08/2002 Draft Growth w App ADRAFT
KALISPELL CITY -COUNTY GROWTH
POLICY PLAN
With Appendix A
Resource and Analysis Section
2001
TABLE OF CONTENTS
Page
Introduction.............................................................................. 1
1. Administration................................................................. 4
2. Growth Management......................................................... 7
3. Land Use: Housing........................................................... 10
4. Land Use: Business and Industry ............. ........ ......... ......... 13
S. Land Use: Agriculture... ...... ......... ......... .... ... ......... ......... 18
6. Economy.......................................................................... 20
7. The Natural Environment................................................... 23
8. Historic and Cultural Conservation and Urban Design ........... 27
9. Parks and Recreation......................................................... 29
10. Transportation.................................................................. 31
11. Infrastructure and Public Services ....................................... 39
12. Neighborhood Plans........................................................... 48
Appendix A: Resources and Analysis Section ........................................ 50
Introduction
The Kalispell City County Growth Policy Plan is an official public document
adopted by the Kalispell City Council and the Flathead County Board of
Commissioners. The plan is not a law or regulation, but rather a set of
advisory guidelines. Although the plan reflects economic, social, and
environmental policy, it is, fundamentally, a guide to the physical development
of the community. The jurisdiction of the master plan, 63.4 square miles in
size, is shown in Figure 1.
A vision statement has been developed for the planning jurisdiction that is
intended to reflect overall ideas about future growth and development in the
planning jurisdiction.
"As the county seat, the Kalispell area will continue to strengthen
its position as the regional commercial and government center for
the Flathead Valley community in creating a diverse economic
base, efficient public services, a variety of housing options and
serving as a center for higher learning. As new development and
redevelopment occurs, it is expected to be in areas where public
services and infrastructure are available. Development in the city
core should preserve and enhance the historical and cultural
heritage of the community. The integrity of the natural and scenic
resources in the area shall be maintained."
The essential characteristics of a growth policy plan are that it is
comprehensive, general, and long range. Comprehensive means that the plan
applies geographically to the entire community, so as to coordinate its overall
pattern of growth. (Montana law provides that, by mutual agreement of the City
and County, the planning jurisdiction boundary may extend up to 41/2 miles
beyond a city's corporate limits. In this case, the actual boundary extends
between 1'/2 and 41h miles beyond Kalispell's city limits in 2001.
Comprehensive also means that the plan gives consideration to all of the basic
functions that make a community work, such as land use, housing, the
economy, the environment, transportation, and public facilities and services.
General means that the plan is broad in scope, focusing more on the forest
than the trees. Accordingly, the Alan's format is of goals and policies, rather
than legally described locations, engineered solutions, or detailed regulations.
Long range means that the plan looks beyond the present situation in attempt
to anticipate future problems and opportunities_ The period addressed by this
plan is through the year 2010, with a review every five years on revising the
plan if necessary.
Legal foundations of the growth policy plan -are found in the Montana's Local
Planning Enabling Act (Sections 76-1-101 through 76-1-606, MCA) which
outlines the contents and process for the preparation and use of the growth
policy plan. These provisions state that the planning board shall prepare and
➢raft Kalispell Citv-County Growrh Policy Plan — August 2001
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propose a growth policy plan. The contents of the plan may include
information on land use, demographics, economics, public services,
conservation of natural resources and other related factors; development and
growth plans; and a long-range public works program_ These statutes also
state that the city council or county commissioners shall be guided by and give
consideration to the general policy and pattern of development set out in the
growth policy plan.
Past planning efforts: The existing plan is itself an update of previous versions.
The City of Kalispell adopted its first master plan in 1962. In 1974, the
Kalispell _City County Planning Board updated the plan to reflect the changing
conditions in the community. The 1974 plan was re -affirmed in 1978 when
Flathead County and the three cities of Whitefish, Columbia Falls, and
Kalispell jointly undertook the preparation of the Flathead County
Comprehensive Plan. In 1984, the Kalispell City County Planning Board again
undertook the task of updating the plan, a process that was completed in 1986.
Preparation of the plan: The preparation of the current plan has taken several
years. The first phase of the process was information gathering about the
planning jurisdiction. A resources and analysis section was prepared which is
includes as Appendix A of the plan. This document consists of background
information on demographics, the economy, population and housing
projections, the environment, and public facilities and services. Computerized
mapping was prepared of the planning jurisdiction, including the street system,
development pattern, zoning, parks and open space, historic structures,
floodplain, hydrology and wetlands, topography, agricultural soils, and habitat
of various wildlife species. In 1997, a public opinion survey on local growth
issues was conducted from a random sample of households in the planning
jurisdiction, drawing a 42% response rate (over 500 returned questionnaires).
The survey results are shown in Appendix B.
The initial drafting of the plan was done by three committees intended to reflect
a cross-section of the community. A business and development committee,
neighborhoods and environment committee, and public facilities and services
committee each prepared their own version of the plan. Afterwards, a
consensus committee combined the three versions of the plan into onto one
draft. This process of drafting of the plan was done in 24 public meetings over
a nine -month period. There was general circulation of the draft plan, a three-
month public comment period and public meetings were held reviewing the
draft.
Follow-up revisions to the draft were made by the planning board who reviewed
the plan during weekly meetings over eight months between February 1999
and October 1999. A formal public hearing was held and the plan forwarded to
the governing bodies to proceed through the adoption process. The city council
reviewed the document and made some modifications before forwarding it to
the county commissioners.
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Growth policy plan components: The plan is composed of the text, map, and
appendices. Each of these components is equally important and should be
considered together in interpreting the plan.
The text contains chapters on land use, the economy, and public services.
Each chapter is organized into a format of interrelated issues, goals, policies,
and recommendations. The "issues" are statements of important trends,
problems, opportunities, and community values. The "goals" are basic, general
statements of the community's aims and priorities. The "policies" are
guidelines and strategies that implement the plan's goals. The
"recommendations" are specific actions to be taken by the City or County that
implement the plan's goals.
The growth policy plan map can be found in the back pocket of this document
and is a geographic illustration of the plan's goals and policies applied to the
lands in the planning jurisdiction. The map indicates the types of land uses
recommended at each location, representing the plan's recommendation of an
orderly growth pattern. The map indicates the plan's classification (hierarchy)
of major streets lakes, rivers, streams, floodplain and steep slopes. The text
includes explanations of these map designations within the related chapters.
Like the text, the map is a guideline, and it is intended to indicate generalized
rather than exact locations.
Additional appendices of the plan include neighborhood plans as specialized
plan elements. Neighborhood plans have been adopted as appendices of the
master plan as specialized elements, which should comply with the overall
growth policy plan.
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1. Administration
Administration of the plan and its implementation would be the responsibility
of either of the governing bodies, i.e. the City of Kalispell or Flathead County
Board of Commissioners. Kalispell has council / manager form of government.
There is an eight member council and the mayor who votes on all matters. A
full-time city manager administers the day to day business of the City.
Flathead County has commissioner form of government with three full-time
county commissioners who employ an administrative assistant to assist in the
day to day operation of the county.
Issues:
1. Cooperation between the City and County is critical to reinforcing an
orderly development pattern in the planning jurisdiction, coordinating
public facilities and services, and addressing the numerous issues that
cross over city -county boundaries. This plan may extend up to 4.5 miles
beyond city limits, as enabled by Montana statutes, to provide for joint
city -county planning efforts.
2. Public involvement plays and important role in the development review
process.
Goals:
1. FOSTER CITY -COUNTY COOPERATION, PARTICULARLY IN MANAGING
GROWTH AND COORDINATING PROVISION OF PUBLIC FACILITIES
AND SERVICES. PROMOTING COOPERATION BETWEEN KALISPELL,
EVERGREEN AND FLATHEAD BUSINESSES.
2. ENCOURAGE THE COUNTY TO ZONE PROPERTY WITHIN THE
POTENTIAL UTILITY SERVICE AREA AS SHOWN IN FIGURE B
CONSISTENT WITH THE CITY'S ZONING AND DEVELOPMENT
STANDARDS TO PROVIDE GREATER CONSISTENCY WITHIN THE
JURISDICTIONS.
3. THAT A MEMORANDUM OF UNDERSTANDING BE SIGNED BETWEEN
THE CITY AND THE COUNTY THAT WOULD FORM AN AGREEMENT
BETWEEN THE PARTIES TO ADHERE TO:
• URBAN AND RURAL DEVELOPMENT STANDARDS.
• SUBDIVISION PLAT REVIEW PROCESSES.
• ANNEXATION POLICIES INCLUDING TRANSFER OF COUNTY ROADS
TO THE CITY.
• EXTENSION OF MUNICIPAL SERVICES INCLUDING SEWER, WATER.
• PUBLIC SAFETY AND EMERGENCY SERVICES AND FACILITIES.
• COORDINATION OF GEOGRAPHIC INFORMATION SYSTEMS,
BUILDING CODES AND HEALTH DEPARTMENT RESOURCES.
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4. THAT THE CITY AND COUNTY- IDENTIFY WAYS TO SHARE EQUIPMENT
AND OTHER RESOURCES TO INCREASE THE EFFICIENCY OF LOCAL
GOVERNMENT OPERATIONS.
5. THAT THE CITY AND COUNTY MEET PERIODICALLY WITH THE SCHOOL
DISTRICT, PUBLIC UTILITY AND SERVICE PROVIDERS TO SHARE AND
COORDINATE LONG-TERM PLANS FOR CAPITAL EXPENDITURES,
FUTURE DEVELOPMENT PLANS AND UTILITY EXTENSIONS.
Policies:
1. Use this plan as a central policy document to guide development and
growth in the planning jurisdiction.
2. Zoning regulations should conform to the provisions of this plan.
3. Initiate city -county agreements or programs which would cooperatively
influence the amount and type of growth within the planning jurisdiction
and address all impacts of development.
4. This plan, jointly adopted by the City and County, should be used when
considering all development decisions.
5_ Coordinate development codes in the city and the rural portion of the
planning jurisdiction to promote the orderly expansion of the city-
6. To remain current, there should be a review every five years and revising
the plan, including neighborhood plans, if necessary. Plan amendments
outside of these comprehensive updates should be viewed cautiously
and based primarily on unanticipated changes in circumstances.
7. Comprehensive updates should be considered when there is a major
change in circumstances within the planning jurisdiction such as a
significant increase or decrease in population, changes in economic
trends and conditions or significant changes in public infrastructure
such as sewage treatment facilities or new roadways.
8. The plan amendment process should provide ample opportunity for
public participation.
9. Notice of public hearing shall be given a minimum 15 days prior to the
hearing in a paper of general circulation for plan amendments and
updates and in accordance with state statutes.
10.As city boundaries expand, periodically consider expansion of the
planning jurisdiction boundaries up to the 4.5-mile limit.
11.Written plans stating how the public will be informed regarding
development projects can ensure the integrity of the public review
process."
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Recommendations:
1. New and existing neighborhood plans should be consistent with the
growth policy plan.
2. Neighborhood plans should be reviewed every five years to determine
whether the plan is still relevant and whether or not changes should be
made.
3. The policies of this plan should be implemented through the zoning and
subdivision regulations.
4. Develop a cooperative relationship between the elected officials,
government agencies, service and utility providers that results in
consistent development standards, efficient use of public infrastructure
and resources, and quality development.
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2. Growth Management
Growth in the planning jurisdiction has been cyclic with bursts of growth and
then a leveling of the growth rate. During the early part of the 1990's there
was a relatively high level of growth that stabilized during the last half of the
1990's. Affordable housing, delivery of services, location of new development,
redevelopment of the existing urban core and quality of life are all issues that
have increased in significance during this period of growth.
Issues:
1. Kalispell is a growth area. The population of the planning jurisdiction
grew from 1990 to 2000 dramatically. Growth rates have fluctuated
between moderate and high levels making land use and planning
difficult.
2. Growth has had positive and negative effects on the local quality of life.
Along with a good economy and many examples of well designed
development, the impacts of growth have also included disruption of
neighborhoods, strain on public facilities and services, environmental
impacts, increasing housing costs, and changing cultural values.
3. Zoning regulations have been adopted throughout the planning
jurisdiction. Most of the outlying zoning districts were adopted between
1987 and 1993.
4. While periods of rapid growth have increased support for new and
stronger government controls on private property, local public
acceptance of new restrictions has tended to come slowly and has been
mixed with apprehensions and opposition. For example, in 1994 the
year old county building permit program was rescinded by a referendum
vote. In 1996, a substantial effort was put forth to update the county
master plan (which did not address lands in this jurisdiction), proposed
as a basis for countywide zoning, was likewise rescinded by a
referendum vote. The issue of private property rights continues to be a
matter of public discussion.
5. Dispersed development in outlying areas has been the predominant local
growth pattern of recent decades. In 1960, 77% of the planning
jurisdictions residents lived in Kalispell, but by 2000, the proportion had
fallen to 49%. Factors in this urban to suburban shift include national
trends toward suburban and rural growth, the appeal of the Flathead
Valley's rural setting and a variety of public policies that have made
dispersed suburban development more attractive than concentrated
urban development.
6. Along with the predominant growth pattern of dispersed development,
there has also been a growth trend of reinvestment and land
development in established urban areas, drawn by convenience, variety,
stable neighborhoods, and small-town quality of life. The more
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traditional development patterns of this trend differ from suburban
design; they include redevelopment, medium densities, grid streets, less
parking, and mixing of different land uses and densities closer together.
Finding ways of making infill growth more attractive and economical is
necessary to equalize the trend toward dispersed development.
7. Using the HUD definition of affordable housing, only 11% of the homes
for sale in Kalispell are affordable for 70% of the households in the area.
Any growth management policy should consider the affordability of
housing.
Goals:
1. ENCOURAGE EFFICIENT USE OF SPACE, ORDERLY GROWTH
CONSISTENT WITH HIGH QUALITY OF LIFE, FISCAL SOUNDNESS,
ENVIRONMENTAL CONSERVATION, AND COMMUNITY VITALITY.
2. IMPLEMENT A COMPREHENSIVE, EFFECTIVE GROWTH
MANAGEMENT PROGRAM THAT UPHOLDS THE GENERAL WELFARE
OF THE COMMUNITY AND INCORPORATES CONSTITUTIONAL
PROTECTIONS OF PRIVATE PROPERTY RIGHTS.
3. ENCOURAGE HOUSING TYPES THAT PROVIDE HOUSING FOR ALL
SECTORS AND INCOME LEVELS WITHIN THE COMMUNITY.
4. NEW COMMERCIAL DEVELOPMENT SHOULD OCCUR IN AREAS
WHERE PUBLIC WATER AND SEWER ARE AVAILABLE.
Policies:
1. Encourage resolution of disputes involving land use policy by broad
participation, education, compromise and consideration of private
property rights. Maintain mechanisms to provide for open, well
publicized processes.
2. Encourage flexible government policies for development and
infrastructure within urban areas.
3. Provide for conservation of established single-family housing areas with
significant design integrity, such as Kalispell's historic districts.
4. Affordable housing shall be recognized as a primary consideration within
this jurisdiction when adopting or amending land use regulations. The
ability of the average wage earner to either buy or build a home is an
essential component of the standard of living, quality of life, and general
welfare in our community.
S. When enacting land use regulations, individual property rights should
be protected in accordance with the constitutions of the United States
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and the State of Montana. Individual property owners have the right to
sell or to manage their own property as they see fit as long as their
actions do not adversely impact the rights of others. Private property
shall not be taken or managed for public use without just compensation
to the owner.
6. Design and locate development to protect public health and safety;
insure adequate provision of services; fit the character of its
surroundings; and encourage the most appropriate use of land
throughout the planning jurisdiction.
7. Development by the public sector should comply with the same rules as
that of private sector development. Encourage, where feasible,
development by the private, rather than public sector.
8. The governing bodies within the planning jurisdiction shall conduct
public hearings on proposed subdivisions in accordance with state and
local provisions,
9. The governing bodies will evaluate subdivision based upon criteria
required under state and local regulations including impacts on services
and infrastructure, effects on wildlife and wildlife habitat, effect on
agriculture and the health, safety and welfare of the public in general.
Recommendations:
1. Adopt a municipal annexation program coordinated with the City of
Kalispell Extension of Services Plan to annex urban fringe developments.
2. Use the Kalispell service area boundary as defined in the Kalispell
Extension of Services Plan as a guide when deciding the future use and
densities in a particular area.
3. Continually monitor, update, and streamline development codes to keep
abreast of changing trends and technologies, to simplify the development
review process, and to avoid unnecessary costly delays in processing
applications.
4. Amend zoning regulations to enable implementation of the policies
herein.
S. Encourage infill housing where public services are available.
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3. Land Use: Housing
Providing adequate affordable housing within the planning jurisdiction has
become an important issue. Inflation of housing prices, increased demands
due to population increases and an expansion of service related jobs have
resulted in a critical need for additional moderate to low income level homes.
There is also a need for more diverse housing types such as townhomes, multi-
family and accessory dwellings to accommodate smaller households.
Issues:
1. As population growth continues over the next two decades, the demand
for housing is projected to grow by approximately 900 new dwelling
units per five-year period in the planning jurisdiction.
2. The combination of rapid inflation of housing prices and an expanding
proportion of service related jobs has produced a significant shortage of
low- and moderate -income housing.
3. Kalispell has a high proportion of seniors. While most local housing
consists of single-family detached houses, demand is growing for a mix
of housing types, such as more one -person households, assisted living
housing for seniors, townhouses, apartment buildings, accessory
apartments, and second homes.
4. Most residents in the planning jurisdiction object to having single -wide
mobile homes in their neighborhoods, even though manufactured
housing presents an affordable housing alternative and is becoming
more acceptable because of improved quality of construction and
improved financing.
Goals:
1. PROV"IDE AN ADEQUATE SUPPLY AND MIX OF HOUSING THAT MEETS
THE NEEDS OF PRESENT AND FUTURE RESIDENTS IN TERMS OF
COST, TYPE, DESIGN, AND LOCATION.
Policies:
1. All residents should have the opportunity to live in neighborhoods that
provide safe and affordable housing.
2. Encourage the development of urban residential neighborhoods as the
primary residential land -use pattern in the planning jurisdiction.
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3. Urban Residential:
a. Urban residential areas shown on the plan map should be
encouraged to be developed where adequate services and facilities
are available.
b. Typical densities are three to twelve dwellings per gross acre.
c. Single-family houses are the primary housing type. Duplexes,
guest houses, accessory apartments, and small dispersed areas of
multi -family housing are also anticipated.
d. Urban and high density residential areas should be fully served
by urban infrastructure and municipal services, including paved
streets, curbs, sidewalks, boulevards public sewer and water.
e. These areas should have convenient access to neighborhood
business districts, parks, and elementary schools.
4. High Density Residential
a. Typical densities are eight to twenty dwellings per gross acre,
occasionally reaching up to 40 dwellings per gross acre as may be
appropriate to the site.
b. Small high -density residential districts are encouraged to be
dispersed throughout the urban area. These districts should be
located predominantly near schools, employment and service
centers, and urban arterials.
c. Multi -family housing developments should be designed to fit
compatibly within larger single-family neighborhoods.
d. Townhouses are encouraged to be a primary housing type in
these areas. Additional common housing types include low-rise
apartments, duplexes, manufactured home parks, and upper
floors of mixed -use buildings.
e. High -density residential districts may be mixed with professional
offices and various low-intensitv commercial and institutional
uses, particularly where located along urban arterials.
f. In transitional areas zoned for multi -family residential use but
developed primarily as single-family houses, conversion of
existing houses to offices is encouraged, in order to maintain
investment in the existing building stock and ease the land -use
transition.
g. These areas should be within close proximity to small parks or
common open spaces. Encourage the location of buildings to
create engaging, centrally located courtyards.
h. These areas should be fully served by urban infrastructure and
services.
5. Suburban Housing:
a. Densities should be appropriate to the limitations of the
particular site, and should not exceed two dwellings per gross
acre.
b. The suburban residential designation is intended to reduce
density and development impacts in sensitive areas and existing
rural neighborhoods.
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c. Single-family houses are the primary housing type.
d. These areas should have paved streets, as appropriate to the area,
and access to services. New subdivisions located in or near
Kalispell should generally include sidewalks where appropriate
and installation of low intensity street lighting appropriate to the
area.
6. Provide an adequate supply of affordable housing to meet the needs of
low- and moderate -income residents.
7. Give special consideration to environmental design for seniors, who have
various special needs regarding housing, transportation, handicapped
access. and services.
8. Provide adequate areas and institute appropriate design criteria for
manufactured homes and manufactured home parks.
9. Allow low -impact home occupations which do not undermine a
neighborhood's residential character. Prohibit related outdoor storage
and minimize signage.
Recommendations:
1. Develop and implement an affordable housing strategy to effectively
provide for the needs of low and moderate income residents.
2. Develop programs for rehabilitation of deteriorating and historically
significant -housing and infrastructure.
3. Review the zoning test and map periodically to correct any
discriminating or exclusionary requirements and remain current with
changing construction technologies.
4. Establish flexible planned unit development standards encouraging
residential or mixed -use development.
5. Develop a comprehensive sidewalk system in Kalispell, Evergreen, and
the surrounding urban area. Install crosswalk improvements where
appropriate.
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4. Land Use: Business and Industry
The Kalispell planning jurisdiction is the retail, commercial and government
center for the Flathead Valley. Kalispell's commercial core is generally more
pedestrian oriented with an emphasis on the historical character of the area.
Evergreen has developed around the highway corridor with recent commercial
expansion of businesses that require larger undeveloped parcels. The medical
and educational community are also located in the planning jurisdiction and
provide an important contribution to the economic prosperity of the area.
Issues:
1. Spreading out from an historical concentration in downtown Kalispell,
most commercial growth in the Kalispell area during recent years has
occurred along highway commercial strips and centers at highway
intersections. The highway centers are usually anchored by large
discount stores, supermarkets, and/or hotels. The remainder of the
highway strip generally focuses on franchise businesses closer in and
quasi -industrial businesses in outlying areas. Another commercial
center, the hospital area has grown as a major medical and office
complex.
2. The main design advantages of commercial corridor areas are highway
visibility for businesses and concentration of business traffic along
arterial routes. These areas also face design problems: traffic congestion
during peak periods caused by lack of secondary street access; and lack
of bike and pedestrian access and general appeal.
3. Land with commercial or industrial zoning is oversupplied in the
Kalispell area but it is often in undesirable locations that lack adequate
infrastructure.
4. Downtown Kalispell is an evolving economic and community center.
Retail activity, the social foundation of downtown that draws people
along the sidewalks, has been hurt by the loss of department stores and
general commercial dispersion, but has been reinforced by the
downtown shopping mall and expansion of specialty stores. Major
strengths of downtown are its central location; its density and intricate
mix of land uses, its historic districts and appealing pedestrian
environment, its civic functions as the seat of city and county
government, and its symbolic importance as the center of community.
5. Industrial areas are dispersed in the planning jurisdiction. The largest
districts are North Evergreen and South Kalispell along Highway 93.
Other industrial areas, primarily timber mills and gravel pits, are located
near the east, west, and north entrances of the city.
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Goals:
1. ENCOURAGE THE DEVELOPMENT AND GROWTH OF PROSPEROUS
COMMERCIAL AND INDUSTRIAL DISTRICTS, EACH WITH A VIABLE
MIX OF BUSINESSES, SUITABLE INFRASTRUCTURE, AND A
COORDINATED DEVELOPMENT PATTERN THAT REDUCES BUSINESS
COSTS AND INCREASES SMALL BUSINESS OPPORTUNITIES.
2. NEW COMMERCIAL DEVELOPMENT SHOULD OCCUR IN AREAS
WHERE PUBLIC WATER AND SEWER ARE AVAILABLE.
3. ENCOURAGE DEVELOPMENT AND REDEVELOPMENT IN THE
"TARGET DEVELOPMENT AREAS."
4. HIGH TECH INDUSTRIAL BUSINESS AND E-COMMERCE BASED
BUSINESS ARE ENCOURAGED TO LOCATE WITHIN EITHER THE
COMMERCIAL AND / OR INDUSTRIAL AREAS OF THE PLANNING
JURISDICTION CREATING A MIX OF USES.
5. LARGE SCALE AND BIG BOX RETAIL SHOULD BE ENCOURGAED TO
LOCATE IN A MIXED USE FASHION RATHER THAN AS AN ISOLATED
DEVELOPMENT.
Policies:
1. Central business district_
a. Recognize downtown Kalispell as a center of the community.
b. Maintain a prosperous core of retailers, restaurants, and
entertainment uses that keep downtown active.
c. Reinforce and take advantage of downtown's strengths, including its
higher concentration of people, investment in buildings and
infrastructure, intricate mix of land uses, historic and architectural
character, pedestrian orientation, and visitor attraction.
d. Recognize that there are special parking considerations downtown
which differ from other areas, encourage innovative parking
management, effective regulation of on -street parking, shared
parking provisions, parking standards that encourage reuse of upper
floors, and provision of public parking lots and structures.
e. Encourage the rehabilitation and reuse of existing downtown
buildings. New development should give adequate consideration to
downtown's historic character.
f. Support the concentration of community events, civic functions, and
activities in the downtown.
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2. Urban Mixed -Use Areas:
a. Encourage the development of compact, centrally located service and
employment districts, in order to improve connections between
existing commercial hubs and surrounding residential
neighborhoods.
b. A complete system of pedestrian and bike paths is important in these
areas.
c. Expand the depth of urban highway commercial districts as mixed -
use corridors, in order to provide an alternative to continued linear
commercial sprawl, concentrate more intensive uses along traffic
arterials, improve business district circulation and transportation
efficiency areas, by secondary street access, provide flexibility for
larger development sites, and expand small business opportunities.
d. Within these corridor areas, provide for higher -intensity, mixed -use
areas roughly two blocks (750 feet) deep on both sides of urban
highways. As distance from the highway increases, create a gradual
transition into the residential neighborhoods by reduced density,
increased buffering, and increased sensitivity to compatible design.
e. Avoid premature encroachment into established, intact residential
areas.
f. Allow a compatible mix of higher -intensity uses, including general
commercial, light industrial, medium and high -density residential,
and public facilities.
3. Neighborhood Commercial Districts
a. Establish neighborhood commercial areas designed to provide
convenience goods and services addressing the daily needs of the
immediate neighborhood.
b. Neighborhood commercial districts should generally be three to five
acres in size and be spaced one-half to one mile apart. Sites should
be configured to enable clustering of neighborhood commercial
businesses, encouraging bike and pedestrian where practicable.
c. Uses should be designed, set back, landscaped and buffered to fit the
surrounding neighborhood.
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4. Industrial Districts:
a. Designate areas suitable for industrial uses.
b. These areas should have adequate access to rail, highway, and
airport sufficient size to allow for future expansion.
5. Highway Community Entrance:
a. Emphasize the objective of a pleasing entrance to the city that
encourages highway landscaping. .
b. In designated mixed use areas, allow for a compatible mix of general
commercial, light industrial, residential, and public facilities. In
limited industrial areas, allow light industrial uses which do not
create off -site impacts.
c. Encourage the use of innovative land use regulations to achieve a
pleasing community entrance.
d. Encourage highway commercial and industrial development in the
planning jurisdiction to adhere to the following design guidelines:
1. Encourage access by a secondary street or use of shared
driveways and interconnected parking lots where secondary street
access is unfeasible.
2. Landscape highway frontage, parking lots, to enhance
development sites and soften the visual impacts of development.
3. Keep signs simple, to reduce clutter and allow rapid
comprehension of highway motorists without undue distraction.
Encourage variety and creativity in sign design.
4. Outdoor storage, machinery, utilities, trash dumpsters, service
bays, antennas, rooftop equipment, and similar accessory
facilities should be hidden or screened from public view to protect
aesthetic qualities.
5. Outdoor lighting should be low intensity, directed downward, and
shielded to prevent glare.
6. Target Development Areas
a. Target development areas are generally identified as the southwest
part of Kalispell around the City airport, the northeast area at West
Reserve Drive and Highway 93, the Center Street area, the area
around Highway 35 and LaSalle Road in Evergreen, and as indicated
as ellipses on the plan map.
b. The target development areas are where commercial and / or light
industrial development or redevelopment is encouraged. Integration
of residential uses within these areas are also encouraged.
Draft Kalispell City-CountT Growth Policy Plan — August 2001
16
c. In general, the northwest area is intended for commercial
development and the southwest area is intended for industrial
development.
d. The railroad tracks west of Highway 93 should be abandoned to allow
for redevelopment of the area for quality commercial development
and or expansion.
Recommendations:
1. Historical character of the downtown area should be enhanced with
compatible architectural design of buildings.
2. Adequate consideration should be given to parcel boundaries to avoid
splitting the lot into separate use districts when reasonable.
3. Establish a landscape fund for landscaping along the community
entrance corridor.
4. Encourage the development of compact, centrally located service and
employment districts, in order to improve connections between existing
commercial hubs and surrounding residential neighborhoods.
5. Large scale development can have significant impacts on the community.
Studies including analysis should be provided to assist in assessing
impacts related to traffic, schools, economic development and other
public services.
Draft Kalispell City-Councv Growth Pclicv Plan — August 2001
17
5. Land Use: Agriculture
Agricultural preservation and maintaining the rural character of some areas of
the planning jurisdiction have become increasingly difficult issues because of
the decline in commodity prices and increased development pressures. Rural
areas immediately surrounding the Kalispell and Evergreen become important
to these urban areas for future development.
Issues:
1. Agricultural lands provide a source of food and wood products, export
income, scenic open space, wildlife habitat, and a fiscally efficient use of
rural land.
2. Agriculture in the (City -County Planning Jurisdiction) although a
significant and growing component of the regional economy, is in
transition. Among the trends of recent years are the following: conversion
of agricultural land to residential subdivisions, ranchettes, and small
farms; conflicts between agriculture and expanding rural development
from nuisance disputes, noxious weeds, dogs, and escalating land costs;
diversification into specialty crops.
3. Lands close to the city are an important part of the county's agricultural
land base. However, there is a fragile balance between the remaining
agricultural lands and their ability to continue to support the county's
agri-business base.
4. Conservation easements and similar voluntary mechanisms have
become successful methods of conserving agricultural land, but no local
government programs currently exist to purchase development rights.
5. High land costs are a major impediment to getting into the farming
profession.
Goals:
1. MAINTAIN A STABLE, VIABLE AGRICULTURAL INDUSTRY.
2. ENCOURAGE VOLUNTARY CONSERVATION OF AGRICULTURAL
LANDS.
3. RECOGNIZE THE NEED OF AGRICULTURAL LANDOWNERS TO HAVE
OPTIONS WITH WHICH TO MAXIMIZE THEIR RETURN ON THEIR
PROPERTY.
4. CLUSTER DEVELOPMENTS ARE ENCOURAGED IN THE RURAL AREAS
OF THE COUNTY THAT ARE WITHIN THE URBAN SERVICE AREA AND
A PROVISION SHOULD BE CREATED THAT ALLOWS FOR THE
REDEVELOPMENT OF THE OPEN SPACE AREAS WHEN UTILITIES ARE
AVAILABLE.
Draft Kalispell City -County Growth Policy Plan — August 2001
18
Policies:
1. Encourage and create incentives to conserve agricultural lands
2. Encourage rural growth to areas, which are not environmentally
sensitive or productive agricultural lands.
3. Encourage the use of conservation easements, clustering or other
options to protect productive agricultural lands in rural areas.
4. Develop innovative land use policies, which protect the agricultural land
base in the county.
S. Open space areas in cluster developments that are located in close
proximity to the city limits should be considered as an urban reserve
area so that it can be redeveloped when public services and utilities
become available.
Recommendations:
1. Cooperation between the city and county governmental bodies should be
fostered so that redevelopment of the rural areas close to urban services
can be easily accomplished.
2. Rural areas of the planning jurisdiction that are in close proximity to the
city limits should be developed in such a way that accommodates future
redevelopment such as a minimum lot size requirement of 10 to 20 acres
or through cluster developments.
Draft Kalispell City -County Growth Policy Plan — August 2001
19
6. The Economy
The Kalispell area is the commercial, governmental and educational center of
the Flathead Vallev with a diverse economic base. Retail and general
commercial development is a major component of the economy as well as
tourism, manufacturing and medical. Wood products and agriculture are also
an important economic components although there has been a decline in these
-sectors of the economy over the past decade as a result of complex local,
national and international policies relating to these industries.
Issues:
1. The Kalispell area functions as the population and commercial center of
Flathead County and portions of four surrounding counties. Major
industrial, health care, and government facilities are also located in the
Kalispell area.
2. Per capita income in Flathead County during 1998 was comparable to
the state averages, but it was only 82% of the national average.
3. The economic base (export industries) of the Kalispell area and Flathead
County is diverse by Montana standards. During the 1990's, the
county's leading (primary or base) industries of retirement income, wood
products manufacturing, tourism, federal government, microelectronics
manufacturing, metal refining, railroad, and agriculture experienced
significant income growth. Though not conventionally considered an
industry, local retirement income is substantially higher and growing
faster than any of these other sources of export income.
4. The service sectors of the economy (including retail, services, real estate,
finance, insurance & government) employed 68% of the county
workforce in 1999 and have created most of the new jobs since that
time. The service sectors include most higher paying professional jobs,
as well as low -wage jobs.
S. Business and industry benefit from being able to locate in healthy
business districts and a quality built environment. Sound infrastructure
planning, growth management, and environmental protection offer
opportunities to strengthen the local economy.
Draft Kalispell Cite -County Growth Policy Plan — August 2001
20
Goals:
1. PROVIDE FOR AND ENCOURAGE AN ADEQUATE SUPPLY OF JOBS,
HIGHER MEDIAN INCOME FOR THOSE JOBS, AND A STABLE,
DIVERSIFIED ECONOMY.
