circumstances,
the changes shall be initiated promptly.
The plan is now being updated. This policy
may be more complicated than is needed and
should be reconsidered with the update.
23) Continue to update and follow facility plans to ensure
that orderly development can be supported by
infrastructure facilities.
On-going and being carried out.
24) Invest public and private funds in all areas of the The City’s Capital Improvement Program has
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Implementation Policy Status of Completion
community to maintain a healthful, pleasant, and desirable
atmosphere and prevent abandonment of areas of the
community.
considered needs throughout the community.
No areas have been neglected or ‘redlined’.
25) Update the Entryway Corridor Overlay plan to ensure
adequate and appropriate review standards that are
consistent with the Bozeman 2020 Community Plan.
Completed.
26) Continue to support the annual Beautification and
Historic Preservation awards and the public recognition
and community pride it encourages.
This has been completed annually.
27) Revise and amend ordinances to facilitate and
encourage innovative and context sensitive community
design, including, but not limited to, neotraditional and
conservation subdivision design.
Completed. Standards have been developed
and included for alleys, smaller front yard
setbacks, mixed uses, and protection of the
natural environment.
28) Use and publicize incentives, such as, but not limited
to, public infrastructure funding support and tax breaks,
to encourage commercial and residential development or
redevelopment of identified infill areas, including
brownfields and the Historic Core.
The City has utilized urban renewal districts,
tax abatement programs, and customized
review standards to accomplish this policy.
29) Use the GIS based land use inventory to identify infill
opportunities and share this information with developers.
Completed. The annual inventory identifies
vacancies and is available to the public.
30) Identify and map important viewsheds and ridgelines,
and actively work to protect and enhance them.
Completed. Standards adopted in Chapter
18.42. Mapping has been completed.
31) Require adequate public safety lighting while
respecting the community desire for a dark sky. Amend
the zoning and subdivision ordinances as needed.
Section 18.42.150 has implemented a “dark
skies” lighting standard and required street
lighting.
32) Require the preparation of subarea plans in newly
developing areas as described in Section 6.1.3 and in
accordance with the land use principles in Section 6.1.2.
Not completed. Much of the coordination
expected has been provided through the City’s
facility plans.
33) Educate the community regarding the use of street
improvement lighting districts for providing public
lighting and that the City shall support and facilitate their
usage.
Completed. Section 18.42.150 enables lighting
districts.
34) As described in Chapter 9, prepare and adopt a new
comprehensive plan for parks, recreation, open space, and
trails for the Bozeman 2020 Community Plan Planning
Area.
In-process, the public review draft of the
document is now out for consideration.
35) Actively provide community outreach to educate the
public and collect input about City programs, services, and
The City has improved its website, begun
televising City Commission and
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Implementation Policy Status of Completion
policies, including the Bozeman 2020 Community Plan
and its implementation tools.
Planning/Zoning meetings, initiated a
continuing education class through the school
district, published numerous reports and given
many presentations to community groups,
established the interneighborhood council.
36) Prepare illustrated urban design guidelines to
encourage functional, human scale, and attractive
development.
Completed with the two sets of updated design
guidelines.
37) Continue and improve implementation of the existing
successful Neighborhood Conservation Overlay and
Historic Preservation Program.
On-going
38) Provide for pedestrian and bicycle networks, and
related improvements such as bridges and crosswalks, to
connect employment centers; public spaces and services,
such as parks, schools, libraries; and other destinations.
On-going, the City has actively pursued
expansion of pedestrian and bicycle networks
including greater distribution of maps and
other information about those networks. A
study examining the benefits of extending the
networks was completed in 2006. Provision of
ped/bike facilities is a basic requirement of
development.
39) Develop and implement reliable and adequate funding
mechanisms for the acquisition, development, and
maintenance of urban parks, recreation trails, and public
open spaces, including, but not limited to, a park
maintenance district, general funds, and parkland dedica-
tions.
Parkland dedication requirements have been
established. A park maintenance district has
been investigated but not yet created although
waivers of the right to protest creation of such
a district have been collected with each new
annexation. The City has worked with private
individuals and non-profit groups to acquire
two parks apart from those provided by
development dedications.
40) Work with the Montana Department of
Transportation and Gallatin County to develop
coordinated public right-of-way landscaping guidelines,
including desired tree and grass species and maintenance.
We did not formalize right-of-way landscaping
guidelines, but did include requirements in the
UDO that these areas be landscaped. If it is a
MDOT ROW, the applicant needs to seek
review and approval from MDOT. Could use
more work.
41) Require the installation of street trees in public rights-
of-way in conjunction with development, including
enforcement as necessary.
Completed. Requirement incorporated in 18.48
42) Continue, promote, and expand as needed the City's
existing cost share tree planting program.
Program continues and was recently expanded
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Implementation Policy Status of Completion
43) Maintain a tree inventory system and incorporate it
into the City GIS system, including information on
trimming, removal, planting, and tree health status.
Our current inventory of city trees is quite
outdated at this time, but we are working on it
a bit at a time. After many starts and stops over
the past several years we have new inventory
software that will allow us to map the trees
with GIS capabilities. It will track all the usual
attributes of the tree and site. The site will
include width of boulevard, residence or
business, and any utilities that might be
present. Tree attributes will be the genus,
species, spread, condition, from the roots to
foliage, insect or disease problems, and any
defects that may be present. We will be able to
schedule trimming, removals, and available
planting sites. It will track work orders and
service requests.
The problem is that we are so short handed
and have so many other projects going that the
inventory is not progressing very rapidly. But
yes, we have one in place we are just doing
much with it right now.
44) Prepare and implement a comprehensive urban forest
master plan addressing planting, maintenance, and
replacement needs.
We have a management plan that was put
together by a private company a number of
years ago that addresses most of our urban
forestry concerns. It might need to be tweaked
a little to make it more up to date.
45) Conduct an affordable housing needs assessment at
least every five years, and prepare and implement an
affordable housing strategic plan.
An affordable housing policy was adopted in
2003. A needs assessment has been completed.
46) Lobby the state to adopt building codes that are
responsive to the unique circumstances of older buildings.
Unknown Status
47) Ensure that the zoning ordinance provides for both
minimum and maximum residential densities.
Completed.
48) Sustain the Bozeman Arts Commission and support
the Commission's preparation and implementation of a
Bozeman Arts and Culture plan. The plan shall address
funding, facilities, access, event scheduling, arts education
and outreach, and expanding arts opportunities.
Not yet completed, contemplated to occur
with this update, some private efforts have
already begun.
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Implementation Policy Status of Completion
49) Promote Downtown as the cultural center of
Bozeman through support of art in public places,
including visual, literary, and performing arts on both
public and private property.
Music on Main and other activities have been
added by the Downtown Business
Associations. The City has facilitated and
supported such activities.
50) Incorporate public art in public projects including
buildings, parks, recreational facilities, and public service
facilities and encourage private development to include art
in their projects.
The City recently completed an art map
locating murals, sculptures, and other public art
throughout the community to raise awareness
of art as an element of our City.
51) Support and facilitate community arts and cultural
events such as the Sweet Pea Festival, Christmas Stroll,
Lunch on the Lawn, Gallatin County Fair, and the Winter
Fair.
The City has cooperated with the private
groups which sponsor these activities.
52) In cooperation with other public and private entities,
design a long-range plan to promote cultural tourism.
Not yet completed, could be part of an
economic development plan as called for in
implementation policy 107.
53) Work with the Gallatin Local Water Quality District,
Gallatin County, and local water quality groups to
organize, promote, fund, and hold an annual household
hazardous waste disposal event and work to develop a
permanent household hazardous waste disposal facility.
The City has sponsored an HHW event and is
in the process of developing a permanent
facility.
54) Review and evaluate for effectiveness, and if necessary
modify, each City program or policy at least every five
years. Ensure public participation in the review process.
Not all programs have meet this intent.
Significant areas that have are affordable
housing, land use regulations, and
neighborhood outreach.
55) Prepare and implement a neighborhood plan for
Downtown to evaluate issues such as parking, traffic
circulation, economic development, the economic impacts
commercial development located outside the commercial
core has on Downtown, building rehabilitation, expansion
of the Downtown business district, increasing building
height limits, rehabilitation of Bozeman Creek, and so
forth.
Not yet completed, some individuals items
have been examined such as parking.
56) Coordinate with landowners to assemble and site
community parks, as defined herein, which are centrally
located and easily accessible to increase and maximize
recreational possibilities.
On-going.
57) Revise local subdivision regulations to support off-site
parkland dedication or other means of aggregating
parkland.
Completed, contained in Chapter 18.50, BMC
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Implementation Policy Status of Completion
5 8) Revise the zoning ordinance to encourage and
facilitate the development of multi-use buildings and
projects that combine residential and non-residential uses
including live/work opportunities.
Completed, contained in Chapters 18.18 and
18.20 and 18.24.
59) Ensure an adequate land base dedicated to the
commercial functions of neighborhood commercial
centers so that businesses reinforce each other, provide a
wide range of services, and are easily accessible to
neighborhood residents and workers.
Completed, contained in Figure 6-2 of the
2020 plan.
60) Establish public/private partnerships to complete
hazard/risk analyses of historic sites and properties and
neighborhoods to determine vulnerability and recommend
and implement appropriate mitigation.
Not completed
61) Maintain and enhance as needed relationships with the
Gallatin Development Corporation, Chamber of
Commerce, and other groups to promote Bozeman as a
good place to live and work and attract businesses that
advance the goals and objectives of the Bozeman 2020
Community Plan.
Unknown status in detail. The City has
continued its economic revolving loan program
and other economic development tools. City is
a member of the Chamber of Commerce. The
City continues to contract with Prospera to do
the City’s economic development work.
62) Hire a community grants coordinator to secure grants
to help support economic development, infrastructure
installation and maintenance, parks, historic preservation,
affordable housing, community beautification, and so
forth.
Completed.
63) Support those segments of Bozeman's economy
related to agriculture by encouraging the development of
local value-added processes.
On-going, the City has set aside lands for use
by manufacturing and retailing operations
using local products.
64) Support the creation and continuation of local markets
such as the Farmer's Market for local products.
City helped fund construction of the Haynes
Pavilion where the farmers market is
conducted. City regulations allow home
occupations for many forms of start up
businesses.
65) Support the production of specialty and organic crops
in close proximity to urban areas by allowing small-scale
agriculture as a home-based business, expanding the
Farmer's Market, and so forth.
Home based business would be allowed as a
home occupation. City does not operate the
farmers market but did help with funding for
new location.
66) The City shall balance the needs of existing and future
development so that the cost of public facilities and
services is assigned on a fair, proportionate, and equitable
On-going, the City conducts long range facility
planning to identify and prioritize needs and
what causes them. City is updating its impact
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Implementation Policy Status of Completion
basis to the user that requires them. fee studies and monthly rates structure which
form the basis of its program to fund
infrastructure.
67) As provided for in state law, seek to establish joint
funding mechanisms so that non-City residents participate
in the construction and support of City services and
facilities that they use.
Attempted several times with no successful
direct county participation. Instead payback
districts were created so benefited parties will
be responsible for payment upon annexation.
68) Help advance Montana State University's education
and research missions and further the goals and objectives
of the Bozeman 2020 Community Plan through internship
and partnership opportunities with the City and contracts
for services such as the Community Design Center.
City has hosted numerous interns, class tours,
and provided many speakers and information
packets. City has cooperated with MSU in
developing their long range campus plan
recently adopted.
69) Develop and implement regularly scheduled town
meetings hosted by the City Manager, City Commission,
and senior staff to directly address citizen concerns.
This was conducted once or twice and then
discontinued in favor of other outreach efforts.
70) Adopt and implement the transportation facility plan
and its successors to support the community vision
contained in the Bozeman 2020 Community Plan.
Completed the adoption of the transportation
plan and incorporated its standards.
Implementation is on-going and has guided
numerous road construction projects.