2. ENCOURAGE THE LOCATION OF HIGH TECH INDUSTRIAL BUSINESS
AND E-COMMERCE BASED INDUSTRIES IN EITHER THE
COMMERCIAL OR INDUSTRIAL AREAS OF THE PLANNING
JURISDICTION.
Policies:
1. The Community Economic Development Stragety is the central
document for guiding economic development efforts in the planning
jurisdiction.
2. Encourage a land -use pattern that supports viable business and
industrial districts that integrate a residential component without
negatively impacting well -established residential neighborhoods.
Provide adequate space for growth. Carefully review the type, location,
and design of industrial sites, shopping areas, and tourist facilities.
3. Provide for adequate infrastructure and public services to support viable
business and industrial districts.
4. Work with educational institutions such as the Flathead Valley
Community College to provide technical education and training
programs that meet the needs of new or expanding job markets.
5. Work with business and industrial associations to promote and
coordinate business and industry in accordance with the master plan.
6. Work with economic development organizations to further master plan
goals and policies and to encourage countywide coordination of their
efforts.
7. Support the Kalispell area's position as a regional commercial center and
a location of major health care, government, and industrial facilities.
8. Support activities to ensure that the Central Business District remains
strong and viable. For example, provide for adequate off-street parking;
protect and promote the historic district; make downtown more
aesthetically appealing; cater to the needs of the pedestrian, promote
downtown events and activities; encourage a healthy mix of retail,
restaurants, services, entertainment, and housing.
9. Support amenities and activities that promote the Kalispell area as a
retirement, tourism, convention, and arts destination.
Draft Kalispell City -County Growth Pollcp Plan —Aug st 2001
21
1O.Explore development of "spin-off industries."
Recommendations:
1. Support the formation of business improvement districts (BID) to
strengthen area commercial districts.
2. Coordinate with Jobs Now, Job Service and other organizations to
develop jobs with a "living wage."
3. Pursue grants to help with economic development and locating
businesses within the planning jurisdiction.
Draft Kalispell City -County Growth Policy Plan — August 2001
22
7. The Natural Environment
Important natural resource and environmental factors in the planning
jurisdiction include hydrology, floodplain, air quality, steep slopes, soil
limitations, wildfire hazards, important habitat and important agricultural lands.
The topography and geography of the Kalispell planning jurisdiction presents
certain development constraints due to hydric soils, steep slopes, floodplain and
other soil limitations. Most of the planning jurisdiction consists of nearly level
alluvial lands, bottom lands and low terraces. The Flathead, Whitefish, and
Stillwater Rivers in the eastern half of the planrnn g jurisdiction are part of a large
riparian complex which creates a large floodplain area. Steep slopes in the
southwest portion of the planning jurisdiction pose limitations to development.
The steep slopes in combination with timberlands create wildfire hazards.
Productive farmlands in the southern and northern part of the planning
jurisdiction provide an important element to the cultural, economic and historic
element in the planning jurisdiction.
Issues:
1. The natural environment in the planning jurisdiction is an important
part of what makes the area a nice place to live.
2. Various key sectors of the county's economy depend upon and impact
the natural environment. Protecting the health and integrity of the
natural environment is important for maintaining our competitive
advantage with other regions.
3. The farming, ranching, and forestry industries contribute significantly to
the quality of the natural environment by providing open space that
functions in a practical and productive manner.
4: The confluence of the Flathead, Whitefish, and Stillwater Rivers is part of
a large riparian complex of swales, streams, wetlands, and alluvial
terraces that spans most of the eastern half of the planning jurisdiction.
These sensitive areas pose significant development limitations primarily
due to the presence of the 100 year floodplain.
5. The hillside areas in the southwest corner of the planning jurisdiction
are sensitive areas, posing development limitations due to soil
disturbance and erosion, high risks from wildfire and important wildlife
habitat.
6. Environmental awareness and accountability has been and continues to
be important to the communities in the Kalispell City -County planning
jurisdiction to reduce nutrient loading and other forms of water
contamination to the Flathead River.
Draft Kalispell Ciw-Ccunry Growth Poucy Plan — August 2001
23
7. Air quality in most of the planning jurisdiction has surfaced as a
problem primarily due to road dust resulting in particulate matter. Most
of the planning jurisdiction has been designated as a non -attainment
area that does not meet national air quality standards due to small
particulate matter.
8. Water quality is an important issue within the planning jurisdiction
which has the potential to be degraded by dense development due to
erosion, stormwater discharge and on -site sewage treatment systems.
9. Prime farmlands in rural areas are being converted from agricultural to
residential uses due to depressed commodity prices and increased
development pressures.
10.Important wildlife and wildlife habitat is being displaced by residential
development through the construction of driveways, homes and fencing
resulting in the destruction of habitat and interruption of wildlife
corridors. Feeding wildlife and loose dogs are also a threat to wildlife
and wildlife habitat.
11.Visual clutter resulting from poorly designed parking lots that lack
landscaping, obtrusive signage, overhead utilities and automobile
oriented design of commercial areas that lack pedestrian amenities and
reflect franchise architecture.
12.Areas disturbed during development of subdivision roads, building sites
and other construction activity can contribute to erosion and the spread
of noxious weeds if not property revegetated and maintained
Goals:
1. ENCOURAGE DEVELOPMENT THAT IS COMPATIBLE WITH OR
ENHANCES NATURAL RESOURCE VALUES INCLUDING AIR, WATER,
SOIL AND VEGETATION.
2. DEVELOPMENT IN ENVIRONMENTALLY SENSITIVE AREAS SHOULD
BE ACCOMPLISHED SO THAT THESE FEATURES ARE LEFT IN A
RELATIVELY UNDISTURBED STATE.
3. HIGH LEVELS OF AIR QUALITY AND WATER QUALITY SHALL BE
MAINTAINED THROUGH DESIGN STANDARDS.
4. IMPORTANT WILDLIFE HABITAT AND TRAVEL CORRIDORS SHOULD
BE CONSERVED AND MAINTAINED.
Draft Kalispell City -County Growth Policy Plan —August 2001
24
Policies:
1. Significant environmental impacts attributable to new development
should be identified and mitigated, where necessary.
2. Encourage infll, clustering, and other compact development patterns to
lesson impacts on sensitive lands.
3. New development should consider the "sensitive lands" shown on the
plan map including 100-year floodplain and terrain exceeding 30%
slope. This "sensitive lands" designation is not intended to prohibit
development, although lands with severe limitations may be found
unsuitable for development. Rather, this designation identifies areas
where development should be limited, designed, and managed to avoid
and mitigate environmental impacts and natural hazards.
4. Implement measures to assist in meeting the water quality and load
reduction targets for Flathead Lake and its tributaries as recommended
by the Montana Department of Environmental Quality.
5. Development in areas that have known high groundwater should be
restricted until such time as public sewer is available.
6. Filling of wetlands and the 100 year floodplain should be avoided.
7. New commercial and industrial development and residential
subdivisions should be accessible by paved roadways to protect air
quality.
8. Noxious weed controls should be implemented through revegetation of
disturbed areas immediately after development and adequate controls
after development.
9. Diversion, channelization and diking of natural rivers and streams
should be avoided.
lO.Protection of wildlife and wildlife habitat should be encouraged through
conscientious actions such as avoiding loose dogs, avoid feeding large
wild animal species and maintaining established important habitat
areas.
I1.Wildlife travel corridors should be conserved and maintained possibly
through easements or other voluntary restrictions.
12. Visual clutter that compromises the built and natural environment
should be avoided by requiring underground utilities in new
development, avoiding ridgeline or hilltop development, encouraging
simple and unobtrusive signs and avoiding excessive lighting.
Draft Kalispen Ci ; -County Growth Police Plan - August 2001
25
Recommendations:
1. The City and County government should coordinate in developing a
community -wide drainage plan encompassing the city and surrounding
suburbs, to reduce water pollution and flooding.
2. Coordinate waterfront regulatory programs involving floodplain, habitat,
and water quality.
3. Limit and mitigate impacts related to outdoor lighting, and noise.
4. Protect the Evergreen Alluvial Aquifer and other shallow aquifers as
sensitive water quality zones and establish performance standards.
5. Develop and implement a non -point source pollution abatement plan for
the planning jurisdiction.
6. Develop and implement a water quality clean-up plan for Ashley Creek.
7. Develop and implement a storm water management plan for northwest
Kalispell and the Spring Creek drainage.
8. Develop and plan for the incremental paving of all roads within the
Kalispell planning jurisdiction to improve air quality.
9. Require defensible space standards be implemented for development in
areas that are at high risk of wildfire.
lO.Develop policies and programs that will help to educate and assist the
public in the eradication and control of noxious weeds.
11.Develop standards that would limit ridgeline and hilltop development in
highly visible areas of the planning jurisdiction.
12. Review and revise sign standards and policies so that existing non-
conforming signs are eliminated through a more aggressive attrition
program.
13.Encourage design standards for commercial projects that contribute to
the character of the community area.
Draft Kalispell City -County Growth Policy Plan — August 2001
26
8. Historic and Cultural Conservation and Urban Design
The Flathead Valley is rich in cultural and natural history. The Kalispell
townsite was initially developed in the late 1800's and early 1900's. Many of
the historical buildings that were constructed during that time still remain and
play an important role is defining the rich historical and cultural character of
the community and neighborhoods.
Issues:
1. Kalispell's "National Register" historic districts include more than 1,000
houses, a substantially intact Main Street, and the courthouse circle
area —all built during the city's first fifty years. This heritage gives
central Kalispell much of its charm and character.
2. Historic landmarks outside the City of Kalispell have not been
inventoried.
3. The "character" of the built environment, its patterns, landmarks, and
familiar features, add to the community's quality of life and its
attractiveness as a retirement and tourism destination. Rapid local
growth and change, as experienced in recent years, can either enhance
or undermine local character, depending largely on how it is planned
and managed.
4. The degree of social interaction and cohesion in a community is
substantially influenced by the design of the built environment. For
example, Kalispell's traditional townscape of main street and
neighborhood streets is designed for walking, for seeing and meeting
people on the street, for knowing one's neighbors and neighborhood.
The building blocks of this traditional townscape are a consistent
pattern of small city blocks and an abundance of design features that
make streets charming places to walk.
Goals:
1. DOCUMENT AND CONSERVE OUR HISTORICAL AND CULTURAL
HERITAGE THROUGHOUT THE PLANNING JURIDICTION FOR THE
BENEFIT OF PRESENT AND FUTURE GENERATIONS.
2. ENCOURAGE HIGH QUALITY DESIGN THAT IS PEDESTRIAN
ACCESSIBLE AND PROMOTES SOCIAL INTERACTION.
Draft Kalispell Ciiy-Co,-inry Growth Policy Plan - August 2001
27
Policies:
1. Development and other changes in neighborhoods, historic districts, and
downtown should be encouraged to be compatible with the scale,
patterns, landmarks, and architecture of its surroundings.
2. Identify historic and cultural resources, and encourage the upkeep and
rehabilitation of historically and culturally significant structures and
sites, consistent with national rehabilitation guidelines.
3. Discourage the demolition of historically or culturally significant
structures and sites.
4. Support the efforts of private owners and conservation groups to
identify, protect, rehabilitate, and reuse historic and cultural resources.
5. Encourage the design of urban public spaces (such as local streets and
public squares) to be central areas framed by buildings, creating an
intimate visual quality of partial enclosure.
6. Encourage the design of urban streets to be walkable, public spaces,
giving consideration to the following guidelines:
Block size should be small, for convenient circulation.
• Avoid excess road width that encourages speeding and makes
pedestrian crossing difficult.
7. Encourage the design of new development to relate to significant
features of the surrounding area.
Recommendations:
1. Establish a local heritage commission to identify local landmarks, review
alterations of these landmarks, expand public outreach and education
and further historical and cultural conservation goals.
Draft Kalispell City -County Growth Policy Plan -August 2001
28
9. Parks and Recreation
Recreational opportunities within the planning jurisdiction are provided
through City, County and State park systems as well as private lands. These
parks provide a diversity of recreational opportunities from small neighborhood
parks and walking trails to larger recreational facilities for organized sports
events along with an increasing network of bike and pedestrian trails. There
are also some small private parks, public golf courses, rivers, lakes and private
timber lands that contribute to recreational opportunities in the area.
Issues:
1. With the popularity of skiing, golfing, biking, jogging, hiking, camping,
hunting and fishing, outdoor recreation is a defining feature of local
culture. Outdoor amenities and park space are highly valued in the
Flathead Valley.
2. Park space serves various public purposes: they provide for respite,
recreational opportunities, and organized sports; enhance urban and rural
aesthetics; conserve habitat and the natural landscape; and contribute to
the local economy. The planning jurisdiction's open space system
includes parks, recreational facilities, conservation easements, golf
courses, public land and state waterways.
Goals:
1. PROVIDE A BALANCED DISTRIBUTION AND DIVERSITY OF
RECREATIONAL FACILITIES AND PEDESTRIAN/BICYCLE PATHS
THROUGHOUT THE PLANNING JURISDICTION PROVIDING ACCESS TO
ALL AGE GROUPS AND INCOME LEVELS.
2. CONSERVE AND ENHANCE EXISTING PARKS AND PARKLANDS,
Policies:
1. Build on the existing parks inventory to provide a unique park system
that benefits residents and the regional economy.
2. Plan for the future conversion of railroad right-of-way to integrate a linear
park running east -west through the city, connecting Woodland Park,
Lawrence Park, downtown, and the west Kalispell bike and pedestrian
trails.
3. Provide a balanced mix of parks and recreational facilities to meet local
needs, which would include:
• Mini parks
• Neighborhood parks
• Community parks
• Regional parks
Draft Kalispell Ciw-Counr%, Grown Policv Plan —August 2001
29
• Linear parks
• Special facilities
• Conservation lands or facilities
4. Earmark cash in lieu of parkland funds to expand public waterfront
access and use in close proximity to where funds originated.
5. Insure that habitat qualities of the Flathead/Stillwater River Complex
remain viable while also increasing its availability by the public to enjoy
these amenities.
Recommendations:
1. Develop a public trail system to link the city to surrounding suburbs
and nearby rivers, streams, and lakes. Use Intramodal Surface
Transportation Enhancement Act and Community Transportation
Enhancement Program funding to expand the city/county trail system.
2. Expand Kalispell's street tree program citywide.
3. Follow state guidelines for accepting and selling park lands, accepting
cash gifts, and accepting cash -in -lieu of land in subdivisions.
4. Identify and support public purchase of potential future park of lands
within the floodplain in the city county planning jurisdiction.
5. Encourage public use conservation easements and other creative
methods of open space conservation.
6. Encourage the establishment of homeowners' parks within residential
subdivisions in the county to be owned and maintained by the
Homeowner's Association. When subdivisions are close to or adjacent to
school yards, coordinate the development of tot lots and neighborhood
parks with the school district, where appropriate.
Draft Xalispell City -County Growth Policy Plan - August 2001
30
10. Transportation
This section is essentially an Executive Summary of the Kalispell Area
Transportation Plan and includes a brief discussion of existing conditions, a
proposed Major Street Network System, a recommended bypass route and
short and long term recommendations for improving the transportation system
in and around Kalispell. The supporting documents underlying this section are
"The Kalispell Area Transportation Plan" and "The Kalispell Bypass Feasibility
Study", both dated October, 1993, which have been adopted in their entirety as
elements of this plan.
Issues:
1. Overall traffic volumes in Kalispell have grown considerably over the last
10 years and are forecast to continue to increase over the next 20 years.
2. Idaho Street and Main Street traffic volumes exceed 21,000 vehicles per
day, resulting in congested traffic conditions periodically during the day.
3. Main Street/Idaho Street intersection traffic exceeds its capacity during
summer tourist traffic flows and throughout the year. However, total
traffic at the intersection has increased little over the last ten years.
Traffic continues to increase on adjacent parallel streets as traffic diverts
to avoid the Main/Idaho intersection.
4. Up to 12 percent of traffic on US 93 passes through Kalispell without
making a stop; the majority of traffic on the highway makes at least one
stop in Kalispell.
5. Truck traffic and large recreational vehicles account for as much as 14
percent of total traffic on US 93 north of Reserve, while accounting for
only five percent of total traffic on US 2 west of West Springcreek Road.
6. Traffic and pedestrian safety are issues especially in outlying areas
where narrow rural designed roadways exist with no provision for
pedestrians or bicyclists.
7. The narrow two-lane segment of Whitefish Stage Road between Oregon
Street and the Stillwater Bridge carried 7,518 vehicles per day in 1997,
and the segment of Whitefish Stage Road south of West Reserve Drive
carried 4,284_vehicles per day in 1997. Whitefish Stage Road is
projected to carry approximately 15,000 vehicles per day by 2015.
8. There is no connection between Highway 93 and Whitefish Stage Road,
i.e. an extension of Grandview Drive.
9. No program is currently in place to upgrade substandard streets in the
city limits to City standards.
Draft I{alispeil Cite -County Growth Policy Plan - August 2001
31
IO.Excess traffic along Third Avenue East and Fourth Avenue East
degrades the residential character of the area.
11.There is no connection between Woodland Avenue and Seventh Avenue
East.
Goals:
1. PROVIDE A COMPREHENSIVE CIRCULATION SYSTEM, WHICH
SERVES THE COMBINED NEEDS OF THE COMMUNITY, PLANNING
JURISDICTION AND REGION AND PROVIDES SAFE, CONVENIENT AND
ECONOMICAL ACCESS TO ALL THE FACILITIES THROUGHOUT THE
AREA.
Policies:
1. The administration of traffic flow shall be implemented to minimize
congestion, encourage commerce and protect the safety and quality of
life in the community.
2. Street improvements that would accommodate significant traffic
increases should be subject to review, by affected neighborhoods and
agencies.
3. Coordinate land use and transportation. Locate higher -density
development near arterial and collector streets.
4. Discourage heavy traffic and through -traffic in residential areas
5. Reserve arterial and collector roads to carry through -traffic. Provide lot
access by local streets to the maximum extent feasible. Reserve
adequate right-of-way for designated arterial and collector roads on
lands proposed for new development.
6. Support the expansion of transit services, such as Eagle Transit
Services, as appropriate to meet the mobility needs of seniors, disabled
persons, and the general public.
7. Develop a pedestrian -bicycle system to supplement the auto -oriented
street system and to meet local transportation and recreation needs.
Proposed Major Street Network
This plan identifies the proposed major street network and classification
system in the planning jurisdiction in Figures 1 and 2 and defines the
characteristics of each functional classification below. The arterial and
collector designations identify how the street system functions; this designation
in itself is not intended to be a plan for road -widening to accommodate more
traffic. Those definitions are presented with recommended traffic volume
thresholds based on the results of travel demand projections for 2015. The
Draft hallspell City -County Growth Poucv Plan — August 2001
32
classifications are listed in a hierarchy intended to identify function and the
traffic -carrying capacities on all roads, relative to the others. Table I lists each
segment of road by its functional classification.
1. Major Arterials: A major road or highway with moderate to fast speeds and
high traffic volumes. Major arterials provide access to the regional
transportation network. They move traffic across the country, between
cities and communities and/or from one major part of the Planning
Jurisdiction to another. Throughout the Planning Jurisdiction individual
private accesses onto arterials serving adjacent parcels should be
discouraged. Traffic volumes would typically exceed 15,000 vehicles per
day.
2. Minor Arterials: A major road with moderate speeds designed to collect or
move traffic from one major part of the city or planning jurisdiction to
another or to move traffic to or from the major arterial system. Traffic
volumes would generally range from 5,000 to 15,000 vehicles per day.
3. Collectors: A secondary or intermediate street with moderate speeds and
low to moderate volumes. Such streets would collect local traffic from
neighborhoods and carry it to adjacent neighborhoods or transfer the traffic
to the arterial system. Such streets would typically serve a neighborhood or
area of 150 or more dwellings and carry 1,000 to 5,000 vehicles per day.
4. Local: Minor streets intended to serve individual sites, building or lots.
Local streets feed into collectors or provide destination access off of
collectors.
Table 1. Proposed Major Street Network
Major Arterials:
US 2 (including Idaho Street and LaSalle Road)
US 93 (including Main Street and Sunset Boulevard)
Alternate US 93 (new bypass road west of city)
MT 35
Reserve Drive, from US 93 to LaSalle Road
Minor Arterials:
Cemetery Road, from Airport Road to US 93
Lower Valley Road, from US 93 to Willow Glen Drive
18th Street West, from 1st Avenue West to Airport Road
Foy's Lake Road, from South Foy's Lake Road to Meridian Road
Whalebone Drive, from West Springcreek Road to Foy's Lake Road
1 lth Street, from Sth Avenue West to 4th Avenue East
7th Street West, from Meridian to Sth Avenue West
Conrad Drive, from Woodland Avenue to LaSalle Road
Center Street, from Alte fga t rrc nan3 Meridian Road to Woodland Avenue
Three Mile Drive, from West Springcreek Road to Meridian Road
Four Mile Drive, from West Springcreek Road to ^"F^`e US 93
Evergreen Drive, from Alternate US 93 to LaSalle Road
Draft Kalispell Citv-County Growth Policy Plan - Aub st 2001
33
Reserve Drive, from West Springcreek Road to A'te US 93
West Springcreek Road, from Whalebone Drive to Reserve Drive
Meridian Road, from Foy's Lake Road to US 93 (Sunset Boulevard)
5th Avenue West, from llth Street West to Idaho Street
Airport Road, from Cemetery Road to 18th Street West
1st Avenue East, from Center Street to US 2 (Idaho Street
3rd Avenue East, from 1lth Street East to US 2 (Idaho Street)
4th Avenue East, from 11th Street East to US 2 (Idaho Street)
Woodland Avenue, from Willow Glen Drive to Center Street
Whitefish Stage Road, from Oregon Street to Reserve Drive
Woodland Park Drive, from Conrad Drive to US 2
Willow Glen Drive, from Lower Valley Road to Conrad Drive
LaSalle Road, from Conrad Drive to MT 35
Helena Flats Road, from MT 35 to Reserve Drive
Collectors:
Kelly Road, from US 93 to Willow Glen Drive
18th Street, from Alternate US 93 to 3rd Avenue East
14th Street East, from 3rd Avenue East to 4th Avenue East
llth Street West, from 7th Avenue West to 5th Avenue West
1 lth Street East, from 4th Avenue East to Woodland Avenue
6th Street, from Sth Avenue West to 4th Avenue East
4th Street, from 5th Avenue West to 1st Avenue East
2nd Street, from Meridian Road to Woodland Avenue
Conrad Drive, from LaSalle Road to Flathead River
Appleway, from US 2 to Meridian
Montana Street, from Sth Avenue West to 3rd Avenue East
Oregon Street, from Main Street to 7th Avenue East
Wyoming Street, from Meridian Road to US 93 (Sunset Boulevard)
Two Mile Drive, from West Springcreek Road to Meridian Road
Sunnyview Lane, from Sunset Boulevard to Grandview Drive
Northridge Drive, from Sherry Lane v;n+ep A�ven�ae to US 93
Evergreen Drive, from LaSalle Road to Helena Flats Road
Reserve Drive, from LaSalle Road to Helena Flats Road
Northern Lights Blvd/Hilltop Avenue, from Three Mile Dr. to Northridge Dr.
7th Avenue West, from Sunnyside Drive to Wyoming Street
5th Avenue West, from Sunnyside Drive to I Ith Street West
5th Avenue West, from Idaho Street to Wyoming Street
1st Avenue West, from I Ith Street West to Center Street
1st Avenue West, from 18th Street West to llth Street West
Airport Road, from 18th Street West to US 93
New Road, from Sunnyview Lane to Reserve Drive
Grandvzew Drive, from Sunnyview Lane to Evergreen Drive
1st Avenue East, from US 93 to Center Street
3rd Avenue East, from US 93 to I Ith Street East
3rd Avenue East, from US 2 (Idaho Street) to Oregon Street
4th Avenue East, from 14th Street East to 11th Street East
4th Avenue East, from US 2 (Idaho Street) to Oregon Street
South Woodland Drive, from Kel1V Road to Woodland Avenue
Shady Lane, from Conrad Drive to MT 35
Draft Kalispell Ciiy-County Gros h Policy Plan - August 2001
34
Recommendations:
1. Update the Kalispell Area Transportation Plan by 2003 and thereafter on
a ten-year basis. Within the 2003 update, give emphasis to
neighborhood protection, pedestrian/bicycle circulation, and
downgrading minor arterials through neighborhoods to collector or local
status as appropriate.
2. Study and consider alternatives to using Third Avenue East and Fourth
Avenue East as collector streets.
Recommended Improvements:
This section describes the speck improvements necessary to achieve the
proposed Major Street Network as well as the recommended bypass route.
Table 2 provides a summary of the recommended improvements, listed by their
MDT designation as either urban or rural arterials and collectors, and identifies
estimated cost (excluding right-of-way). Groupings of projects by First Priority
and Second Priority have been determined based on existing versus future
needs as described below.
Recommended Bypass Route
A priority and companion document to the Kalispell Area Transportation Plan is
the Kalispell Bypass Feasibility Study. Its primary purpose is to identify a
recommended alignment for a US 93 Bypass around the city of Kalispell. In all,
seven different alignments were analyzed. The recommended bypass alignment
ultimately chosen lies on the near West side of Kalispell. The new four -lane
road would begin north of Snowline Drive (Hwy. 93 S) and generally follow the
Burlington Northern Railroad alignment north to Foy's Lake Road, cross
through the Forest Products property west of the "Y" in the railroad tracks,
cross US 2 at -grade, then proceed north through the Two Mile and Three Mile
area to Stillwater Road, then north and east to Reserve and US 93. The route
would be a limited access roadway, signed as an Alternate Route to US 93, with
speeds ranging from 40 to 55 miles per hour. (See Figure 7.4) The bypass
segments north of US 2 and the segment of Reserve Drive from US 93 to US 2
(LaSalle Road) could also serve as an alternate route for US 2.
Additional System Improvements:
Improvements included in the First Priority grouping would result in the
greatest benefit to existing traffic system performance. Second Priority projects
will primarily serve future development needs as urban development expands
into the adjacent rural areas surrounding Kalispell. Improvements to these
Second Priority roads will also increase safety for motorists, pedestrians and
bicyclists. Other long term improvement alternatives were considered but not
recommended. A description of these considerations is also provided below.
Draft Iialisoell Citv-County Growth Policy Plan — August 2001
35
First Priority Projects:
The following five projects, listed in order of importance to the Kalispell area
street network, are deemed most critical to meet existing traffic demands:
1. Meridian Road between Idaho Street and US 93 North. This segment of
Meridian Road is currently being improved to include three lanes from
Idaho Street north to Three Mile Drive and two lanes north of Three Mile
Drive to US 93 as an urban minor arterial with curb and gutter and
pedestrian/bicycle accommodations, consistent with city plans to enhance
the quality of the North Meridian neighborhood's residential character. This
project is planned to go to contract in the spring of 2003. Purchasing right-
of-way is the largest remaining activity. This project requires a City
contribution to address storm drainage in the area.
2. US-93, Ashley Creek to Courthouse - MDOT has final plans for this project
and are in the process of doing right-of-way appraisals and acquisition. The
current schedule calls for this project to go to contract in the spring of 2001
with construction starting in spring 2002. Right-of-way acquisition could
delay the project and there is a great deal of City utility relocation and
possible extension of water and sewer.
3. Whitefish Stage Road between Oregon Street and Reserve Drive. The road is
recommended for widening and minor realignment to include eight -foot
paved shoulders, improved vertical and horizontal sight distance through
the curves in the vicinity of the Stillwater River, and a center left -turn lane
at major street and driveway intersections. Federal highway funds have
been obtained to complete this project which is in the design phase and will
go to bid in spring of 2002.
4. The Edgerton Trail is proposed to be approximately 1.6 miles long with an
eight foot wide asphalt bike/pedestrian path to be located along the west
side of Whitefish Stage Road. The project begins at Reserve Drive on the
north and goes south to the area of R.J.'s Northern Park where it will
terminate and was completed in the fall of 2000.
5. Willow Glen Drive from US 93 to Conrad Drive. This two-lane rural arterial
road is recommended to be widened to include paved shoulders, improved
sight distance and left-tum lanes at Kellv Road, Woodland Avenue and
Conrad Drive.
6. LaSalle Road Extension. [Conrad Connection1 LaSalle Road is recommended
to be extended south of the US 2/MT 35 intersection to Conrad Drive. This
improvement will provide a more direct connection from the Central
Business District via 2nd Street/Conrad Drive and from Willow Glen Drive
to US 2 north.
7. 18th Street Extension. 18th Street is recommended to be extended west to
connect with Sunnyside Drive and Valley View Drive as a two-lane collector
road. This improvement will provide a desirable additional east/west
Draft Kalispell City -County Growth Policy Plan — August 2001
36
connection from existing US 93 to the proposed western bypass route along
the BNRR right-of-way.
8. Kelly Road Upgrade - Kelly Road between Hwy. 93 and Willow Glen Drive
needs to be upgraded to a better standard. Currently the road has ponding
and slumps. Increased traffic in the area can be anticipated with increased
growth. Some improvements to the intersection of Highway 93 and Kelly
Road will be undertaken with the upgrade of Highway 93 in the spring of
2002.
Second Priority Projects:
1. Existing US 93. South of the Courthouse to Ball's Crossing is
recommended to be widened to include four through travel lanes plus
center turn lane.
2. Constructing a connector street between Sunnyview Lane and Conway
Drive will be accomplished as a private road as part of Kalispell Regional
Medical Center's master plan for the hospital upgrade. The current street
system requires going back to the highway to make this connection.
3. Construct a connector street between Woodland Avenue across railroad
tracks to Seventh Avenue E.N. to provide access to Idaho Avenue.
4. Reserve Drive between US 93 and US 2. This two-lane major arterial is
recommended to be widened to include four through travel lanes and center
turn lane.
S. Existing Rural Minor Arterials. Table 7-2 outlines existing rural minor
arterial road segments in need of widening to include paved shoulders,
improved recovery zone, and left -turn lanes at major intersecting streets or
drives. These road segments include West Springcreek Road, Stillwater
Road, Four Mile Drive, Whalebone Drive, Foy's Lake Road, Conrad Drive,
Helena Flats, Reserve Drive west of US 93, Three Mile Drive and Evergreen
Drive from Whitefish Stage Road to LaSalle Road.
6. New Rural Minor Arterials. Two new, segments of rural minor arterial road
are also recommended to be added to the system to provide increased
accessibility by completion of the mile grid network of roads. These new
road segments are the extension of Four Mile Drive to the proposed bypass
and the extension of Grandview Drive/Evergreen Drive from US 93 east to
Whitefish Stage Road. Both road segments cross difficult terrain and may
require a curved alignment off the section line to negotiate the steep slopes.
The segment of Evergreen extension will also require a new bridge over the
Stillwater River and environmental impact mitigation considerations.
7. Existing Rural Collectors. Several existing rural collector road segments are
recommended for widening ro include paved shoulders and left -turn lanes
at major intersecting streets. These roads include Two Mile Drive,
Evergreen and Reserve Drives east of LaSalle Road.
Draft Zfalispell Ciw-County GrowTh Policy Plan - August 2001
37
8. Existing Urban Minor Arterials. Three existing urban minor arterial road
segments are recommended for improvements including Grandview Drive,
7th Avenue East north of Idaho and Four Mile Drive west of US 93.
9. At -Grade Railroad Crossings. At -grade railroad crossings may be affected
by improvements or traffic diversions to Meridian Road north of Center
Street, 3rd and 4th Avenue East and Reserve Drive west of LaSalle Road.
Road improvement plans should address rail crossing safety by considering
individual crossing geometrics, signalization, signing and pavement
markings and MDT road design standards, policies and procedures.
10.If the BNRR tracks are abandoned through the city, conversion of the right-
of-way to a new commercial area with the integration of a -linear park and
bikepath running east -west through the city is encouraged.
Draft Kalispell City -County Growth Policy Plan -August 2001
38
11. INFRASTRUCTURE AND PUBLIC SERVICES
Infrastructure and the provision of public services is one of the highest priority
issues for both the City of Kalispell and Flathead County. Adequate provision
of services for new development within the planning jurisdiction in both the
rural and urban areas are important considerations when considering growth
policies and planning for future land uses.
STREETS AND ROADS
Issues:
1. Street maintenance is a major item in the City and County budgets.
2. Flathead County has not accepted any new county roads since the
1980's, due to the budget constraints. However the City continues to
accept new roads or properties are developed or annexed into the city
limits.
3. Most roads within the planning jurisdiction are paved but many county
roads are not paved. The County Road Department has a very limited
budget for paving its existing gravel roads.
4. Transportation, road construction and maintenance continue to be a top
priority for residents in the planning jurisdiction.
Goals:
1. All roads, parking lots and alley be paved.
2. Roads are reconstructed and upgraded to urban standards when
needed.
Policies:
1. Require paving of roads, alleys and parking lots for new development.
2. Encourage paving of gravel roads when needed.
Recommendations:
1. Develop a strategy and mechanism for needed road and street upgrades.
Draft Kalispell City -County Growth Policy Plan — August 2001
39
SEWER AND WATER
Issues:
1. High groundwater infiltration and storm runoff inflow are having a
significantly negative impact on the City's collection system.
2. Most of the Kalispell service area which at this time is not developed will,
upon development, require new sewage Ifft stations or will impact
existing sewage pumping facilities.
3. Throughout the Kalispell sewer service area there are residential
neighborhoods utilizing septic sewage disposal.
4. Outside the city limits, Kalispell is ringed by areas of residential
development with septic sewage disposal.
5. Provide safe, potable water for the needs of the domestic, institutional,
industrial and commercial consumer and to provide adequate pressure
and flow to meet fire fighting and irrigation within the jurisdiction.
6. The influences of continued property development, failing septic disposal
systems, and the States Water Quality and nondegradation rule will
combine to bring many of these areas onto the City's sewer system.
7. The ultimate capacities of the North Village and Evergreen sewer
districts are constrained by the limits of their allocation under interlocal
agreements.
Goals:
1. Areas / lots in areas of the city currently using on -site sewage treatment
will be connected to City sewer and water.
Policies:
1. Dead-end lines should be avoided to provide water for fire fighting
purposes.
2. Annexation to the city of Kalispell shall be required when either water or
sewer services are extended to an unincorporated area to provide
services for new development.
3. Areas within the unincorporated area of Kalispell that are receiving
either water or sewer services should be annexed to the city as part of a
comprehensive annexation plan for the area.
Draft Kalispell Citv-County Growth Policy Plan - August 2001
40
Recommendations:
1. Begin a study and analysis of expansion of the wastewater treatment
facilities when needed.
2. Develop and adopt a facilities plan that addresses water and sewer
services in the urban area.
STORM WATER MANAGEMENT
Issues:
1. There are no public storm drainage systems in most of the planning
jurisdiction. Storm water retention onsite in small developments is often
overlooked, creating off site drainage problems.
Goals:
1. Develop drainage facilities for all of the urban areas of the planning
jurisdiction.
Policies:
1. As new city streets are constructed, and as existing streets are improved,
storm drainage infrastructure will be installed or improved.
2. The quantity and rate of runoff from a developed piece of property
should not exceed that which would occur had the property remained
undeveloped.
3. As new city streets are constructed, and as existing streets are improved,
storm drainage infrastructure will be installed or improved.
Recommendations:
1. As the citv's street reconstruction program continues, storm drainage
should be improved.
SOLID WASTE MANAGEMENT
Issues:
1. The landfill site, with 220 acres of land available has nearly a 100 year
capacity.
2. Several private firms in the Kalispell area provide recycling services.
Draft Kalispell City; -County Growth Policy Plan — August 2001
41
3. Solid waste collection and disposal is provided to the majority of
residents by,,the City of Kalispell and to the majority of businesses by
private hauler. The licensed private hauler in the Kalispell area is
Evergreen Disposal.
4. In areas outside the city limits and beyond the Evergreen Disposal
service area, strategically located public dumpsters are provided by the
County.
Goals:
1. Expand recycling efforts to reduce tonnage at the landfill.
Policies:
1. Encourage citizens to recycle all recyclable items.
Recommendations:
1. Develop a proactive program that substantially expands recycling.
POLICE PROTECTION
Issues:
1. Within city limits, police protection is provided by the Kalispell Police
Department; outside of city limits, the Flathead County Sheriffs Office has
jurisdiction. The city and county also have an interlocal agreement to
provide mutual aid upon request. The Flathead County Jail located in
Kalispell serves both the city and county and is continually overcrowded.
2. The Flathead County Sheriffs Office is also located in Kalispell. The Office
serves all of the unincorporated portion of the planning jurisdiction.
3. A general guideline for adequate police staffing is one officer per 500
population. In 1999, the ratio was approximately one officer to 530 people
in Kalispell and one officer to 1,100 people in unincorporated areas.
4. The existing jail facility, located in Kalispell, which opened in 1987, was
built to house up to 64 beds, and it currently has 85 beds and it is
anticipated that up to 125 — 130 beds will be needed within the next five
years.
�R�
1. Ensure that we have safe and healthy neighborhoods.
Draft Kalispell City -County Growth Policv Plan — august 2001
42
Policies:
1. Adequately staff law enforcement agencies.
Recommendations:
1. Coordinate between law enforcement agencies to provide a seamless
service.
2. Continue to pursue grants to provide funds for staffing and equipment.
FIRE AND AMBULANCE SERVICE
Issues:
1. Fire protection by the Kalispell Fire Department is currently provided to
areas within the city as far as 2.9 miles from the downtown station with
response times to six to eight minutes. Development on the northern
and southern boundaries of Kalispell strain response times.
2. Kalispell Ambulance Service is owned and operated by the Kalispell Fire
Department and is funded by user fees.
3. Fire protection within the city limits is provided by the Kalispell Fire
Department, and the remainder of the planning jurisdiction is served by
volunteer fire departments. The Kalispell Fire Department and the
surrounding volunteer fire departments also have interlocal agreements
to provide mutual aid upon request.
4. Lack of coordination between fire districts can create inefficient use of
resources.
Goals:
1. Reduce the city's Insurance Service Offices (ISO) rating.
2. Develop and automatic aid agreement with fire districts adjacent to the
city.
Policies:
1. As development and redevelopment occur, construction shall be required
to comply with the Uniform Fire Code.
Recommendations:
1. A fire substation is needed to serve the grooving northern portion of the
city. According to the ISO, a city the size of Kalispell with its present
Draft halisaell City -County Grcwrh Policy P'.an — August 2001
43
equipment and personnel should have a max mum service radius of 1.5
miles or approximately five minutes.
2. In some instances small rural fire districts should be reassessed and
merged when practical.
3. Foster stronger relations between rural fire districts and the City of
Kalispell.
PUBLIC EDUCATION
Issues:
1. There are seven public elementary school districts within the planning
jurisdiction, some of which are overcrowded and require busing to other
schools.
2. Some of the school districts are at or near full enrollment while others
are seeing declining enrollment.
3. Flathead High School in Kalispell had a 1996 enrollment of 2,359
students, far exceeding optimum school size.
Goals:
1. Provide quality education and a safe environment for all students.
Policies:
1. Support the school resource office program.
Recommendations:
1. Pursue additional grant resources.
2. Consideration should be given to siting second high school.
3. Since the college's enrollment has grown substantially over the last 30
years, additional land should be acquired for future needs..
Draft Xaiisptll City -County Growth Policy Plan — August 2001
44
KALISPELL CITY AIRPORT
Issues:
1. Kalispell City Airport does not meet the minimum safety requirements
established by the FAA and poses safety problems for its users and
neighbors.
2. The airport has been developed solely through City funding without any
participation from the Federal Aviation Administration.
3. The current airport has not been included in the National Plan of
Integrated Airports Systems (NPIAS) airports because is does not comply
with B-II airport standards.
4. In it current configuration there are penetrations of both approach
services, encroachments into the runway object free area and non
compatible use of the runway protection zones.
5. The general public has unrestricted access to the airport, including the
active runway, due to the lack of complete perimeter fencing.
6. Aircraft storage and parking is inadequate for the current level of use.
7. The airport has inadequate runway lighting.
8. Cost of financing airport improvements exceeds the resources of the
local government.
9. Acquisition of additional acreage will be required for upgrading the
airport to a B-II status.
10. Expansion and upgrade of the airport may require the City to condemn
private property.
11. Kalispell City Airport is the busiest general aviation airport in the state.
12.The airport provides financial and economic stimulus for the city and the
area.
Goals:
1. TO UPGRADE THE AIRPORT TO PROVIDE SAFE EFFICIENT AIRPORT
FACILITIES FOR THE USERS AND NEIGHBORS.
2. UPGRADE THE AIRPORT TO A B-II VISUAL STATUS TO CREATE THE
POTENTIAL TO OBTAiN A FEDERAL MATCH OF 90 PERCENT FEDERAL
FUNDING AND TEN PERCENT LOCAL MATCH.
Draft Kalispell City -County Grow7h Policy Plan — August 2001
45
3. DEVELOP AN AIRPORT THAT COMPLIES WITH NPIAS STATUS FOR A
B-II VISUAL AIRPORT.
4. COMPLETE THE AIRPORT STUDY WHICH ASSESES THE
ALTERNATIVES FOR UPGRADING THE AIRPORT BY SEPTEMBER 2001.'
5. FORMALLY ADOPT AN AIRPORT LAYOUT PLAN AS A RESULT OF THE
AIRPORT STUDY,
6. UTILIZE THE REVENUES GENERATED FROM THE AIRPORT URBAN
RENEWAL DISTRICT TO FUND AIRPORT IMPROVEMENTS.
7. HIRE AN AIRPORT MANAGER TO OVERSEE THE DAY TO DAY
OPERATIONS AT THE AIRPORT AND TO MANAGE CITY LEASES.
8. CREATE AND OPERATE AN AIRPORT FACILITY THAT IS SELF-
SUPPORTING AND THAT WILL GENERATE SUFFICIENT REVENUE TO
COVER ALL COSTS ASSOCIATED WITH THE AIRPORT OPERATIONS
AND MAINTENANCE.
Policies:
1. Utilize the revenue from the sales of City owned property around the
airport in Haven and Daley fields as part of the funding sources for the
upgrade of the airport facilities,
2. Encourage the development of the additional 10 acres owned by the City
to the southwest of the runway intended to be leased for hangars and
other airport related uses.
3. Retain all existing acreage currently owned by the City that can be
utilized as part of the airport upgrade and expansion.
4. Limit the building height of new structures within runway protection
zone to reduce further intrusions and or penetrations which would
result from the expansion of the airport.
5. Ensure that all lease holders and "through the fence" operators
compensate the City at an equitable rate.
6. Refrain from entering into any agreement which grants access to the
public landing area by aircraft normally stored and serviced on adjacent
property.
Recommendations:
1. Complete the airport study which assesses various alternatives to the
airport upgrade and design.
Draft -Kalispell City -County Growth Policy Plan — August 2001
46
2. Assess the costs associated with the upgrade and identify funding
sources.
3. Assess the fmancial, political and social impacts associated with
additional land acquisition.
4. Formally adopt an Airport Layout Plan (ALP).
5. Once the ALP is adopted, coordinate zoning with the County to reduce
penetrations into the object free area and the runway protection zone.
6. Hire an airport manager to manage City leases and to oversee the day to
day operations of the airport
7. Evaluate the current lease activity and "through the fence" operations to
ensure that equitable agreements are in place.
8. Seek FAA funding for upgrade of the airport facilities to a B-II status.
CULTURAL FACILITIES
The Kalispell planning jurisdiction has numerous cultural facilities. The
Conrad Mansion has been restored and designated a National Historical Site.
The Hockaday Center and Flathead Valley Community College also contribute
to the culture by hosting exhibitions and plays. Recently 2.5 MIL of urban
renewal funds was spent to restore Kalispell's Central School to function as a
museum and historic educational center. However, there is need for a civic
center / multi -purpose facility to host cultural activities and sporting events.
Draft Kalispell City -County Growth Poii, Plan - August 2001
47
12. NEIGHBORHOOD PLANS
Within the Kalispell planning jurisdiction several neighborhood plans have
been adopted as an addendum to the Kalispell City County Growth Policy Plan.
Some of the plans exist in a separate plan document while others are attached
in their entirety with this document and are so noted. The following is a list of
the current neighborhood plans and a brief outline of their area and purpose.
Stillwater Destination Resort
In July 1990 the Stillwater Destination Resort Neighborhood Plan was adopted
as an addendum to both the Flathead County Master Plan and the Kalispell
City -County Master Plan. This initially addressed an approximately 300 acre
site lying between U.S. 93 North and Whitefish Stage Road north of the
Stillwater River. The plan was revised in 1992 by adding approximately 40
acres adjoining this property for a total of 340 acres. Approximately 212 acres
of this area is within the Kalispell planning jurisdiction.
The Stillwater Destination Resort plan calls for an 18 hole golf course and other
recreational amenities covering 160 acres or approximately half of the area.
Single family and townhouse residential development would occupy
approximately 100 acres and hotel / convention facilities and associated
commercial development is proposed on approximately 50 acres. Landscaping,
buffering and the creation of an architectural scheme for all commercial and
residential uses is outlined in the plan. The commercial element of the project
would be developed to serve the golf course community and has been zoned B-
6, Resort Business. The residential element is intended to utilize a cluster
design and has been zone RA-1, Low Density Residential Apartment. No
development has taken place on this property since the plan adoption and
subsequent rezoning. This development project would require the extension of
City services.
North Meridian (rescinded in part)
This plan was adopted in December of 1994 and has an area of approximately
314 acres along Meridian Road between Highway 2 and Highway 93 in the city
of Kalispell. The purpose of the plan is to address facility needs and to provide
a more predictable pattern of development. Refer to the overall Kalispell City -
County Growth Policy land use map for specific use designations in this plan
area. -
West Valley
A portion of the West Valley Neighborhood Plan boundary overlaps into the
Kalispell planning jurisdiction to the west. Basically, the West Valley School
District boundaries were used as a plan area. This plan was developed in
response to long term development patterns which had occurred over the past
30 years under the previous West Valley zoning district and the proposal to
establish a convenience store in the primarily rural and agricultural area. This
Draft iialispeil City -County Grow�h Policy Plan — August 2001
48
plan was adopted in April of 1997 and was the result of nearly one and a half
years of public meetings and committee consideration. Basic goals for the plan
are to maintain the rural character of the area and to provide some flexibility
for subdivision. An amendment to the plan has been made on approximately
112 acres directly adjoining Country Estates subdivision to the west, changing
the land use designation from agricultural to suburban residential and
removing it from West Valley plan area and wholly within the Kalispell planning
jurisdiction.
2 Rivers RV Resort
This plan was adopted in early 1999 with a plan area containing approximately
135 acres intended for development into a "Resort Commercial' project, the 2
Rivers RV Resort. The site is located on both sides of Conrad Dr. in the area of
the Flathead and Stillwater Rivers. The plan includes four districts that would
have a mix of commercial, recreational, residential and commercial a golf
course. A great deal of land proposed for this development is in the 100 year
floodplain and the floodway necessitating the connection to public sewer.
Because this development is outside of the city of Kalispell and the Evergreen
Water and Sewer District boundaries, issues relating to connection to these
facilities are unresolved. This development project also assumes the
construction of a roadway between Conrad Drive and Highway 2. No design
plans have been developed nor have funds been allocated for its design and /
or construction.
Department of Natural Resources (DNRC) Section 36
This plan was adopted in April of 1999 to assist the State Department of
Natural Resources with decisions on the future development of school trust
land located in the northwest part of the planning jurisdiction. The State trust
is responsible for managing the 640 acres that comprise "Section 36." DNRC
offices are located on the property. In 1997 the City leased approximately 134
acres to be developed as a youth athletic complex in the southeast corner of
the section. Subsequently the neighborhood plan was developed that
designates development "pods" within the section. Along the highway the
development pod is designated as Commercial / Retail, the northwest comer of
the section is designed as a Mixed Professional Office area, the southwest
comer is designated as Mixed Use Residential. The plan includes the extension
of Citv water and sewer to the site to serve the development(s). The State
intends to the lease the sites for development rather than to sell the property
so that the State School Trust will continue to receive revenue from the
property. Build out is anticipated to take between 20 to 50 years.
H:/MSTRPLNS/KCCMP/UPDATE/2001/REVDRAFTS 1501
Draft Kalispell City -County Cromrh Policy Plan - August 2001
49
UPDATED
APPENDIX A
RESOURCES AND ANALYSIS SECTION
KALISPELL CITY COUNTY GROWTH POLICY PLAN
June 2001
50
TABLE OF CONTENTS
Page
Introduction: Early History................................................................ lA
Figure 1: Kalispell City County Planning Jurisdiction ............ 3A
Chapter 1:
Population, Economy and Housing ...............................................
4A
Table l:
Population Trends ..............................................
5A
Table 2:
Enrollment Trends of School Districts, Kalispell ......
6A
Table 3:
Population Projections .........................................
7A
Table 4:
Age Groups, 1990... ......... ......... ....... ..... I .... .........
8A
Table 5:
Selected Social Characteristics, 1990 ....................
9A
Table 6:
Labor Force Trends, Flathead County.. ......... .........
10A
Table 7:
Average Annual Employment and Income ...............
12A
Table 8:
Employment Projections by Sector .........................
13A
Table 9:
Earning Trends of Basic Industries ........................
13A
Table 10:
Housing Type, 1990......... ......... ........ ......... .........
16A
Table 11:
Selected Housing and Social Characteristics, 1990..
16A
Table 12:
Housing Affordability Trends, Flathead County........
17A
Table 13:
Housing Construction Trends, 1991-2000..............
18A
Table 14:
Housing Projections ............................................
19A
Chapter 2:
Environmental Considerations....................................................
20A
Figure 2:
Wetlands and Hydric Soils ..................................
22A
Figure 3:
Floodplain........................................................
24A
Figure 4:
Steep Topography .............................................
26A
Figure 5:
Important Riparian Wildlife Habitat .....................
28A
Figure 6:
High -Occurrence Habitat for White Tailed Deer and
Mountain Lion ...................................................
34A
Figure 7:
Elk, Mule Deer and Moose Habitat .......................
35A
Figure 8:
Black Bear Habitat ............................................
36A
Figure 9:
Agricultural Soils Classification ...........................
38A
Figure 10:
Historic and Architectural Resources ...................
41A
Figure 11:
Conservation Easements ....................................
43A
Chapter 3:
Infrastructure and Public Services ............. ......... ....... ..........
......... 44A
Figure
12:
Potential Sewer Service Area ...............................
47A
Figure
13:
Water Service Boundaries for Kalispell. .................
50A
Table
15:
Criminal Activity Trends .. .........
Figure
14:
Trail Corridors........... _ ......................................
60A
INTRODUCTION
EARLY HISTORY
Non-native settlement of the Upper Flathead Valley did not occur on a significant
scale until the 1880's. Kalispell was founded on St. Patrick's Day of 1891. The
city was reputedly named by railroad baron, James J. Hill, -with the name coming
from the Pend d' Oreille language meaning "prairie above the lake." In 1891, Hill's
Great Northern Railroad was extended to Kalispell, its new division point, creating
a mass -transportation route over the continental divide. The extension of the
railroad, which spurred the timber industry and the large influx of European
immigrants into the western U.S. in search of farmland significantly contributed
to the settlement of the Upper Flathead Valley.
Demersville, a few miles southeast of present day Kalispell, was established in
1887 by Jack Demers and briefly preceded town building of Kalispell. Demersville
was built at the "Head of Navigation" on the Flathead River, a destination for
travelers to the area from the south via Flathead Lake. Plans for the coming of
the railroad triggered a construction boom in 1890, as speculators assumed that
Demersville would become the railroad division point. However, the following
year, two catastrophic fires destroyed several blocks of Demersville and Kalispell
was announced as being the new railroad division point. An exodus of residents
and businesses followed and by the spring of 1892 only a handful remained in
Demersville. Much of the Demersville Townsite was redeveloped during the
1990's as Green Tree Meadows Subdivision. Columbia Falls had also been
considered as the railroad division point, but Kalispell was chosen, in part
because speculators had driven land prices too high in Columbia Falls and
Demersville.
In anticipation of the railroad and division point the Kalispell Townsite was
purchased by Northwest Land Company of Moorhead, Minnesota. Platted land
sales began in April of 1891, with sales exceeding $100,000 the first day.
Townsite construction began in May of 1891. By October, the Missoula County
Commissioners officially recognized the Tow-nsite of Kalispell, at which time had
23 Chinese laundries and 4 general stores. In May of 1892 a fire leveled an entire
city block of the Kalispell Townsite. In 1893 a citywide electrical, sewer, and
water system was constructed. The water system boasted 57 fire hydrants (a
novelty in the west). In 1894 Flathead County was established and Kalispell
became the new county seat.
Activity decreased in the mid-1890's due to drought, a railroad strike and a
national depression, but young men continued to move into the area. In 1900
men outnumbered women three to one, resulting in a scarcity of wives and school
teachers. Despite the temporary social setback the turn of the century brought
new vitality to the area. In 1899 there were 130 houses constructed: in 1900
about 200 more homes and in 1901 over 300 homes. By 1900 the census
population of Kalispell was 2,526 and farmland prices had risen to $40 per acre.
In 1904 the railroad division point and several hundred railroad workers were
Resources and Analvsis Section
Kalispell City County Growth Policv Plan, June 2001
1A
relocated to Whitefish, but Kalispell remained the commercial and governmental
center of the county. The city's population had grown to 5,549 by 1910.
The early decades of the 20t', Century brought continuing population growth to
Kalispell at rates of 18% in the 1920's, 35% in the 1930's and 18% in the 1940's.
Lumber mills, farming and commerce fueled local economic development. While
housing and commerce were compactly developed within the city during the first
half of the century, suburban and rural growth dominated during the second half.
Concurrently, the city of Kalispell's ten-year growth rates slowed to 4% in the
1950's, 4% in the1960's and 1% in the 1970's. With increased annexation,
Kalispell's growth rates increased by 12% during the 1980's, and 19.4% from
1990 to 2000. Growth rates remain higher outside the city that in the city. In
turn, major economic generators spread throughout the county, such as tourism
in Glacier National Park, construction of Hungry Horse Dam, Anaconda
Aluminum Plant in Columbia Falls, Big Mountain Ski Resort north of Whitefish,
and timber mills in several locations. However, the Kalispell area continues to be
the regional population and service center. Examples of major regional facilities
developed in recent decades in the Kalispell area are various State and Federal
government offices, Flathead Valley Community College, Kalispell Regional
Medical Center, the Kalispell Center Mall and several other large retailers, such as
Wa1Mart. and Shopko. Plans for a large commercial complex at the southeast
corner of Highway 93 and West Reserve Drive are underway.
Resources and Analvsis Section
Kalispell City Countv Growth Policv Plan, June 2001
2A
Figure 1. Kalispell City County Planning Jurisdiction
�r
� sal
_
If
�1-2501
1•7
MAJOR ARTERIAL MANNINGJURISDICnON BOUNDARY
)AINORARTERIAL
COLLECTOR 34.3-M SECTION, TOWNSHIP, RANGE
DATA SOURCE.
Flathead Regional Development OFFIce
K,Ll,pk1. Area T,rspertnti., Plan - Oct. T993
ALTERNATE 93 - MONTANA DEPARTMENT OF TRANSPORTATION
Preliminary Plan by Nell Consultants Sept 1996
Parc2l Ens e, sectl.n mD From Flathead County Platrocm/=
Hi\F,TS\KAl TSPFI \"P9ASE:DwG
Resources and --knal ,.,is Section
X.zd1sr eU Cite Count Growd-, Po 1 i cv -Plan,'Tune 2001
3A
..�
POPULATION, ECONOMY, AND HOUSING
The 1990's represented a period of substantial growth in Western Montana.
Flathead County was one of the fastest growing and is now the fourth most
populated county in Montana. Kalispell is currently the seventh largest city in the
state. The county's population is relatively decentralized and is distributed among
three cities and more than a dozen unincorporated communities. Kalispell is the
county seat and remains the largest incorporated city and community in the
county. The Kalispell area functions as the population and commercial center of
Flathead County and portions of four adjacent counties.
The city of Kalispell's 1990 Census population was 11,917 and was estimated by
the US Census Bureau to be 15,622 in 1995. The 1999 Census Bureau
population estimate was 17,149, which represents a 44% increase from 1990 to
1999. The 2000 Census figures show an unadjusted population figure of 14,223
for the city of Kalispell. This figure indicates a discrepancy in that it is less than
the 1995 estimate. However, this figure still represents a 19.4% increase in the
population of the city of Kalispell from 1990 to 2000. To correct discrepancies in
the 2000 Census an agency or individual must initiate the "Count Question
Resolution" process with the US Census Bureau. This program becomes effective
and available for input June 30, 2001. The figures given for the city of Kalispell
will be questioned through the formal process after that date.
The Kalispell City County Planning Jurisdiction (see Figure 1), which is the
subject area of the growth policy plan, generally extends from 1 to 4.5 miles
outside of the city limits and encompasses approximately 63.5 square miles. The
area planning jurisdiction area generally includes the urban growth area / sewer
services are surrounding Kalispell as well as some adjacent rural areas. As of
January 2001 39% of the county's population resided within the Kalispell City
County Planning Jurisdiction, as compared to 43% in 1990. (See Table 1)
COMMUNITY PROFILE
• A rapid growth area. The population of the planning jurisdiction increased
by 16% from 1990 to 2000, similar to retirement destinations in rural areas
nationwide. Along with a robust economy resulting growth impacts have
been a strain on infrastructure and services, changing cultural values,
environmental impacts and increasing housing costs.
• A retirement destination. Retirement income is the county's largest export
industry. Tourism, a related industry, is also a major part of the local
export base. The Flathead area's competitive advantage in these industries
is the attractiveness of its natural environment and easily accessible
activities.
• A service -based economy. The service industry employed 70% of the
county workforce in 1990 and continues as a major source of new local jobs.
Kalispell, in particular, functions as a regional trade center. Most of the
expanding service industries tend to pay below -average wages.
Resources and Analvsis Section
I{alispell City County Growth Policy Plan, June 2001
4A
• A federal lands county. Over 70% of the county is public land, most of it in
the Flathead National Forest and Glacier National Park. Similar to other
counties with public lands; property rights, land use and environmental
protection are controversial local issues. The federal government is also a
major employer in the county with a prevalence of high -wage jobs.
• A suburban and rural population. Kalispell, the county's largest city,
currently accounts for approximately 19% of the county's total population.
While 77% of the planning jurisdiction's population resided in the city of
Kalispell in 1940, the proportion has fallen to 39% in 2000, indicating the
increase in the desirability for a rural lifestyle.
POPULATION TRENDS
Kalispell is a growth area. In recent decades growth rates in the planning
jurisdiction have fluctuated in a cyclical pattern between moderate and boom
levels. Specifically, the average annual growth rate of the planning jurisdiction
population was 1.7% in the 1960's, 3.7% in the 1970's, 1.8% in the 1980's, and
1.6% from 1990 to 2000. (See Table 1) Contributing factors to growth during the
1990s include economic expansion in various industries, the appeal of the area's
recreational amenities and quality of life, and the larger -scale population growth
occurring in high -amenity areas across Western Montana and the Rocky
Mountains.
TABLE 1. POPULATION TRENDS 1960-2000
Population
Average Annual % Change
1960 1970 1980 1990 2000 606070 70-80 808090 909000
Montana 674,767 694,409 786,690 799,065 902,195 0.3% 1.3% .2% 1.3%
Flathead County 32,965 39,460 51,966 59,218 74,471 2.0% 3.2% 1.4% 2.6%
Kalispell City
County Planning 13,151 15,426 21,147 24966 28,945 1.7% 3.7% 1.8°/ 1.6%
Jurisdiction
City of Kalispell 10,151, 10,526 10,648 11,917 14,223 0.4% 0.1% 1.2% 1.9%
Source: U.S. Census Bureau, "1990 Census of Population and Housing: Summary Population and Housing
Characteristics: Montana" August 1991; Census 2000 Redistricting Data and Block Data (P.L. 94-171); Kalispell City
County Master Plan 2010; Montana Department of Labor and Industry, "Labor Market Information for Flathead County',
6123196; Montana Census and Economic Information Center, May 2001
The year 1960 stands out as a pivotal time for the settlement pattern in the
planning jurisdiction, after which the population shifted from overwhelmingly
urban to predominantly suburban and rural. Specifically, 7 7 % of the planning
jurisdiction residents in 1960 lived in the city of Kalispell, but by January of 2000
that proportion had decreased to 49%. Factors in this urban -rural shift include
the city's restricted ability and unwillingness to annex expanding suburbs; the
appeal of the rural setting and lifesryie; improvements in the rural road system;
lower taxes and fever regulations outside the city; political opposition to rural
growth restrictions; and national trends toward suburban and rural development.
Resources and Analysis Section
Kalispell Citv County Growth Policv Plan, June 2001
SA
Contrary to the popular wisdom that in -migrants tend to be wealthy "out -of -
staters," a University of Montana study of in -migration patterns in Montana
between 1989 and 1994 revealed that both cross -state migrants and cross -county
migrants tend to be poorer, younger, and include fewer retirees than the state's
non -migrant population (Sylvester, et al., Montana Business Quarterly, Autumn
1995). The study also found that over 40% of Montana's migrants were state
residents who were relocating across county boundaries.
School enrollment increases have been significant in the West Valley and Somers
School Districts, as shown in Table 2. While the population of the planning
jurisdiction increased significantly from 1990 through 2000, overall school
enrollment has increased only slightly during this period. Enrollment has
decreased in the Evergreen and Helena Flats School Districts, located in the
northeasterly portion of the planning jurisdiction. Public sewer was extended to
this area during the early 1990s, and substantial commercial development has
occurred along U.S. Highway 2, changes which might have been expected to
stimulate residential growth. Enrollment trends indicate that growth is occurring
in rural areas of the planning jurisdiction.
TABLE 2. ENROLLMENT TRENDS OF SCHOOL DISTRICTS IN THE KALISPELL CITY COUNTY PLANNING
JURISDICTION
Enrollment
90 91 92 93 94 95 96
Kalispell 2.550 2,545 2,620 2,533 2,554 2,612 2,584
Evergreen 721 760 752 780 746 673 676
Fair -Mont Egan 140 143 169 156 158 154 160
Helena Flats 198 202 211 222 213 189 208
West Valley 248 264 281 298 293 300 305
Smith Valley 138 143 163 171 173 159 154
Somers 369 358 424 468 502 527 552
% Change
97
98
99
00
9090=00
Annual
2,494
2,443
2,339
2,380
-7.0%
-0.60%
684
702
690
713
-1.0 %
-0.09 %
162
162
164
154
+1.0%
+0.09%
200
202
200
189
-5.0%
-0.45%
311
322
320
327
+24.0%
+2.18%
152
155
161
148
+7.0%
+0.60%
511
502
533
535
+31.0%
+2.82%
TOTAL 4,364 4,415 4,620 4,628 4,639 4,614 4,639 4,514 4,488 4,407 4,446 +2.0% +0.180%
Source: Flathead County Superintendent of Schools; May 2001
POPULATION PROJECTIONS
The high growth rates that have occurred since the 1960's in the Kalispell area
are expected to continue (see Table 3). The 4% annual growth rate of the planning
jurisdiction in the early 1990's, however, has declined, indicating the continuation
of a cyclical growth pattern. Population growth over the next 20 years is projected
to slow to an average annual rate of 1.1% by the year 2020, based on arithmetic
regression analysis of population changes since 1960. Population projections
are not precise numbers and should be used as a guide only. Unforeseen
future events, economic cycles, and large-scale annexations can create wide
variations in these numbers.
Resources and Analvsis Section
Kalispell City County Growth Policy Plan, June 2001
6A
TABLE 3. POPULATION PROJECTIONS
Population
1995 2000 2005 2010 2015
2020
Kalispell 13,519 14,375 15, 230 16,086 16,942
17,797
Planning jurisdiction 30,209 32,267 34,326 36.384 38,442
40.500
Average Annual Percentage Change
1996-2000 2001-2005 2006-2010 2011-2015
2016-2020
Kalispell 1.3°/ 12% 1.1% 1.1°/
1.0%
Planning jurisdiction 1.4% 1.3% 1-2% 1.1%
1.1%
Methodology: Population projections were 6asea on arithmetic regression analysis using 1960-1995 data.
Bureau of Census, "1990 Census of Population and Housing: Summary Population and Housing Characteristics:
Montana," August 1991; Kalispell City County Master Plan 2010.
DEMOGRAPHICS
Note that the following information on demographic characteristics, shown in
Tables 4 and 5, is based primarily on the 1990 Census.
The Kalispell Census Division is an area comparable to the planning jurisdiction.
Within the Kalispell Division is the city of Kalispell. The city of Kalispell had a
population of 11,917 in 1990 as compared to 14,223 in 2000. Evergreen, which is
also in the Kalispell Division, is a "Census Designated Place" and had a
population of 4,109 in 1990. During the 2000 Census Evergreen was expanded
to include an additional 4.7 square miles and is bounded on the west side by the
Whitefish River, to the north by Rose Crossing, to the east by Flathead River and
to the south by Conrad Drive, south of U. S. Highway 2 and Montana Highway 35.
With the addition of land area to Evergreen the 2000 population was estimated at
6,215. The city of Kalispell and Evergreen currendv represent approximately 71%
of the population in the planning jurisdiction.
According to the 1990 Census the Kalispell Census Division is typical of that in
the county and the state, as shown in Table 4. Within this census division,
however, there were some strildng variations in age groups between Kalispell,
Evergreen and the surrounding rural area. Simply put, retirees tended to live in
Kalispell and young families in the surrounding suburbs and rural areas. Seniors
(persons age 65 and over) made up nearly 20% of Kalispell's population in 1990,
approximately twice the proportion of the rest of the planning jurisdiction. Over
60% of the seniors in the planning jurisdiction lived in Kalispell. In contrast,
children (age 17 and under) made up 31.30% of Evergreen's population and 30.3%
of the rural Kalispell Division compared to 24.8% in Kalispell.
The 1990 Census also indicates the average household size was considerably
smaller in Kalispell than Flathead County and Montana. Smaller household
size in Kalispell reflects a higher proportion of one -person households,
particularly those occupied by seniors. The archetypal nuclear family
household with a married couple and children accounted for only 46% of the
households in Kalispell and only 569�u of households in the Kalispell Division.
Resources and Analvsis Section
Kalispell City Countv Growth Policv Plan, June 2001
A
Racially, Kalispell and the remainder of the population of Flathead County are
notably homogenous and Caucasian.
TABLE 4. AGE GROUPS. 1990
Kalispell Evergreen' Planning Area" Flathead County Montana
Age group Popul. % Pcpul. % Pooul. % Popul. % PopuL
Median age 36.5 31.2 34.9 35.3 33.8
Children 2,952 24A% 1,285 31.3% T440 28.0% 16,749 28.3% 222, 104 27.8%
0 - 4 830 7.0% 337 8.2% 1,944 7.3% 4,211 7.1% 59,257 7.4%
5 -17 2,122 17.8% 948 23.1% 5,496 20.7°% 12,538 21.2% 162,847 20.4%
18-64 6,612 55.5% 2,451 59.6% 15,280 57.4% 34,753 58.7% 470,464 58.9%
18 - 24 936 7.9 % 334 8.1 % 1,890 7.1 % 3,836 6.5 % 70,011 8.8%
25-44 3,619 30.4% 1,391 33.9% 8,462 31.8% 19,287 32.6% 249,826 31.3%
45-54 1,033 8.7% 419 10.2% 2,723 10.2% 6,520 11.0% 82,306 10.3%
55-59 468 3.9% 148 3.6% 1,073 4.0% 2,581 44% 34,005 4.3%
60-64 556 4.7% 159 3.9% 1,132 4.3% 2,529 4.3% 34,316 4.30A
65&over 2,353 19.7% 373 9.1 % 3,881 14.6% 7,716 13.0% 106,497 13.3%
75 & over 1,248 10.5°% 140 3.4% 1,772 6.7% 3,161 5.3% 45,613 5.7%
85 & over 382 3.2 % 16 0.4% 468 1.8 % 768 1.3 % 10,676 1.3 %
Total 11,917 100% 4,109 100% 26,601 100% 59,218 100% 799065 100%
Evergreen Census Division.