71) Partner with governmental and non-governmental
groups such as law enforcement, schools, MSU, Board of
Health, Bicycle Advisory Board, and the Pedestrian and
Traffic Safety Committee, to establish an ongoing
pedestrian and bicycle awareness and safety education
program.
A bicycle rodeo was jointly conducted at
Deaconess hospital this spring, bike route
maps with safety information were developed,
and there are on-going and continuous efforts
to provide improved bicycle and pedestrian
facilities with increased safety.
72) Revise the zoning map and code to reflect the center-
based land use pattern described in the Bozeman 2020
Community Plan.
Completed.
73) Work with major employers and other significant trip
generators to identify and implement transportation
demand management actions, including telecommuting,
off-peak time shipping, ride sharing, and others.
Not completed to date although discussion has
occurred. We plan to have more of this in the
new transportation plan.
74) Amend ordinances to require the dedication and
development of non-motorized transportation facilities in
conjunction with development.
Completed, included in Chapter 18.44, BMC
75) Prepare and adopt clear criteria to determine when
pedestrian and bicycle facilities are primarily
transportation improvements or recreational facilities.
Completed, included in Chapters 18.44 and
18.50, BMC
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76) Prepare and adopt design, construction, and
maintenance standards for pedestrian and bicycle
transportation improvements versus recreational facilities.
On-going, development of standards for
transportation grade is complete, recreational
standards is being prepared as part of the new
parks plan although interim standards have
been adopted by the Parks Dept.
77) Provide for non-motorized transportation facility
maintenance through the City's normal budgeting and
programming for transportation system maintenance.
Completed. Routine street sweeping cleans
bicycle lanes and sidewalks are maintained by
adjacent owners.
78) Continue the existing sidewalk and curb ramp
installation, repair, and replacement program.
Continuing annually
79) Provide opportunities for meaningful public outreach
and involvement in the preparation of all Bozeman 2020
Community Plan implementation tools.
Completed for those elements done to date.
80) Establish public/private partnerships to protect and
preserve open spaces or other significant properties to
advance the goals and objectives of the Bozeman 2020
Community Plan.
City participated in two open space bonds,
acquisition of two park segments with private
individuals or non-profit groups, is considering
how most effectively to participate in the
County’s TDR proposal.
81) Prepare a recreation facilities and programming plan,
including the development of an indoor recreation center
and an outdoor community pool.
Being completed as part of the new PROST
plan.
82) Request an update of the National Flood Insurance
Program maps every ten years by the Federal Emergency
Management Agency.
Unknown status, Statewide FEMA updates
about 10 miles of stream mapping per year
with priority to unmapped streams. City has
implemented more precise mapping studies as
part of its land development regulations
83) Work with neighboring jurisdictions to create and
connect trails and corridors.
On-going, City cooperates with County trails
board and new Parks board, Gallatin Valley
Land Trust and other interested parties.
84) Require adequate on-site storm water
detention/retention and treatment in conjunction with
development to reduce runoff, reduce flood peaks,
prevent stream scouring, flooding, and water
contamination.
On-going, minimum standards are currently
incorporated into land use regulations in
Chapter 18.42. City is currently developing a
stormwater master plan and considering other
steps.
85) Evaluate and implement innovative measures and
programs to protect critical lands and other
environmentally sensitive areas.
Completed. City has adopted a wetlands
protection program and watercourse setbacks
in Chapters 18.42 and 18.46, BMC
86) Update the City's stormwater control plan. Underway
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Implementation Policy Status of Completion
87) Establish appropriate setbacks to buffer watercourses
and wetlands based on the size and/or functionality of the
watercourse or wetland. Ensure that an appropriate
amount of the buffers are left in natural vegetation.
Completed. See Chapter 18.42, MC
88) Develop City-sponsored trail maps and information,
and provide signage for trail parking and trail facilities to
encourage trail usage.
On-going, city has prepared updated map as
part of the new PROST plan development.
Map will be both posted at trails, available at
website, and may be printed.
89) Protect and rehabilitate those watercourses and
wetlands on City property and encourage similar actions
for private property.
City has adopted standards for protection of
watercourses and revegetation/stormwater
control, City has bound itself to its own
ordinance.
90) Prepare and adopt a grading ordinance to reduce
erosion and sedimentation and to protect air and water
quality.
Not complete. Some portions are included in
Chapter 18.42, BMC and others are being
considered as part of the new stormwater plan.
91) Prepare and implement a weed control plan, in
concert with other governmental and nongovernmental
groups, which includes mapping, management strategies
and techniques, and education.
Status unknown
92) Utilize best management practices in transportation
system maintenance to facilitate non-motorized
transportation, preserve air and water quality, extend
facility service life, and protect City resources.
On-going, the City provides routine quality
maintenance to its roadways including
sweeping, repair to potholes and cracks, and
has recently mapped all stormwater inlets as
part of the stormwater master plan.
93) Prepare, adopt, and implement facility and strategic
plans for all City services which shall evaluate current
conditions, future needs, alternatives, and recommend a
preferred course of action.
Underway, recent efforts are completed plans
for water, sewer, and fire. Plans for police and
transportation are now underway.
94) Work with Gallatin County, School District Number
7, and other entities to jointly fund, develop, and maintain
parks and recreation facilities.
On-going, the new PROST plan advances this
policy. We may have our first test of this policy
in the next few years in BSD#7 constructs at
new elementary school at their site on W
Babcock.
95) Continue the City's impact fee program as allowed by
law and judicial rulings.
Now underway with updates to impact fee
studies and implementing ordinance.
96) Implement the Capital Facilities Priority Area in
support of a compact urban form and the land use
pattern, goals, and objectives of the Bozeman 2020
Community Plan.
On-going, the CFPA has influenced the capital
improvements program which allocates funds
to infrastructure projects across the City. The
high rate of growth has made implementing
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Implementation Policy Status of Completion
the exact boundary more difficult than
expected. The principles have been adhered to
and consideration should be given to dropping
the actual line on the map and focusing on text
97) Implement all existing and future facility and strategic
plans to support, and in accordance with, the Bozeman
2020 Community Plan.
To date this has been successfully
accomplished.
98) Investigate the feasibility of a Citywide curbside
recycling service to reduce waste materials being sent to
the landfill.
Now underway
99) Develop incentives to encourage the diversion of yard
wastes and recyclable materials from the waste stream.
Now underway
100) Investigate, and if feasible implement, the siting of
City service satellites to provide neighborhood services
from multiple departments to encourage efficiency,
improve customer service, more equitably distribute
services, and provide a civic presence in neighborhoods.
Consideration has been given with each facility
plan.
101) Pursue adequate emergency services personnel,
facilities, and equipment to provide levels of service in
compliance with local, state, and national standards.
The recently adopted fire facility plan and the
police plan now in development will facilitate
this goal. The budgeted FTEs for police have
been increased and new facilities are being
pursued for a replacement police station and a
new fire station.
102) Work with private utilities to place existing service
lines underground.
Being pursued as opportunity allows
103) The City shall support private and/or public efforts
to site and operate a homeless shelter in Bozeman.
Recently a group formed to pursue a shelter
option, the use of City land as a location is
being considered. City has allowed cooperative
church efforts to provide homeless care to
families through the Family Promise program.
104) Prepare and adopt an Urban Open Space Plan for
the Bozeman 2020 Community Plan planning area that
includes, among other things, identification of possible
open space areas and corridors, prioritization of
protection and acquisition opportunities, and possible
funding and implementation tools.
This is no being undertaken through the new
PROST plan. Instead, the PROST Plan
recommends the preparation and adoption of a
separate open space plan.
105) The Critical Lands Study document shall be updated
to reflect changes in jurisdiction, legislation, mapping and
inventories, and natural resources in the Bozeman area.
City supported and helped fund the water
quality district efforts. The document is not yet
updated due to workload issues. Several
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Implementation Policy Status of Completion
This update shall begin once the Local Water Quality
District concludes its wetland grant projects.
changes have been made in local regulations to
protect wetlands and watercourses
106) The City shall prepare park and trail development
and maintenance standards for inclusion in subdivision
covenants to ensure that Homeowners and Landowners
Associations doing their own park and trail development
and maintenance do an adequate job.
Standards have been created and are available
through the Parks department but have not
been required to be in covenants. Chapter
18.72 has been revised to require a
maintenance plan for commonly held elements
as part of covenants.
107) Use and publicize incentives, such as, but not limited
to, public infrastructure funding and tax breaks, to
encourage the creation of primary jobs and workforce
training.
On-going, the City is constantly working to
ensure that adequate infrastructure is available
to support business development. The City
hosts the College of Technology which
provides certain workforce training in
computers and business development
108) Provide public infrastructure for a partnership with
Montana State University that incubates business—
building on the success of the Montana Manufacturing
Extension Center, TechRanch, and TechLink-transferring
technologies developed at MSU to the private sector and
creating high paying jobs.
The City has engaged in facilities planning and
worked to provide adequate infrastructure in
the proximity of MSU in cooperation with
private development. City has provided
economic assistance to several new or
expanding companies.
109) Adopt and incorporate by reference into the 2020
Plan a Bozeman Economic and Business Development
Master Plan with the goals of (1) Actively encouraging,
promoting and facilitating the creation of new businesses
within the Bozeman Area, recruiting nonresident
businesses to relocate to the City, and retaining and
supporting the expansion of existing businesses; (2)
actively encouraging, promoting, and facilitating a strong,
mutually beneficial working relationship between the City
of Bo2eman and Montana State University, with an
emphasis on capturing a larger share of the benefits of
university research through local economic development;
and (3) promoting and maintaining a positive business
climate within the City. (4) Involving participants in this
process who should include but not be limited to the
Public Sector (City of Bozeman, Gallatin County,
Bozeman Public Schools, Montana State University, and
the State of Montana) and Private Sector (Gallatin
Development Corporation, Bozeman Area Chamber of
Not yet completed. Budget approval for a plan
was declined several years ago.
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Implementation Policy Status of Completion
Commerce, Southwest Montana Building Industry As-
sociation, and Downtown Bozeman Business
Improvement District).
110) Where appropriate, utilize the Historic Mixed Use
(HMU) zoning designation to protect the character of
historically mixed use neighborhoods, and encourage the
continued viability of these areas. Special emphasis shall
be placed on historic preservation, adaptive reuse, and a
balanced and broad range of uses consistent with the
existing development pattern.
Completed with the development and adoption
of the North East Historic Mixed Use District,
Chapter 18.24, BMC. Other opportunities may
exist and will be addressed as they arise.
134
Bozeman 2020 Community Plan Analysis Appendix
Clarion Associates (August 2007)
Appendix C: Plan Examples
1. Document format
2. Action Plan
3. Land use categories
135
Document Format Examples
137
Chapter 7—Related Plans Functional and Strategic Plans: Arvada Parks, Trails, and Open Space Master Plan
ARVADA COMPREHENSIVE PLAN | 7-1 |
Chapter 7—Related Plans
Functional and Strategic Plans
Arvada Parks, Trails, and Open Space Master Plan
Purpose
The City worked with a consultant to prepare the Parks, Trails, and
Open Space Master Plan (Master Plan) in 2001 with the assistance of a
Citizen Advisory Group. The Master Plan is intended to guide
development of the parks, trails, and the open space system through
the next decade. The mission is to “provide a high quality parks,
trails, and open space system for citizens of the Arvada area.” The
Master Plan defines policies and projects for the next ten years. More
specifically, it:
Guides the development and management of various types of
parks;
Promotes the development of a parkland system that offers
consistent and equitable service to all residents;
Provides conveniently located neighborhood parks and new
community and regional parks;
Outlines improvements to existing parks and sports
complexes to better serve community needs;
Sets forth an interconnected multi-purpose trail system
through Arvada; and
Designates additional open space areas to protect wildlife
habitat and environmentally sensitive areas, provide trail
corridors, preserve views, and provide recreational
opportunities to area residents.
The Parks, Trails, and Open Space Master Plan is a functional plan that
covers the entire City.
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Chapter 7—Related Plans Functional and Strategic Plans: Arvada Parks, Trails, and Open Space Master Plan
| 7-2 | ARVADA COMPREHENSIVE PLAN
Recommendations
Parks
Neighborhood Parkland: The Master Plan recommends that a
neighborhood park be located within approximately one-half mile of
all Arvada residents. It proposes a neighborhood parkland standard
of 3.6 acres per 1,000 population.
Community Parkland: The Master Plan recommends that a
community park be located within approximately 2 miles of all City
residents. It proposes a community parkland and sports complex
acreage standard of 4.5 acres per 1,000 population. In addition, the
Master Plan prioritizes specific projects to meet the anticipated future
demand for community parks.
Sport Complex: The Master Plan recommends the development of the
first phase of Long Lake Ranch Regional Park to meet Arvada’s sports
facility needs for the next 10 years, and it recommends upgrades for
existing sports complexes.
Special Purpose Parks: The Master Plan recommends that a new park
category—Special Purpose—be created to accommodate parks such as
the Equestrian Center and the newly proposed Dog Park and disk
golf course.
Open Space
The City never had a formal open space plan before the 2001 Master
Plan. This Master Plan identifies key areas to preserve as open space
and establishes a classification system that can be used to designate
parcels according to their preservation method, environmental
sensitivity, and level of facility development for public use. It shows
3,800 acres of conceptual future open space for Arvada that is focused
around drainage ways, water bodies, prominent ridges, expansions to
existing open spaces, and wildlife habitat areas.
Trails
The Master Plan recommends acquiring the right-of-way for and
construction of paved and unpaved trails through the community—
particularly along Van Bibber Creek, Little Dry Creek, Ralston Creek,
and Leyden Creek, and along Farmer’s Highline Canal and Croke
Canal corridors.
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Chapter 7—Related Plans Functional and Strategic Plans: Arvada Police Department Strategic Plan
ARVADA COMPREHENSIVE PLAN | 7-3 |
Funding/Implementation
The Master Plan notes a need to develop an adequate level of funding
for planning, acquiring, developing, enhancing, and maintaining the
parks, trails, and open space system. While residents consistently
support additional taxes for new park development, they have not
supported funding to complete new projects. Lack of financial
support contributes to the burden of maintaining and upgrading
facilities—some of which are unfinished.
Arvada uses a park development fee to fund parks and recreational
opportunities. This fee generates a fraction of the financial resources
needed to construct a park. The City also relies on grants from
Jefferson County Open Space and other sources (i.e., State Historical
Fund, Great Outdoors Colorado, state lottery, and TEA-21 grants).
The Master Plan recommends creating a Parks Foundation, which
would allow for donations. Arvada continues to rely on the City
attributable Jefferson County Open Space Fund to cover a major
portion of maintenance expenses.
Arvada Police Department Strategic Plan
Purpose
The Arvada Police Department Strategic Plan (Strategic Plan) (2003-2007)
assists the Police Department with accomplishing its mission, which
is: “to provide high quality police service in an objective and
professional manner.” The Strategic Plan is for police service for the
entire Arvada community. It includes a vision statement and a series
of goals and targets.
Police Department Vision
According to the Strategic Plan’s vision:
“The Police Department will be the foremost police agency in
Colorado through:
Fostering pride in and respect for the employees’ professional
skills, knowledge, and creativity that reduce crime, disorder,
and the fear of crime.
Problem identification and problem solving activities in
partnership with the community.
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Growth Management 4-1
May 2004 Steamboat Springs Community Area Plan
Chapter 4: Growth
Management
Growth Management Vision
The Steamboat Springs community will use innovative growth
management that encourages economic stability in a diverse social
community while preserving our natural, historic and visual
values.
Background and Intent
The 2003 Steamboat Springs Community Survey respondents identified
Growth Management as a “top-five” priority issue, with more than 72
percent indicating that growth management is “very important.” Generally
residents would like to see the city do more to manage growth and its
impacts.
While the 1995 Plan did not include a Growth Management element, it did
address growth management through the establishment of an Urban
Growth Boundary (UGB) that proposes to direct growth and development
within the boundary (note: in the 1995 Plan, this is called the “Urban
Boundary”) . The community has also taken a number of actions since the
adoption of the 1995 Plan to strengthen its approach to growth
management, including the following:
Land Preservation Subdivisions (County);
Revised Community Development Code (City);
Intergovernmental Agreement addressing growth issues (City and
County);
Excise Tax Ordinance (City);
West of Steamboat Springs Plan (City and County);
Mountain Town Sub-Area Plan (City); and
Purchase of Development Rights Program (County).
To be effective, growth management requires a comprehensive and
balanced approach and mix of tools. Tools that are available to a
community include five potential approaches: (1) manage rate/timing, (2)
manage location, (3) manage amount and density, (4) manage cost, and
(5) manage the quality of development. The next few sections briefly
review the community’s approach to each of these five potential growth
management tools:
(1) Rate/Timing - During the initial stages of preparation of the
Community Area Plan Update, the Growth Management Working Group
did not reach consensus on a recommendation for managing the
community’s rate of growth. During review of the draft Area Plan Update,
this topic was discussed at length by City and County Planning Commission
members, City Council, and the Board of County Commissioners, without a
What is Growth?
Growth means development
and/or an increase in size or
area of a community over
time.
What is Urban Growth?
Growth with physical
characteristics and land uses
typically associated with more
densely populated areas, such
as paved streets; curb, gutter,
and sidewalks; public water
and sewer; storm drainage
infrastructure; and high levels
of police and fire protection
services.
What is Growth
Management?
Government programs
intended to influence the rate,
amount, type, location, and/or
quality of future development
within a jurisdiction.
What is an Urban Growth
Boundary?
A line on a map that is used
to mark the separation of land
suitable for urban
development from rural land,
and within which urban
development should be
encouraged and contained
and outside of which urban
development should not
occur.
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Growth Management 4-2
May 2004 Steamboat Springs Community Area Plan
clear consensus for direction. For these reasons, the Area Plan Update does
not include recommendations for actions to be taken at this time to
manage the rate of growth, and focuses its efforts instead on the
appropriate types and patterns of land uses; the balance among uses; and
the ultimate character and form of the community. City and County elected
officials have agreed to jointly appoint a Growth Management Advisory
Group, to engage the public in developing a recommendation for
additional growth management measures to be considered, including
controls on the rate of growth through placing a limit on the number of
residential building permits that are issued annually (see Strategy 2.1(b)
below).
(2) Location - The city and county have already taken steps to manage the
location of growth by adopting an UGB that is basically contiguous with an
urban service area. They also effectively use zoning to manage the location
of growth (see GM-1 above).
(3) Amount and Density - The Steamboat Springs community already
manages the amount and density of growth through its Future Land Use
Plan and zoning regulations. This plan includes estimates of the
community’s buildout population based on current policies and regulations,
and includes recommendations to refine these measures as needed to
achieve the community’s objectives.
(4) Cost - The city has recently adopted an excise tax as a means of
funding for needed facilities and services. The city and county coordinate
payment of fees through development agreements. The Steamboat
Springs community has opportunities to better coordinate fiscal planning for
growth and development through a Capital Improvements Program (CIP),
as discussed in the Capital Facilities section of this plan. Currently the city
and county CIP programs are not coordinated with development proposals.
(5) Quality - The city and county both use guidelines and standards to
help manage the quality of new development. This plan includes
recommendations for additional resource protection standards (see Chapter
7: Natural, Scenic, and Environmentally Sensitive Areas) and design
guidelines and standards (see Chapter 5: Community Design).
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Growth Management 4-3
May 2004 Steamboat Springs Community Area Plan
Major Themes and Related Chapters
The following matrix lists the themes that this chapter discusses and related
themes that are addressed in other chapters:
Chapter Title Land Use Community Design Transportation Natural, Scenic Open Space, Recreation Housing Economic Development Historic Preservation Capital Facilities Specific Planning Areas Urban Growth
Boundary µ µ µ
Infill and
redevelopment µ µ µ µ
Adequate public
facilities µ µ
Level of Service µ
Capital
Improvements
Plan
µ
Funding/
Financing µ
Growth Management Goals and Policies
Goal GM-1: Steamboat Springs will have a compact
land use pattern within a well-defined boundary.
Rationale
The Steamboat Springs area has a relatively finite amount of
developable private land that can be served by utilities and public
facilities and services. A compact land use pattern shapes growth
in a manner that preserves the region's natural environment,
livability, and sense of community. The Future Land Use Plan
includes an Urban Growth Boundary (UGB) that identifies lands
that are currently most appropriate for compact, urban
development. The UGB includes both the existing urban area and
the West of Steamboat Springs area.
By directing growth to well-defined contiguous areas, the
community can efficiently serve development, protect open lands
and natural resources; deliver public facilities and services more
effectively; provide a greater range of options for housing types in
neighborhoods and in more areas of the region; and make
available a diverse range of transportation choices.
Policy GM-1.1: Maintain the Urban Growth Boundary, and
review it periodically to ensure that it can meet the region’s
needs.
Urban growth boundaries bring certainty to the issue of which lands will be
144
Growth Management 4-4
May 2004 Steamboat Springs Community Area Plan
developed and which lands will be kept open or in rural use. The UGB for
the Steamboat Springs area represents the demarcation between those
areas where future development of urban density is deemed appropriate or
inappropriate. Areas within the UGB will be required to develop in an
urban fashion and to annex to the City prior to or at the time of
development, assuming that annexation criteria can be met (see Strategy
GM-1.2(b), below). Outside of the UGB, the county will only permit rural
development patterns and the city will discourage annexation.
While the UGB is not intended to be permanent, it is intended to reflect a
specific area that should be largely built-out before the community expands
the boundary. The boundary is based on three primary criteria developed
as part of the 1995 planning process, including:
The desire to maintain a compatible character for each planning
area as development occurs;
The use of major natural or geographic features (e.g. ridges, rivers
or streams) to define a boundary that could be maintained over
time; and
The ability to provide urban services (e.g., water, wastewater,
police protection, and schools) cost-effectively.
Strategy GM-1.1(a): Periodically Review the Urban Growth Boundary –
The city and county should periodically review the UGB to determine if
adjustments are needed to reflect changing circumstances, particularly
with regard to the ability to provide urban services. This review should
occur according to established criteria and procedures adopted as a
part of the Implementation Program for the Plan, and may also be
reviewed in conjunction with a comprehensive update of the plan.
Strategy GM-1.1(b): Use Criteria to consider UGB Amendments - The
following criteria shall apply when the city and county evaluate a
proposed amendment to the Urban Growth Boundary:
1. Policy compatibility - that the proposed amendment is consistent
with goals and policies contained in the Community Area Plan;
2. Fiscal Impacts - that the proposed amendment has a positive fiscal
benefit to the community;
3. Reasonable Accommodation - that the proposed activity cannot be
accommodated on lands within the existing Urban Growth
Boundary;
4. Land suitability - that the land proposed for inclusion in the UGB
contains no sensitive environmental resources or hazard constraints
that make the area unsuitable for its proposed use;
5. Logical change to the UGB - that the amendment is a logical
change to the Urban Growth Boundary. Factors to be considered
include an efficient increment for extending urban services, a
desirable urban edge, a change that is contiguous to existing
developed areas of the city, and a location that contributes to the
desired compact urban form of the city.
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Chapter 3: Vision Statement The Vision
PAGOSA SPRINGS COMPREHENSIVE PLAN 3-1
Chapter 3: Vision
Statement
The Vision Statement is a broad but concise description of what we
want the community to be in the future. This vision describes Pagosa
Springs’ assets and values and focuses on moving the community
toward achieving longer‐reaching ideals. In the goals and policies
chapters (Chapters 5‐15), each of the statements below serves as a
foundation for the goals.