"Kalispell Census Division, generally includes the planning jurisdiction and 50% more land area.
Bureau of Census, '1990 Census of Population and Housing: Summary Population and Housing Characteristics:
Montana," August 1991
White persons accounted for 97.2% of Kalispell's population and 97.5% of the
Kalispell Division population in 1990. American Indians made up approximately
2% of the population in Kalispell and the Kalispell Division, and other races, less
than 1%.
Per capita income in Kalispell during 1990 was typical of the county and
statewide averages and was only 77% of the national average. Compared to the
rest of the planning jurisdiction Evergreen was economically distressed, having
Significantly lower per capita income, a higher rate of poverty and a higher
unemployment rate. The proportion of persons 25 and older with a bachelor's
degree was somewhat lower in the Kalispell Division and Flathead County than
the state average.
On May 22, 2001, the U. S. Census Bureau released DP-1 Tables, "Profile of
General Demographic Characteristics: 2000". These tables have updated
population and housing statistics for places, including Flathead County, the cities
of Kalispell, Whitefish, and Columbia Falls, as well as Census Designated Places,
such as Evergreen. These tables have extensive information collected during the
2000 Census. They can be accessed on the Montana Census and Economic
Information Center website. These web pages are:
http: / / ceic. commerce. state.mt.us/ C2000 / SF 12000 / SFplaces/index.htm
http: / / ceic. commerce. state.mt. us / C2000 / SF 12000 / SFcounties / index.htm
Resources and Analvsis Section
Kalispell City County Growth Policv Plan, June 2001
8A
ECONOMIC TRENDS
The recent history of the Flathead economv is one of long-term growth tempered
by export -driven economic cycles. County income and employment have boomed
over the last decade. While the economy is relatively diverse the service
industries employed 70% of the county worldorce in 1990 and has created the
majority of new local jobs since 1990. Expanding industries tend to pay low
wages and the county's rate of persons in poverty grew from 9.4% in 1980 to
14.2% in 1990. The U.S. Census Bureau model -based income and poverty
estimate released in November of 2000 estimated Flathead County to have a
14.2% poverty rate in 1997, representing little change from 1990.
TART F 5 c .T D SOCIAL .HARA .TFRISTICR 1990
Kalispell Evergreen-
Whi
te£sh
Columbia
Falls
Planning
Area"
Flathead
Gmmty
Montana
Total population
11,917
4,109
4,368
2,942
26,601
59,218
799.065
Persons per family
2.90
3.16
2.90
3.08
3.04
3.05
3.08
Persons per household
2.28
2.65
2.30
2.58
2.47
2.56
2.63
Persons per square mile
2,708
1,245
1,456
2,452
273
12
6
Occupied households
5,237
1,548
1,830
1,139
10,619
22,834
306,163
Married -couple family
households'**"
45.5%
56.2%
4T6%
58.1%
55.8%
61.1%
57.7%
Female householder,
no husband present ***
11.6%
11.1 %
10.1 %
11.9%
9.7 %
8.0%
a.6 %
One -person households"
36.5%
23.2%
30.7%
24.8%
28.0%
24A%
26.3%
Resident 65 or older""*
16.7%
6.8 %
10.4%
11.3%
11.7 %
9.2%
10.5 %
Population by race
White
97.2%
96.5%
98.3%
97.1%
97.5%
97.8%
92.7%
American Indians
1.80/6
2.7%
1.1%
2.3%
1.8%
1.5%
6.0%
Otherraces
0.9%
0.8%
0.6%
0.6%
0.8%
0.7%
1.3%
Hispanic origin
0.9%
1.7%
1.4%
1.6%
1.0%
1.0%
1.5%
High school graduate*""
81.3%
77.1 %
83.5%
78.39A
82.4%
82.1%
81.0%
Bachelor's degree""
17.9%
7.9%
217%
11.8%
17.5%
17.2%
19.8%
Per capita income
11,226
8,223
11,262
9,329
11-673
11,718
11,213
% of national average
77%
56%
77%
64%
80%
80%
77%
Median household income
19,950
18,438
21,569
23,328
22,432
24,145
22,988
% of persons in poverty
16.2%
21.1 %
16.5%
16.2%
13.8%
14.5%
16.1 %
Unemployment rate
5.4%
9.7%
9.6%0
9.00".
6.5%
7.7%
7.00/.
% in labor force of women
with children under 6
68.1 %
47 e%
557%
33.5%
e7.3%
59.4%
62.3%
Evergreen Census Division
Kalispell Census Division, generally includes the planning jurisdiction and 50 % more land area.
"* Persons with educational degrees as a percentage of persons 25 ,years of ace and older.
Information refers to the percentage of occupied housing units.
Bureau of Census, '1990 Census of Population and Housing: Summary Population and Housing Characteristics:
Montana," August 1991: "Summary Social, Economic and Housing Characteristics: Montana," Aoril 1992
Montana Dept. of Labor and Industry, "Labor Market Information for rlathead County, 3122196.
Resources and Analvsis Section
Kalispell City Countv Growth Policv Plan, June 2001
9A
Structural shifts of recent decades in the global and national economies play a
key role in local economic conditions of the local area. Major national trends
include long -terra expansion of the service sector (e.g., business services, health
care, tourism); expansion of "flexible production" industries for rapidly changing
market niches (e.g., microelectronics, media); downsizing of many traditional
mass -market industries that drove the postwar U.S. economic expansion (e.g.,
automobiles, steel); decline of income -stabilizing institutions of the post-war
economy, such as labor unions and demand management by the federal
government; globalization of industrial production, particularly into loco wage,
less -regulated countries; a bi-modal wage structure (i.e., concentration of low -
wage and high -wage jobs), in expanding industries and services; and global
technological changes driven by computers and telecommunications. Local
examples of these national changes include the expansion of services and
tourism; proliferation of low -wage jobs; downsizing of timber mills and the
Columbia Falls Aluminum Plant; and the expansion of microelectronics
production at Semi -Tool.
Gross county product (as approximated by non -farm labor income) has grown
rapidly over the last decade. County employment growth slightly exceeded the
rate of population growth during that period. Unemployment rates declined
somewhat over the last ten years as new jobs have been created, but county
unemployment rates remain higher than state and national averages, due in part
TABLE 6. LABOR FORCE TRENDS, FLATHEAD COUNTY, MONTANA
Non -Farm Adjusted Per Unemployment
come*
Labor Income Capita Employment
($000,000) InRate
1987 486 16,971 27,126 8.3%
1983 535 17.369 27,076 8.8%
1989 567 17,836 28,232 7.6%
1990 600 17,984 28,010 7.6%
1991 648 18,264 28,179 9.2%
1992 720 18,676 29,872 8.3%
1993 795 19,075 32,014 7.3%
1994 840 18,631 33,322 6.7%
1995 867 18,627 32,919 8.1%
1996 909 18,636 33,953 7.3%
1997 1,057 18,886 34,763 7.4%
1998 1,048 20,469 35,279 7.9%
1999 not available 19,809 35,332 7.1%
2000 not available not available 36,271 6.1%
Average Annual Percentage Change Average
1987-1990 +5.8% +1.2% +0.8% 8.1%
1991-1995 +6.8% +0.4% +3.4% 7.9%
1996-1998 +3.0% +3.3% +1.3% 7.5%
1998-1999 - -3.0% +0.5% 7.5%
1999-2000 - +1.5% 6.6%
Per capita income includes wages, dividends. interest, rent and transfer payments.
"The annual percentage change is based on regression analysis ofthe data overthe applicable period, divided by the number
of years.
Source: Montana Department of Labor and Industry, May 2001
Resources and Analysis Section
Kalispell Citv County Growth Policy Plan, June 2001
10A
to a relatively high representation of seasonal industries in the local labor force,
such as tourism and construction.
Table 6 looks at four principal indicators of local economic conditions and how
they have changed since 1987: total non -farm labor income, per capita income,
total employment, and unemployment rate. Annual data for these economic
indicators are not available for Kalispell specifically, but county averages, as
shown in Table 6, are an approximation ol economic performance in the planning
jurisdiction.
The rapid economic growth of the early 1990's had mixed benefits for the local
economy in terms of average wages. Most new jobs created were low -wage jobs,
as shown in Table 7. Job growth was concentrated in the service industries, with
the notable exceptions of construction and non -electrical machinery
manufacturing (i.e., Semi -Tool). Retail trade; one of the lowest paving industries,
created nearly 3 times more jobs than the second highest job -growth industry.
Other rapidly growing service industries included business, recreation and health
services.
Resources and Analvsis Section
Kalispell City Counts Growth Policy Plan, June 2001
11A
TABLE 7. AVERAGE ANNUAL EMPLOYMENT AND INCOME OF SELECTED INDUSTRIES,
FLATHEAD COUNTY
5-Year
Average Annual Employment
Average Change*
1991
1992
1993
1994
1995
Total
Percent
Rapid Growth Industries
Retail
5,410
5,825
6A02
6,718
6,903
1,552
28%
Construction
1,026
1,360
1,514
1,607
1,611
567
50%
Non-elec. machinery mfg.
226
262
353
447
802
535
355%
Business Services
534
645
854
866
1,015
473
87%
Recreational Services
500
594
801
942
896
456
88 %
Health Services
2,017
2,119
2,202
2,291
2,493
450
22%
Moderate or No Growth Industries
Lumber 1
1,626
1,755
1,885
1,903
1,763
169
10%
Hotels & Lodging
825
865
832
871
893
57
7%
Federal Government
808
800
817
825
816
16
2%
Agriculture
296
277
314
292
291
2
1%
Primary metals mfg.
762
758
717
589
642
(164)
-21 %
All industries
22,223
23,750
25,371
25,488
27,273
5,135
23%
% of Avg.
Inflation -
County
Adjusted
Average Annual
Wages per
Wage Earner
Wages
Change**
1991
1992
1993
1994
1995
in 1995
1991-1995
High Wage Industries
Federal Government
$ 28,774
$
31,411
$
31,885
$
34,444
$
33,046
165%
3%
Primary metals mfg.
$ 45,170
$
38,705
$
32,037
S
26,308
$
30,927
155%
-45%
Lumber mfg.
$ 27,649
$
28,778
$
30,332
$
30,780
$
30,892
154%
0%
Nan-elec, machinery mfg.
$ 22,519
$
23,265
$
23,465
$
24,390
$
24,954
125%
-1 %
Construction
$ 21,944
$
23,167
$
23,690
$
25,330
$
24,926
125%
2%
Moderate Wage Industries
Health Services
$ 19,452
$
20,889
$
21,720
$
22,615
$
23,185
116%
6%
Agriculture
$ 14,815
$
16,728
$
18,572
$
17,687
$
17,861
89%
5%
Low Wage Industries
Business Services
$ 12,140
$
13,082
$
14,058
$
13,691
$
13,955
70%
1 %
Retail
$ 11,027
$
11619
$
12,357
$
12,944
$
12,841
64%
5%
Recreational Services
$ 10,881
$
11450
$
12,108
$
11,399
$
11,521
580/.
-7%
Hotels & Lodging
$ 8,324
$
9,277
$
9,637
$
10,069
$
10,325
52%
9%
All industries
$ 18,236
$
18,898
$
19.286
$
19,628
$
20,003
100%
-2%
All industries except
primary metals mfg*`*
$ 17,280
$
18,245
$
18,915
S
19,476
$
19,740
99°%
2%
' Percentage of changeover the five year period is based an regression analysis of average annual amounts during that
period.
'* Percentage of change over the I've year period is based on regression analysis of average annual amounts during that
I
The percentage of change is adjusted for inflation using the Consumer Price Index.
A total figure is shown excluding the primary rretals industry (i.e. Columbia Falls Aluminum Company) due to significant
wage fluctuations of that company during the 1991-1995 period. Source: Montana Department of Labor and Industry.
Wood products manufacturing experienced moderate jab growth in the early
1990's, while jobs in primary metals manufacturing (i.e., Columbia Falls
Aluminum Company), declined significantly. Overall employment in Flathead
County is projected to grow over the next two decades, but at lower rates, as
Resources and Analysis Section
Kalispell City County Growth Policy Plan, June 2001
12A
shown in Table 8. Grmvth is expected to be concentrated in the retail and service
sectors, consistent with past trends.
TABLES. EMPLOYMENT PROJECTIONS BY SECTOR, FLATHEAD COUNTY
1990 % of 2000 % of 2010 % or 2020 % of
Economic Sector Errol Total Emol Total Empl Total Errol Total
Farming*
Agricul. & Forestry Svcs.
Mining
Construction
Manufacturing
Transportation & Utilities
Wholesale
Retail
Finance, Insurance &
Real Estate
Services
Federal Govt.. civilian
Federal Govt., military
State & Local Govt.
Total
1,056
3.4%
1,382
3.6%
1,603
3.4%
1,325
3.4%
494
1.6%
697
1.8%
878
1.9%
1.058
2.0%
41
0.1 %
75
0.2%
93
0.2%
111
0.2%
1951,
6.2%
2,660
6.8%
3,224
6.9916
3,800
7.0%
3,994
12.7%
4,106
10.6%
4.240
9.1%
4,374
8.1%
1,832
5.8%
2.153
5.5%
2,411
5.2%
2,669
4.9%
801
2.6%
1,262
3.2%
1,477
3.2%
1,691
3.1%
6,394
20.4%
7,998
20.6%
9,716
20.9%
11,434
21.1%
2,415
7.7%
3,409
8.8%
4,297
9.2%
5,185
9.6%
8,326
26.6%
-10,395
26.7%
13,121
282%
15,849
29.2%
877
2.8%
1,124
2.9%
1,340
2.9%
1.556
2.9%
362
1.2%
252
0.6%
203
0.4%
155
0.3%
2,810
9.0%
3,480
8.9%
4,051
8.7%
4,623
8.5%
31,353
100%
38,904
100%
46,575
100%
54,247
100%
* Growth in farm employment results from increases in part time farm operations.
Source: James Boyer, Socioeconomist, Boyer Consulting Services; U.S. Dept. of Commerce;
Bureau of Economic Analysis; Montana Department of Labor and Industry.
TABLE 9. EARNING TRENDS OF BASIC INDUSTRIES, FLATHEAD COUNTY
Retirement &
Disability Income**
Wood Products
Tourism
Federal Government
Other Manufacturing
Metal Refining
Railroad
Agriculture
Average
Annual
Annual Personal Income (thousands of dollars) % Change*
1990 1991 1992 1993 1994 1990-94
$ 151,733
$
164,722
S
179,375
$
193,275
$
205,326
7.2%
$ 67.356
$
68,621
$
77,774
$
90,478
$
95,262
9.7%
$ 24,686
$
27,067
S
32,244
$
36,412
$
39,833
13.2%
$ 28J82
$
29,985
S
31,740
S
33,152
S
36,033
5.4%
S
20,548
$
26,992
$
32,623
19.5%
$
39,801
S
32,665
$
23,573
-13.5%
$ 16,682
$
20,969
$
22,206
S
24,565
S
24,199
8.3%
S 5,620
$
9,746
S
9,850
S
14,724
$
10,627
16.9%
* The annual percentage change is based on regression analysis over the applicable period.
*' This category only includes government transfer payments, not private pensions.
'** Data is suppressed.
Montana Dept. of Labor and Industry 1997
Resources and .knalvsis Section
Kalispell City County Groivth Policv Plan, June 2001
13A
ECONOMIC BASE
Basic local industries are essentially export industries, the growth or decline of
which have significant multiplier effects as export income circulates through the
local economy. The basic industries in Flathead County are diverse by Montana
standards and have shown continued income growth since the 1970s, with the
exception of periodic declines in wood products and aluminum smelting. Income
growth for Flathead County basic industries during the early 1990's is shown in
Table 9. Although not conventionally considered an industry, retirement income
accounts for the largest share of the county's export income, followed by wood
products manufacturing, tourism, federal government, microelectronics
equipment manufacturing, aluminum smelting, commercial center activities,
railroad, and agriculture (which includes logging).
A Retirement and Tourism Destination
Retirement and tourism are major local industries, mainsprings of local growth
and defining characteristics of the Flathead. The county's competitive advantage
in these industries is the attractiveness of its natural environment. Kalispell is
within an hour's drive of Glacier National Park, Flathead Lake, Jewel Basin, Big
Mountain Ski Resort, eight golf courses, numerous waterways and over a million
acres of mountain wilderness. In 1994 retirement income was the county's
largest basic industry and tourism was the third largest.
The tourist economy is difficult to quantify. Obvious sources of income include
camping and lodging; dining; shopping; rail, air, and automobile transportation;
skiing, golf, and theater admissions. Less direct economic impacts include in -
migration of tourists becoming residents, construction and real estate income
from second -home development, and an expanding arts community.
Manufacturing
Manufacturing income in Flathead County during 1994 was higher than that of
any other county in Montana, with primary components of wood products,
electrical equipment, and aluminum smelting. These industries are dominated by
large corporations, such as Plum Creek Timber Company, Stoltze Land and
Lumber, Semi -Tool and Columbia Falls Aluminum Company. In 1999
manufacturing was the second largest basic industry in Flathead County. The
service industry ranked first, with government third, followed by retail trade.
Within the manufacturing sector wood products remain the county's largest
industry. Statewide employment in the wood products sector has been cyclical
over the last three decades and the 1990's have seen a downward trend statewide.
The outlook for the industry statewide is generally one of slow decline due to
competition, reduced availability of national forest timber, corporate consolidation
and softening of the market. In Flathead County the wood products industry had
a total income of $67 million in 1990, increasing to $95 million in 1994. By 1999
income in the wood products industry had been reduced to $66 million, a figure
comparable to 1990.
Resources and Analysis Section
iialisoell Citv County Growth Policy Plan, June 2001
14A
Microelectronics manufacturing, specifically the Semi -Tool plant north of
Kalispell, has become a primary feature of the local economy. Total county
income in this sector was nearly as high as, and growing faster than, tourism in
the mid-1990's. Aluminum smelting was another single -firm industry consisting
of the Columbia Falls Aluminum plant near Columbia Falls. With significant
increases in the cost of electricity and the anticipation of additional substantial
increases earlier threats to cease operation of the plant became reality in early
2001. The increasing cost of electricity can be expected to affect the local
economy significantly, as it has also forced reductions in lumber mill production.
The Columbia Falls Aluminum Plant and Plum Creek Timber Company have been
major employers in Flathead County.
Commercial and Governmental Center
The Greater Kalispell Area is a regional center for retail, finance, professional and
medical services, government and education. Major regional facilities in the
Kalispell area include downtown Kalispell, two shopping malls, three large
discount stores, Kalispell Regional Medical Center, Flathead Valley Community
College, city and county government and regional operations of various state and
federal agencies.
The primary trade area is Flathead County with a population of 74,471 as of
January 2000. The proximity of Kalispell, Whitefish, and Columbia Falls, each
within a half-hour commuting distance, has created an inter dependence between
the three cities, allowing complementary economic specialization within each.
Columbia Falls is primarily an industrial city and has traditionally been anchored
by the Columbia Falls Aluminum Plant, Plum Creek Timber and Stoltze lumber
mills. However, the closing of the Columbia Falls Aluminum Plant in early 2001
and rising energy costs could spur a shift to more service oriented industries.
Whitefish is recreationally oriented, associated with Big Mountain and Whitefish
Lake. The Greater Kalispell area is the commercial and governmental center of
the valley.
Kalispell also draws shoppers from Lake, Lincoln, Sanders and Glacier Counties,
as well as southern portions of Alberta and British Columbia. This secondary
trade area has a population roughly equal to that of Flathead County. Kalispell is
well located as a second -tier commercial center, situated approximately 120 to
250 miles from four large cities: Calgary to the north, Spokane to the west,
Missoula to the south, and Great Falls to the east.
HOUSING CHARACTERISTICS
The 1990 Census showed single-family detached homes as the primary housing
type in Kalispell and Flathead county representing approximately two thirds of the
housing stock (see Tables 10 and 11). As an urban center Kalispell has a greater
number of older homes in established neighborhoods than the rest of the county.
Kalispell has a compact, pedestrian -oriented development pattern, where a higher
proportion of households have one or no vehicles, as compared to areas of less
Resources and Analvsis Section
Kalispell City° County Growth Policy Plan, June 2001
15A
population density in the county. Nearly all of the housing in Kalispell has
municipal sewer service compared to 40% countywide in 1990. The 1990 Census
indicates that 9.3% of housing units in Flathead county- were seasonally occupied
recreational or second homes, with a higher concentration of which were in
Whitefish, Bigfork and more tourism -oriented locations. Kalispell, however,
represented less than 1% of housing in this category.
TABLE 10. HOUSING TYPE, 1990
Planning Flathead
Housing units Kalispell Evergreen* Area** County Montana
per structure Units % Units % Units % Units % Units %
1 unit, detached 3,506 63.3% 771 47.2% 6,862 61.20A 18,087 67.0% 237,533 65.8%
Multi -family bldgs. 1,850 33.4% 105 6.4% 2,259 20.1% 4,128 15.3% 65066 18.0%
1 unit, attached 130 2.3% 13 0.8% 199 1.8% 578 2.1% 8,432 2.3%
2-4 units 847 15.3% 43 2.6% 961 8.6% 1,816 6.7% 29.327 8.1%
5-9 units 193 3.5% 18 1.1% 225 2.0% 491 1.8% 10,376 2.9%
10 or more units 680 12.3% 31 1.9% 874 7.8% 1,243 4.6% 16,931 4.7%
Mobile home etc. 181 3.3% 759 46.4% 2,094 18.7% 4,764 173% 58,556 16.2%
Total 5,537 100% 1,635 100% 11,215 100% 26,979 100% 361,155 100%
"Evergreen Census Division; ** Kalispell Census Division generally includes the planning jurisdiction and 50% more land area.
Bureau of the Census, "1990 Census of Population and Housing: Summary Population and Housing Characteristics: Montana'
August 1991
TABLE 11. SELECTED HOUSING AND SOCIAL CHARACTERISTICS, 1990
Planning Flathead
Kalispell Evergreen* Area** County Montana
Vacant units*** 5.4% 5.3% 5.3% 15A% 15.2%
Vacant units for seasonal, recreational
or occasional use*** 0.3% 0.4% 0.6% 9.3% 5.7%
Owner -occupied units**** 54.0% 71.4% 62.5% 70.6% 67.3%
Units with public sewer*** 94.5% 12.7% 53.0°6 39.6% 60.5%
Units built between 1980 to March 1990*** 14.0% 8.8 % 21.1 % 26.2% 17.5%
Units built in 1939 and earlier*** 25.6% 3.1 % 15.2% 12.6% 21.8%
Units with no vehicles available**** 12.3% 3.5% 7.7% 6.6% 6.7%
Units with 2 or more vehicles available**** 48.2% 64.9% 60.9% 67.6% 63.5%
Median gross rent as a % of renters'
household Income 28.0% 29.5% 2T3% 25.7% 25.0%
Median housing costs of homeowners with
mortgages as a % of household income 21.0% 24.1 % 21.9% 21.4% 20.2%
* Evergreen Census Division; ** Kalispell Census Division generally includes the planning jurisdiction and 50% more land area.
*** Information refers to the percentage of total housing units. **- Information refers to the percentage of occupied housing
units.
Source: Bureau of the Census, , "1990 Census of Population and Housing: Summary Population and Housing Characteristics:
Montana'
August 1991; "Summary, Social Economic and Housing Characteristics: Montana" April 1992
The primary differences in housing types within the planning jurisdiction relate to
how affordable housing is provided in different areas. Typical of urban areas, a
third of the housing in Kalispell was in multi -family buildings (duplexes and
larger) in 1990, while only 6.4% of the housing in Evergreen and 15.3% of that
countywide were in multi -family buildings. In contrast, mobile homes are the
primary form of affordable housing m Evergreen and rural areas. In Evergreen,
mobile homes made up an astounding 46.4% of the housing stock compared to
Resources and Analvsis Section
Kalispell Citv County Growth Policy Plan, June 2001
16A
3.3% in Kalispell and 17.7% in the entire county. In turn Kalispell has a
substantially lower proportion of owner -occupied housing than Evergreen and the
rural planning jurisdiction, reflecting that mobile homes in the area tend to be
owner -occupied more than multi -family housing, as well as that Kalispell has
more older single-family houses which are rented.
HOUSING AFFORDABILITY
One of the results of the area's population growth during the 1990's is the bidding
up of housing prices. By the mid 1990's Flathead county had among the highest
housing prices in Montana. From 1991 through 1995 median annual housing
prices in Flathead county (excluding properties with two or more acres or
waterfront), increased by 59%, while average annual wages grew by 10%. Table
12 is an analysis of local housing affordability developed by Sunrift Center for
Sustainable Communities, comparing median housing costs with median
household income during the early 1990's. This analysis shows that, while the
typical household in the Flathead could generally afford the typical house
available for sale in 1991, by 1996 their income was substantially short.
TABLE 12. HOUSING AFFORDABILITY TRENDS, FLATHEAD COUNTY
Median housing price, excluding
properties with 2 or more acres or
waterfront
Less 10% down payment
Balance to finance
Average interest rate on 30-year loan
Monthly payment
Maintenance, utilities, taxes, insurance
Total monthly housing costs
Total annual housing costs
Annual income needed for a median -
cost house, assuming 30% of gross
income is available for housing
Median household income
Income needed for a median -cost house
as a % of median household income
Average annual wage
$ 59,900
$ 70,000
$ 81,900
$ 86,000
S 90,500
$ 95,500
$ 5,990
$ 7,000
$ 8,190
$ 8,600
$ 9.050
$ 9,550
$ 53,910
$ 63,000
S 73,710
$ 77,400
$ 81,450
$ 85,960
9.24%
8.50%
7.80`/0
8.70%
T88%
8.00 %
S 443
$ 484
S 631
S 606
$ 591
S 631
S 194
$ 199
$ 204
S 208
$ 222
$ 231
S 637
$ 683
$ 735
$ 814
5 813
$ 862
$ 7,644
S 8,196
$ 8,820
S 9,768
$ 9,756
$ 10,344
$ 25,480 S 27,320 S 29,400 S 32,560 $ 32,620 $ 34,480
$ 25,137 5 26.050 S 26,597 $ 27,056 $ 27,573 $ 28,258
101% 105% 111°/ 120% 118% 122%
$ 18,236 S 18,898 S 19,286 $ 19,628 $ 20,003 na
Source: Sunrift Center for Sustainable Communities, Flaihead Gauges 1997, Kelley Appraisal,
1996; Montana Department of Labor and Industry
Inflation of housing prices and the changing job structure have produced a
shortage of low and moderate income housing and a homelessness problem in the
Flathead. A 1997 grant application by the City of Kalispell for a homeless shelter
revealed the following indications of these trends. Northwest Montana Human
Resources reported that about 800 families were on a waiting list for the Section 8
Rental Assistance Program in September 1996 within a four -county area, of which
65"o lived in Flathead County. There were waiting lists of about 300 families for
the Fernwood and Couru and IcAv-cost apartments constructed in Kalispell in the
mid-1990's. The assistance provided hv Samaritan House, a homeless shelter in
Resources and A.alvsis Section
KalispeL City County Grovrh PoLcv Plan, June 2001
17A
Kalispell, increased from 4,888 to 7,426 bed nights hetveen 1994 and 1996 and
they have to consistently turn away many in need because of inadequate capacity.
HOUSING CONSTRUCTION TRENDS
New residential construction has been highly cyclical over the last decade in
Flathead county, peaking in 1993 and 1994. Most residential construction has
been in rural areas on private septic systems. During the year 2000, 64% of all
new housing was outside of the three incorporated cities, in rural Flathead
county. During the five year period from 1991 through 1995 the average annual
number of new housing units, including mobile home installations, was 156 in
the City of Kalispell and 662 in rural Flathead county. Kalispell experienced a
significant increase in the construction of multi -family units in 1993 and 1994, as
numbers reflect in Table 13, During the period of 1996 through 2000 the average
annual number of new housing units in the city of Kalispell had dropped to 129,
and 453 in rural Flathead county. Reflecting the income extremes of the 1990's
economic growth new rural housing has included a conspicuous representation of
both castle -size "trophy houses" and singlewide mobile homes. Within Kalispell
the majority of new residential construction during the 1990s occurred in South
Meadows, Greenbriar, Ashley Park, Belmar, The Willows and Buffalo Stage
Subdivisions.
Table 13. Flathead County
Housing
Construction Trends 1991 - 2000
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
Total New Housing Units
552
920
1135
1154
712
738
676
589
602
687
in Flathead County
City of Kalispell
81
41
258
253
145
95
158
137
108
147
City of Whitefish
37
107
72
46
34
28
43
36
49
82
City of Columbia Falls
0
4
29
33
22
62
30
22
10
18
Total New Housing Units
outside of the 3
Incorporated Cities
(Rural Flathead County) 434 768 776 822 511 553 445 394 435 440
Source: Flathead Regional Development Office, "New Residential Construction, Flathead County, Montana
2000 Annual Report'
February 2001
HOUSING PROJECTIONS
The relatively high growth rates that have occurred since the 1960's in the
Kalispell area are expected to continue into the upcoming decades, as shown in
Table 14. Future housing needs are projected from anticipated population
growth, vacancy rates, and the proportion of housing removed, demolished, or
converted to another use. Housing demand is projected to grow by roughly 400
dwelling units per five-year period in Kalispell and 900 dwelling units per five-year
period in the entire planning jurisdiction over the next 25 years. These
Resources and Analvsis Section
Kalispell City County Growth Policv Plan, June 2001
18A
population and housing projections should be used as a benchmark or guide, not
as a precise number. Unforeseen future events, economic cvcles, and large-scale
annexations can create wide variation in population and housing growth.
TABLE 14. HOUSING PROJECTIONS
Kalispell
Planning jurisdiction
Kalispell
Planning jurisdiction
Kalispell
Planning jurisdiction
Population
1995 2000 2005 2010 2015 2020
13,519 14,375 15,230 16,086 16,942 17,797
30,209 32,267 34,326 36,384 38,442 40,500
Total housing units
1995 2000 2005 2010 2015 2020
6,540 6,954 7.368 7,782 8,196 8,610
13,070 13,961 14,851 15,742 16,632 17,523
New housing units
1995- 2000- 2005- 2010- 2015-
2000 2005 2010 2015 2020
414 414 414 414 414
891 891 891 891 891
Methodology: Population projections were based on regression analysis using 1960-1995 data. Housing
projections use vacancy rates and persons per household rates from the 1990 Census for Kalispell and the
Kalispell Census Division. Projections assume a 1 % rate of demolition, removal, or conversion per 5 year period.
Source: Bureau of the Census, "1990 Census of Population and Housing: Summary Population and Housing
Characteristics: Montana" August 1991; Kalispell City County Master Plan 2010.
Resources and Analysis Section
Kalispell City County Growrh Policv Plan, June 2001
19A
CHAPTER 2
ENVIRONMENTAL CONSIDERATIONS
Kalispell is located at the center of the Upper Flathead Valley, a broad agricultural
valley generally surrounded by the foothills and mountains of the Flathead
National Forest, Stillwater State Forest and Glacier National Park. The Swan
Range to the east rises 4,500 feet above the valley floor and peaks further east
along the continental divide reach elevations above 10,000 feet. The elevation of
Kalispell is 2959. Most of the planning jurisdiction consists of nearly level alluvial
lands. bottom lands and low terraces. The confluence of the Flathead, Whitefish
and Stillwater Rivers is part of a large riparian complex that covers most of the
eastern half of the planning jurisdiction. Important resource and environmental
factors in the planning jurisdiction include hydrology, floodplain, air quality, steep
slopes, soil limitations, wildfire hazards, important wildlife habitat, important
agricultural lands and historical and cultural resources.
CLIMATE
Kalispell has a relatively mild climate for its elevation, influenced principally by
topographical features. The high mountains of the continental divide provide
protection from the winter cold waves that move southward from Alberta. In
addition, the water surfaces of Flathead Lake and the valley's many smaller lakes
and three rivers tend to moderate temperatures in both winter and summer.
Temperatures in Kalispell range from a January average of 21 degrees Fahrenheit
to a July average of 65 degrees. Winds are generally very light in Kalispell, where
the annual prevailing wind direction is from the west. Annual rainfall in Kalispell
averages 16 inches and annual snowfall, 49 inches. The average length of the
growing season, defined as the average annual frost -free season, is 110 days in
the Kalispell area.
HYDROLOGY
The Flathead Valley's relatively pristine water quality is of fundamental local
value. Respondents to recent public opinion surveys in Flathead County ranked
water quality as the number one local concern for the future. The mountain
streams of nearby Glacier National Park are continental headwaters, draining
eventually into the Atlantic and Pacific Oceans and the Gulf of Mexico. Flathead
Lake, the nation's largest fresh water body west of the Mississippi River, is among
the cleanest lakes of its size in the world. The Flathead River drains into Flathead
Lake approximately ten miles southeast of Kalispell. The Flathead River Basin
Environmental Impact Study, conducted from 1979 through 1983, concluded that
the waters of the basin are generally very- pure, but also found a trend of declining
water quality.