The Vision
Pagosa Springs will realize its vision with a mix of regulatory tools,
incentives and programs. Our town will:
• Be known for and retain our small town atmosphere and unique
character;
• Manage growth responsibly, promoting development patterns
that support and retain the town’s character;
• Broaden community cultural events and venues and continue to
support public art suitable for small towns;
• Sustain and enhance the beauty and health of the natural
environment;
• Preserve and promote our historic downtown and community
heritage;
• Retain, grow, promote, and support our unique local businesses
and encourage a diverse economic base with year‐round job
opportunities;
• Provide a variety of neighborhoods that contain a mix of
housing that is attainable by all our citizens, no matter age,
income, or ethnicity;
• Be built around a system of connected and continuous streets,
sidewalks, and trails and provide transportation options that are
well integrated into the neighborhoods;
• Support and expand our legacy of parks and open spaces;
• Build quality, attractive development appropriate to the
neighborhoods;
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Chapter 3: Vision Statement Achieving the Vision
3-2 PAGOSA SPRINGS COMPREHENSIVE PLAN
• Responsibly fund our essential services based on priorities
established through a capital planning process;
• Be a town in which people feel safe and secure; and
• Continually plan for the future.
Achieving the Vision
While the vision is the backbone of the Comprehensive Plan, it is
realized through a well thought out set of goals, policies, and actions
that provide a clear blueprint for where the community would like to
go and how it will get there.
Goals
Comprehensive Plan goals provide concise statements of what the
community aims to accomplish over the life of the plan—for the next
10 to 20 years—assuming the town will update the plan from time to
time. The goals provide the basic organization and direction for the
plan’s policies and actions.
Policies
Policies provide the definite course of action or direction decided
upon by the town to be employed to attain the goals. They provide
ongoing guidance for elected and appointed community leaders, staff
and administrators as they make decisions about development,
programs, and investments in the town.
Actions
Finally, actions provide the specific measures to be taken to
implement the plan and its policies. The town can prioritize these
actions and assign responsibility internally for carrying them out.
Because priorities and work plans will change from year to year, town
staff and officials should continually evaluate and update the actions
on an as‐needed basis.
147
Chapter 4—Community Development Principles Redevelopment and Infill
ARVADA COMPREHENSIVE PLAN | 4-1 |
Chapter 4—Community
Development Principles
The Arvada Comprehensive Plan sets the direction for future land use
decisions and helps accomplish the goals of this Plan. It builds on
older Comprehensive Plans and reflects extensive discussions and
review with citizens and appointed and elected officials about the
community character desired for Arvada, and analysis of likely future
needs. The previous chapters have presented the City’s vision and
general goals. This chapter includes principles for several key
concepts that are touched on throughout this Plan—for example, in
the Vision and Goals chapter and later in the Land Use Plan. This
chapter describes the focused concepts that can aid the City in
ensuring that future developments are lively, livable, and sustainable.
It provides detailed principles to help guide land use and
development in Arvada addressing the following concepts:
Redevelopment and Infill;
Transit-Oriented Development;
Mixed-Use Development;
Areas with Rural Characteristics;
Residential Site Development; and
Commercial Centers (including large-format, “Big Box” retail).
Redevelopment and Infill
One of the City’s primary goals is to encourage a more efficient land
use pattern. The renewal and enhancement of targeted
redevelopment areas and the encouragement of infill development is
a means of achieving economic revitalization and improving physical
conditions in the City’s mature areas. Infill means the development
of new housing or commercial buildings on scattered vacant sites in a
largely built-up area. Redevelopment means the replacement or
reconstruction of buildings that are in substandard physical
condition, or that do not make effective economic use of the land on
which they are located. This Plan identifies current redevelopment
areas and potential future redevelopment areas (see Goal L-7, and
Goal L-8 and Figure 1: Redevelopment Map).
Mixed-use development and
alley entry garages in Village at
Five Parks.
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Chapter 4—Community Development Principles Residential Site Planning and Design
ARVADA COMPREHENSIVE PLAN | 4-9 |
Residential Site Planning and Design
The following principles apply to all new residential developments.
Design new residential developments to allow for and
encourage variety, connectivity, recreation, and unique
community identity.
Developments should incorporate a variety of home styles,
models, setbacks, lot sizes, elevations, and location of garages
to avoid visual monotony (e.g., “cookie cutter subdivisions”).
New neighborhoods should contain a focal point, such as a
school, park, lake or water feature, or community center.
Local streets, sidewalks, bicycle paths, and trails should be
interconnected to allow for ease of mobility and contain “open
space” design elements, such as detached and meandering
sidewalks, streetscape, planted buffer yards along major
streets, and open fencing.
Encourage new residential developments to preserve and
protect natural features, visual amenities of the community,
and open space.
Environmentally sensitive areas such as stream corridors,
drainageways, wetlands, steep slopes, and ridgelines should
be protected through the strategic placement of open space
within the development.
To the extent feasible, development should be clustered to
preserve contiguous and permanently designated public or
private open space.
Building large homes on small lots should be avoided unless
the lots in the overall development abut or are linked to
permanently designated public or private open space.
Provide a range of housing types.
One of the major goals of this Plan is to continue to provide
opportunities for different housing types to be developed to allow for
varied incomes, lifestyles, and age groups. Opportunities for
affordable housing should also be provided.
Example of a park focal point.
Example of open space and
environmental features
integrated into a neighborhood.
Example of apartments used for
senior housing.
149
Chapter 4—Community Development Principles Commercial Centers and Large Format (“Big Box”) Retail
| 4-10 | ARVADA COMPREHENSIVE PLAN
Commercial Centers and Large Format
(“Big Box”) Retail
Arvada neighborhoods and citizens are concerned about the location
and quality of retail development. This Plan recognizes that while
retail development is important to the City’s fiscal health, it limits
“Big Box” retail to Regional Commercial Centers (as shown on Figure
3: Land Use Plan). This Plan also promotes avoidance of strip
commercial development strung out along arterial roadways.
Large Format Retail is defined as any single store or commercial
business that is larger than 75,000 square feet (except for grocery
stores). New large retail that depends on high visibility should
incorporate the following design and locational principles.
Large Format Retail development should incorporate design
elements to provide for visual appeal, pedestrian safety, and
appropriate landscaping.
Façade walls, including sides and backs of buildings, and
rooflines should be articulated to reduce the scale and uniform
appearance of the building and clearly define entrances.
Building construction should use high-quality materials so that
buildings are long-lasting, attractive, and durable (e.g.,
sandstone, brick, masonry units). Building colors and materials
should be of low reflectance. Wood and metal should be
limited to secondary materials.
Parking areas should provide safe, attractive, and clearly
defined pedestrian routes. Parking should be well distributed
around buildings with landscaped islands and medians.
Pedestrian access to the site should be provided on all sides of
the lot that abut public streets.
Site lighting should be designed to provide uniform, safe, and
efficient lighting while preventing glare from reaching adjacent
properties.
Example of façade walls and
high quality materials (top) and
parking areas with clear
pedestrian paths (bottom).
NOT THIS THIS!
150
Action Plan Example
151
Chapter 16: Strategies and Action Plan Action Plan Matrix
16-12 PAGOSA SPRINGS COMPREHENSIVE PLAN
Action Plan Matrix
The matrix below indicates the type of actions that will be
required to implement the policies, and the priority of the actions
to be initiated. Town staff and planning officials will need to
update this matrix on an annual basis, or as necessary, to keep the
list of actions current.
The “Type of Action” column refers back to the list at the
beginning of this chapter, and codes mean the following:
(Decisions) Policy Decisions,
(LUDC) Land Use and Development Code (LUDC)
revisions,
(Program) Programs or Planning,
(IG) Intergovernmental Coordination, and
(Funding) Funding Mechanisms.
The “Priority” column lists three possible time frames for
implementing actions:
(1) Immediate, to be initiated generally within one to three (1‐3)
years after Plan adoption.
(2) Short‐Term, to be initiated generally after immediate actions
or within three to five (3‐5) years after Plan adoption,
(3) Mid‐Term, to be initiated generally after short‐term actions or
within five to ten (5‐8) years, as appropriate, and
(4) Long‐Term, to be generally initiated and completed after mid‐
term actions.
() Ongoing, actions (i.e., that occur continually) are also listed in
the matrix.
Town implementation of the actions will be dependent upon
available funding.
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Chapter 16: Strategies and Action Plan Action Plan Matrix
PAGOSA SPRINGS COMPREHENSIVE PLAN 16-13
Table 16-1: Action Plan Matrix
Strategy/Action
Plan
Chapter
Type of
Action Priority
Chapter 4: Land Use
Revise LUDC/Zoning Districts to be Consistent with Future Land
Use Plan. Ch. 4 LUDC 1
Chapter 5: Growth and Development
G‐1.1, R‐1.1 – Town/County Intergovernmental Agreement Ch. 5 IG 1
G‐1.2 – Continue Regional Growth Planning Ch. 5 IG
G‐2.1 – Development Consistent with Future Land Use Plan Ch. 5 Decisions
G‐2.2, G‐5.1 – Revise LUDC/Zoning Districts Consistent with Plan Ch. 5 LUDC 1
G‐3.1 – Refine/Develop Annexation Criteria Ch. 5 LUCD 3
G‐3.2 – Benefits/Costs of Annexation on a Case‐by‐Case Basis Ch. 5 Decisions 3
G‐4.1 – Infill and Redevelopment Design Standards Ch. 5 LUDC 1
G‐4.2 – Tiered Fee/Review System Favoring Infill Ch. 5 LUDC 2
G‐4.3 – Adopt Impact Fees for Road Improvements Ch. 5 Funding 1
G‐4.4 – Implement Downtown Master Plan / Design Guidelines Ch. 5 Decisions
G‐5.1 – (see G‐2.2)
G‐5.2 – Develop/Use Implementation Workbook Ch. 5 Decisions
G‐5.3, G‐7.2 – Improved Code Enforcement, in cooperation with
Archuleta County Ch. 5 Program 1 &
G‐6.1 – Review/Amend Commercial Design Standards Ch. 5 LUDC 1
G‐6.2 – Sign Standards Ch. 5 LUDC 1
G‐6.3 – Historic Preservation Standards Ch. 5 LUDC 2
G‐6.4 – Develop “Green Development” LUDC Provisions Ch. 5 Program 2
G‐6.5 –“Green Building” Non‐Regulatory Approaches (e.g., Awards) Ch. 5 Program 4
G‐7.1 – Gateways and Corridors Program Ch. 5 Program 3
G‐7.2 – (see G‐5.3)
G‐7.3 – Clean‐Up/Beautification Programs for Right‐of‐Way Ch. 5 Program 3
G‐8.1 – Neighborhood Planning; Dedicated Funding for Small
Neighborhood Projects Ch. 5 Program /
Funding 3
G‐8.2 – Process to include Neighborhood‐Identified Projects in CIP
(Including those Identified in Chapter 15) Ch. 5 Program /
Funding
Chapter 6: Community Culture and Arts
C‐1.1 – Cultural Arts Board Ch. 6 Program 2
C‐1.2 – Develop/Adopt a Cultural Plan Ch. 6 Program 2
C‐3.5 – Cultural Plan addresses funding options (See C‐1.2) Ch. 6 Funding 4
C‐2.1 – Town Public Events Coordinator Position (Full or Part‐Time) Ch. 6 Program 3
C‐2.2 – Coordinate with Businesses / Other Organizations to Ch. 6 Program
154
Chapter 16: Strategies and Action Plan Action Plan Matrix
16-14 PAGOSA SPRINGS COMPREHENSIVE PLAN
Strategy/Action
Plan
Chapter
Type of
Action Priority
Promote Arts, Culture, & Heritage
C‐2.3 – Develop/Review Economic Performance Ch. 6 Program 2
C‐3.1 – (see C‐2.2)
C‐3.2 – Inventory of Possible Venues and Property Ch. 6 Program 1
C‐3.3 – Incentives to Rehabilitate and Upgrade Venues or Live/Work
Space Ch. 6 LUDC 3
C‐3.4 – Reservoir Hill Venue/Balanced with Open Space &
Recreation Ch. 6 Program /
Decisions
C‐4.1 – Staff Time to Coordinate/ Art in Public Places Ch. 6 Program 3
C‐4.2 – Public Art Program Ch. 6 Program 2
C‐4.3 – Municipal Public Works Projects, Creative and Artistic Ch. 6 Decisions
Chapter 7: Natural Environment
N‐1.1 – Standards to Protect Natural Resources, Including
River/Water Bodies (LUDC) Ch. 7 LUCD 2
N‐1.2 – Non‐Regulatory Approaches (e.g., Conservation Easements,
Land Trusts, etc.) to Protect Resources, Including Wildlife Habitat Ch. 7 Program 3
N‐1.3 – Environmental Educational Materials Ch. 7 Program 3
N‐1.4 – Work with Army Corps data to Identify and Protect
Wetlands/ Re‐evaluate Wetlands Standards Ch. 7 Program 3
N‐2.1 – Standards to Protect Significant, Mature, Healthy Trees Ch. 7 LUDC 1
N‐3.1 – Update FEMA Floodplain Maps; Convert to Digital Ch. 7 Program 4
N‐3.2 – Strengthen Floodplain Standards Ch. 7 LUDC 1
N‐3.3 – Identify Steep Slopes (i.e., 30%+) /Other Potential Hazards;
Develop Standards; Minimize Cut and Fill Ch. 7 Program /
LUDC 2
N‐4.1 – (see N‐3.3)
N‐4.2 – Standards/Incentives to Allow & Promote Clustered
Development (Rural Residential Areas) Ch. 7 LUDC 3
N‐4.3 – County Consistent Clustering / Rural Residential Standards
at Town Edge Ch. 7 IG / LUDC 3
N‐4.4 – Provide Incentives to Convert Light Fixtures to Low‐Level
Shielded Fixtures Ch. 7 LUDC /
Program 4
N‐5.1 – Continue Efforts with Colorado Department of Wildlife to
Create Wildlife Friendly Land Use Guidelines Ch. 7 IG / Program 3
N‐6.1 – Standards/Incentives for Xeric Landscaping Ch. 7 LUDC 1
N‐6.2 – Partner with PAWSD to Educate Public about Water
Conservation Ch. 7 IG
N‐6.3 – Use Non‐Potable Water for Public Landscapes Ch. 7 Program 2
N‐6.4 – Explore the Feasibility of Grey Water Use Ch. 7 Program 2
N‐7.1 – Develop Air Quality Plan Ch. 7 Program 3
155
Land Use Categories – Example
157
3: Land Use Introduction—Future Land Use Plan
Community Plan ‐ ShapeCheyenne 3‐1
3: Land Use
Introduction—Future Land Use
Plan
The Future Land Use Plan provides a land use
framework for future development in the
Cheyenne Area. It is not intended to change
stable neighborhoods—its primary focus is on
places where new development will occur in
the future, including some redevelopment
areas.
The land use categories should allow our future
neighborhoods and activity centers to become
distinctive, diverse places with a mix of
compatible activities. They also provide some
flexibility to respond to market conditions, as
described in the “Welcome and Introduction”
chapter.
Mixed-Use Activity Centers
This chapter describes locational criteria and
the intent and design of mixed‐use activity
centers (including Neighborhood Business
Centers, Mixed‐Use Commercial Activity
Centers, and Community/Regional Commercial
Centers) on pages 3‐3 through 3‐6.
The Land Use Categories
The land use categories are grouped under five
major types in later pages of this plan. For each
category, the plan describes uses (primary and
secondary), general characteristics, and
location.
1. Agriculture and Rural
Includes:
Agriculture/Rural; and
Rural Residential.
2. Urban Residential
Includes:
Urban Transition Residential; and
Urban Residential.
3. Mixed-Use
Includes:
Mixed‐Use: Residential Emphasis;
Mixed‐Use: Employment Campus; and
Mixed‐Use: Commercial Emphasis.
4. Business and Industry
Includes:
Industrial;
Central Business District; and
Community Business.
5. Civic and Other Activities
Includes:
Parks and Open Space; and
Pubic and Quasi‐Public.
Design and Development Principles
This chapter also contains development
principles and criteria to address the following
types of development:
Rural Design Principles (see page 3‐8);
Urban Neighborhood Design Principles
(see page 3‐11);
Mixed‐Use Design Principles (see page
3‐15);
Business and Industry Development
Principles (see page 3‐19);
Parks and Public Spaces Principles
(see page 3‐23); and
Schools Criteria (see page 3‐24).
159
3: Land Use Future Land Use Plan Conformity
Community Plan ‐ ShapeCheyenne 3‐2
Future Land Use Plan Conformity
Zoning amendments for land uses should be
consistent with the categories and activity
centers shown on the Future Land Use Plan, or
locational criteria described in this chapter.
To ensure conformity with this Plan,
developers should use a checklist that
addresses the land use concepts and
foundations of ShapeCheyenne and note whether
projects comply with the concepts and
foundations of this Plan or not. The checklist
will address the following key land use
concepts:
1. Urban development in Urban Service
Boundary (if applicable);
2. Balanced mix of housing and jobs;
3. Neighborhoods with housing choices
(including urban neighborhood design
principles);
4. Variety of vital “activity centers”
(including activity center locational
criteria and mixed‐use design
principles);
5. Connected transportation system
(including rights‐of‐way for arterial and
collector level roads);
6. System of connected parks throughout
our neighborhoods and community.
7. Viable agricultural and rural lands (if
applicable);
8. Natural/cultural resource conservation
(if applicable); and
9. Attractive gateways and interstate
corridors (if applicable).
(See BuildCheyenne for the checklist.)
How to Use the Plan: Locational
Criteria
General Intent
The intent of the Future Land Use plan is not to
predetermine specific land uses for individual
parcels or specific locations for uses or facilities,
but to provide a general framework for
neighborhoods and activity centers organized
around a roadway network and major parks
and open space. Therefore, if a developer
proposes a project that is generally consistent
with the categories shown and with locations
for activity centers identified, or that meets
locational criteria described in this section, then
the proposed project shall be considered to be
in conformance with this Plan. For example,
the plan shows Urban Residential land uses,
but does not designate Neighborhood Business
Centers. A developer is able to propose a
Neighborhood Business Center in a location not
shown if it meets locational criteria as set forth
in this chapter. The proposal for the activity
center should also follow design principles in
the plan to achieve a long lasting and beneficial
community project. It is also anticipated that
large tracts of property could develop their own
master development plan based on the
principles and process described in
PlanCheyenne, provided that the master
development plan is generally consistent with
the land use patterns and principles contained
in this Plan. The determination of consistency
shall be made by the Planning Commission,
based on a review and recommendations from
planning staff. The master development plan
shall be processed as an amendment to
PlanCheyenne, in accordance with the process
and procedures established in Chapter 3 of
BuildCheyenne.
160
3: Land Use How to Use the Plan: Locational Criteria
Community Plan ‐ ShapeCheyenne 3‐3
Example of a park and plaza focal area in an
activity center.
Activity Centers and Locational Criteria
A key direction of this Plan is to develop
mixed‐use activity centers as a focus for
economic and social activity in the community.
The intent is that a variety of different kinds of
centers will serve different needs in the
community. Centers will range from small‐
scale neighborhood or community‐oriented
centers (i.e, a Neighborhood Business Center or
a Mixed‐Use Commercial Activity Center) to
regional centers (i.e., a Community/Regional
Activity Center).
These will all be places with high quality site
design, containing a mix of complementary
land uses, such as retail and higher density
housing (e.g., loft style apartments). Site design
also should include some public or quasi‐public
spaces such as plazas, natural open space, or
outdoor seating associated with restaurants.
Site and building design should be cohesive
and designed with people in mind, and should
include some open space or park facility.
Finally, the location activity centers must be
coordinated with the street system and
transportation, as defined in the criteria that
follow.
Neighborhood Business Centers will contain a
mix of retail and services and will be
pedestrian-oriented and to relate to
surrounding neighborhoods. (See page 3-4.)
The criteria in the following sections address
the location and some size and design issues
for:
Neighborhood Business Centers (not shown
on the Future Land Use Plan);
Mixed‐Use Commercial Activity
Centers; and
Community/Regional Commercial
Centers.
(See the Mixed‐Use Development Principles on
page 3‐15 for more information about activity
center design.)
Mixed-Use Commercial Activity Centers may
contain retail, offices, and some residential
development, including lofts or townhomes.
(See page 3-5.)
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161
3: Land Use How to Use the Plan: Locational Criteria
Community Plan ‐ ShapeCheyenne 3‐4
Neighborhood Business Centers
Not shown on the Future Land Use Plan.
Example of a Neighborhood Business Center Design.
Neighborhood Business Centers are NOT
specifically designated on the Future land Use
Plan as activity centers. The intent for
Neighborhood Business Centers is to locate
them to serve the convenience shopping needs
of a neighborhood. The community will use
the following criteria in determining the
location of this type of center. It should:
Occur in an area designated for Urban
Residential or Mixed‐Use Residential.
Have frontage on an arterial and a collector
or two collector roads.
Range in size up to five acres.
Serve a trade area up to 3/4 of a mile.
Be accessible by walking from
neighborhoods.
Contain amenities such as a pedestrian
plaza, sidewalks, and landscaping and signs
and access control to create a cohesive
development.
Ensure that commercial development is
integrated with and enhances the
surrounding neighborhoods.
162
3: Land Use How to Use the Plan: Locational Criteria
Community Plan ‐ ShapeCheyenne 3‐5
Mixed-Use Commercial Activity
Centers
Mixed‐Use Commercial Activity Center Example.
Mixed‐Use Commercial Activity Centers are
located throughout the community to serve the
day‐to‐day commercial needs of surrounding
neighborhoods. Use the following criteria in
determining the location and design of Mixed‐
Use Commercial Activity Centers (as
designated on the Future land Use Plan OR to
designate new centers). This type of center
should:
Be located on one quadrant of the
intersection of two arterials in places
designated for “Mixed‐Use” on the future
land use plan.
Vary in size depending on the mix of uses.
Serve a trade area up to 2 miles.
Have a gross floor area up to 200,000 square
feet of non‐residential uses.
Typical format consists of one anchor store,
such as a supermarket or drug store, and
smaller retail and services. The project
should also contain some residential
development (either vertically or
horizontally mixed). (See Design Principles
for Mixed‐Use Development.)
The main part of the development should
contain amenities such as a pedestrian plaza
and landscaping as well as sign and access
control to create a cohesive development.
Additional Mixed‐Use Activity Centers can
be located in the community provided that
traffic impacts are mitigated and transitions
are provided for residential areas.
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163
3: Land Use How to Use the Plan: Locational Criteria
Community Plan ‐ ShapeCheyenne 3‐6
Community/Regional Activity
Centers
Community/Regional Activity Centers are
located throughout the community to serve the
day‐to‐day commercial needs of the
community. Use the following criteria in
determining the location and design of
Community/Regional Activity Centers (as
designated on the Future land Use Plan OR to
designate new centers). This type of center
should:
• Be located on one to two quadrants of an
Interstate interchange or on one quadrant of
the intersection of two arterials.
• Range in size up to 100 acres.
• Serve a trade area up to 5 miles.
• Have a gross floor area of over 200,000
square feet for non‐residential uses.
• Typical format consists of one to two anchor
stores, such as a supermarket or drug store,
or can consist of regional shopping,
“lifestyle” centers, outlet mall, and “big
box” configurations.
• Contain amenities such as a pedestrian
plaza and landscaping as well as sign and
access control to create a cohesive
development.
• Additional Community/Regional Activity
Centers can be located in the community
provided that traffic impacts are mitigated
and transitions are provided for residential
areas.
A Community/Regional Activity Center should be
located on one or two quadrants of an Interstate
interchange (as shown in this example), or on
one quadrant of the intersection of two arterials.
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164
3: Land Use Other Specific Locations on the Future Land Use Plan
Community Plan ‐ ShapeCheyenne 3‐7
Other Specific Locations on the
Future Land Use Plan
Planning Districts
The Future Land Use Plan identifies two areas
for additional planning. These districts are (1)
Gateway Planning District and (2) the Archer
Planning District.