The riparian lands surrounding lakes, rivers and streams play a critical role in
protecting water quality; as well as providing flood management, habitat and
Resources and Analysis Section
Kalispell City County Growth Policy Plan., June 2001
20A
natural scenic values. The natural functions of a water body and adjacent
riparian lands are inherently interconnected. The Montana Department of
Environmental Quality has estimated that 95% of all water pollution in Montana
comes from non -point sources, generally carried by stormwater runoff and
crossing riparian lands before reaching water bodies. Of particular concern,
established native plant communities in riparian areas serve a variety of
important functions: they hold streambanks in place, reduce flood velocities,
absorb nutrients, filter sedimentation, provide diverse habitat, improve fisheries
by shading and contribute to scenic values. Activities which can degrade the
integrity of riparian areas include channel alteration, excavation and fill, removal
of native vegetation, application of fertilizers and pesticides, road building, utilities
installation, excessive impervious surface, farming or development up to the
water's edge, concentrated livestock use, concentrated human activity, burning,
operation of heavy equipment and stockpiling of debris.
Figure 2 maps the rivers, streams, lakes and hydric soils of the planning
jurisdiction. The confluence of the Flathead, Whitefish and Stillwater Rivers is
part of a large riparian complex of swales, streams, wetlands and alluvial terraces
that span most of the eastern half of the planning jurisdiction. Much of this area
extending out from the rivers has been mapped as having hydric soils by the
USDA Natural Resources and Conservation Service. Hydric soils, one of the
primary indicators of wetlands, are those that are saturated, flooded, or ponded
long enough during the growing season to develop anaerobic conditions that favor
the growth of h_vdrophytic vegetation (i.e., plants adapted to saturated soils, such
as cattails). The areas of hydric soils tend to also be mapped as floodplain and
core riparian habitat, subjects discussed further below. In the western half of the
planning jurisdiction Ashley Creek is the major drainage. Upper, Middle and
Lower Fovs Lakes are located in the foothills area southwest of Kalispell.
The Upper Flathead Valley's groundwater resources, as described by the Golder
Associates Studv prepared in 1995 for the Flathead City County Health
Department, are vaned and complex. A deep artesian aquifer spans a large
regional area. The Evergreen alluvial aquifer, located generally along the Flathead
River floodplain, is a highly permeable sand and gravel aquifer controlled by the
flows of the river. A public sewer system was installed in Evergreen in 1993,
partly in response to concerns about pollution of Flathead Lake from on -site
septic systems within the area of this aquifer.
A variety of federal, state, tribal and local agencies implement regulations
intended to protect water quality. The U.S. Environmental Protection Agency and
U.S. Army Corps of Engineers regulate filling of lakes, streams, rivers and
wetlands. The Montana Department of Environmental Quality regulates point -
source water pollution, sewer and water utilities, solid waste management,
stormwater discharge, and sanitation in subdivisions. The Montana Department
of Fish Wildlife and Parks regulates construction or alteration of facilities that
affect streams and streambanks undertaken by government agencies. The
Montana Department of Natural Resources and Conservation regulates
Resources and Analvsis Section
Kalispell City Count- Growth Poiicv Plan, June 2001
2' A
Figure 2. Wetlands and Hydric Soils
LEGEND
® CLISSIFIHD AS WEVJi
. - CIALSIPIBD AS HMIUC SOILS
NOT CLISSMM AS HIDAIC BUT HAVE INCLUSIONS
OF 5% TO 45% HMIUC SOILS
Hydra sod dol -i,l on: o soil that In its undra!ned
condition is silarpled . flapped, or panned long
enouah dunnp'he pmrvme season to develop
analamb- r,r,,: nm s .ha l'avarth. gon4h and
regeneraho: e! n W rophgtic v.g=_I s1lon.
Presence „i I NI seas elan. coos apt
Nas!pl? :' al 'n area beclassified as
.Ilands. cii -_= -:her mood a oh as
hydrophync plants and hvdmlogy must also he
cansiperea
Barn Cori
Resources and Analvsis Section
Kalispell City County Growth Policy Plan, June 2001
22A
timber harvesting adjacent to streams. The Flathead Conservation District
regulates streambank and streambed modification. Flathead County administers
lakeshore regulations addressing lakeshore construction and other activities.
FLOODPLAIN
The existence of the Flathead, Stillwater and Whitefish Rivers within the planning
jurisdiction subjects the adjacent lands to natural flood cycles (see Figure 3).
Major floods have been recorded in 1894, 1926, 1933, 1948, 19647 1975 and
1995. The primary- yardsticks currently used to measure the flood prone areas
are the 100-year and 500-year floodplains. The term 100-year floodplain defines
an area covered by a flood of such intensity that it would, on average, occur once
every one hundred years; the 500-year floodplain, every 500 years. Described
another way, a 100-year flood event has a 1% chance of occurring in any given
year. The 100 and 500-year floodplains extend across roughly a fourth of the
planning jurisdiction, including substantial urbanized area in Evergreen and
Willow Glen.
The 1975 flood in Evergreen was estimated to be a 25-year flood event. Officials
at the time estimated property damage in excess of two million dollars and news
stories reported that over 200 mobile homes were either flooded or pulled from
high water areas in the Evergreen area. The 1964 flood was much more
extensive. The flows through Columbia Falls on the Flathead River were 25%
higher than a 500-year flood event. This flood was triggered by torrential rains
which swept through the mountains and valley during a period of unseasonably
high spring temperatures which were already causing a rapid thaw of an
unusually high spring snowpack.
Since 1984 Kalispell and Flathead County have administered floodplain
management regulations requiring permits for new structures, fill and storage in
the 100-year floodplain. Implementation of the regulations is required for
participation in the National Flood Insurance Program, which offers low-cost flood
insurance for buildings and their contents. Local floodplain regulations do not
prohibit construction in the 100-year floodplain, but require fill so that the bottom
habitable floor is elevated above the base flood elevation. County regulations also
prohibit placement of on -site septic systems in the 100-year floodplain.
Floodplain mapping of the planning jurisdiction was completed in 1984 within the
Flathead Flood Insurance Study, which analyzed data from the six flood events
listed above.
AIR QUALITY
Kalispell, like Columbia Falls and Whitefish, has been designated as a non -
attainment area for small particulate matter (PM-10) , in violation of the U.S. Clean
Air Act. The Act requires that local communities not meeting ambient air
standards adopt an implementation plan (SIP), of remedial measures. As part of
the required SIP, the Kalispell ,Sir Pollution Control District was established in
1989, which extends across most
Resources and Analvsis Section
Kalispell Cite County GrGwth Policy Plan, .June 2001
23A
Figure 3. Flood -plain
LEGEND
_ IOO YEAR FLOODPLMN - -
MWAI 500 YEAR FLOODFLAIN .,. ;....
Resources and Analysis Section
Kalispell City County Growth Policy Plan, June 2001
24A
of the planning jurisdiction. The rules adopted within this area focus on
reduction of road dust. Requirements include paving of new streets and large
parking lots, limitations on sanding of streets and large parting lots, prioritized
street sweeping and dust control for major construction and land clearing
projects. The County Environmental Health Department commented that the SIP
has been effective, that PM-10 standards have been met from 1995 through 2001
and to the present and that the non -attainment status may soon be removed.
High levels of both small particulate and carbon monoxide pollution in this area
are substantiallv related to automobile transportation.
TOPOGRAPHY
Slope is one of the primary design factors for streets, storm drainage facilities,
sewer and water lines, septic systems and building sites. Typically, however, only
steep slopes or very flat slopes pose significant development limitations. Most of
the planning jurisdiction has gentle topography, well suited for development.
Terrain exceeding 15% slope is generally limited to the foothills southwest of
Kalispell and occasional riverbanks and bluffs as shown in Figure 4.
Most of the foothills area around Lone Pine State Park and the Foys Lakes
exceeds 30% slope, posing significant development limitations. County
subdivision regulations limit grades to 8% on residential roads (allowing minor
deviations for short distances), to facilitate circulation during icy conditions and
access by large emergency vehicles. County sanitation regulations do not allow
the placement of septic drainfields on slopes steeper than 25% and require steep
slope analysis on lands between 15% and 25% slope. The Montana Department
of Natural Resources and Conservation and the Flathead Rural Fire Council have
adopted guidelines for wildland interface areas that recommend against
development on slopes exceeding 30% due to diminished ability to control wildfire
on such terrain. Other potential problems of steep slope development include soil
instability, erosion of topsoil, downslope water degradation and hillside scarring.
SOIL LIMITATIONS
The suitability of soil types for building construction, road construction, on -site
sewage disposal or agricultural production help determine where development
should occur, what costs a developer or the City may incur to alleviate limitations
presented by poor soils and what trade-offs exist to developing agricultural lands.
The most reliable soils information available on a broad scale is found in the Soil
Survey for the Upper Flathead Valley area (1960), prepared by the U.S. Soil
Conservation Service (now named Natural Resources and Conservation Service).
Resources and analvsis Section
Kalispell City Count- Growth Policy Plan, June 2001
25A
Figure 4. Steep Topography
LEGEND
AVERAGE GREATER THAN 30% SLOPE
AVERAGE 15% TO 300,'o SLOPE
mun `>CURCES-
PaR¢- ]RSE CAP FFCM RnrNEP1 cauxm 'ICI
Hr c2L0r. ;'+rn� rCo RAn wceccvc: MaHnrnE�r •c�+ax
M+nw..L -Love ixaie,:Hc[ ovcnanM - rLoov rsuP+xcc e
Lo+vo �occrcvcwavc: cPnviceLH .ccGiovvmvNcv�'c "aPs
PeojC TICN - n4HrAxn STAi[ >LPHc —1 _]
H\GiS\KFLISPEL\KMPSLUFE,rl G
Resources and Analysis Section
Kalispell Ci[y County Growth Policy Plan, June 2001
26A
The existence of certain types of soils render some areas unsuitable or less
suitable for urban development because of one or more of the following properties:
flooding or ponding, high water table, alkalinity or acidity, salinity, shrink/swell
behavior, unfavorable load -bearing capacity, stoniness, depth to bedrock, high
water table, corrosivity, and slow or rapid permeability. In most situations
unfavorable soils for development can be overcome through engineering
techniques at a cost that may or may not justify the development in relation to the
opportunity of developing elsewhere. Most of the severe soil limitations for
development in the planning jurisdiction are related to water, such as flooding,
ponding and high water table. Soils with these limitations generally correspond
closely to the location of floodplains and hydric soils, which are discussed and
mapped above.
WILDFIRE HAZARDS
Natural fire cycles occur in wildland areas that pose hazards to rural
development, particularly on forested lands. Forests cover a relatively small
proportion of the planning jurisdiction concentrated in the foothills of the Foys
Lake -Lone Pine area. Wildfire risk rating in the foothills area by the Montana
Department of Natural Resources and Conservation (DNRC) ranges from "very
high" risk on North Foys Lake Road to "high" or "moderate" risk on other areas in
the vicinity. DNRC has recorded nine small wildfires since 1987 in Section 25-28-
22 east of Foys Lake.
The large volume of recent residential growth in wildland areas has created
numerous challenges for fire protection, including limited road access, limited
water supply, build up of hazardous vegetation, unusual terrain, inappropriate
building materials, limited resources of volunteer fire departments, extended
response times to cover large areas and general lack of awareness of fire danger
and mitigation. To reduce wildfire risks DNRC and the Montana Department of
Forestry have developed Guidelines for Wildland Residential Interface
Development, which has also been adopted by the Flathead Rural Fire Council.
These guidelines address road design, fire resistant roofing, "defensible space"
vegetation reduction, where not to build and various other mitigation measures.
WILDLIFE HABITAT
Important Riparian/Wetland Habitats
The Flathead River mainstem, Stillwater River, Whitefish River, Ashlev Creek
and Foys Lake(s) and their associated backwater channels, spring creeks,
wetlands and tributaries provide very important wildlife habitats within the
planning jurisdiction (see Figure 5). The riparian and wetland habitats along
these major waterways, particularly those which still support intact natural
stands of forest and shrubbv vegetation or marshes, are critical to retaining a
variety of wildlife within the planning jurisdiction. Although these habitats may
be intermixed with homes and agriculture thev are still important to the various
wildlife species which depend on them. Typical
Resources and Analvsis Section
Kalispell Citv County Grog,,,th Policy Plan, June 2001
27A
Figure S. Important Riparian Wildlife Habitat
I
IMPORTANT RIPARIAN
WILDLIFE HABITAT
hLtp pnMucedbv:
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ov Ma¢tasl5ah, WUMd &Pmki, Liormedaa Sl,,,m UmKda.11. MT.
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Pescurces and Ana vsis Section_
Kalisp_ ell Cite Counti Growth. Policy Plan, June 2001
28A
riparian/wetland species associated primarily with the Flathead -Stillwater
complex include: large mammals such as white-tailed deer, mountain lions, an
occasional black bear or moose; small mammals such as beaver, river otter,
mink, muskrat, raccoons; resident or migrant water birds such as great blue
herons, tundra swans, killdeer, spotted sandpipers; nesting and migratory
waterfowl such as wood ducks, mallards, common mergansers, common golden
eyes, Canada geese; woodland bird species such as pileated woodpeckers,
great -horned owls, saw whet owls, osprey, bald eagles, a variety of migratory
and resident songbirds, rubber boas, garter snakes, painted turtles, lonb toed
salamanders, spotted frogs, and western toads. A high diversity of bird species
has been observed at the Owen Sowerwine Natural Area in late spring,
representative of these forested riparian/wetland habitats.
The planning jurisdiction also contains a few open unforested wetland areas
such as sedge and cattail marshes located in old river channels, around ponds
and at the base of the foothills southwest of Kalispell. These areas can be
important for muskrats; migratory and breeding shorebirds such as snipe;
many species of dabbling ducks such as mallards, widgeon, shovelers; resident
reptiles and amphibians such as western toads, spotted frogs, and western
terrestrial garter snakes; and predators such as red-tailed hawks, great horned
owls, red -fox, coyote, and mink.
Human development in intact riparian/wetland habitats reduces wildlife
habitat values. Removal of riparian/wetland vegetation to create views, graze
domestic animals and build homes reduces the amount or quality of habitat
(e.g. space for wildlife). Human pets such as cats and dogs tend to harass or
consume wildlife. Wildlife -human conflicts increase with urbanization_ For
example, white-tailed deer will browse extensively on expensive ornamentals, in
gardens, or in haystacks. Beaver will continue to utilize remaining riparian
vegetation (trees and shrubs), which may have been already reduced due to
development. Dogs will chase and kill deer in the winter time. In time, once
productive wildlife habitats become wildlife sinks due to prevalence of small
predators such as skunks, fox and domestic pets.
The planning jurisdiction contains both the Stillwater and Lone Pine Game
Preserves. The Stillwater Game Preserve covers much of Evergreen and is
generally bounded by the Flathead River on the east, Reserve Drive on the
north, the Whitefish River and Highway 93 on the west, and Conrad Drive on
the south. Lone Pine Game Preserve is situated southwest of Kalispell and is
bounded b_v Foys Lake Road and 18d, Street on the north, Airport Road on the
east, and Fays Canyon Road on the south and west. The Preserves were
created by the Fish, Wildlife, & Parks Commission in the 1960's for the purpose
of protecting wildlife within these areas. The rules generally prohibit the
carrying or discharging of firearms, creating disturbances tending to frighten or
drive away game animals or birds. or chasing wildlife by dogs. Trapping of
furbearing animals during permitted seasons is allowed. Should game
populations increase in these Preserves beyond human tolerance management
options using hunting or other control techniques may not be a viable option
with Preserve status.
Resources and Analvsis Section
Kalispell Citv County% Groi. -Lh Polic=% Plan, June 2001
29A
Stillwater/FIathead River Complex
The Stillwater/Flathead River riparian/wetland complex, which extends along
both the Flathead and Stillwater Rivers and associated tributaries and wetlands
is clearly the most important riparian/wetland wildlife area within the planning
jurisdiction. A significant part of this area falls within the Owen Sowerwine
Natural Area and the Stillwater Game Preserve.
Because of its flooding potential, relative inaccessibility of the river areas, its
rural character on the east side and presence of the Owen Sowerwine Natural
Area much of the habitat within this region is still intact and relatively wild.
The Flathead/Stillwater complex supports large populations of white-tailed
deer, nesting and wintering bald eagles, river otters, beaver and other aquatic
mammals, great blue herons, ruffed grouse, wild turkeys and pheasants, and
many species of resident and migratory birds. In fact, this complex supports
some of the highest densities of white-tailed deer in the Flathead Vallev.
Further, the larger spruce within the unit, provide critical thermal (winter),
cover for white-tailed deer and other species during severe winters such as the
winter of 1996-1997. The proximity of this natural ecosystem to the Kalispell
area provides great opportunities for recreation and wildlife/habitat education.
High density development (e.g. small lot subdivisions), within or adjacent to this
area would greatly reduce its high quality wildlife values. Maintaining the
existing habitat along the Stillwater River and adjoining wetlands and
tributaries (e.g. along Brennamen's slough, Ashley Creek, the wetland areas
east of the river, Evergreen Spring Creek etc.), which connect to the Flathead
mainstem, is desirable to maintain the intact nature, quality and size of the
Flathead/Stillwater complex. Continued human development within this large
habitat area will only increase human -wildlife conflicts, degrade habitat and
water quality, increase predation on wildlife by pets and pests, and reduce
overall wildlife habitat values.
Foys Lake Area
The wetlands associated with Foys Lake, Middle Foys and other smaller lakes in
that vicinity are important for a variety of waterfowl and aquatic wildlife species
(e.g. beaver, mink, muskrats, osprey, great blue herons, waterfowl, painted
turtles, western toads, etc.). Although development is prevalent near or around
these lakes it is important to leave inlets, outlets, marshy areas and some
portion of the adjacent upland areas undeveloped to allow for waterfowl nesting,
undisturbed perch or nest sites for osprey and great blue herons, and breeding
habitat for reptiles and amphibians.
Fisheries
The Kalispell area encompasses important waters for fishes of the Flathead
Lake and River system including the Flathead, Whitefish and Stillwater Rivers
and a number of smaller spring creeks. These waters provide valuable fisheries
Resources and Analysis Section
Kalispell City County Growth Policy Plan, June 2001
30A
and habitat for native fish species, some of which are being considered for
listing under the Endangered Species Act. For example, both bull trout and
westslope cutthroat trout use these waters. Adult adfluvial fish migrating from
Flathead Lake up into the North and Middle Fork tributaries to spawn pass
through the planning jurisdiction on their migration upstream and on their
return trip downstream. In addition, juvenile fish of both species use this river
section as a migratory corridor and, for some individuals, long-term residence
and rearing habitat.
There are other fish species found within the planning jurisdiction. Rainbow
trout, lake and mountain whitefish, and lake trout provide popular and
productive fisheries. These river reaches are popular with both boat and shore
anglers. The small spring creeks, as well as portions of the Stillwater and
Whitefish Rivers, provide important spawning and rearing habitat for rainbow
and eastern brook trout. In addition to sportfish there are native suckers and
minnows found in all Kalispell waters.
The Flathead Lake and River System is a complex set of habitats. Many of the
fish species found in these waters use all of the available habitats during
specific seasons or life stages. Maintaining the integrity and quality of all
habitats in the Flathead system is essential to conserving native fish species
and popular sportfishes.
Conservation of Riparian Areas
Montana Department of Fish Wildlife and Parks (FWP), has recommended the
following policies to conserve fisheries and important riparian habitat in the
planning jurisdiction:
• Designate all waters as critical fish habitat.
• Maintain a 100-foot setback of development and septic systems from the
edge of all rivers, streams, and takes.
• Prohibit off -channel excavation to correct water courses.
• Maintain streamside vegetation.
• Riparian areas should be zoned for single-family residential use, limiting
density to one dwelling per five acres.
• All areas between river channels should be maintained as open space.
Important Upland Habitats (Forests, Shrublands, and Grasslands)
Native Grasslands/Shrublands
On south and west, drier aspects not already disturbed by homes and pastures,
one can find remnants of native palouse prairie habitats (bluebunch wheat
grass, Idaho fescue. balsam root, bitterroot etc.). These native grasslands are
particularly prominent within and adjacent to Lone Pine State Park and on the
south and west aspects of the foothills to the south. These grasslands provide
important fall. winter. and spring foraging areas for elk, a few mule deer and
many white-tailed deer. Thev also support a group of less common grassland
Resources and Analvsis Section
1ialispell City County Growth Policy Plan. June 2001
31A
bird species such as western meadowlarks, mountain and western bluebirds,
vesper sparrows, savanna sparrows and short eared owls. These grasslands
often include shrubby species such as woods rose and snowberry in wetter sites
and along rocky outcrops. These shrubs provide additional forage for grazing
animals, cover and forage for nesting birds and habitats for a variety of small
mammals.
The open grassland/shrubland and timbered habitats tend to be highly
vulnerable to development because of their warmer characteristics.
Development within and around these sites will reduce the wildlife values of
these habitats because of increased predation by pets, alterations to native
vegetation, and increased human disturbances. Homes or other developments
may also attract white-tailed deer to their ornamental plantings, gardens and
domestic animal feeds. The presence of white-tailed deer may attract mountain
lions. Development within native grasslands or shrublands should seek to keep
as much of this habitat type intact as possible.
Forested Uplands
The southwest comer of the planning jurisdiction also supports a variety of
forested uplands. These can be found within and adjacent to Lone Pine State
Park, near Fovs Lake, above the Flathead Valley and up Birch Creek.
Depending on the elevation and aspect these forested lands may support warm
dry conifer species such as Ponderosa pine and Douglas Fir with an understory
of snowberry or they may support cooler species such as Douglas Fir and
western larch. Typical wildlife species in this area include; white-tailed deer,
black bear, occasional elk or moose, mountain lion, bobcat; a variety of small
mammals including ermine, snowshoe hare, and pine squirrels; many species
of cavity -nesting birds; and a variety of neotropical migrants. A wildlife species
list (primarily birds), derived from Ray Kuhns Wildlife Management Area located
northwest of Kalispell, indicates forested sites provide a high diversity of bird
life.
Critical wildlife values of forested sites include thermal and winter cover for big
game; spring, summer, and fall habitat for black bears; winter habitat for
mountain lions; and a variety of habitat for migratory and resident birds.
People who seek to live at the interface of timbered/grassland areas should
realize that these habitats are important to wintering white-tailed deer or
possibly elk. Deer will impact ornamental vegetation, hay stacks, and gardens.
Deer and human pets often attract mountain lions. Additionally, black bears
can be attracted to pet or livestock food, garbage, beehives, boneyards and
other human attractants.
Large Game Travel Corridors
The southwest corner of the Planning jurisdiction is an extension of the higher
Salish Mountains to the south and west extending to the valley floor towards
the north and east. These upland forested and grassland/shrub land habitat
types extend all the way to the Lone Pine State Park area where they abruptly
Resources and Analysis Section
Kalispell Citv County Growth Policy Plan, June 2001
32A
meet the Flathead Valley floor along steep slopes and rocky escarpments. The
kev wildlife corridors between the higher mountains to the southwest and these
productive or important low elevation habitats within the planning jurisdiction
exist through the Foys Lake area and the Birch Creek area. Continued
development around and above Foys Lake and along Birch Creek will reduce
the tenuous connectivity, which now exists between these foothills for larger
game species such as elk, mule deer, mountain lions and black bear. Most of
these species have been observed by Lone Pine State Park personnel over the
years. It is important to consider the impact of further development within
these corridors on wildlife habitat and values within the whole planning
jurisdiction.
Wildlife Species Maps
The Montana Department of Fish, Wildlife and Parks (FWP), has provided
wildlife distribution maps for six big game species which can be found in the
planning jurisdiction (see Figures 6, 7, and 8): white-tailed deer, mule deer,
elk, moose, black bear and mountain lion. The species maps describe the
expected distribution and for a few species, relative density of these species.
FWP used the habitat base map, FWP staffs general knowledge of the area and
FWP incident or game damage reports to develop these general maps. FWP is in
the process of compiling and displaying a more complete wildlife -human conflict
database (which includes domestic animals, black bears, mountain lions and
grizzly bears), for the entire region. It is important to keep in mind that wildlife
resource information and habitats do change with time. It might be helpful to
regularly update habitat, species, or wildlife incident maps.
White-tailed Deer
White-tailed deer can be found throughout the planning jurisdiction even within
the city limits. The density map identifies areas with relatively high occurrence,
15-30 deer per square mile. Since white-tailed deer populations fluctuate with
weather and harvest the numbers may not be as important as the relative
densities. The areas with the greatest densities are those areas with the highest
white-tailed deer habitat qualities (e.g. the Flathead/Stillwater complex), or the
areas which tend to winter large deer numbers (Foys Lake -Lone Pine area).
The white-tailed deer winter range, areas of most importance during winter
months, corresponds closely to the map showing deer density of 15-30 per
square mile. Winter range areas have the greatest thermal cover and/or receive
the least snowfall in most winters. The winter of 1996-1997 has shown that
critical deer winter ranges are even smaller than the areas indicated on this
map. That winter white-tailed deer throughout northwest Montana were
restricted to lower elevation areas wvith a significant amount of thermal cover
(trees to intercept snow), and/or warmer aspects. Within the planning
jurisdiction the high quality thermal areas for white-tailed deer have been the
low elevation conifer stands along the Flathead and Stillwater Rivers and along
the foothills to the southwest. In many areas deer have access to hav stacks,
suburban vegetation and artificial food sources. In these areas they have been
Resources and Analysis Section
Kalispell City County Gre«Yh Policy Plan, June 2001
33A
Figure 6. High -Occurrence Habitat for White Tailed Deer & Mountain Lion
LEGEND
WHTI•STA= Dffit DENSM OF 1530 FU SQUARE MIM
- = AND HIGH FRORABi TT rry OF MOUNTAIN LION OCCURRENCE
FIRa19aa• �a y •• •a• • u
DATA SOURCES,
PARCEL RASE MAP FROM FLATHEAD COUNTY PLATRUUM
VHITE_TAILE➢ DEER AND HOUNTAM QON HABITAT FRCA
HUNTANA FISH, WILDLIFE 6 PARKS, S41`2RHATiUN SE.R :'ICES SNIT, KAL:F= L. HT.
HY➢RULUGY FRUM FEDERAL EHERGENCY HANAGEMENT AGENCY,
NATIONAL FT_UO➢ INSURANCE PROGRAM - FLOOD INSURANCE RATE MAPS
resources pan' An- sis .ci2C LIDrn
Kalispell City CounCy Growrh Policy Plan, June 2001
34A
Figure 7, Elk, Mule Deer and Moose Habitat
LEGEND
-A�
ELK, IMULE DEER,
1®R�.1w1a]IDL
&YEAR ROUND MCO l HABPiAT
and nalvs:s Seddon
Kalispell City Counry Growth Pclicv Plan, June 2001
35A
Figure S. BIack Bear Habitat
a BLACK BEAR HABITAT
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Aeowa7mtaWeti . ptcm,!I?I.a , liblv., Finlay Kf Hydrum ,&
diQitcd s Q7.000. &fflwe, . 'un aY )wudirm bwcaary rom iic F�<m
Ac3iovcil I7 evelopma[OIRc4 iCW"vpeiL:.fT. 52RVIC=S lJM"C
Resources and Amalvsis Section
Kalispell City County Growth Policy Plan. June 2001
36A
Figure 9. Agricultural Soils Classification
LEGEND
FARMLANDS -PRIME
r i PARMLANDS - PRII E IF IRRIGATED
LANDS OF STATEWIDE IMPORTANCE
^Ard SOURCE, IHPOR TAN rAFMLU10S OF 'JFPRR LAle'dE 'r SUR`: C'
9EuP - Sp IL CONEESVATION SEPViCE - SEFiEX3E4 1990
Resources and Analvs,s Sec'uon
Kalispell Clty County Gro,iu,h Policy Plan, June 2001
37A
Mountain Lions
In the winter mountain lions are associated with high density white-tailed deer
winter range. In the summer younger mountain lions will often stay within this
low elevation habitat and take advantage of small mammals and domestic pets.
Mountain lions prefer areas with dense cover (e.g. riparian areas), and/or steep
topography (area southwest of Kalispell). As shown on the map, several
mountain lion incidents (situations where lions have been observed near homes
or have been removed), have occurred within the planning jurisdiction.
Mule Deer
Little is known about mule deer within the planning jurisdiction. A few mule
deer are routinely observed during spring green -up and in the fail in the Lone
Pine State Park area by park personnel. The grasslands and steep topography
of this area provide both good forage and cover during winter and early green -
up areas suitable for mule deer. The Lone Pine Preserve has also been used by
mule deer in the fall to avoid hunters. Extensive development on the open
slopes and within mule deer travel corridors may reduce mule deer use in the
area. Increased developments will also lead to conflicts between deer and
domestic dogs.
Elk
Like mule deer, elk can be found seasonally within the southwest corner of the
planning jurisdiction. The grassy and open timbered warm aspects provide
winter and spring foraging areas. The timbered north slopes may provide
thermal and hiding cover during fall, winter and spring. Elk are also routinely
observed from the Lone Pine Visitors Center during spring and fall.
Moose
Moose are wide ranging animals which are also tied to upland forest and
riparian habitats. Moose are observed within the southwest corner of the
planning jurisdiction and seasonally in neighborhoods along the Flathead and
Stillwater Rivers. An occasional moose will be attracted to ornamental
vegetation within neighborhoods (e.g. Evergreen, Willow Glen area), and need to
be hazed or removed from the neighborhood.
Black Bear
Black bear distribution within the planning jurisdiction is primarily tied to
coniferous or riparian forests. Black bears are common in the forests in the
southwest corner of the planning jurisdiction and, to a lesser extent, within the
riparian forests along the Flathead and Stillwater Rivers. Black bears will be
attracted to home sites which contain orchards, fruit trees, domestic animal
food, or available garbage. A few black bear conflicts (Lone Pine area) have been
reported during the last few years.
Resources and Analysis Section
Kalispell City County Growth Policy Plan, June 2001
38A
Figure 9. Agricultural Soils Classification
LEGEND
FARMLANDS -PRIME
FARMLANDS - PRIME IF IRRIGATED
LANDS OF STATEWIDE IMPORTANCE
BAUD S7URCE: IHTTe T„vr=-PYL.;vDS JF L FLBie--D VaLl-- SUR\'-'
USDA - SOIL cmrsERVALmH SEe :eCz - �E.�IENdE.Q 15.0
Resources and Analysis Section
Kalispell City Counter Growth Policy Plan, June 2001
3-�A
AGRICULTURAL LANDS
Agriculture, including farming, grazing and forestry is the prevailing land use in
most of the planning jurisdiction and a defining element of the character of the
rural planning jurisdiction. As shown in Figure 9 above, a combination of farming
and grazing lands make up most of the planning jurisdiction, except for the
Greater Kalispell urbanized area, the forested foothills in the Foys Lake -Lone Pine
area and the river riparian areas. Using the Important Farmlands Classification
System described below, Figure 9 identifies the lands in the planning jurisdiction
rated as prime, prime if irrigated and lands of state importance, which roughly
cover most of the northwest quarter of the planning jurisdiction. Although a
significant and growing component of the regional economy, agriculture in the
Flathead Vallev is in transition. Among the trends of recent years are the
following: conversion of substantial agricultural land to residential subdivisions,
ranchettes and small farms; conflicts between agriculture and expanding rural
development from nuisance disputes, noxious weeds, dogs and escalating land
costs; diversification into specialty crops, such as peppermint; and increasing
income and employment in the county's agricultural sector during the 1990's (see
further information in the chapter on "Population and Economy").
Three farmland rating systems have been developed for use in Flathead County.
First, the Soil Survey (1960), prepared by the USDA Soil Conservation Service
(SCS), rated soils by "agricultural capability classifications" on a scale of I-VIII,
primarily addressing physical limitations to cultivation. Conventionally, class I -IV
soils were considered well suited for cultivation. Second, SCS developed in 1980
the Important Farmlands Classification System, which uses a broader range of
factors to rate the "farmability" of the soils. This rating system designates
categories of prime, prime if irrigated, lands of state importance, lands of local
importance and other. A third rating system, the Upper Flathead Farmland
Development System (UFFDA), was developed in the early 1980's by the Rural
Resource Development Council (RRDC), under contract to the Flathead
Conservation District as a basis for an agricultural lands conservation program.
UFFDA takes into consideration a broader range of factors that affect a site's
suitability for agriculture, such as the percentage of adjacent land in agriculture,
size of the site, distance from a city, crop yields and irrigation improvements.
Rather than a mapping system, UFFDA is used to rate a site on a scale of 1-300
to compare with other sites nearby or valley -wide. In 1984, however, the Flathead
Conservation District terminated the RRDC and chose not to adopt the UFFDA
system, due largely to opposition from the farming community to a lands
conservation program.
Resources and Analvsis Section
Kalispell City County Growth Policy Plan, June 2001
40A
HISTORIC AND CULTURAL RESOURCES
Historic Districts
Kalispell has four historic districts listed in the National Register of Historic Places
(see Figure 9), which extend over more than eighty blocks of central Kalispell. The
Main Street Commercial Historic District, about three blocks long, is the core of
Kalispell's traditional main street. The Courthouse Historic District focuses on
Flathead County's landmark courthouse, the grounds of which are prominently
encircled by Main Street. The East Side and West Side Historic Districts have
over 1,000 contributing houses, many of which have been restored in recent
years. The Conrad Mansion, located in the East Side Historic Distract. was built
for one of the city's founding fathers, William Conrad. In 1974, the Conrad family
donated the property to the City and it is now operated as a museum. Kalispell
also has individual buildings listed in the National Historic Register outside of
historic districts, such as the Depot building on Main Street. The rich and vaned
architecture of Kalispell's historic resources are a defining feature of the city's
character and identity.