Gateway Planning District
The Gateway Planning District is one of the key
gateways in and out of Cheyenne on the south
end of the community. The intent for this
planning district is to promote cohesive,
attractive, economically viable development
that will not detrimentally affect traffic and the
transportation system. Quality of design and
natural areas protection and views are
important in this area. It will be important to
work with property owners to improve the
image of the gateways and reduce further
proliferation of billboards, as addressed
through strategies in BuildCheyenne.
The Archer Planning District
The Archer Planning District is one of the
community’s gateways—to the east. This area
has been proposed as a future Fair Grounds
location, but future development plans are
uncertain and still under discussion. As with
the Gateway Planning District, cohesive
development, quality of design, utilities and
services, and protection of resources and views
will be important considerations in this area.
Natural/Cultural Resource
Areas
The Future Land Use Plan identifies
Natural/Cultural Resource areas to the west
adjacent to the U.S.D.A. Research Station, the
northeast corner of the planning boundary, and
to the south of the Urban Service Area along the
ridgelines and Crow Creek. These are
undeveloped lands rich with natural and
cultural values. This plan promotes conserving
these areas and encourages developers to
transfer development away from sensitive
resources or ridgelines. BuildCheyenne
addresses a variety of strategies that balance
fairness with property owners and that still
accomplish the goal of steering development
away or designing it carefully to protect
resources.
Example of “sending” and “receiving” sites for
Natural/Cultural sites and agricultural lands. Other
strategies to implement the Natural/Cultural Resource
Areas are discussed in BuildCheyenne. (See the “Rural
Design Principles” later in this chapter.)
165
3: Land Use Agriculture and Rural Areas
Community Plan ‐ ShapeCheyenne 3‐8
Agriculture and Rural Areas
Agriculture/Rural Categories
‐ Agricultural
‐ Rural Residential
The areas illustrated as agricultural in Laramie
County outside of the City of Cheyenne contain vast
undeveloped areas. It is the intent of this Plan to
promote continued ranching and farming in these
areas, rather than rural residential development.
Rural residential will continue to be a choice north
of the City of Cheyenne.
Rural Design Principles
If development is to occur in the agricultural or
rural areas, it should minimize its impacts on
natural areas and on nearby ranching and
agricultural operations. The following design
principles are appropriate for all rural
development that occurs outside of the Urban
Service Boundary (that will be primarily
residential):
1. Minimize cut and fill for roads and site
grading.
2. Use native plants for landscaping.
3. Steer development away from geologic
features, such as rock outcroppings or steep
slopes.
4. Use appropriate setbacks, and placement of
structures that are compatible with adjacent
agricultural activities.
5. Design buildings that reflect the
architectural heritage and that are located at
the toe of slopes to allow for windbreaks.
6. Incorporate wildlife friendly fencing or
“rural” open fencing rather than solid
fencing.
7. Preserve existing ranch buildings and other
features of the site.
Example of rural fencing.
166
3: Land Use Agriculture and Rural Areas
Community Plan ‐ ShapeCheyenne 3‐9
Agriculture/Rural Category
Appropriate Uses
Primary Uses
Farming, ranching, and other agriculturally
related uses, including farm animals, are
appropriate.
Secondary Uses
Agriculture‐related businesses and ranch
support services are encouraged (e.g.,
equestrian activities, breeding and boarding,
vet services, roadside stand, agricultural
tourism activities, farm machine repair, and
others). Very low density residential (e.g., large
lots or designed on smaller lots to conserve
land for agriculture or ranching or natural and
cultural resources). Laramie County may
explore the option to increase the minimum
buildable lot size in the future. Wind energy
generation and other energy production
facilities may be appropriate but should be
located away from the urban area.
Desired Characteristics and Location
In the southern part of the planning area
outside of the Urban Service Boundary, the vast
majority of land is dedicated to farming or
ranching and agriculturally related uses.
Agricultural operations typically require very
large parcels of land. Scattered areas of
residences on large lots are also located here.
These residences rely on individual wells and
septic systems, and open space usually is
owned privately. Agriculture depends on soil
capabilities and requires some basic utility
services. Agricultural operations should have
access to minor County roads. Agriculture is
permitted in floodplains and geologic hazard
areas, subject to State and County regulations.
Agriculture/Rural examples: (a) barns and
accessory structures, and (b) grazing land.
Applicable Zoning Districts: A‐1 primarily
167
3: Land Use Agriculture and Rural Areas
Community Plan ‐ ShapeCheyenne 3‐10
Rural Residential Category
Appropriate Uses
Primary Uses
The Rural Residential category allows single
family residences on individual large lots
(predominantly 2 ½ acres or larger); clustering
is encouraged. Farm animals and horses are
appropriate in this category.
Secondary Uses
Supporting and complementary uses, including
open space and recreation, equestrian uses,
schools, places of worship, and other public
uses are appropriate, as well as accessory
structures, such as barns and stables.
Desired Characteristics and Location
The Future Land Use Plan shows this type of
development to the north in Laramie County,
north of the City of Cheyenne.
Rural residential will develop at densities lower
than typically found in the more urban
residential areas (i.e., within the Urban Service
Boundary) with lifestyles oriented to more rural
characteristics, such as keeping horses and
other large animals. The average density of
rural areas is one unit per 5‐10 acres, depending
on underlying zoning. Some grandfathered lots
may be smaller. Roads are usually gravel, but
may be paved. Open space is on private lands.
This type of residential development
emphasizes privacy over convenience.
Landowners may develop large lot single‐
family rural residential, or cluster development
on smaller lots to conserve open space, views,
and other natural features. This Plan promotes
incentives for using the County’s Open Space
Design Option to provide larger connected
open space or agricultural lands that are
conserved in perpetuity.
With this option, at least 40 percent of the site
should be conserved as open space with a
clustered development plan (with higher
densities permitted with more open space
conservation as shown in the table below).
Gross Density
(du/ac)
Open Space Conservation
Minimum Percentage
Up to 0.2 du/ac. 40%
Up to 0.4 du/ac. 60%
Up to 0.8 du/ac. 75%
Rural Residential Example along Four Mile
Road.
Conservation design (cluster) example leaving
open space around environmental features.
Applicable Zoning Districts: Some AR, A‐1,
Some A‐2
168
3: Land Use Urban Residential
Community Plan ‐ ShapeCheyenne 3‐12
Urban Residential
Urban Residential Categories
‐ Urban Transition Residential
‐ Urban Residential
Cheyenne’s residential areas have a variety of
characteristics and densities. The locations of future
residential areas will be designed to protect and
strengthen existing and proposed neighborhoods.
The developer will propose the desired project
density at the beginning of the process, taking into
consideration current zoning, proposed zoning, site
constraints, adjacent development, and the desired
character described in this Plan. Project density will
be subject to review and approval by the Planning
Commission and appropriate Governing Bodies.
The community will also consider availability of
utilities, the developmentʹs impact on the
transportation system and roads, accessibility, and
proximity to, and impact upon community facilities
such as schools, parks, and open space.
Example of variety
For multiple family residential (e.g., townhomes and
apartments), vehicular, bicycle, and transit routes
should be accessible, yet residential areas should be
protected from heavy traffic. In addition, these types
of residential developments should be within
convenient proximity to neighborhood retail centers
as well as open space and parks.
Land designated for higher intensities is encouraged
to continue in production agriculture until such
time as urban development becomes feasible.
Urban Neighborhood Design Principles
New neighborhoods should be designed
following the principles below. They should:
1. Contain a mix of lot sizes and housing
styles, types, and sizes, and land uses.
2. Include a core, such as neighborhood‐
serving retail, civic services, or a gathering
space (e.g., a park, plaza, school, community
center, or natural open space). At least one
neighborhood park should occur within
every one square mile.
3. Contain connected streets and sidewalks
based on a modified‐grid pattern with
blocks no longer than 600 feet. Blocks
ranging from 400 to 600 feet should have
pedestrian pass‐throughs.
4. Be designed for pedestrians, including
amenities such as benches, shade trees,
human‐scale signs and other features.
5. Include open space, parks, and other
amenities.
6. Contain a variety of buildings to avoid
monotony.
7. Be designed in harmony and to respect the
natural landscape and landforms and
conserve natural features, such as creeks or
geologic features.
8. Include transitions between different
residential intensities so that no building is
more than 150% the height of an adjacent
building.
(See Structure Plan‐ Handbook principles for multi‐
family, single family development and alleys.)
169
3: Land Use Urban Residential
Community Plan ‐ ShapeCheyenne 3‐12
Urban Transition Residential Category
Appropriate Uses
Primary Uses
The Urban Transition Residential category
provides for a limited range of lower density
residential uses, blending urban and rural
standards. It allows single family residences
and multi‐family duplexes, patio homes, and
townhomes.
Secondary Uses
Supporting and complementary uses, including
open space and recreation, equestrian uses,
schools, places of worship, and other public or
civic uses are also appropriate in this category.
Senior housing is appropriate if compatible
with the surrounding area. Farm animals and
horses are appropriate but should not exceed
animal density standards (to be established).
Desired Characteristics and Location
The Urban Transition Residential is generally
shown in the draft Future Land Use Plan along
the northern edge of the City of Cheyenne
where some large lot development has already
occurred on well and septic systems. It also
occurs at the “edge” of other parts of the Urban
Service Boundary (USB). The category allows
for a blend of “urban” neighborhood housing
with more “rural” characteristics, such as larger
lots. The city and county will periodically
review the USA and determine whether the
boundary and this category should be
expanded.
According to the Code, development on lots
smaller than ½ acre should be connected to
central water and central sewer. In addition,
this type of residential development should be
located on paved streets with sidewalks.
In the Urban Transition Residential area,
housing may develop at densities higher than
currently found in these areas in the county, but
no higher than typically found in the adjacent
urban residential areas. Developers should
provide transitions between less intense uses on
neighboring properties (such as single family
residences), and proposed higher intensity uses,
such as townhomes. Transitions should include
transitions in building heights, and landscaped
buffers. This Plan recommends an incentive
scale for developers to provide urban
improvements in these areas, such as
sidewalks, trails, and developed parks.
Finally, landowners and developers may
develop large lot single‐family rural residential,
or cluster development on smaller lots to
conserve open space, views, and other natural
features using the county’s “Open Space Design
Option” described under the “rural residential”
category above.
Urban Transition Residential.
Applicable Zoning Districts: Some A‐1, AR, A‐2
170
3: Land Use Urban Residential
Community Plan ‐ ShapeCheyenne 3‐13
Urban Residential Category
Appropriate Uses
Primary Uses
The Urban Residential category allows for a
broader variety of residential types, including
single‐family residences, duplexes, patio
homes, townhomes, condominiums, and
apartments.
Secondary Uses
Supporting and complementary uses, including
open space and recreation, schools, places of
worship, and other public or civic uses are
encouraged. Senior housing facilities are also
appropriate. Neighborhood commercial may
be appropriate in newly developing areas if it
complies with the criteria for Neighborhood
Business Centers on page 3‐4. It is not the
intent of this plan to change existing stable
neighborhoods with single family residential
development, except those where
redevelopment is desirable.
Desired Characteristics and Location
Urban Residential is shown in established
neighborhoods and newly developing
neighborhoods within the Urban Service
Boundary. This Plan encourages new
neighborhoods to be developed in traditional
development patterns with a mix of densities,
lot sizes, housing types, and home sizes that are
well integrated with one another. New urban
residential developments should have a wide
variety of housing types, lot sizes, styles, and
patterns. Future neighborhoods should also
include well planned amenities such as parks
and open space.
The core of an urban residential neighborhood
should contain apartments and townhomes and
may even include neighborhood retail uses
organized around a public space that is inviting
for pedestrians. The neighborhood should also
contain parks and open space. The secondary
uses are intended to serve the neighborhood
and should be developed and operated in
harmony with the residential character.