Cultural Facilities
Kalispell has a growing arts community centered in downtown and cultural
tourism is expected to play an expanding role in the local economy. Hockaday
Center for the Arts is a regional museum and gallery located in Kalispell's historic
Carnegie Library building. The City of Kalispell in 1997 allocated funds to restore
Central School near downtown to be converted to a museum complex. Reinforced
by its pedestrian scale and historic heritage the cultural component of downtown
Kalispell also includes several art galleries, seasonal events, an outdoor sculpture
display at Depot Park, a weekly farmers market and holiday parades on Main
Street. Live theater and other performing arts events are held at Flathead Valley
Community College and Flathead High School. Evergreen has a district of bronze
foundries.
CONSERVATION EASEMENTS
Each year hundreds of acres of open riparian lands, wildlife habitat, scenic areas
and farmlands in the Flathead Valley are converted to rural subdivisions and
development. In response, conservation easements have become a popular tool to
protect the public values of these lands as open space. Conservation easements
offer some significant advantages as an alternative to regulation and other
approaches to open space protection: encouraging stewardship by making each
landowner the key player in the conservation process; flexibility to tailor
restrictions to fit each individual site and the landovmer's preferences; a
voluntary, businesslike approach, rather than a confrontational approach; and
long-term protection of the resource for future generations.
Resources and Analvsis Section
Kalispell City Countv GrovTh Policv Plan, June 2001
41A
Figure 10. Historic and Architectural Resources
LEGEND
®
INDEPENDENT PROPERTIES
(ouhide of dirtric )
PROPERTIES WITHIN A HISTORIC DISTRICT
HISTORIC DISTRICT BOUNDARY
—
PRIMARY
D4r4 SOORC& Na tivnal Register of Historic Places,
CONTRIBUTING
Natlo,M Park Ser:4ce,
Onrted States Deoar'.nenc aP the (starer
NON-CONTRIBUTING
Resources and Analysis Section
Kalispell City County Growth Policy Plan, June 2001
42A
A conservation easement is a development right granted by a landowner to a
qualified non-profit organization or a government agency. The landowner
maintains title to the land and can continue to use the land for any purpose
except those prohibited by the granted easement. Tvpically, a landowner would
be interested in preserving wildlife habitat, farm land, historical sites or other
critical areas from development. In exchange for transferring by easement some
or all development rights for the land the owner would receive a corresponding
income tax credit for the lost development potential.
Conservation easements are in place on approximately 1,560 acres of land within
the planning jurisdiction. These include the 744-acre Bibler easement southeast
of Foys Lake, the adjacent 68 acre Wallner easement, the 27 acre Carlson
easement between the Stillwater River and Grandview Drive, the 331 acre and 60
acre Nelson conservation easements along the Flathead River south of Old Steel
Bridge and the 78 acre Peterson easement, also along the Flathead River south of
Old Steel Bridge. Three non-profit conservation organizations are active in
Flathead County: Montana Land Reliance, Nature Conservancy and Flathead
Land Trust. Conservation easements are indicated in Figure 11.
Resources and,Analvsis Section
Kalispell City County Groxz�th Policy Plan; June 2001
43A
Figure 11. Conservation Easements
CONSERVATION EASEMENT N
DATA SOURCE
Resources and Anaivsis Section
Kalispell City Count- Growth Policy Plan, June 2001
44 A
CHAPTER 3
INFRASTRUCTURE AND PUBLIC SERVICES
STREETS AND ROADS
The Kalispell Extension of Services Plan, adopted in 1995, describes and plans for
the expansion of streets, water, sewer, storm drainage, solid waste management,
police protection and fire protection within the city. That document is the source
of much of the technical information in this chapter.
The Kalispell Area Transportation Plan, adopted in 1993, is an addendum to the
master plan under a separate cover. The transportation plan analyzes existing
conditions related to vehicle traffic, transit, rail service, and trails; projects future
traffic volumes; maps a hierarchy of arterial, collector and local streets; and
recommends various improvements to meet future transportation needs. The
Flathead County Road Department and Kalispell Public Works Department staff
have commented that the transportation plan is still current and have
recommended only minor changes or additions to the document.
Street maintenance is a major item in the City and County budgets. Within city
limits the Public Works Department maintains and plows snow on the dedicated
City streets, except for U.S. Highways 2 and 93 which are plowed by the Montana
Department of Transportation. Street sweeping on Highways 2 and 93 is provided
by the City in exchange for two street sweepers provided by the state. The City
plowing equipment and staffing is considered adequate presently, subject to
contracting work out to private operators during unusually heavy snowfall such
as occurred during the winter of 1996-97.
The unincorporated areas of the planning jurisdiction have a combination of
Flathead County roads, U.S. highways and private roads. In contrast to Kalispell,
where nearly all of the streets are public, most of the roads in the county's
unincorporated areas are private. Flathead County has not accepted an_v new
county roads since the 1980's due to the budget constraints of maintaining roads
over the county's large geographic area serving a relatively loco population density.
Most county roads are not paved and the County Road Department has a very
limited budget for paving its existing gravel roads. County Road Superintendent
Charles Johnson commented that a storm drainage plan is needed for Evergreen
and recommended that urban street standards should be met on the urban and
suburban density development occurring outside of city limits surrounding
Kalispell. Design standards for new streets are set in the City and County
subdivision regulations, as well as the City public works standards.
Resources and Anaivsis Section
Kalispell City County Growrh Policy Plan, June 2001
45A
SANITARY SEWER
A sewerage system is a network of sewers used to collect the liquid wastes of a city
for subsequent treatment. The location and capacity of main sewer lines and
treatment plants are a factor in determining both the density and location of
development within a community. Generally the design of main sewer lines and
plant capacity is reflective of anticipated land uses and population projections of a
predetermined "service" area.
In contrast to a pressurized distribution system sewage is collected by a gravity
flow system, wherein sewer lines are laid out in a manner as to flow continually
downhill. Where grades are insufficient to provide gravity flow pumping of the
sewage becomes necessary. Adding pump stations to the system correspondingly
adds expense and maintenance needs and is generally discouraged. The City
system currently contains more than 52 miles of server mains and 16 sewage lift
stations.
The City of Kalispell operates a wastewater treatment plant which provides
secondary treatment with advanced biological nutrient removal. The plant is
located on the south edge of the city on Airport Road. The treatment plant is
designed to accommodate a flow of approximately 3.1 million gallons per day
(mgd). A plant of this capacity is able to serve a population of approximately
31,000. The plant is currently treating an average of approximately 1.85_mgd of
effluent.
High groundwater infiltration and storm runoff inflow are having a significantly
negative impact on the City's collection system. Infiltration and inflow are
extraneous waters which can enter sewer systems and thus reduce the sewage
carrying capacity of the sewer, pump station and treatment systems. As the
amount of infiltration and inflow is reduced the ability of the plant to serve a
larger population is increased. Much of the storm runoff inflow has been
eliminated through construction of underground storm drainage facilities,
elimination of cross -connected stormwater catch basins and disconnection of roof
drains from sanitary sewer lines. As the City's street reconstruction program
continues storm drainage is being improved.
The residents of the Evergreen area are served by the Kalispell wastewater
treatment plant via the Evergreen sewage collection system. This collection
facility was constructed in 1993-94 and is owned and operated by the
independent Evergreen Water and Sewer District. The system consists of 38 miles
of conventional gravity and small diameter sewer lines, 23 lift stations and 10
miles of pressurized sewage force mains. The system is designed to serve 2,500 to
3,000 customers and by contract is allotted a 22% share of the City of Kalispell
wastewater treatment plant's current operating capacity. The Evergreen Sewer
District boundaries are indicated in Figure 12.
The design of new sewage collection systems must meet the current requirements
of the Montana Department of Health and Environmental Sciences, the Montana
Resources and Analvsis Section
Kalispell City County Growth Policy Plan, June 2001
46A
Public Works Standard Specifications, the City's Standards for Design and
Construction and the policies for extending services described in this plan.
Most of the Kalispell senvzce area, which at this time is not developed, will, upon
development, require new sewage lift stations or will impact existing sewage
pumping facilities. The major exceptions are certain areas west of town, where in
many cases gravity sewer extensions can be designed to serve the areas adjacent
to the current city limits. However, as development continues further west,
sewage lift stations will be necessary as well.
Throughout the Kalispell sewer service area there are many high -density
residential neighborhoods utilizing septic sewage disposal. Properties served by
septic systems inside the city limits include lands east of Dry Bridge Park along
Woodland Avenue and South Woodland Drive, and scattered lots west of Highway
93 and north of Three Mile Drive. Plans are being developed to bring these areas
onto the City sewer system in the next five years.
Outside the city limits Kalispell is ringed by areas of high -density residential
development with septic sewage disposal. These include the Ramsgate and North
Haven subdivisions on the northwest, the Two Mile Drive (west of Spring Creek),
and Fo_Vs Lake areas on the west, a slaughter house and trailer park on Airport
Road on the south, scattered development on Willow Glen Drive between Twin
Acres Drive and Conrad Drive on the east, various subdivisions on Whitefish
Stage Road on the northeast, and the Country Estates and Mountain Villa
development on the north. These areas, as well as the Evergreen sewer special
improvement district, comprise the City of Kalispell sewer service. The Kalispell
sewer area and the Evergreen special improvement district are shown on Figure
12. During the next five years and beyond the influences of continued property
development, failing septic disposal systems and the State's Water Quality and
Nondegradation Rule will combine to bring many of these areas onto the City's
sewer system.
The ultimate capacities of the North Village and Evergreen sewer districts are
constrained by the limits of their sewage pumping systems and the lengthy
pressurized force mains which connect them to the City system. Operating with
finite limits the two have allocated their capacities to property within their
respective districts and have little potential for extensions beyond their
boundaries.
Sewer extensions associated with the Evergreen force main are governed by the
policies of the Kalispell sewer department, as properties served by those
extensions will also be customers of the City of Kalispell. The Evergreen force
main is a 14-inch diameter, 5-mile-long pressurized sewer main designed to carry
over 700,000 gallons per day of liquid sewage; the policy for extensions from this
force main are intended to limit the possibility of damage to this vital link between
the Evergreen and Kalispell systems or of an interruption of service. Connections
will be limited to pressurized force mains from lift stations serving neighborhood
collection systems and to minimize the number of connections to the 14-inch
force main, each neighborhood lift station will be designed to
Resources and Analvsis Section
Kalispell Citv County Growth Policy Plan, June 2001
47A
Figure 12. Potential Sewer Service Area
LEGEND
KALISPE" CITY COUNTY PLANNING JURISDICTION N
0 KAL (SPELL CITY LIMITS
EVERGREEN SEWER DISTRICT
POTENTIAL SEWER SERVICE AREA
Resources and Analysis Section
Kalispell ^Ci(C
ounty ounty Growth Policy Plan, June 2001
4B A
maximize its potential service area.
Detailed engineering studies are required to determine the best location for the
sewer lines and lift stations based on individual development proposals, with
consideration given to the long range needs of the area(s) surrounding the
development site.
WATER
It is the stated mission of the City of Kalispell Water Department to provide safe,
potable and palatable water for the needs of the domestic, institutional, industrial
and commercial consumer and to provide adequate pressure and flow to meet fire
fighting and irrigation needs. As growth expands into areas served only with on -
site waste disposal facilities (septic and cesspool systems), on -site water supplies
become more susceptible to contamination. Additionally, the proliferation of aging
septic tanks and cesspools found in the fringe areas of the city poses a threat to
the aquifers that provide the community's water. Therefore, as a measure to
insure the public health, it is desirable to make public water supply available to
those areas contiguous to the city.
Water for the city of Kalispell is supplied by a publicly -owned system of wells and
a natural spring. The pumping station at the spring has three pumps with
capacities of 3,000, 2,500 and 2,000 gallons per minute (gpm), respectively.
Production from the spring is limited to approximately 2,000 gpm to prevent any
potential intrusion of surface water from the adjacent Stillwater River into the
spring. Four wells provide additional water supply from an average depth of 250
feet. The four wells are located at the south edge of the city near the National
Guard Armory, in the center of the city near Depot Park, on Buffalo Hill and near
Flathead Valley Community College. All water, regardless of its source, is
chlorinated to State required levels prior to its delivery into the distribution
system.
Water storage tanks are used to equalize pressure throughout the 54-mile-long
distribution system and to provide emergency supply in case of an interruption of
power or a failure of pumping equipment. They also provide the flow necessary to
meet peak demands. The amount and location of stored water also represents a
key component of the water system's ability to deliver water for the purpose of fire
suppression. The City currently utilizes two storage tanks with capacities of 2.7
million gallons and 1.7 million gallons respectively. A nearby booster station
pumps water into an elevated tank with a 100,000 gallon capacity. This system
serves the upper level pressure zone - those areas of the city generally lying above
3,000 feet in elevation. This portion of the City's system is described in detail in
the 1991 Upper Service Zone Engineering Analysis prepared by Hafferman
Engineering.
Under the requirements of the Federal Safe Drinlcng Water Act (SDWA), the water
supply is tested for a wide variety of contaminants on a regular basis. Extensive
testing for coliform bacteria, giardia cysts, lead and copper, and a wide range of
solvents and pesticides has shown that Kalispell's water is of the highest quality.
Resources and Analysis Section
Kalispell City County Gro«Zh Policy Plan, June 2001
49A
Pending SDWA requirements include additional testing and a comprehensive
backflow prevention program to prevent contamination through siphonage or
back -pressure.
The Evergreen Water District operates a municipal community water system
which originated in 1968. The present system consists of a series of wells with
average daily capacity in excess of 2.25 million gallons. The system also includes
a ground -level storage tank with a capacity of one million gallons. Any discussion
of Kalispell's water service area excludes those areas served by the Evergreen
Water District.
This water service plan in the Kalispell Extension of Services Plan adopted in 1995
was developed to guide the extension of water mains into areas of growth as and
when development occurs. The plan is based on the objective of providing
adequate water flow to meet household, commercial, industrial and irrigation
demands, while meeting fire protection needs as well. The distribution system
must be able to deliver water in sufficient quantity to all residents at all times.
Ideally, a water distribution is of a grid layout with supply and storage facilities
strategically located to equalize pressure during periods of heavy usage. Dead-
end lines should be avoided to eliminate stagnant water and to reduce the
number of customers who would be out of water during periods of line repair.
Water services boundaries for Kalispell, essentially the city limits, and the
Evergreen Water District boundaries are shown on Figure 13.
The provision of water for fire fighting purposes is as important as and as
consumptive as that required for domestic and commercial uses and must be
considered when evaluating transmission, storage and distribution facilities.
Although structure size and type to a large degree determine fire flow
requirements, certain areas of the city and its environs, based on anticipated or
potential land uses, have been identified as needing specific fire flows. As a point
of reference, for single -story structures the available fire flow should be a
minimum of 1,000 gallons per minute (gpm).
Resources and Analysis Section
Kalispell City County Growth Policv Plan, June 2001
50A
Figure 13. Kalispell Water Service / Evergreen Water District Boundaries
LEGEND
KALISPELL CITY COUNTY PLANNING JURISDICTION
KALISPELL CITY LIMITS
EVERGREEN WATER DISTRICT
POTENTIAL SEWER SERVICE AREA
Scaled to Fd Sheet
Resources and Analysis Section
Kalispell Citv County Growth ?odcv'Plan, June 2001
51A
H
STORM WATER MANAGEMENT
Storm water runoff is the water flowing over the surface of the ground during and
as a result of a rainfall or as a result of a snow melt. The primary goal in the
management of storm water runoff is, through the provision of appropriate
facilities, to minimize hazards to life and property. This is accomplished by using
storm sewers to collect and carry rain or surface water to natural water course or
body of water in such a way as to prevent flooding and the resultant damage.
There are seven primary storm water drainage service areas in the city:
• Area 1 drains the northeastern portion of the city east of Highway 93,
discharging into the Stillwater River.
• Area 2 encompasses that area between Highway 93 and Meridian Road north
of the Burlington Northern railroad right-of-way and discharges to the west in
the vicinity of the Old Mill Pond Ditch.
• Area 3 drains that area generally described as being east of Highway 93 and
north of the Burlington Northern right-of-way, as well as about a 15-block
area south of Center Street and east of Main Street. Area 3 drains easterly
into the vicinity of Woodland Park and south to the Stillwater River drainage.
• Area 4 generally includes that area south of the railroad right-of-way on either
side of Main Street and discharges south into Ashley Creek behind the City
shops complex.
• Area 5 is concentrated on Meridian Road and on 7th Avenue West south of
Center Street with discharge into Ashley Creek near the west end of llth
Street West.
• Area 6 consists of what is known as Mosquito Control system and was
formerly operated by the Flathead County Mosquito Control Board. The City
acquired control of the system from the County in 1993. The system's gravity
collection mains run generally along and north of 18th Street from 5th Avenue
East to Airport Road with catch basins at 5th Avenue East, 3rd Avenue East
and at scattered locations on the Outlaw Inn and Diamond Lil's properties.
• A new Area 7 is served by a storm sewer main along 14th Street East between
5th Avenue East and Dry Bridge Park. Drainage from the area east of 5th
Avenue East between 10th and 14th Streets East will flow through Dry Bridge
Park and south to the Stillwater River.
The remainder of the city has, for all practical purposes, no storm sewer
infrastructure. Storm water is drained by flowing along gutter lines and in
streets. Most recent developments within the city limits, which are unable to tie
into existing systems utilize less complex, on -site means of handling storm water.
Resources and Analysis Section
I{alispell City County Growth Policy Plan, June 2001
52A
As new City streets are constructed and as existing streets are improved storm
drainage infrastructure will be installed or improved. Those persons developing
property have the responsibility to convey storm water from their property to an
appropriate point of disposal. The quantity and rate of runoff from a developed
piece of property should not exceed that which would occur had the property
remained undeveloped.
The City also levies a Storm Sewer Maintenance Assessment on properties within
the city limits. Assessments are based on the classification of the property
according to use.
Clean Water Act regulations currently require storm water treatment for urban
areas with populations in excess of 100,000. It is expected that expanded storm
water regulations will apply to smaller communities in the near future.
SOLID WASTE MANAGEMENT
Having a sound waste management system in the city and the county is good for
the environment, providing for waste disposal in an appropriate and well managed
location and good for the economy, being less expensive than hauling wastes to
another county. The Flathead County Landfill, located approximately five miles
north of Kalispell, provides solid waste disposal for the entire county. County
Solid Waste Director Steve Johnson estimates that the landfill site, with 220 acres
of land available, has over a century of capacity. The existing landfill utilizes 59
acres of the site. Several private firms in the Kalispell area provide recycling
services. Private -sector recycling services are an economical alternative to public
services, as various small firms can respond more efficiently to the rapid market
changes that have occurred in the recycling industry during recent decades.
Within city limits solid waste collection and disposal is provided to the majority of
residents by the city of Kalispell and to the majority of businesses by private
hauler. The licensed private hauler in the Kalispell area is Evergreen Disposal.
The City provides weekly residential pick-up for an annual fee (1995), of $70 and
pick-up services are available to businesses more than once a week. The City
utilizes three twe side -arm loaders and two rear loaders for collection and
transportation. In areas outside the city limits and beyond the Evergreen
Disposal service area strategically located public dumpsters are provided by the
County.
POLICE PROTECTION
Within city limits police protection is provided by the Kalispell Police Department;
outside of city limits the Flathead County Sheriffs Office has jurisdiction. The
City and County- also have an interlocal agreement to provide mutual aid upon
request. The Flathead County Jail located in Kalispell serves both the city and
county.
Resources and Analvsis Section
Kalispell City Counnr Grewth Policy Plan, June 2001
53A
The Kalispell Police Department is located in city hall. The department has a total
staff in 2001 of 37, including 29police officers. The number of service calls by the
department has increased substantially over the last decade, faster than the rate
of population growth, as shown in Table 15.
The Flathead County Sheriff's Office is also located in Kalispell. The Office serves
all of the unincorporated portion of the county, an area with a resident population
of approximately 51,571 in 2000. In 2000 the staff of the Sheriff's Office was108
including 45 officers. In 1999 the Sheriffs Office absorbed the Juvenile Detention
Office which added 13 employees to the department. The Sheriff's Office has a
very large service area geographically and the rapid rural growth of the last decade
has stretched the office's resources. The unincorporated population is no longer
concentrated in Evergreen, the Canyon and around Flathead Lake, but is
becoming increasingly decentralized. In addition, staffing and equipment has not
kept up with the population growth. Unincorporated areas are patrolled around
the clock by a maximum of five officers. The Sheriffs common response to new
subdivisions in outlying areas is to expect slow response times and little or no
routine patrolling. Sheriff Jim Dupont commented that service calls responded to
by the office increased from approximately 10,100 in 1990 to 15,800 in 1996 and
to 22, 699 in 2000.
A general guideline for adequate police staffing is one officer per 500 population.
The ratio is approximately one officer to 530 people in Kalispell and one officer to
1,100 people in unincorporated areas. Dilution of the police force hurts
preventive policing most, like routine patrolling and talking to business owners
outside of service calls.
Sheriff Dupont stated that additional jail space will probably be necessary in three
to five years. Preliminary consideration is being given to adding a minimum -
security facility and using the existing facility for maximum security needs. The
existing facility, which opened in 1987, was built to house up to 64 beds and it
currently has 85 beds.
Resources and Analysis Section
Kalispell City County Growth Police Plan, June 2001
54A
TABLE 15. CRIMINAL ACTIVITY TRENDS
1986 1987
1988
1989
1990
1991
1992
1993
1994
1995
Annual %
Chance`
Kalispell Police Department
Service calls (000) 11.5 10.7
11.5
12.4
12.2
120
12.8
12.5
13.7
na
2.2%
Population (000) 11.0 11.7
11.9
12.0
11.9
12.1
12.3
12.7
13.0
13.4
1.7%
Rate of FBI Index major crimes per
10,000
people
All index crimes 131 130
118
105
1,231
1,142
1,236
1,171
1,010
847
Homocide 1 -
-
-
-
-
-
-
-
1
-3.9%
Rape 1 1
-
7
5
1
2
2
5
1
5.7%
Robbery 4 3
4
3
4
4
5
4
1
-
-5.7%
AggraV. Assault 59 26
22
26
20
14
11
12
18
14
-8.2%
Burglary 134 112
81
124
103
114
62
59
120
64
-3.9%
Larceny 927 929
834
833
1,041
963
1,119
1,062
820
735
-0.3%
Vehicle theft 69 36
49
60
58
46
37
31
48
33
-3.9%
Flathead County Sheriffs Office
Population (000) 35.5 37.8
38.3
39.0
40.0
40.4
41.2
43.7
44.6
46.8
2.8%
Rate of FBI Index major crimes per
10,000 people
All index crimes 141 158
136
335
409
702
398
367
392
400
Homoolde 1 2
-
-
-
-
-
-
-
2
-3.8%
Rape 3 4
5
3
6
3
6
5
8
7
13.7%
Robbery - 2
1
1
1
-
1
1
-
-
-5.9%
AggraV. Assault 16 9
7
6
4
6
7
7
13
14
0.6%
Burglary 103 96
70
66
72
240
75
71
81
82
-0.5%
Larceny 244 277
244
235
296
426
285
263
262
271
1.1%
Vehicle theft 31 28
29
25
30
27
23
21
27
24
-2.3%
Judicial District 11 Youth Court (Flathead
County,
excluding
municipal
courts)
Population (000)
38.3
39.0
40.0
40.4
41.2
43.7
44.6
46.8
2.8%
Rate of offenses per 10,000 people
All offenses
232
230
264
321
327
340
371
263
4.9%
YINS, truancy
93
79
76
92
71
62
31
0
-9.6%
Assault
11
8
9
11
17
13
18
12
Crim. mischief, misdem.
19
23
23
27
33
22
18
23
0.3%
Burglary
6
9
13
17
12
14
13
9
3.4%
Theft, misdem.
51
56
75
96
93
82
70
55
1.8%
Disorderly conduct
6
9
12
.'
20
11
11
12
6.0%
` The annual percentage change is based on regression analysis over the multi -year period
Montana Board of Crime Control; Kalispell Police Department Annual Report 1994.
Resources and Analysis Section
Kalispell City Count- Grov�gh Potic, Plan, June 2001
55A
FIRE AND AMBULANCE SERVICE
The planning jurisdiction is served by seven fire departments. Fire protection
within city limits is provided by the Kalispell Fire Department and the remainder
of the planning jurisdiction is served by volunteer fire departments. These include
the West Vallev District northwest of Kalispell, the Evergreen District to the
northeast, the South Kalispell District to the southeast, the Smith Valley District
to the southwest, the Creston District east of the Flathead River and the Somers -
Lakeside District south of the Flathead River. The Kalispell Fire Department and
the surrounding volunteer fire departments also have interlocal agreements to
provide mutual aid upon request.
The Kalispell Fire Department, which is located in city hall, 336 First Ave. East
has 20 full-time firefighters and three chief officers. The city has a fire insurance
rating of five (on a scale of one to ten, ten being unprotected), compared to a
typical rating of eight in the surrounding area. The entire city is equipped with
fire hydrants. At present, Kalispell has three_engine companies and one ladder
company, which is generally adequate for a city of its size. Specifically, the
department is equipped with the following apparatus: a 2000 Smeal Pumper
11500 gpm), a 1987 Mack Gruman Pumper (1500 gpm); a 1973 Superior Pumper
(1250 gpm); a 1978 Seagraves aerial -ladder (95 feet) truck and pumper (1250
gpm); a 1950 Pirsh pumper (750 gpm); and four state -licensed Class A
ambulances. In addition to fire suppression the department also provides fire
inspection and prevention services and works closely with the Kalispell Building
Department to insure that new construction meets fire codes.
Kalispell Fire Chief Ted Waggoner retired with Randy Brodehl as the new chief,
recommended that a fire substation is needed to serve the growing northern
portion of the city, a recommendation that was also included in the previous
master plan completed in 1987. He added that uncertainty about where future
growth will occur makes planning for future substations a challenge. According
to the American Insurance Association, a city the size of Kalispell with its present
equipment and personnel should have a maximum service radius of 1.5 miles or
approximately five minutes. While most of the city meets this standard, a
substantial and growing area to the north is beyond the optimum service area,
including the hospital/medical complex on Buffalo Hill and Northridge, Parkview
Terrace, Buffalo Stage and other north Kalispell subdivisions. South Meadows in
south Kalispell is also at the perimeter of that 1.5-mile radius. Fire protection by
the Kalispell Fire Department is currently provided to areas within the city as far
as 2.9 miles from the downtown station with response times of six to eight
minutes.
Kalispell Ambulance Service is owned and operated by the Kalispell Fire
Department and is funded by user fees. The service area includes all of the
planning jurisdiction and extends 14 miles north, east and west of the city and 25
miles south for emergencies. The department operates four state -licensed, Class
A ambulances. Fifteen personnel are state EMT -paramedic certified, six EMT-D
Resources and Analvsis Section
Kalispell City County Growth Poiicv Plan, June 2001
56A
certified, and one EMT -I certified. Ambulance service is provided under direction
of a medical control doctor at the Kalispell Regional Hospital Emergency Room.
ALERT (Advanced Life Emergency Response Team), helicopter ambulance service
is also available, provided by Kalispell Regional Hospital.
PUBLIC EDUCATION
Primary and secondary schools
There are seven public elementary school districts within the planning
jurisdiction. These are Districts No. 1 West Valley, No. 3 Fair -Mont -Egan, No. 5
Kalispell, No. 15 Helena Flats, No. 29 Somers, No. 50. Evergreen and No. 89
Smith Valley. In 1996 roughly 70% of the elementary enrollment within the
planning jurisdiction was in Kalispell District 5; 20% was in Evergreen District 50
and the remainder was spread between the other districts (see Table 2 above).
Only a relatively small proportion of each of these other districts are located
within the planning jurisdiction. High School District 5 serves the entire planning
jurisdiction.
District 5 has five elementary schools (Edgerton, Elrod, Hedges, Peterson, and
Russell), as well as Linderman (7th grade), Kalispell Junior High School (8th-9th
grades), and Flathead High School (10tl,-12th grades). Flathead High School was
originally constructed in 1903 and completely renovated in 1969. The Evergreen
School District contains two elementary schools -- one has kindergarten through
grade 3 and the other, grades 4 through 8. In addition, a significant proportion of
the students in the planning jurisdiction attend home schools or private schools,
including Trinity Lutheran, St. Matthews, Flathead Christian, and Kalispell
Montessori.
Research from national studies (Carnegie Foundation, U.S. Department of
Education), recommends the following optimum and maximum student body
sizes to best meet the individual and academic needs of students:
• High school: optimum, 1,000 students; maximum, 1,200.
• Grades 7-8: optimum, 650; maximum 700.
• Grades K-6: optimum 300; maximum 350.
Flathead High School in Kalispell had a 1996 enrollment of 2,359 students, far
exceeding optimum school size. The previous master plan recommended in 1987
that a new high school was needed in the Kalispell area. An Applied Technology
Learning Center (ATLC), having more focus on vocational training than a
traditional high school, has been proposed as a new high school to be located at
Flathead Valley Community College. A school bond election held in 1996 to build
the ATLC did not pass in Kalispell in 1996, but the measure is expected to be
reintroduced.
County Superintendent of Schools Donna Maddux, stated that new primary
school facilities are also needed in the Kalispell, West Valley, and Smith Valley
Resources and Analysis Section
Kalispell Cir; County Growth Policy Plan, June 2001
57A
Districts. The Somers School District is currently in the process of constructing a
new school. The Evergreen, Fair -Mont -Egan and Helena Flats Districts east of
Kalispell have had declining enrollment over the last five years.
Flathead Valley Community College
Flathead Valley Community College was established in 1967 in downtown
Kalispell and relocated to a new campus at the north end of Kalispell in 1990.
This fully accredited college offers a variety of academic, vocational and
community education programs. The college's enrollment has grown
substantially over the last 30 years and was 1,744 students in 1996 (Fall
semester).
PARKS AND RECREATION
Parks and open space serve various public purposes: they provide recreational
opportunities and respite for the population, enhance urban and rural aesthetics,
maintain habitat and vegetation and contribute to local tourism. Parks and open
space are of special concern in the Flathead where outdoor recreation has become
part of the regional character and way of life. Typical City and County parks are
only part of the larger open space resources of the planning jurisdiction that also
include conservation lands, urban forest (e.g., tree -lined streets), agricultural
lands, trails and scenic views.
Parks are the core of the local open space system. A community should provide
its residents access to a hierarchy of park facilities to meet local needs. The
following are general guidelines for the adequate provision of parks in a
community:
• Mini parks. These parks are less than an acre in size and serve an area within
a three -block radius. They typically serve specific groups, such as tot -lots in
apartment complexes. Provide 0.25 to 0.5 acres per 1,000 population.
• Neighborhood parks. A desirable size is 15+ acres to serve a 0.25 to 0.5 mile
radius area or up to 5,000 residents. These parks provide for intense
activities, such as ball fields, skating and pools. Provide 1 to 2 acres per 1,000
population.
• Community parks. A desirable size is 25+ acres to serve a 1 to 2 mile radius
area. An example is Woodland Park. These parks provide for diverse
activities. Provide 5 to 8 acres per 1,000 population.
• Regional parks. A desirable size is 200+ acres to serve several communities
within one -hour driving time. An example in the planning jurisdiction is Lone
Pine State Park. These parks have significant natural or scenic qualities.
Activities may include camping, picnicking and boating. Provide 5 to 10 acres
per 1,000 population.
• Linear parks. Size, service area and community need are variable. These are
typically scenic trails for recreational travel, such as hiking, jogging, biking, or
horseback riding.
Resources and Analvsis Section
Kalispell Citv Countv Growth Policv Plan, June 2001
58A
• Special facilities. Size, service area and community need are variable. These
single -purpose facilities include golf courses, fairgrounds and events centers.
• Conservation lands or facilities. Size, service area and community needs are
variable. These are natural, historic, or cultural resources, such as the
Conrad Mansion or Owen Sowerine Natural Area.
The following is an inventory of the City, County and State parks in the planning
jurisdiction, along with their size.
City Parks
Acres
Woodland Park
38.5
Lawrence Park
56.0
Courthouse Park
1.26
Depot Park
2.5
Gallagher Park
2.0
Hawthorne Park
2.39
Lions Park
10.0
Meridian Park
3.3
Northridge
7.15
Park -view Terrace
0.3
Sunset Park
4.55
Thompson Field
2.0
Washington Street Park
1.0
Buffalo Head Park
0.8
Dry Bridge Park
25.0
Begg Park
4.0
Laker and Archie Roe
4.27
Eagle Park
0.25
Heritage Park
2.0
Grandview Drive Park
4.49
Tennis Court Complex
0.2
Central School
0.25
Helen O Neil
0.25
Youth Athletic Field
134.00
TOTAL 306.46
Resources and Analvsis Section
Kalispell City County GrowEh Polio. Plan, June 2001
59A
County Parks
Acres
Mission Village Overlook
1.79
King's Loop
5.21
Evergreen Lions Park
3.36
Northhaven
1.12
Hillcrest
7.0
Two Mile
0.17
Big Sky
0.75
Meadow Hills
2.89
Ashley Creek Greenbelt
9.0
Conrad Complex
23.0
Western Acres
1.79
Foys Lake Boat Access
0.02 (700')
Herron Park
118.7
Owen Sowerine Natural Area
442.0
Leisure Island
89.14
Green Acres
2.54
Wapiti
3.41
Foys School
2.0
Silver Shadows
0.934
TOTAL 714.8
State Parks
Acres
Old Steel Bridge
12.0
Kiwanis Lane
10.0
Presentine Bar
6.0
Lone Pine
161.85
TOTAL 189.85
The Montana Department of Fish, Wildlife and Parks has recommended provision
of a system of trail corridors in the planning jurisdiction focused particularly on
improving public access to the area's rivers and streams, as shown in Figure 14.
Resources and Analvsis Section
Kalispell Citv Countv Growth Policv Plan, June 2001
60A
Figure 14. Trail Corridors
Yfup produced bv-
Lvdia Hmlr
M.=. Pict, V7idlifc & Pan
Lfmm S¢ .Uai[
90 N. Raed
Iialiep L', MT 59901
406-M 4570
TRAIL CORRIDORS
as recommended by Mona Fish, Wildlife & Parks
Albers Equal Ares Pmje iou
Racmmmdsd toil condor dam from Sfmt�a Fva. 'NIdliic&P m?a"mu
Scicm Uai�, Kaiisoul. YL'T. Accommcvdm tail caid¢" digidz a 1
L'�0006vMmaa Feu. �ildlu SPan :ar. .�¢ � a"¢i �alisyL""di' IVT.7R`"fAIICN �C�
R�.ocmmdx t�.alcamdra rsa vcc crsur .:c¢wi¢9a_Sp �m rs'ti:,aLic qua -µ`�
S P3s�P�in Oncmic�5vccai�i HS mogruhy mcrceEiv.,-m Vm r.l a
I�ia-mmmSpercm yszxa5[vc Lbra-o 'm4`di E�wc�zp¢y adraedi ua-ccu
m'.:100,00J. Qfeb,ed .lv . g Ty su m bmaacem from �.c Pmh:.� Acg�aval / f C "" •�"
I?cveiopmmr OfFcc, Ke4�o:ll..5rf. ==.4VICL5 W. If
Resources and Analvsis Section
Kalispell City County Growth Policy Plan, June 2001
61A
OTHER PUBLIC FACILITIES
City Offices
City Hall, located downtown at 312 First Avenue East, was constructed in 1979.
The building is occupied by the Citv's council chambers, administrative offices,
public works department, police department and the fire department. The
Building Department and the Planning, Economic and Community Development
Department are located on Third Avenue East at Third Street.
Kalispell City Airport
Kalispell has a 55 acre general aviation municipal airport that has two fixed based
operators. It basically serves the independent, non-commercial pilots and has
approximately 35,000 operations per year. An additional 10 acres to the
southwest of the runway intended to be leased for hangars and other airport
related uses. An urban renewal district was created in and around the City
airport to provide revenues for upgrading the facility. The goal would be to
upgrade the airport to provide a safe, efficient airport and to gain an FAA B-2
visual status. The airport would then comply with FAA standards and gain a
NPIAS (National Plan of Integrated Airport Systems), designation. The FAA has
provided funding to develop a master development plan for the airport upgrades.
An urban renewal district has been created to assist in funding upgrades to the
airport. Sales of City owned property around the airport in Haven and Daley
fields, the leasing of property for a youth athletic complex from the state at the
northwest corner of Highway 93 and Four Mile Drive and the relocation of ball
fields has taken place as part of the urban renewal plan for the airport facilities.
A feasibility study by Morrison and Marierele, Inc. dated May 1999 has been
prepared and several alternatives have been outlined. A further study will be
performed assessing the alternatives for upgrading the airport and is
anticipated to be completed by September 2001. Upgrading to a B2 airport
status would provide the potential for a federal match of 90 percent federal and
ten percent local funding.
County Offices
Flathead County offices are located in several buildings in the Kalispell area. The
Main Courthouse, a landmark building individually listed on the National Register
of Historic Places, is located at 800 S. Main. The Clerk and Recorders Office
occupies most of the building. The Board of Commissioners chambers are located
in the adjacent annex building. The Flathead County Justice Center, built in
1987, is located one block south of the Main Courthouse and houses the district
courts, county jail and Sheriffs Office. Other County facilities include Courthouse
East and the Blue Building in central Kalispell and the County Shops on Willow
Glen Drive south of Kalispell.
Resources and Analysis Section
Kahspell Citv County Growth Policy Plan, June 2001
62A
County Library
Flathead County Library is located in downtown Kalispell across the street from
city hall. Flathead County Library provides senoice to the entire county, except
Whitefish which supports its own library through a separate tax district. In
addition, one bookmobile offers library seances to the rural areas of the county.
The structure was originally erected in 1916 and remodeled in 1968 to house the
present library facility.
Cemeteries
There are three cemeteries in the planning jurisdiction. The largest is the Conrad
Memorial Cemetery which is located in the core of the planning jurisdiction. The
other two cemeteries are located on the periphery -Glacier Memorial Gardens to
the north on U.S. Highway 93 and Demersville Cemetery to the south on
Cemetery Road. The later is primarily of historic significance and has almost
reached its capacity.
Resources and Analvsis Section
Kalispell Citv County G=vTh Policy Plan, June 2001
63A
PLANNING AND DEVELOPMENT REGULATIONS
Zoning
Zoning is a set of land use regulations adopted by the City and County. It is the
primary tool for implementing the land use and growth management policies of
the master plan. Zoning regulations have been adopted on all of the lands in the
planning jurisdiction. The City of Kalispell administers the Kalispell Zoning
Ordinance, applicable to the properties within city limits; and Flathead County
administers the Flathead County Zoning Regulations, applicable to the
unincorporated areas of the planning jurisdiction.
One of the primary functions of zoning is to separate incompatible land uses and
development densities into separate districts or zones. Doing so protects property
values and neighborhood character by limiting the type of development that can
occur next door. A second function of zoning is the arrangement of zoning
districts to promote the orderly growth of the community, as indicated in the map
and policies of the master plan. A third function of zoning is a set of development
standards addressing building height, setbacks, signs, parking and other physical
aspects of development that affect neighbors and the general public. The Kalispell
Zoning Ordinance also includes site plan review standards applicable to all
developments in the city and special design review requirements applicable within
Kalispell's redevelopment districts.
Subdivision Regulations
In contrast to zoning which regulates how existing lots may be used and
developed subdivision regulations govern the division of raw land into building
lots. Standards are set for street design; storm drainage; placement of utility
lines; site design, including lot and block layout; parkland and public use
dedications; emergency vehicle use and access; and the legal recording of a
division of land. The Montana Subdivision and Platting Act adopted in 1973
authorizes cities and counties to adopt subdivision regulations and review new
subdivisions. The City of Kalispell administers subdivision regulations for lands
within the city limits and for all lands proposed to be annexed. Flathead County
has jurisdiction for all remaining lands outside the city.
Building Codes
Building codes apply to all construction (e.g., new construction, additions,
alterations, conversions, improvements, remodels, repairs), except that which is
specifically exempted by the code or state law. Building codes set minimum
standards for plumbing, electrical and mechanical installations, construction
techniques and materials, etc. Building codes are not developed at the local level.
Instead, the State adopts nationally recognized codes which are developed and
updated by national code committees. Cities and counties administer the state
adopted codes.
Resources and Analysis Section
Kalispell City County Growth Policy Plan, June 2001
64A
Within its jurisdiction Kalispell administers the Uniform Building Code, the Code
of American Building Officials (CABO), One and Two Family Dwelling Code, the
Uniform Mechanical Code and the Uniform Plumbing Code. Beyond the City
building jurisdiction the Montana Department of Commerce has responsibility.
Within its resource capabilities the State permits and inspects five-plex or larger
residential construction and all commercial construction; however; single-fan-ly
through four-plex residential construction, which is the bulk of rural
construction, is exempt. All electrical wiring requires an electrical permit from the
State whether in or outside of the Kalispell Building Jurisdiction.
While the building codes set minimum construction standards they do not
address zoning. In zoned areas, however, building codes become a major
enforcement tool. If a permit is requested for a use that does not comply with
zoning the permit will be denied.
Extension of Services Plan
The City of Kalispell has adopted an Extension of Services Plan, as required by
Montana annexation statutes, for the extension of City services to areas of the city
not currently served and to lands to be annexed. The Extension of Services Plan
addresses streets, water, sewer, storm drainage, solid waste disposal, police
protection and fire protection. The plan sets an "urban growth boundary" beyond
the city limits, which is mapped as the potential sewer service area. The plan
establishes various policy requirements for extension of services within the urban
growth boundary including, that developers shall be responsible for constructing
all infrastructure to serve proposed development in accordance with City design
standards.
Lakeshore Protection Regulations
The County has adopted Lake and Lakeshore Protection Regulations requiring
permits for construction or other work affecting the lake, lakebed and lands
within 20 feet landward of average high water. General policy criteria for granting
of permits are that construction should not diminish water quality, diminish
habitat, interfere with navigation or lawful recreation, create a public nuisance,
create a visual impact discordant with natural scenic values, or alter shoreline
characteristics. Typical permits regulate the design and construction of docks,
water lines, shore stations, dredging or fill and retaining walls.
Resources and Analvsis Section
I{alispell City County Groweh Pclic,, Plan, June 2001
65A.
DRAFT
With
All Changes by the Kalispell City Council
KALISPELL CITY -COUNTY GROWTH
POLICY PLAN
Without
Appendix A Resource and Analysis Section
August2001
TABLE OF CONTENTS
Page
Introduction.............................................................................. 1
1. Administration................................................................. 4
2. Growth Management......................................................... 7
3. Land Use: Housing........................................................... 10
4. Land Use: Business and Industry ....................................... 13
5. Land Use: Agriculture....................................................... 18
6. Economy.......................................................................... 20
7. The Natural Environment................................................... 23
8. Historic and Cultural Conservation and Urban Design ........... 27
9. Parks and Recreation......................................................... 29
10. Transportation.................................................................. 31
11. Infrastructure and Public Services ....................................... 39
12. Neighborhood Plans........................................................... 48
Introduction
The Kalispell City County Master Growth Policv Plan is an official public
document adopted by the Kalispell City Council and the Flathead County
Board of Commissioners. The plan is not a law or regulation, but rather a set
of advisory guidelines. Although the plan reflects economic, social, and
environmental policy, it is, fundamentally, a guide to the physical development
of the community. The jurisdiction of the master plan, 63.4 square miles in
size, is shown in Figure 1.
A vision statement has been developed for the planning iurisdiction that is
intended to reflect overall ideas about future growth and development in the
planning iurisdiction.
"As the county seat, the Kalispell area will continue to strengthen
its position as the regional commercial and government center for
the Flathead Valley community in creating a diverse economic
base efficient public services a variety of housing options and
serving as a center for higher learning. As new development and
redevelopment occurs it is expected to be in areas where public
services and infrastructure are available Development in the city
/core should preserve and enhance the historical and cultural
heritage of the community. The integrity of the natural and scenic
resources in the area shall be maintained."
The essential characteristics of a mastai: plaq growth policy plan are that it is
comprehensive, general, and long range. Comprehensive means that the plan
applies geographically to the entire community, so as to coordinate its overall
pattern of growth. (Montana law provides that, by mutual agreement of the City
and County, the planning jurisdiction boundary may extend up to 41/2 miles
beyond a city's corporate limits. In this case, the actual boundary extends
between 11/z and 4'/2 miles beyond Kalispell's city limits in 499�; 2001.
Comprehensive also means that the plan gives consideration to all of the basic
functions that make a community work, such as land use, housing, the
economy, the environment, transportation, and public facilities and services.
General means that the plan is broad in scope, focusing more on the forest
than the trees. Accordingly, the plan's format is of goals and policies, rather
than legally described locations, engineered solutions, or detailed regulations.
Long range means that the plan looks beyond the present situation in attempt
to anticipate future problems and opportunities. The period addressed by this
plan is through the year 2010, with a review every five years on revising the
plan if necessary.
Legal foundations of the mas� growth policv plan are found in the
Montana's Local Planning Enabling Act (Sections 76-1-101 through 76-1-606,
MCA) which outlines the contents and process pr-eN4des for the preparation and
use of the naas�aa growth policy plan. These provisions state that the
planning board shall prepare and propose a m Man growth policv plan.
The contents of the plan may include information on land use, demographics,
economics, public services, conservation of natural resources and other related
factors; development and growth plans; and a long-range public works
program. These statutes also state that the city council or county
commissioners shall be guided by and give consideration to the general policy
and pattern of development set out in the master growth policv plan.
Past planning efforts: The existing plan is itself an update of previous versions.
The City of Kalispell adopted its first master plan in 1962. In 1974, the
Kalispell City County Planning Board updated the plan to reflect the changing
conditions in the community. The 1974 plan was re -affirmed in 1978 when
Flathead County and the three cities of Whitefish, Columbia Falls, and
Kalispell jointly undertook the preparation of the Flathead County
Comprehensive Plan. In 1984, the Kalispell City County Planning Board again
undertook the task of updating the plan, a process that was completed in 1986.
Preparation of the plan: The preparation of the current plan has taken ever
tb:Fee several years. The first phase of the process was information gathering
about the planning jurisdiction. A resources and analysis section was
prepared which is includes as Appendix A of the plan. This document whielx
consists of background information on demographics, the economy, population
and housing projections, the environment, and public facilities and services.
Computerized mapping was prepared of the planning jurisdiction, including the
street system, development pattern, zoning, parks and open space, historic
structures, floodplain, hydrology and wetlands, topography, agricultural soils,
and habitat of various wildlife species. In 1997, a public opinion survey on
local growth issues was conducted from a random sample of households in the
planning jurisdiction, drawing a 42% response rate (over 500 returned
questionnaires). The survey results are shown in Appendix B.
The initial drafting of the plan was done by three committees intended to reflect
a cross-section of the community. A business and development committee,
neighborhoods and environment committee, and public facilities and services
committee each prepared their own version of the plan. Afterwards, a
consensus committee combined the three versions of the plan into onto one
draft. This process of drafting of the plan was done in 24 public meetings over
a nine -month period. There was general circulation of the draft plan, a three-
month public comment period and public meetings were held reviewing the
draft.
Follow-up revisions to the draft were made by the planning board who reviewed
the plan during weekly meetings over eight months between February 1999
and October 1999. A formal public hearing was held and the plan forwarded to
the governing bodies to proceed through the adoption process. The city council
reviewed the document and made some modifications before forwarding it to
the county commissioners.
2
^.rLL� elan Growth policy plan components: The plan is composed of the text,
map, and appendices. Each of these components is equally important and
should be considered together in interpreting the plan.
The text contains chapters on land use, the economy, and public services.
Each chapter is organized into a format of interrelated issues, goals, policies,
and recommendations. The "issues" are statements of important trends,
problems, opportunities, and community values. The "goals" are basic, general
statements of the community's aims and priorities. The `'policies" are
guidelines and strategies that implement the plan's goals. The
"recommendations" are specific actions to be taken by the City or County that
implement the plan's goals.
The growth policv plan map can be found in the back pocket of this document
and is a geographic illustration of the plan's goals and policies applied to the
lands in the planning jurisdiction. The map indicates the types of land uses
recommended at each location, representing the plan's recommendation of an
orderly growth pattern. The map indicates the plan's classification (hierarchy)
of major streets. T-ke fnap ^lse she lakes, rivers, streams, floodplain and
steep slopes. The text includes explanations of these map designations within
the related chapters. Like the text, the map is a guideline, and it is intended to
indicate generalized rather than exact locations.
Additional Two appendices of the plan include
neighborhood plans as specialized plan elements. Appendi-E A (the plan's
r.) and Appendix B !r Alt.. of 1997
lq ei= }t !d 1 are baekgFeunda 1, t a
pa,--e€ tie preparatien e€' tiaeiqlan aad are desc�ka-� f � 1
Neighborhood plans have been adopted as appendices of the master plan as
specialized elements, which should comply with the overall Master P growth
policy plan.
3
1. Administration
Administration of the plan and its implementation would be the responsibility
of either of the governing bodies i.e the Citv of Kalispell or Flathead County
Board of Commissioners Kalispell has a council / manager form of
government There is an eight member council and the mavor who votes on all
matters A full-time city manager administers the day to day business of the
Citv. Flathead County has commissioner form of government with three full-
time countv commissioners who emplov an administrative assistant to assist in
the day to day operation of the countv.
Issues:
Cooperation between the City and County is critical to reinforcing an
orderly development pattern in the planning jurisdiction, coordinating
provision of public facilities and services, and addressing the numerous
issues that cross over city -county boundaries. This plan may extend up
to 4.5 miles beyond city limits, as enabled by Montana statutes, to
provide for joint city -county planning efforts.
2. Public involvement plays and important role in the development review
process.
Goals:
FOSTER CITY -COUNTY COOPERATION, PARTICULARLY IN MANAGING
GROWTH AND COORDINATING PROVISION r9 PUBLIC FACILITIES
AND SERVICES. PROMOTING COOPERATION BETWEEN KALISPELL,
EVERGREEN AND FLATHEAD BUSINESSES.
2. ENCOURAGE THE COUNTY TO ZONE PROPERTY WITHIN THE
POTENTIAL UTILITY SERVICE AREA AS SHOWIN IN FIGURE B
CONSISTENT WITH THE CITY'S ZONING AND DEVELOPMENT
STANDARDS TO PROVIDE GREATER CONSISTENCY WITHIN THE
JURISDICTIONS.
3. THAT A MEMORANDUM OF UNDERSTANDING BE SIGNED BETWEEN
THE CITY AND THE COUNTY THAT WOULD FORM AN AGREEMENT
BETWEEN THE PARTIES TO ADHERE TO:
• URBAN AND RURAL DEVELOPMENT STANDARDS.
• SUBDIVISION PLAT REVIEW PROCESSES.
• ANNEXATION POLICIES INCLUDING TRANSFER OF COUNTY ROADS
TO THE CITY.
• EXTENSION OF MUNICIPAL SERVICES INCLUDING SEWER. WATER.
• PUBLIC SAFETY AND EMERGENCY SERVICES AND FACILITIES.
• COORDINATION OF GEOGRAPHIC INFORMATION SYSTEMS.
BUILDING CODES AND HEALTH DEPARTMENT RESOURCES.
El
4. THAT THE CITY AND COUNTY IDENTIFY WAYS TO SHARE EQUIPMENT
AND OTHER RESOURCES TO INCREASE THE EFFICIENCY OF LOCAL
GOVERNMENT OPERATIONS.
S. THAT THE CITY AND COUNTY MEET PERIODICALLY WITH THE SCHOOL
DISTRICT, PUBLIC UTILITY AND SERVICE PROVIDERS TO SHARE AND
COORDINATE LONG-TERM PLANS FOR CAPITAL EXPENDITURES.
FUTURE DEVELOPMENT PLANS AND UTILITY EXTENSIONS.
Policies:
1. Use this plan as a central policy document to guide development and
growth in the planning jurisdiction.
2. Zoning regulations should conform to the provisions of this plan.
3. Initiate city -county agreements or programs which would cooperatively
influence the amount and type of growth within the planning jurisdiction
and address all impacts of development.
4. This plan, jointly adopted by the City and County, should be used when
considering all development decisions.
5. Coordinate development codes in the city and the rural portion of the
planning jurisdiction to promote the orderly expansion of the city.-
6. To remain current, there should be a review every five years and revising
the plan, including neighborhood plans, if necessary. Plan amendments
outside of these comprehensive updates should be viewed cautiously
and based primarily on unanticipated changes in circumstances.
7. Comprehensive updates should be considered when there is a major
change in circumstances within the planning jurisdiction such as a
significant increase or decrease in population, changes in economic
trends and conditions or significant changes in public infrastructure
such as sewage treatment facilities or new roadways.
8. The plan amendment process should provide ample opportunity for
public participation.
9. Notice of public hearing shall be given a minimum 15 days prior to the
hearing in a paper of general circulation for plan amendments and
updates and in accordance with state statutes.
10.As city boundaries expand, periodically consider expansion of the
planning jurisdiction boundaries up to the 4.5-mile limit.
ll.Written plans stating how the public will be informed regardine
development projects can ensure the integrity of the public review
process."
Recommendations:
1. New and existing neighborhood plans should be consistent with the
growth policy plan.
2. Neighborhood plans should be reviewed every five years to determine
whether the plan is still relevant and whether or not changes should be
made.
3. The policies of this plan should be implemented through the zoning and
subdivision regulations.
4. Develop a cooperative relationship between the elected officials,
government agencies, service and utility providers that results in
consistent development standards, efficient use of public infrastructure
and resources, and quality development.
A
2. Growth Management
Growth in the planning jurisdiction has been cvchc with bursts of growth and
then a leveling of the uow th rate During the early part of the 1990's there
was a relatively high level of growth that stabilized during the last half of the
1990's. Affordable housing, delivery of services. location of new development
redevelopment of the existing urban core and quality of life are all issues that
have increased in significance during this period of growth
Issues:
1. Kalispell is a growth area. The population of the planning jurisdiction
grew from 1990 to 1999-2000 dramatically. Growth rates have
fluctuated between moderate and high levels making land use and
planning difficult.
2. Growth has had positive and negative effects on the local quality of life.
Along with a good economy and many examples of well designed
development, the impacts of growth have also included disruption of
neighborhoods, strain on public facilities and services, environmental
impacts, increasing housing costs, and changing cultural values.
3. Zoning regulations have been adopted throughout the planning
jurisdiction. Most of the outlying zoning districts were adopted between
1987 and 1993.
4. While periods of rapid growth have increased support for new and
stronger government controls on private property, local public
acceptance of new restrictions has tended to come slowly and has been
mixed with apprehensions and opposition. For example, in 1994 the
year old county building permit program was rescinded by a referendum
vote. In 1996, a substantial effort was put forth to update the county
master plan (which did not address lands in this jurisdiction), proposed
as a basis for countywide zoning, was likewise rescinded by a
referendum vote. The issue of private property rights continues to be a
matter of public discussion.
S. Dispersed development in outlying areas has been the predominant local
growth pattern of recent decades. In 1960, 77% of the planning
jurisdictions residents lived in Kalispell, but by 15995 2000, the
proportion had fallen to 49% 49%. Factors in this urban to suburban
shift include national trends toward suburban and rural growth, the
appeal of the Flathead Valley's rural setting and a variety of public
policies that have made dispersed suburban development more
attractive than concentrated urban development.
6. Along with the predominant growth pattern of dispersed development,
there has also been a growth trend of reinvestment and land
development in established urban areas, drawn by convenience, variety,
stable neighborhoods, and small-town quality of life. The more
traditional development patterns of this trend differ from suburban
design; they include redevelopment, medium densities, grid streets, less
parking, and mixing of different land uses and densities closer together.
Finding ways of making infill growth more attractive and economical is
necessary to equalize the trend toward dispersed development.
7. Using the HUD definition of affordable housing, only 11% of the homes
for sale in Kalispell are affordable for 70% of the households in the area.
Any growth management policy should consider the affordability of
housing.
Goals:
1. ENCOURAGE COMRAG THE EFFICIENT USE OF LAND, ORDERLY
GROWTH CONSISTENT WITH HIGH QUALITY OF LIFE, FISCAL
SOUNDNESS, ENVIRONMENTAL CONSERVATION, AND COMMUNITY
VITALITY.
2. IMPLEMENT A COMPREHENSIVE, EFFECTIVE GROWTH
MANAGEMENT PROGRAM THAT UPHOLDS THE GENERAL WELFARE
OF THE COMMUNITY AND INCORPORATES CONSTITUTIONAL
PROTECTIONS OF PRIVATE PROPERTY RIGHTS.
3. ENCOURAGE HOUSING TYPES THAT PROVIDE HOUSING FOR ALL
SECTORS AND INCOME LEVELS WITHIN THE COMMUNITY.
4. NEW COMMERCIAL DEVELOPMENT SHOULD OCCUR IN AREAS
WHERE PUBLIC WATER AND SEWER ARE AVAILABLE.
Policies:
1. Encourage resolution of disputes involving land use policy by broad
participation, education, compromise and consideration of private
property rights. Maintain mechanisms to provide for open, well
publicized processes.
2. Encourage fle,,dble government policies for development and
infrastructure within urban areas.
3. Provide for conservation of established single-family housing areas with
significant design integrity, such as Kalispell's historic districts.
4. Affordable housing shall be recognized as a primary consideration within
this jurisdiction when adopting or amending land use regulations. The
ability of the average wage earner to either buy or build a home is an
essential component of the standard of living, quality of life, and general
welfare in our community.
5. When enacting land use regulations, individual property rights should
be protected in accordance with the constitutions of the United States
0
and the State of Montana. Individual property owners have the right to
sell or to manage their own property as they see fit as long as their
actions do not adversely impact the rights of others. Private property
shall not be taken or managed for public use without just compensation
to the owner.
6. Design and locate development to protect public health and safety;
insure adequate provision of services; fit the character of its
surroundings; and encourage the most appropriate use of land
throughout the planning jurisdiction.
7. Development by the public sector should comply with the same rules as
that of private sector development. Encourage, where feasible,
development by the private, rather than public sector.
8. The governing bodies within the planning jurisdiction shall conduct
public hearings on proposed subdivisions in accordance with state and
local provisions.
9. The governing bodies will evaluate subdivision based upon criteria
required under state and local regulations including impacts on services
and infrastructure, effects on wildlife and wildlife habitat, effect on
agriculture and the health, safety and welfare of the public in general.
Recommendations:
1. Adopt a municipal annexation program coordinated with the City of
Kalispell Extension of Services Plan to annex urban fringe developments.
2. Use the Kalispell service area boundary as defined in the Kalispell
Extension of Services Plan as a wide when deciding the future use and
densities m a particular area
3. Continually monitor, update, and streamline development codes to keep
abreast of changing trends and technologies, to simplify the development
review process, and to avoid unnecessary costly delays in processing
applications.
4_ Amend zoning regulations to enable implementation of the policies
herein.
S. Encourage infill housing where public services are available.
B
3. Land Use: Housing
Providing adequate affordable housing within the planning jurisdiction has
become an important issue. Inflation of housing prices, increased demands
due to population increases and an expansion of service related jobs have
resulted in a critical need for additional moderate to low income level homes.
There is also a need for more diverse housing types such as townhomes, multi-
family and accessory dwellings to accommodate smaller households.
Issues:
1. As population growth continues over the next two decades, the demand
for housing is projected to grow by approximately 900 new dwelling
units per five-year period in the planning jurisdiction.
2. The combination of rapid inflation of housing prices and an expanding
proportion of service related jobs has produced a significant shortage of
low- and moderate -income housing.
3. Kalispell has a high proportion of seniors. While most local housing
consists of single-family detached houses, demand is growing for a mix
of housing types, such as more one -person households, assisted living
housing for seniors, townhouses, apartment buildings, accessory
apartments, and second homes.
4. Most residents in the planning jurisdiction object to having single -wide
mobile homes in their neighborhoods, even though manufactured
housing presents an affordable housing alternative and is becoming
more acceptable because of improved quality of construction and
improved financing.
Goals:
1. PROVIDE AN ADEQUATE SUPPLY AND MIX OF HOUSING THAT
MEETS THE NEEDS OF PRESENT AND FUTURE RESIDENTS IN
TERMS OF COST, TYPE, DESIGN, AND LOCATION.
Policies:
1. All residents should have the opportunity to live in neighborhoods that
provide safe and affordable housing.
2. Encourage the development of urban residential neighborhoods as the
primary residential land -use pattern in the planning jurisdiction.
10
3. Urban Residential:
a. Urban residential areas shown on the plan map should be
encouraged to be developed where adequate services and facilities are
available.
b. Typical densities are three to twelve dwellings per gross acre.
c. Single-family houses are the primary housing type. Duplexes, guest
houses, accessory apartments, and small dispersed areas of multi-
family housing are also anticipated.
d. Urban and high density residential areas should be fully served by
urban infrastructure and municipal services, including paved streets,
curbs, sidewalks, boulevards public sewer and water.
e. These areas should have convenient access to neighborhood
business districts, parks, and elementary schools.
4. High Density Residential:
a. Typical densities are eight to twenty dwellings per gross acre,
occasionally reaching up to 40 dwellings per gross acre as may be
appropriate to the site.
b. Small high -density residential districts are encouraged to be
dispersed throughout the urban area. These districts should be
located predominantly near schools, employment and service centers,
and urban arterials.
c. Multi -family housing developments should be designed to fit
compatibly within larger single-family neighborhoods.
d. Townhouses are encouraged to be a primary housing type in these
areas. Additional common housing types include low-rise
apartments, duplexes, manufactured home parks, and upper floors of
mixed -use buildings.
e. High -density residential districts may be mixed with professional
offices and various low -intensity commercial and institutional uses,
particularly where located along urban arterials.
f. In transitional areas zoned for multi -family residential use but
developed primarily as single-family houses, conversion of existing
houses to offices is encouraged, in order to maintain investment in
the existing building stock and ease the land -use transition.
g. These areas should be within close proximity to small parks or
common open spaces. Encourage the location of buildings to create
engaging, centrally located courtyards.
h. These areas should be fully served by urban infrastructure and
services.
5. Suburban Housing:
a. Densities should be appropriate to the limitations of the particular
site, and should not exceed two dwellings per gross acre.
b. The suburban residential designation is intended to reduce density
and development impacts in sensitive areas and existing rural
neighborhoods.
c. Single-family houses are the primary housing type.
11
d. These areas should have paved streets, as appropriate to the area,
and access to services. New subdivisions located in or near Kalispell
should generally include sidewalks where appropriate and
installation of low intensity street lighting appropriate to the area.
6. Provide an adequate supply of affordable housing to meet the needs of
low- and moderate -income residents.
7. Give special consideration to environmental design for seniors, who have
various special needs regarding housing, transportation, handicapped
access, and services.
8. Provide adequate areas and institute appropriate design criteria for
manufactured homes and manufactured home parks.
9. Allow low -impact home occupations which do not undermine a
neighborhood's residential character. Prohibit related outdoor storage
and minimize signage.
Recommendations:
1. Develop and implement an affordable housing strategy to effectively
provide for the needs of low and moderate income residents.
2. Develop programs for rehabilitation of deteriorating and historically
sign cant -housing and infrastructure.
3. Review the zoning text and map periodically to correct any
discriminating or exclusionary requirements and remain current with
changing construction technologies.
4. Establish flexible planned unit development standards encouraging
residential or mixed -use development.
5. Develop a comprehensive sidewalk system in Kalispell, Evergreen, and
the surrounding urban area. .Install crosswalk improvements where
appropriate.
12
4. Land Use: Business and Industry
The Kalispell planning iurisdiction is the retail commercial and government
center for the Flathead Valley. Kalispell's commercial core is generallv more
pedestrian oriented with an emphasis on the historical character of the area
Evergreen has developed around the highway corridor with recent commercial
expansion of businesses that require larger undeveloped parcels The medical
and educational community are also located in the planning iurisdiction and
provide an important contribution to the economic prosperitv of the area
Issues:
1. Spreading out from an historical concentration in downtown Kalispell,
most commercial growth in the Kalispell area during recent years has
occurred along highway commercial strips and centers at highway
intersections. The highway centers are usually anchored by large
discount stores, supermarkets, and/or hotels. The remainder of the
highway strip generally focuses on franchise businesses closer in and
quasi -industrial businesses in outlying areas. Another commercial
center, the hospital area has grown as a major medical and office
complex.
2. The main design advantages of commercial corridor areas are highway
visibility for businesses and concentration of business traffic along
arterial routes. These areas also face design problems: traffic congestion
during peak periods caused by lack of secondary street access; and lack
of bike and pedestrian access and general appeal.
3. Land with commercial or industrial zoning is oversupplied in the
Kalispell area but it an-4 is often in undesirable locations that lack
adequate infrastructure.
4. Downtown Kalispell is an evolving economic and community center.
Retail activity, the social foundation of downtown that draws people
along the sidewalks, has been hurt by the loss of department stores and
general commercial dispersion, but has been reinforced by the
downtown shopping mall and expansion of specialty stores. Major
strengths of downtown are its central location; its density and intricate
mix of land uses, its historic districts and appealing pedestrian
environment, its civic functions as the seat of city and county
government, and its symbolic importance as the center of community.
5. Industrial areas are dispersed in the planning jurisdiction. The largest
districts are North Evergreen and South Kalispell along Highway 93.
Other industrial areas, primarily timber mills and gravel pits, are located
near the east, west, and north entrances of the city.
13
Goals
1. ENCOURAGE THE DEVELOPMENT AND GROWTH OF PROSPEROUS
COMMERCIAL AND INDUSTRIAL DISTRICTS, EACH WITH A VIABLE
MIX OF BUSINESSES, SUITABLE INFRASTRUCTURE, AND A
COORDINATED DEVELOPMENT PATTERN THAT REDUCES BUSINESS
COSTS AND INCREASES SMALL BUSINESS OPPORTUNITIES.
2. NEW COMMERCIAL DEVELOPMENT SHOULD OCCUR IN AREAS
WHERE PUBLIC WATER AND SEWER ARE AVAILABLE.
3. ENCOURAGE DEVELOPMENT AND REDEVELOPMENT IN THE
"TARGET DEVELOPMENT AREAS."
4. HIGH TECH INDUSTRIAL BUSINESS AND E-COMMERCE BASED
BUSINESS ARE ENCOURAGED TO LOCATE WITHIN EITHER THE
COMMERCIAL AND / OR INDUSTRIAL AREAS OF THE PLANNING
JURISDICTION CREATING A MIX OF USES.
5. LARGE SCALE AND BIG BOX RETAIL SHOULD BE ENCOURGAED TO
LOCATE IN A MIXED USE FASHION RATHER THAN AS AN ISOLATED
DEVELOPMENT.
Policies:
1. Central business district:
a. Recognize downtown Kalispell as a center of the community.
b. Maintain a prosperous core of retailers, restaurants, and entertainment
uses that keep downtown active.
c. Reinforce and take advantage of downtown's strengths, including its
higher concentration of people, investment in buildings and
infrastructure, intricate mix of land uses, historic and architectural
character, pedestrian orientation, and visitor attraction.
d. Recognize that there are special parking considerations downtown which
differ from other areas, encourage innovative parking management,
effective regulation of on -street parking, shared parking provisions,
parking standards that encourage reuse of upper floors, and provision of
public parking lots and structures.
e. Encourage the rehabilitation and reuse of existing downtown buildings.