Within urban residential neighborhoods, streets
and sidewalks should provide connections to,
from, and within the neighborhoods to make it
safe and convenient for people to walk and ride
bicycles.
Urban Residential areas will be served by
central water and sewer, and will contain
paved streets with sidewalks.
Neighborhoods will have transitions between
different intensities or activities. For example,
lower density residential (i.e., with a
minimum of four dwelling units per acre and
ranging up to six du/acre) is appropriate away
from shopping and other activity centers and
should be accessed from local or collector
streets. For these areas, some common open
space should be provided. Open space should
be usable and/or connected.
Urban Residential Example.
Multi‐family residential (i.e., townhomes and
apartments with densities higher than six
dwelling units per acre and up to 20 dwelling
units per acre) is appropriate in locations closer
171
3: Land Use
Community Plan ‐ ShapeCheyenne 3‐14
to activity centers or supporting business uses.
These types of housing are generally served by
collector streets or arterial streets and in the
future should have access to transit or transit
centers. In these multi‐family residential areas
with density higher than six dwelling units per
acre, some common open space or other
amenities should be provided. Open space
should be usable and/or connected. In
addition, for multiple family residential
projects, other private recreational amenities
should be provided, such as tot lots,
playgrounds, or garden/courtyards. Where it is
adjacent to lower density development,
densities and building heights should step
down so that no building is 150% taller than an
adjacent building. The development should
provide open space buffers.
Pocket park and neighborhood park examples
in mixed-use residential neighborhoods.
Applicable Zoning Districts: LR‐1 (established),
LR‐2 (developing), MR‐1 (established), MR‐2
(developing), HR‐1 (establishing), HR‐2
(developing).
Urban Residential
172
3: Land Use Mixed-Use
Community Plan ‐ ShapeCheyenne 3‐15
Mixed-Use
Mixed-Use Categories
‐ Mixed‐Use Residential Emphasis
‐ Mixed‐Use Commercial Emphasis
‐ Mixed‐Use Employment Campus
Cheyenne’s Downtown historic core traditionally
had mixed‐use development—where offices, homes,
and shopping coexisted in one discrete area.
However, more recent development trends in the
community have shifted away from this pattern of
mixed‐use. The automobile as the dominant mode of
transportation has led to a more dispersed pattern of
land uses, and consumer demand for larger single
family homes on larger lots has dispersed the
community more over time.
Bradburn in Westminster, Co is an example
of a mixed-use neighborhood.
This Plan promotes mixed‐use development patterns
in areas designated on the Future Land Use Plan to
maintain Cheyenne’s identity, to create livable
neighborhoods and safe and inviting pedestrian
environments, and to stimulate development and
revitalization of some areas.
Mixed-Use Design Principles
Generally, mixed‐use development should be
designed with the following principles in mind:
1. Develop according to a coherent mixed‐use
concept plan that physically integrates
different uses, including retail space,
residential, hotels, offices, or civic and
cultural facilities (for projects greater than
five acres).
2. Incorporate a mix of land uses that is either
“vertical” (where components are mixed
within a single building or block such as
homes on top floors with retail on bottom),
or “horizontal” (where different activities
on the site are in separate buildings, but
linked through a cohesive design).
3. Provide internal connected streets and
sidewalks that allow safe and direct access
between buildings, and accommodate
pedestrians in a safe manner. Use blocks
that do not exceed 600 feet in length and
provide pedestrian pass‐throughs.
4. Locate and orient development around a
central public space, such as a plaza or park.
5. Provide transitions so that no building is
more than 150% taller than an adjacent
building.
Vertical mix
The Future Land Use Plan designates several
types of mixed‐use development, described in
the following sections.
173
3: Land Use Mixed-Use
Community Plan ‐ ShapeCheyenne 3‐16
Mixed-Use Residential Emphasis
Category
Appropriate Uses
Primary Uses
The Mixed‐Use Residential category promotes
self‐supporting neighborhoods that primarily
contain housing. A range of residential
housing types, such as single‐family residences,
duplexes, patio homes, townhomes,
apartments, condominiums, and live‐work
units, should be built on a majority of any site
within this category.
Secondary Uses
These mixed‐use areas should also include a
mix of retail, offices, and light trade. A range
from 10 percent to 30 percent of the site area
should be allocated to business and industry
uses that are related to the neighborhood—to
provide neighborhood business centers.
Developments within the Mixed‐Use
Residential category should also include open
space, parks, plazas, and other public or quasi‐
public uses as appropriate, such as schools,
places of worship, libraries, and community
centers.
Desired Characteristics and Location
Mixed‐Use Residential is appropriate near
activity centers and near or along arterials and
collector streets. The intent is to allow for
vertical or horizontal mix of uses on sites,
including some multi‐family residential.
Residential townhomes and apartments and
other more urban development is encouraged
as part of a mixed‐use development, and
generally should be located in the core (highest‐
intensity area) of the mixed‐use development in
combination with some non‐residential uses.
Building heights should be evaluated during
the development review process. Where
appropriate, building height transitions and
step‐downs should be provided to be
compatible with adjacent development. Mixed‐
use residential areas should follow the Mixed‐
Use Design Principles. (See page 3‐15.)
The site should also contain common usable or
connected open space or parks or plazas.
Example of a mixed-use neighborhood
(suburban model) with a retail use and homes.
Example of live-work units that are encouraged
for mixed-use areas (either in residential
mixed-use or commercial mixed-use).
Applicable Zoning Districts: MU‐R or PUD
174
3: Land Use Mixed-Use
Community Plan ‐ ShapeCheyenne 3‐17
Mixed-Use Commercial Emphasis
Category
Appropriate Uses
Primary Uses
The Mixed‐Use Commercial category is
intended to promote a range of land uses, with
primarily retail, office, light industrial, and live‐
work designed as an “activity center”. Parks,
plazas and/or open space should also be part of
the core of Mixed‐Use Commercial areas.
Secondary Uses
Apartments and townhomes and other
residential uses are also encouraged as part of
the mix of uses. Places of worship and other
public or civic uses are also appropriate.
Desired Characteristics and Location
Mixed‐Use Commercial areas should be located
near principal arterial or minor arterial streets
or transit facilities and can become larger
activity centers if they meet the Mixed‐Use
Activity Center criteria. The intent is to create
an environment that has employment and
shopping opportunities, a range of housing
types and parks, open space and civic uses, if
appropriate. Uses may be mixed either
vertically or horizontally.
Mixed‐Use areas should be developed in an
integrated, pedestrian friendly manner and
should not be overly dominated by any one
land use or housing type. No single land use
shall exceed eighty (80) percent of the land area
of a project, nor should any single land use
exceed eighty (80) percent of total building
square footage where a mix of uses are
provided within the building.
Higher intensity employment and residential
developments are encouraged in the core of
Mixed‐Use Commercial areas, or adjacent to
principal arterial roadways or at the
intersection of a principal arterial or as part of
activity centers. Building heights should be
evaluated during the development review
process. Where appropriate, building height
transitions and step‐downs should be provided
to be compatible with adjacent development.
’
Examples of mixed-use development:
(a) Commercial on the ground floor and
residences above, and (b) ground floor retail
and offices and lofts, Lowry, Denver.
Applicable Zoning Districts: MU‐C or PUD.
Note: Some MU‐C have an underlying zoning of
CB. Will need to develop incentives or an overlay
zone to promote more residential and less “strip
commercial” in these areas.
175
3: Land Use Mixed-Use
Community Plan ‐ ShapeCheyenne 3‐18
Mixed-Use Employment Campus
Category
Appropriate Uses
Primary Uses
The Mixed‐Use Employment Campus category
is intended to promote a range of land uses,
with primarily office and light industry
designed in a business campus setting. The
campus should include open space, parks and
plazas, and pedestrian walkways. Retail and
services are an important component to
creating a functional business campus.
Secondary Uses
Places of worship and other public or civic uses
are also appropriate.
Desired Characteristics and Location
Mixed‐Use Employment Campus areas should
be located in areas shown on the Future Land
Use Plan. The intent is to create an
environment that has employment
opportunities integrating buildings and
outdoor spaces transportation and parks, open
space, civic uses, and other uses as appropriate.
Uses may be mixed either vertically or
horizontally. Mixed‐Use Employment Campus
areas should be developed in an integrated,
pedestrian friendly manner and should not be
overly dominated by any one land use.
Higher intensity employment is encouraged in
the core of Mixed‐Use Employment Campus
areas, or adjacent to collector or arterial
roadways. Building heights should be
evaluated during the development review
process. Where appropriate, building height
transitions and step‐downs should be provided
to be compatible with adjacent development.
Examples of business campus.
Applicable Zoning Districts: LI, MU, PUD.
176
3: Land Use Business and Industry
Community Plan ‐ ShapeCheyenne 3‐19
Business and Industry
Business and Industry Categories
‐ Industrial
‐ Central Business District
‐ Community Business
The business and industry categories on the Future
Land Use Plan have a variety of uses, development
intensities, and characteristics that generally do not
include much, if any, potential residential
development. These are the areas of the community
designed to provide jobs, services, and economic
vitality. The industrial and commercial uses are
planned to be compatible with existing and proposed
development, site constraints, and market demand.
Pedestrian–oriented design
Business and Industry Development
Principles
Business and Industry development should be
designed using the following principles:
1. Provide greater attention to design in high
visibility locations, such as along interstates
or on arterials.
2. Incorporate gateway features and
landscaped areas in business and industrial
areas.
3. Screen service areas and outdoor storage to
the extent possible.
4. Provide pedestrian access from the main
street through parking areas to the building.
5. Provide attractive fencing and low level
lighting.
Example of varied façade planes and materials and
screening for large businesses.
(See the Structure Plan principles for:
Light Industrial/Flex Space, Office,
Neighborhood/Downtown Commercial, Convenience
Commercial, and Large Tenant Commercial.)
177
3: Land Use Business and Industry
Community Plan ‐ ShapeCheyenne 3‐20
Industrial Category
Appropriate Uses
Primary Uses
Offices, distribution and warehouses, and
manufacturing and fabrication are appropriate
in this category.
Secondary Uses
Supporting retail uses and services are also
appropriate in this category, as are open space
and recreation, and other public or civic uses.
Desired Characteristics and Location
This category encompasses the heavier and
light industrial areas and generally provides a
location where less restrictive regulations are
applied. Outdoor storage and heavy industry
may be appropriate in certain areas and will be
evaluated as part of the development review
process. High visibility locations require
greater attention to design.
Industrial areas should be located with access
to major transportation facilities, such as
interstates and railroads.
Industrial development example.
Applicable Zoning Districts: LI, HI, MU, PUD
Central Business District Category
Appropriate Uses
Primary Uses
The Central Business District is intended for a
variety of commercial businesses and civic uses
in downtown. Business uses are smaller scale
and not dependent on direct vehicular access.
Residential uses for upper floors and offices are
encouraged.
Secondary Uses
Places of worship and other public or civic uses
are also appropriate.
Desired Characteristics and Location
The Central Business District is the City of
Cheyenne’s historic core. Development here
should be in keeping with the historic character
of the downtown, and buildings should have
strong relationships with public streets and
sidewalks. Downtown is a walking
environment and vibrant public spaces are
important.
Central Business District.
Applicable Zoning Districts: CBD
178
3: Land Use Business and Industry
Community Plan ‐ ShapeCheyenne 3‐21
Community Business Category
Appropriate Uses
Primary Uses
General retail to serve neighborhoods and the
community and region is appropriate in the
Community Business category. This category
also allows for offices. It may also include, but
is not limited to, general retail and office, large
tenant retail (i.e., “big boxes”), and regional
malls. Intensive industrial activities are not
appropriate.
Secondary Uses
Supporting uses, open space and recreation,
and other public or civic uses are appropriate.
Multi‐family housing (e.g., apartments) may be
appropriate if designed as part of an integrated
mixed‐use concept plan.
Desired Characteristics and Location
The Community Business category
encompasses retail centers that provide
shopping services in the community and
region. Community Business is generally
shown on the Future Land Use Plan generally
at interstate interchanges or at the intersection
of an arterial or state highway, or at two
arterials. Community/Regional Activity
Centers should meet locational criteria for
activity centers. Additional locations may be
appropriate if they meet the locational criteria.
Where possible, internal streets and sidewalks
should provide access and connections to
nearby neighborhoods. Community business
should blend into the neighborhoods, with
scale, design, signage, and lighting.
Community/Regional Business examples
Applicable Zoning Districts: CB
179
3: Land Use Civic and Other Activities
Community Plan ‐ ShapeCheyenne 3‐22
Civic and Other Activities
Civic and Other Activities Categories
‐ Parks and Open Space
‐ Public and Quasi Public
This section includes existing public or semi‐public
lands uses and activities and some future sites for
schools on the Future Land Use Plan.
Parks and Lakeview Cemetery.
Public and Quasi-Public Category
Uses
The Public and Quasi‐Public category includes
existing uses related to community services,
such as fire stations, schools, libraries,
community centers, hospitals, civic buildings,
utilities, and cemeteries. It also includes
churches and places of worship.
Characteristics and Location
The Future Land Use Plan shows only existing
Public and Quasi‐Public facilities. Future
locations will vary depending on the type of
facility.
Civic buildings, schools, and Colleges (LCCC).
Applicable Zoning Districts: PUB
180
3: Land Use Civic and Other Activities
Community Plan ‐ ShapeCheyenne 3‐23
Parks and Public Spaces Principles
Parks and public spaces should be designed
using the following principles. They should:
1. Be designed and planned as part of
neighborhoods—not be merely “left over.”
2. Be large enough to provide useable space to
meet the intended uses.
3. Incorporate natural features, including
ridgelines, habitats, hills, drainageways,
and historic sites or landmarks.
4. Be visible from at least one local street (two
ideally) to invite use, encourage a sense of
ownership, and provide a safe area.
5. Include a focal point or amenities for a
variety of users.
6. Include appropriate lighting.
7. Provide places to sit and trash receptacles.
Stormwater drainage in parks should be useable.
Parks should contain amenities.
Parks and Open Space Category
Uses
Public and private open space, public and
private parks, country clubs, and golf courses
are appropriate uses. Some public utilities or
facilities may also be appropriate. This
category may also include natural/cultural
resource area.
Characteristics and Location
Existing parks and open space are shown on
the Future Land Use Plan and some general
locations for future community parks; however
not all future parks are shown. Locations for
neighborhood parks will be addressed through
the policies of this Plan and the Parks and
Recreation Master Plan and during
neighborhood development. The
characteristics and location will vary,
depending on the type of use.
Open space includes public sites and areas for
active and passive recreation, conservation and
mitigation of environmental hazards.
The location, access, terrain, size, and design
will vary for future open space, depending on
the specific use.
Golf Course.
Applicable Zoning Districts: PUB
181
3: Land Use Civic and Other Activities
Community Plan ‐ ShapeCheyenne 3‐24
Criteria for Locating Schools
Schools should be located according to the
following criteria:
Schools should be located adjacent to a
collector street or streets within
neighborhoods. Avoid locations adjacent to
major thoroughfares or arterials.
They should be near parks, trails, and other
recreation facilities to provide combined
recreation facilities.
Middle and high schools should be planned
as combined campuses, facilitating
opportunities for shared facilities and
transportation options.
High Schools: should be 20 acres with one
school for every 1,200 students or 5,000
households (School District).
Middle Schools: should be 10 acres with
one school to serve every 850 students or
3,400 households (School District).
Elementary Schools: should be 10 acres
with one school to serve every 330 students
(2 Track) or 1,200 households (School
District).
Elementary school example.
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3: 3: Land Use Land Use Categories Table
Community Plan ‐ ShapeCheyenne 3‐25
Land Use Categories Table
Category Land Uses and Activities Characteristics and Location
AGRICULTURE & RURAL
Agriculture/
Rural
Primary: Farming, ranching, and
agriculturally related uses.
Secondary: Agriculture‐related
businesses and ranch support services
Residential on large lots (e.g., 35 acres or
greater) or clustered. Wind and other
energy production facilities should be
located away from the urban area.
Located in the southern part of the planning
area outside of the Urban Service Boundary
(USB) in Laramie County.
Areas for continued ranching and farming—
requiring large parcels of land.
Scattered areas of residences on large lots rely
on individual well and septic.
No urban services available.
Minor County roads provide access.
New residential development is limited and
clustered to the extent possible.
Rural
Residential
Primary: Single family residences on
large lots (generally 2 ½ acres+), clustering
encouraged. Farm animals and horses.
Secondary: Supporting and
complementary uses, including open
space and recreation, equestrian uses,
schools, places of worship, and other
public uses.
Located to the north of the City in Laramie
County outside the USB.
Development densities are lower than typically
found in the urban residential areas (i.e., within
the USB); an area for rural lifestyles, such as
keeping horses, with accessory structures, such
as barns and stables.
Roads are usually gravel, but may be paved.
Large lot single‐family rural residential, or
clustered development on smaller lots
(encouraged) to conserve open space, views,
and other natural features.
URBAN RESIDENTIAL
Urban
Transition
Residential
Primary: Limited range of lower density
residential uses‐‐blending urban and rural
standards. Single family and multi‐
family, including duplexes, patio homes,
and townhomes.
Secondary: Supporting and
complementary uses, including open
space and recreation, equestrian uses,
schools, places of worship, and other civic
uses. Senior housing, if compatible with
the surrounding area. Farm animals or
horses.
Along the edge of the City of Cheyenne within
the USB.
Homes may develop at densities higher than
currently found in the County, but lower than
typically found in the urban residential areas.
County Health Department standards apply for
density and utilities (i.e., lots smaller than 1.5
acres must be connected to central water and
sewer).
Incentives for developers to provide urban
improvements or clustered development.
Urban
Residential
Primary: Includes a broader variety of
residential types, including single‐family
residences, duplexes, patio homes,
townhomes, condominiums, and
apartments.
Secondary: Supporting and
complementary uses, including open
space and recreation, schools, places of
worship, and other public or civic uses.
Senior housing facilities. Neighborhood
business is appropriate in newly
developing areas if it meetings locational
and design criteria.
In the USB.
Served by municipal water and sewer and
paved streets and sidewalks.
Includes a wide variety of residential types,
styles, and patterns and amenities such as
parks and open space.
Secondary uses are complementary to the
neighborhood.
Streets and sidewalks provide connections,
making it safe and convenient for people to
walk and ride bicycles.
Transitions provided between different
intensities or activities.
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3: Land Use Land Use Categories Table
Community Plan ‐ ShapeCheyenne 3‐26
Category Land Uses and Activities Characteristics and Location
MIXED-USE
Mixed-Use:
Residential
Emphasis
Primary: The Mixed‐Use Residential
category promotes self‐supporting
neighborhoods primarily containing
housing, ranging from suburban to urban.
Includes single‐family residences,
duplexes, patio homes, townhomes,
apartments, condominiums, and live‐
work units built on a majority of any site.
Secondary: These mixed‐use areas
should also include retail, offices, and
light trade (on 10‐30% of the site) related
to the neighborhood and open space,
parks, plazas, and other public or quasi‐
public uses as appropriate, such as
schools, places of worship, libraries, and
community centers.
In the USB.
Appropriate near activity centers and near
major arterial and collector streets. Also could
be “neighborhood centers” surrounded by
urban residential.
Includes “suburban” and “urban” models,
depending on the location. In a more urban
type, some vertical mix of uses could occur,
including some multi‐family loft‐style
residential (Note: discuss whether the plan shows
areas that should be more urban, in addition to
downtown).
The core of the mixed‐use areas are where the
highest‐intensity and greatest mix of uses
occurs.
Generally a park or plaza or other public area is
also at the core.
Building heights evaluated during the
development review process. Height transitions
and step‐downs provided to make mixed‐use
compatible with adjacent development.
Mixed-Use:
Commercial
Emphasis
Primary: Primarily retail, office, and light
industrial. Parks, plazas and open space
are part of the core of mixed‐use
commercial areas. No single use exceeds
80% of the land.
Secondary: Apartments and townhomes
and other residential should be included.
Places of worship and other public or
civic uses.
Located in the USB, near collector or arterial
streets or transit facilities and in or near larger
activity centers.
Create an environment with employment and
shopping, a range of housing types and parks,
open space, and civic uses.
Uses mixed vertically and/ or horizontally.
Developed in an integrated, pedestrian‐friendly
manner and are not be overly dominated by any
one land use or housing type.
Building heights evaluated during the
development review process. Height transitions
and step‐downs provided.
Mixed-Use:
Employment
Campus
Primary: Office and light industrial
designed in a business campus setting
with open space, parks and plazas, and
pedestrian walkways. Retail and services
are important components.
Secondary: Places of worship and other
public or civic uses are also appropriate.
Located in areas shown on the plan.
Create an environment with employment
opportunities integrating buildings and outdoor
spaces transportation and parks, open space,
civic uses, and other uses as appropriate.
Uses may be mixed either vertically or
horizontally.
Should be developed in an integrated,
pedestrian friendly manner and should not be
overly dominated by any one land use.
Higher intensity employment is encouraged in
the core of Mixed‐Use Business Campus areas,
or adjacent to collector or arterial roadways.
Building heights should be evaluated during the
development review process. Where
appropriate, building height transitions and
step‐downs should be provided to be
compatible with adjacent development.
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3: 3: Land Use Land Use Categories Table
Community Plan ‐ ShapeCheyenne 3‐27
Category Land Uses and Activities Characteristics and Location
BUSINESS & INDUSTRY
Industrial
Primary: Industrial, office, distribution,
warehouses, and manufacturing.
Secondary: Supporting retail or office
uses.
Located in the USB with access to major
transportation facilities.
Includes the heavier and light industrial areas
and generally provides locations for less
restrictive regulations.
Outdoor storage and heavy industry may be
allowed in certain areas and will be evaluated
as part of the development review process, but
higher quality design necessary in high
visibility locations.
Central
Business
District
Primary: The Central Business District is
intended for a variety of commercial
businesses and civic uses. Business uses
are smaller scale and not dependent on
direct vehicular access. Residential uses
for upper floors and offices are
encouraged.
Secondary: Places of worship and other
public or civic uses are also appropriate.
The community’s downtown historic core in
the City of Cheyenne.
Development is in keeping with the historic
character. Buildings have strong relationships
with public streets and sidewalks.
Downtown is a walking environment and
vibrant public spaces are important.
Community
Business
Primary: General retail to serve
neighborhoods and the community and
offices. No intensive industrial activities.
Secondary: Supporting uses, open space,
and recreation, multi‐family housing (e.g.,
apartments and townhomes), and other
public or civic uses.
In the USB.
Generally located at the intersection of two
arterial streets or at the intersection of a
collector and an arterial street.
Retail centers that provide shopping service to
adjacent and surrounding community and
region.
Where possible, internal streets and sidewalks
provide access and connections to nearby
neighborhoods.
Businesses blend with nearby neighborhoods
or development with scale, design, signage,
and lighting.
(See Centers Criteria)
CIVIC/OTHER
Open Space
and Parks
Public and private open space, public and
private parks, country clubs, and golf
courses. Some public utilities or facilities
may be appropriate. May also include
trail corridors.
Existing open space and parks are shown on the
Future Land Use Plan. It also illustrates the
location of some potential future open space
areas but not all future parks.
Open space includes sites and areas for active
and passive recreation, conservation and
mitigation of environmental hazards.
Neighborhood parks to be addressed through
the policies and during neighborhood
development.
Location, access, terrain, size and design will
vary for future open space, depending on the
specific use.
Public and
Quasi-Public
Uses related to community services, such
as fire stations, schools, libraries,
community centers, hospitals, civic
buildings, and places of worship.
The Future Land Use Plan shows existing Public
and Quasi‐Public facilities and future schools.
Future locations will vary depending on the
type of facility.
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