New development should give adequate consideration to downtown's
historic character.
f. Support the concentration of community events, civic functions, and
activities in the downtown.
14
2. Urban Mixed -Use Areas:
a. Encourage the development of compact, centrally located service and
employment districts, in order to improve connections between existing
commercial hubs and surrounding residential neighborhoods.
b. A complete system of pedestrian and bike paths is important in these
areas.
c. Expand the depth of urban highway commercial districts as mixed -use
corridors, in order to provide an alternative to continued linear
commercial sprawl, concentrate more intensive uses along traffic
arterials, improve business district circulation and transportation
efficiency areas, by secondary street access, provide flexibility for larger
development sites, and expand small business opportunities.
d. Within these corridor areas, provide for higher -intensity, mixed -use
areas roughly two blocks (750 feet) deep on both sides of urban
highways. As distance from the highway increases, create a gradual
transition into the residential neighborhoods by reduced density,
increased buffering, and increased sensitivity to compatible design.
e. Avoid premature encroachment into established, intact residential areas.
f. Allow a compatible mix of higher -intensity uses, including general
commercial, light industrial, medium and high -density residential, and
public facilities.
3. Neighborhood Commercial Districts:
a. Establish neighborhood commercial areas designed to provide
convenience goods and services addressing the daily needs of the
immediate neighborhood.
b. Neighborhood commercial districts should generally be three to five acres
in size and be spaced one-half to one mile apart. Sites should be
configured to enable clustering of neighborhood commercial businesses,
encouraging bike and pedestrian where practicable.
c. Uses should be designed, set back, landscaped and buffered to fit the
surrounding neighborhood.
1s
4. Industrial Districts:
a. Designate areas suitable for industrial uses.
b. These areas should have adequate access to rail, highway, and airport
sufficient size to allow for future expansion.
5. Highway Community Entrance:
a. Emphasize the objective of a pleasing entrance to the city that
encourages highway landscaping.
b. In designated mixed use areas, allow for a compatible mix of general
commercial, light industrial, residential, and public facilities. In limited
industrial areas, allow light industrial uses which do not create off -site
impacts.
c. Encourage the use of innovative land use regulations to achieve a
pleasing community entrance.
d. Encourage highway commercial and industrial development in the
planning jurisdiction to adhere to the following design guidelines:
1. Encourage access by a secondary street or use of shared driveways
and interconnected parking lots where secondary street access is
unfeasible.
2. Landscape highway frontage, parking lots, to enhance development
sites and soften the visual impacts of development.
3. Keep signs simple, to reduce clutter and allow rapid comprehension
of highway motorists without undue distraction. Encourage variety
and creativity in sign design.
4. Outdoor storage, machinery, utilities, trash dumpsters, service bays,
antennas, rooftop equipment, and similar accessory facilities should
be hidden or screened from public view to protect aesthetic qualities.
S. Outdoor lighting should be low intensity, directed downward, and
shielded to prevent glare.
6. Target Development Areas
a. Target development areas are generally identified as the southwest part
of Kalispell around the City airport the northeast area at West Reserve
Drive and Highway 93 the Center Street area the area around Highwav
35 and LaSalle Road in Evergreen and as indicated as ellipses on the
Plan map..
b. The target development areas are where commercial and / or light
industrial development or redevelopment is encouraged. Integration of
residential uses within these areas are also encouraged.
16
c. In general, the northwest area is intended for commercial development
and the southwest area is intended for industrial development
d. The railroad tracks west of Highwav 93 should be abandoned to allow for
redevelopment of the area for quality commercial development and or
expansion.
Recommendations:
1. Historical character of the downtown area should be enhanced with
compatible architectural design of buildings.
2. Adequate consideration should be given to parcel boundaries to avoid
splitting the lot into separate use districts when reasonable.
3. Establish a landscape fund for landscaping along the community
entrance corridor.
4. Encourage the development of compact, centrally located service and
employment districts, in order to improve connections between existing
commercial hubs and surrounding residential neighborhoods.
5. Large scale development can have significant impacts on the community.
Studies, including analvsis, should be provided to assist in assessing
impacts related to traffic schools economic development and other
public services.
17
5. Land Use: Agriculture
Agricultural preservation and maintaining the rural character of some areas of
the planning jurisdiction have become increasingly difficult issues because of
the decline in commodity prices and increased development pressures. Rural
areas immediately surrounding the Kalispell and Evergreen become important
to these urban areas for future development.
Issues:
1. Agricultural lands provide a source of food and wood products, export
income, scenic open space, wildlife habitat, and a fiscally efficient use of
rural land.
2. Agriculture in the (City -County Planning Jurisdiction) although a
significant and growing component of the regional economy, is in
transition. Among the trends of recent years are the following: conversion
of agricultural land to residential subdivisions, ranchettes, and small
farms; conflicts between agriculture and expanding rural development
from nuisance disputes, noxious weeds, dogs, and escalating land costs;
diversification into specialty crops.
3. Lands close to the city are an important part of the county's agricultural
land base. However, there is a fragile balance between the remaining
agricultural lands and their ability to continue to support the county's
agri-business base.
4. Conservation easements and similar voluntary mechanisms have
become successful methods of conserving agricultural land, but no local
government programs currently exist to purchase development rights.
5. High land costs are a —major impediment to getting into the farming
profession.
Goals
1. MAINTAIN A STABLE, VIABLE AGRICULTURAL INDUSTRY
2. ENCOURAGE VOLUNTARY CONSERVATION OF AGRICULTURAL
LANDS.
3. RECOGNIZE THE NEED OF AGRICULTURAL LANDOWNERS TO HAVE
OPTIONS WITH WHICH TO MAXIMIZE THEIR RETURN ON THEIR
PROPERTY.
4. CLUSTER DEVELOPMENTS ARE ENCOURAGED IN THE RURAL AREAS
OF THE COUNTY THAT ARE WITHIN THE URBAN SERVICE AREA AND
A PROVISION SHOULD BE CREATED THAT ALLOWS FOR THE
REDEVELOPMENT OF THE OPEN SPACE AREA WHEN UTILITES ARE
AVAILABLE.
18
Policies:
1. Encourage and create incentives to conserve agricultural lands
Encourage rural growth to areas, which are not environmentally
sensitive or productive agricultural lands.
Encourage the use of conservation easements, clustering or other
options to protect productive agricultural lands in rural areas.
4. Develop innovative land use policies, which protect the agricultural land
base in the county.
S. Open space areas in cluster developments that are located in close
Proximity to the city limits should be considered as an urban reserve
area so that it can be redeveloped when public services and utilities
become available.
Recommendations:
1. Cooperation between the city and county governmental bodies should be
fostered so that redevelopment of the rural areas close to urban services
can be easily accomplished.
2. Rural areas of the planning jurisdiction that are in close proximity to the
city limits should be developed in such a wav that accommodates future
redevelopment such as a minimum lot size requirement of 10 to 20 acres
or through cluster developments.
19
6. The Economy
The Kalispell area is the commercial, governmental and educational center of
the Flathead Vallev with a diverse economic base. Retail and general
commercial development is a major component of the economv as well as
tourism, manufacturing and medical. Wood products and agriculture are also
an important economic components although there has been a decline in these
-sectors of the economv over the past decade as a result of complex local
national and international policies relating to these industries.
Issues:
1. The Kalispell area functions as the population and commercial center of
Flathead County and portions of four surrounding counties. Major
industrial, health care, and government facilities are also located in the
Kalispell area.
3. Per capita income in Kalispell Flathead County during 1990 1998 was
comparable to the eeunty a3ad state average, but it was only f7-% 82% of
the national average.
4. The economic base (export industries) of the Kalispell area and Flathead
County is diverse by Montana standards. During the 1990's, the
county's leading (primary or base) industries of retirement income, wood
products manufacturing, tourism, federal government, microelectronics
manufacturing, metal refining, railroad, and agriculture experienced
significant income growth. Though not conventionally considered an
industry, local retirement income is substantially higher and growing
faster than any of these other sources of export income.
5. The service sectors of the economy (including retail, services, real estate,
finance, insurance & government) employed 70% 68% of the county
worlpforce in 1990 1999 and have created most of the new jobs since
that time. The service sectors include most higher paying professional
jobs, as well as low -wage jobs.
6_ Business and industry benefit from being able to locate in healthy
business districts and a quality built environment. Sound infrastructure
planning, growth management, and environmental protection offer
opportunities to strengthen the local economy.
20
Goals:
1. PROVIDE FOR AND ENCOURAGE AN ADEQUATE SUPPLY OF JOBS,
HIGHER MEDIAN INCOME FOR THOSE JOBS, AND A STABLE.
DIVERSIFIED ECONOMY.
2. ENCOURAGE THE LOCATION OF HIGH TECH INDUSTRIAL BUSINESS
AND E-COMMERCE BASED INDUSTRIES IN EITHER THE
COMMERCIAL OR INDUSTRIAL AREAS OF THE PLANNING
JURISDICTION.
Policies:
1. The Rpenernie 19Pve}epCommunity Economic
Development Strategy is the central document for guiding economic
development efforts in the planning jurisdiction.
2. Encourage a land -use pattern that supports viable business and
industrial districts that integrate a residential component but does not
negatively impact well -established residential neighborhoods. Provide
adequate space for growth. Carefully review the type, location, and
design of industrial sites, shopping areas, and tourist facilities.
3. Provide for adequate infrastructure and public services to support viable
business and industrial districts.
4. Work with educational institutions such as the Flathead Valley
Community College to provide technical education and training
programs that meet the needs of new or expanding job markets.
S. Work with business and industrial associations to promote and
coordinate business and industry in accordance with the master plan.
6. Work with economic development organizations to further master plan
goals and policies and to encourage countywide coordination of their
efforts.
7. Support the Kalispell area's position as a regional commercial center and
a location of major health care, government, and industrial facilities.
8. Support activities to ensure that the Central Business District remains
strong and viable. For example, provide for adequate off-street parking;
protect and promote the historic district; make downtown more
aesthetically appealing; cater to the needs of the pedestrian, promote
downtown events and activities; encourage a healthy mLK of retail,
restaurants, services, entertainment, and housing.
9. Support amenities and activities that promote the Kalispell area as a
retirement, tourism, convention, and arts destination.
21
10.Explore development of "spin-off industries."
Recommendations:
1. Support the formation of business improvement districts (BID) to
strengthen area commercial districts.
2. Coordinate with Jobs Now Job Service and other organizations to
develop lobs with a "living wage."
3. Pursue grants to help with economic development and locating
businesses within the planning iurisdiction.
22
7. The Natural Environment
Important natural resource and environmental factors in the planning
urisdiction include hvdrolo,-�yfloodplain air quality steep slopes soil
limitations, wildfire hazards, important habitat and important aericultural lands
The topography and geography of the Kalispell planning jurisdiction presents
certain development constraints due to hvdric soils steep slopes floodplain and
other soil limitations Most of the planning jurisdiction consists of nearly level
alluvial lands. bottom lands and low terraces. The Flathead, Whitefish. and
Stillwater Rivers in the eastern half of the planning jurisdiction are part of a large
riparian complex which creates a large floodplain area Steep slopes in the
southwest portion of the planning jurisdiction pose limitations to development
The steep slopes in combination with timberlands create wildfire hazards
Productive farmlands in the southern and northern part of the planning
jurisdiction provide an important element to the cultural, economic and historic
element in the planning jurisdiction.
Issues:
1. The natural environment in the planning jurisdiction is an important
part of what makes the area a nice place to live.
2. Various key sectors of the county's economy depend upon and
impact the natural environment. Protecting the health and integrity
of the natural environment is important for maintaining our
competitive advantage with other regions.
3. The farming, ranching, and forestry industries contribute
significantly to the quality of the natural environment by providing
open space that functions in a practical and productive manner.
4 The confluence of the Flathead, Whitefish, and Stillwater Rivers is
part of a large riparian complex of swales, streams, wetlands, and
alluvial terraces that spans most of the eastern half of the planning
jurisdiction. These sensitive areas pose significant development
limitations primarly due to the presence of the 100 year floodnlain_
S. The hillside areas in the southwest corner of the planning
jurisdiction are sensitive areas, posing development limitations due
to soil disturbance and erosion. high risks from wildfire and
important wildlife habitat.
6. Environmental awareness and accountability has been and
continues to be important to the communities in the Kalispell City -
County planning jurisdiction to reduce nutrient loading and other
forms of water contamination to the Flathead River.
23
7. Air quality in most of the planning jurisdiction has surfaced as a
problem primarily due to road dust resulting in particulate matter.
Most of the planning jurisdiction has been designated as anon-
attainment area that does not meet national air quality standards
due to small particulate matter.
8. Water quality is an important issue within the planning jurisdiction
which has the potential to be degraded by dense development due to
erosion, stormwater discharge and on -site sewage treatment
systems.
Prime farmlands in rural areas are being converted from agricultural
to residential uses due to depressed commodity prices and increased
development pressures.
10. Important wildlife and wildlife habitat is being displaced by
residential development through the construction of driveway.
homes and fencing resulting in the destruction of habitat and
interruption of wildlife corridors. Feeding wildlife and loose dogs are
also a threat to wildlife and wildlife habitat.
11. Visual clutter resulting from poorly designed parking lots that lack
landscaping, obtrusive signage, overhead utilities and automobile
oriented design of commercial areas that lack pedestrian amenities
and reflect franchise architecture.
12. Areas disturbed during development of subdivision roads, building
sites and other construction activity can contribute to erosion and
the spread of noxious weeds if not property revegetated and
maintained
Goals:
1. ENCOURAGE DEVELOPMENT THAT IS COMPATIBLE WITH OR
ENHANCES NATURAL RESOURCE VALUES INCLUDING AIR,
WATER, SOIL AND VEGETATION.
2. DEVELOPMENT IN ENVIRONMENTALLY SENSITIVE AREAS
SHOULD BE ACCOMPLISHED SO THAT THESE FEATURES ARE
LEFT IN A RELATIVELY UNDISTURBED STATE.
3. HIGH LEVELS OF AIR QUALITY AND WATER QUALITY SHALL BE
MAINTAINED THROUGH DESIGN STANDARDS.
4. IMPORTANT WILDLIFE HABITAT AND TRAVEL CORRIDORS
SHOULD BE CONSERVED AND MAINTAINED.
24
Policies:
1. Significant environmental impacts attributable to new development
should be identified and m tigated, where necessary.
2. Encourage infill, clustering, and other compact development patterns to
lesson impacts on sensitive lands.
3. New development should consider the "sensitive lands" shown on the
plan map including 100-year floodplain and terrain exceeding 30%
slope. This "sensitive lands" designation is not intended to prohibit
development, although lands with severe limitations may be found
unsuitable for development. Rather, this designation identifies areas
where development should be limited, designed, and managed to avoid
and mitigate environmental impacts and natural hazards.
4. Implement measures to assist in meeting the water quality and load
reduction targets for Flathead Lake and its tributaries as recommended
by the Montana Department of Environmental Quality and Flathead
Water Quality Distric
5. Development in areas that have known high groundwater should be
restricted until such time as public sewer is available.
6. Filling of wetlands and the 100 year floodplain should be avoided.
7. New commercial and industrial development and residential
subdivisions should be accessible by paved roadways to protect air
quality.
8. Noxious weed controls should be implemented through revegetation of
disturbed areas immediately after development and adequate controls
after development.
9. Diversion, channelization and diking of natural rivers and streams
should be avoided.
lO.Protection of wildlife and wildlife habitat should be encouraged through
conscientious actions such as avoiding loose dogs, avoid feeding large
wild animal species and maintaining established important habitat
areas.
11.Wildlife travel corridors should be conserved and maintained possibly
through easements or other voluntary restrictions.
12.Visual clutter that compromises the built and natural environment
should be avoided by requiring underground utilities in new
development, avoiding ridgeline or hilltop development, encouraging
simple and unobtrusive signs and avoiding excessive lighting.
25
Recommendations:
1. City county government should coordinate to develop a community -wide
drainage plan encompassing the city and surrounding suburbs, to
reduce water pollution and flooding.
2. Coordinate waterfront regulatory programs involving floodplain, habitat,
and water quality.
3. Limit and mitigate impacts related to outdoor lighting, and noise.
4. Protect the Evergreen Alluvial Aquifer and other shallow aquifers as
sensitive water quality zones and establish performance standards.
5. Develop and implement a non -point source pollution abatement plan for
the planning jurisdiction.
6. Develop and implement a water quality clean-up plan for Ashley Creek.
7. Develop and implement a storm water management plan for northwest
Kalispell and the Spring Creek drainage.
8. Develop and plan for the incremental paving of all roads within the
Kalispell planning jurisdiction to improve air quality.
9. Require defensible space standards be implemented for development in
areas that are at high risk of wildfire.
IO.Develop policies and programs that will help to educate and assist the
public in the eradication and control of noxious weeds.
11.Develop standards that would limit ridgeline and hilltop development in
highly visible areas of the planning jurisdiction.
12.Review and revise sign standards and policies so that e,,dsting non-
conforming signs are eliminated through a more aggressive attrition
program.
13.Encourage design standards for commercial proiects that contribute to
the character of the community area.
26
8. Historic and Cultural Conservation and Urban Design
The Flathead Valley is rich in cultural and natural history. The Kalispell
townsite was initially developed in the late 1800's and early 1900's Manv of
the historical buildings that were constructed during that time still remain and
plav an important role is defining the rich historical and cultural character of
the community and neighborhoods.
Issues:
1. Kalispell's "National Register" historic districts include more than 1,000
houses, a substantially intact Main Street, and the courthouse circle
area —all built during the city's first fifty years. This heritage gives
central Kalispell much of its charm and character.
2. Historic landmarks outside the City of Kalispell have not been
inventoried.
3. The "character" of the built environment, its patterns, landmarks, and
familiar features, add to the community's quality of life and its
attractiveness as a retirement and tourism destination. Rapid local
growth and change, as experienced in recent years, can either enhance
or undermine local character, depending largely on how it is planned
and managed.
4. The degree of social interaction and cohesion in a community is
substantially influenced by the design of the built environment. For
example, Kalispell's traditional townscape of main street and
neighborhood streets is designed for walling, for seeing and meeting
people on the street, for knowing one's neighbors and neighborhood.
The building blocks of this traditional townscape are a consistent
pattern of small city blocks and an abundance of design features that
make streets charming places to walk.
Goals:
1. DOCUMENT AND CONSERVE OUR HISTORICAL AND CULTURAL
HERITAGE THROUGHOUT THE PLANNING JURIDICTION FOR THE
BENEFIT OF PRESENT AND FUTURE GENERATIONS.
2. ENCOURAGE HIGH QUALITY DESIGN THAT IS PEDESTRIAN
ACCESSIBLE AND PROMOTES SOCIAL INTERACTION.
27
Policies:
1. Development and other changes in neighborhoods, historic districts, and
downtown should be encouraged to be compatible with the scale,
patterns, landmarks, and architecture of its surroundings.
2. Identify historic and cultural resources, and encourage the upkeep and
rehabilitation of historically and culturally significant structures and
sites, consistent with national rehabilitation guidelines.
3. Discourage the demolition of historically or culturally significant
structures and sites.
4. Support the efforts of private owners and conservation groups to
identify, protect, rehabilitate, and reuse historic and cultural resources.
S. Encourage the design of urban public spaces (such as local streets and
public squares) to be central areas framed by buildings, creating an
intimate visual quality of partial enclosure.
6. Encourage the design of urban streets to be walkable, public spaces,
giving consideration to the following guidelines:
• Block size should be small, for convenient circulation.
Avoid excess road width that encourages speeding and makes
pedestrian crossing difficult.
7. Encourage the design of new development to relate to significant
features of the surrounding area.
Recommendations:
1. Establish a local heritage commission to identifv local landmarks, review
alterations of these landmarks, expand public outreach and education
and further historical and cultural conservation goals.
28
9. Parks and Recreation
Recreational opportunities within the planning Jurisdiction are provided
through City, County and State park systems as well as private lands These
Parks provide a diversity of recreational opportunities from small neighborhood
Parks and walking trails to larger recreational facilities for organized sports
events along with an increasing network of bike and pedestrian trails There
are also some small private parks public golf courses rivers lakes and private
timber lands that contribute to recreational opportunities in the area
Issues:
1. With the popularity of skiing, golfing, biking, jogging, hiking, camping,
hunting and fishing, outdoor recreation is a defming feature of local
culture. Outdoor amenities and park space are highly valued in the
Flathead Valley.
2. Park space serve various public purposes: they provide for respite,
recreational opportunities, and organized sports; enhance urban and rural
aesthetics; conserve habitat and the natural landscape; and contribute to
the local economy. The planning jurisdiction's open space system
includes parks, recreational facilities, conservation easements, golf
courses, public land and state waterways.
Goals:
1. PROVIDE A BALANCED DISTRIBUTION AND DIVERSITY OF
RECREATIONAL FACILITIES AND PEDESTRIAN/BICYCLE PATHS
THROUGHOUT THE PLANNING JURISDICTION PROVIDING ACCESS TO
ALL AGE GROUPS AND INCOME LEVELS.
2. CONSERVE AND ENHANCE EXISTING PARKS AND PARKLANDS.
Policies:
1. Build on the existing parks inventory- to provide a unique park system
that benefits residents and the regional economy.
2. Plan for the future conversion of railroad right-of-way to integrate a linear
park running east -west through the city, connecting Woodland Park,
Lawrence Park, downtown, and the west Kalispell bike and pedestrian
trails.
3. Provide a balanced mix of parks and recreational facilities to meet local
needs, which would include:
• Mini parks
• Neighborhood parks
• Community parks
• Regional parks
29
• Linear parks
• Special facilities
• Conservation lands or facilities
4. Earmark cash in lieu of parkland funds to expand public waterfront
access and use in close proximity to where funds originated.
5. Insure that habitat qualities of the Flathead/Stillwater River Complex
remain viable while also increasing its availability by the public to enjoy
these amenities.
Recommendations:
h Develop a public trail system to link the city to surrounding suburbs
and nearby rivers, streams, and lakes. Use Intermodal Surface
Transportation Efficiency Act (ISTEA) passed in 1991 and the
Community Transportation Enhancement Program funding to expand
the city/ county trail system.
2. Expand Kalispell's street tree program citywide.
3. Follow state guidelines for accepting and selling park lands, accepting
cash gifts, and accepting cash -in -lieu of land in subdivisions.
4. Identify and support public purchase of potential future park of lands
within the floodplain in the city county planning jurisdiction.
5. Encourage public use conservation easements and other creative
methods of open space conservation.
6. Encourage the establishment of homeowners' parks within residential
subdivisions in the county to be owned and maintained by the
Homeowner's Association. When subdivisions are close to or adjacent to
school yards, coordinate the development of tot lots and neighborhood
parks with the school district, where appropriate.
30
10. Transportation
This section is essentially an Executive Summary of the Kalispell Area
Transportation Plan and includes a brief discussion of existing conditions, a
proposed Major Street Network System, a recommended bypass route and
short and long term recommendations for improving the transportation system
in and around Kalispell. The supporting documents underlying this section are
"The Kalispell Area Transportation Plan" and 'The Kalispell Bypass Feasibility
Study", both dated October, 1993, which have been adopted in their entirety as
elements of this plan.
Issues:
1. Overall traffic volumes in Kalispell have grown considerably over the last
10 years and are forecast to continue to increase over the next 20 years.
2. Idaho Street and Main Street traffic volumes exceed 21,000 vehicles per
day, resulting in congested traffic conditions periodically during the day.
3. Main Street/Idaho Street intersection traffic exceeds its capacity during
summer tourist traffic flows and throughout the year. However, total
traffic at the intersection has increased little over the last ten years.
Traffic continues to increase on adjacent parallel streets as traffic diverts
to avoid the Main/Idaho intersection.
4. Up to 12 percent of traffic on US 93 passes through Kalispell without
making a stop; the majority of traffic on the highway makes at least one
stop in Kalispell.
5. Truck traffic and large recreational vehicles account for as much as 14
percent of total traffic on US 93 north of Reserve, while accounting for
only five percent of total traffic on US 2 west of West Springcreek Road.
6. Traffic and pedestrian safety are issues especially in outlying areas
where narrow rural designed roadways exist with no provision for
pedestrians or bicyclists.
7. The narrow two-lane segment of Whitefish Stage Road between Oregon
Street and the Stillwater Bridge carried 7,518 vehicles per day in 1997
and the segment of Whitefish Stage Road south of West Reserve Drive
carried F 00 4,284 vehicles per day in 1993 1997- Whitefish Stage
Road and is projected to carry approximately 15,000 vehicles per day by
2015.
8. There is no connection between Highwav 93 and Whitefish Stage Road
i.e. an extension of Grandview Drive.
9. No program is currently in place to upgrade substandard streets in the
city limits to Citv standards.
31
10.Excess traffic along Third Avenue East and Fourth Avenue East
degrades the residential character of the area.
11.There is no connection between Woodland Avenue and Seventh Avenue
East.
Goals:
1. PROVIDE A COMPREHENSIVE CIRCULATION SYSTEM, WHICH
SERVES THE COMBINED NEEDS OF THE COMMUNITY, PLANNING
JURISDICTION AND REGION AND PROVIDES SAFE, CONVENIENT AND
ECONOMICAL ACCESS TO ALL THE FACILITIES THROUGHOUT THE
AREA.
Policies:
1. The administration of traffic flow shall be implemented to minimize
congestion, encourage commerce and protect the safety and quality of
life in the community.
2. Street improvements that would accommodate significant traffic
increases should be subject to review, by affected neighborhoods and
agencies.
3. Coordinate land use and transportation. Locate higher -density
development near arterial and collector streets.
4. Discourage heavy traffic and through -traffic in residential areas
5. Reserve arterial and collector roads to carry through -traffic. Provide lot
access by local streets to the maximum extent feasible. Reserve
adequate right-of-way for designated arterial and collector roads on
lands proposed for new development.
6. Support the expansion of transit services, such as Eagle Transit
Services, as appropriate to meet the mobility needs of seniors, disabled
persons, and the general public.
7. Develop a pedestrian -bicycle system to supplement the auto -oriented
street system and to meet local transportation and recreation needs.
Proposed Major Street Network
This plan identifies the proposed major street network and classification
system in the planning jurisdiction in Figures 1 and 2 and defines the
characteristics of each functional classification below. The arterial and
collector designations identify how the street system functions; this designation
in itself is not intended to be a plan for road -widening to accommodate more
traffic. Those definitions are presented with recommended traffic volume
thresholds based on the results of travel demand projections for 2015. The
32
classifications are listed in a hierarchy intended to identify function and the
traffic -carrying capacities on all roads, relative to the others. Table 1 lists each
segment of road by its functional classification.
I. Major Arterials: A major road or highway with moderate to fast speeds and
high traffic volumes. Major arterials provide access to the regional
transportation network. They move traffic across the country, between
cities and communities and/or from one major part of the Planning
Jurisdiction to another. Throughout the Planning Jurisdiction individual
private accesses onto arterials serving adjacent parcels should be
discouraged. Traffic volumes would typically exceed 15,000 vehicles per
day.
2. Minor Arterials: A major road with moderate speeds designed to collect or
move traffic from one major part of the city or planning jurisdiction to
another or to move traffic to or from the major arterial system. Traffic
volumes would generally range from 5,000 to 15,000 vehicles per day.
3. Collectors: A secondary or intermediate street with moderate speeds and
low to moderate volumes. Such streets would collect local traffic from
neighborhoods and carry it to adjacent neighborhoods or transfer the traffic
to the arterial system. Such streets would typically serve a neighborhood or
area of 150 or more dwellings and carry 1,000 to 5,000 vehicles per day.
4. Local: Minor streets intended to serve individual sites, building or lots.
Local streets feed into collectors or provide destination access off of
collectors.
Table 1. Proposed Major Street Network
Major Arterials:
US 2 (including Idaho Street and LaSalle Road)
US 93 (including Main Street and Sunset Boulevard)
Alternate US 93 (new bypass road west of city)
MT 35
Reserve Drive, from US 93 to LaSalle Road
Minor Arterials:
Cemetery Road, from Airport Road to US 93
Lower Valley Road, from US 93 to Willow Glen Drive
18th Street West, from 1st Avenue West to Airport Road
Foy's Lake Road, from South Foy's Lake Road to Meridian Road
Whalebone Drive, from West Spring -creek Road to Foy's Lake Road
1 lth Street, from Sth Avenue West to 4th Avenue East
7th Street West, from Meridian to 5th Avenue West
Conrad Drive, from Woodland Avenue to LaSalle Road
Center Street, from Alternate US 93 to Woodland Avenue
Three Mile Drive, from West Springcreek Road to Meridian Road
Four Mile Drive, from West Springcreek Road to Alternate US 93
Evergreen Drive, from Alternate US 93 to LaSalle Road
33
Reserve Drive, from West Springcreek Road to Alternate US 93
West Springcreek Road, from Whalebone Drive to Reserve Drive
Meridian Road, from Foy's Lake Road to Sunset Boulevard
Sth Avenue West, from I Ith Street West to Idaho Street
+ e Tx cr-eiia , 4+1, c Tx , 4k c«_oet Was+ (moved to
collectors
Airport Road, from Cemetery Road to 18th Street West
1st Avenue East, from Center Street to Idaho Street
3rd Avenue East, from I Ith Street East to Idaho Street
4th Avenue East, from 1 Ith Street East to Idaho Street
Woodland Avenue, from Willow Glen Drive to Center Street
Ti; + fr-era g .7 A 9g++., '/frog-e St.-eet
as
Whitefish Stage Road, from Oregon Street to Reserve Drive
Woodland Park Drive, from Conrad Drive to US 2
Willow Glen Drive, from Lower Valley Road to Conrad Drive
LaSalle Road, from Conrad Drive to MT 35
Helena Flats Road, from MT 35 to Reserve Drive
Collectors:
Kelly Road, from US 93 to Willow Glen Drive
18th Street, from Alternate US 93 to 3rd Avenue East
14th Street East, from 3rd Avenue East to 4th Avenue East
1 Ith Street West, from 7th Avenue West to 5th Avenue West
1Ith Street East, from 4th Avenue East to Woodland Avenue
6th Street, from 5th Avenue West to 4th Avenue East
4th Street, from 5th Avenue West to lst Avenue East
2nd Street, from Meridian Road to Woodland Avenue
Conrad Drive, from LaSalle Road to Flathead River
Appleway, from US 2 to Meridian
Montana Street, from 5th Avenue West to 3rd Avenue East
Oregon Street, from Main Street to 7th Avenue East
Wyoming Street, from Meridian Road to US 93 Sunset Boulevard)
Two Mile Drive, from West Springcreek Road to Meridian Road
Sunnyview Lane, from Sunset Boulevard to Grandview Drive
Northridge Drive, from Hildue Sherry Lane to US 93
Evergreen Drive, from LaSalle Road to Helena Flats Road
Reserve Drive, from LaSalle Road to Helena Flats Road
'll f�refaThree Mil Pr-ivP *R '14FF &te TTC 92
TDrive, Lrem T-we Mi T)e to Ngr+l,ridge Dry
Northern Lights Blvd/Hilltop Avenue, from Three Mile Dr. to Northridge Dr.
7th Avenue West, from Sunnyside Drive to Wyoming Street
5th Avenue West, from Sunnyside Drive to 11th Street West
5th Avenue West, from Idaho Street to Wyoming Street
1st Avenue West, from llth Street West to Center Street
1st Avenue West, from 18th Street West to I Ith Street West (moved from
minor arterials]
Airport Road, from 18th Street West to US 93
New Road, from Sunnyview Lane to Reserve Drive
Grandview Drive, from Sunnyview Lane to Evergreen Drive
1st Avenue East, from US 93 to Center Street
34
3rd Avenue East, from US 93 to 11th Street Wes�East
3rd Avenue East, from US 2 (Idaho Street) to Oregon Street
4th Avenue East, from 14th Street East to 1Ith Street East
4th Avenue East, from US 2 (Idaho Street) to Oregon Street
South Woodland Drive, from Kelly Road to Woodland Avenue
Shady Lane, from Conrad Drive to MT 35
Recommendations:
1. Update the Kalispell Area Transportation Plan by 2003 and thereafter on
a ten-year basis. Within the 2003 update, give emphasis to
neighborhood protection, pedestrian/bicycle circulation, and
downgrading minor arterials through neighborhoods to collector or local
status as appropriate.
2. Study and consider alternatives to using Third Avenue East and Fourth
Avenue East as collector streets.
Recommended Improvements:
This section describes the specific improvements necessary to achieve the
proposed Major Street Network as well as the recommended bypass route.
Table 2 provides a summary of the recommended improvements, listed by their
MDT designation as either urban or rural arterials and collectors, and identifies
estimated cost (excluding right-of-way). Groupings of projects by First Priority
and Second Priority have been determined based on existing versus future
needs as described below.
Recommended Bypass Route:
A priority and companion document to the Kalispell Area Transportation Plan is
the Kalispell Bypass Feasibility Study. Its primary purpose is to identify a
recommended alignment for a US 93 Bypass around the city of Kalispell. In all,
seven different alignments were analyzed. The recommended bypass alignment
ultimately chosen lies on the near West side of Kalispell. The new four -lane
road would begin north of Snowline Drive (HWY. 93 S) and generally follow the
Burlington Northern Railroad alignment north to Foy's Lake Road, cross
through the Forest Products property west of the "Y" in the railroad tracks,
cross US 2 at -grade, then proceed north through the Two Mile and Three Mile
area to Stillwater Road, then north and east to Reserve and US 93. The route
would be a limited access roadway, signed as an Alternate Route to US 93, with
speeds ranging from 40 to 55 miles per hour. (See Figure 7.4) The bypass
segments north of US 2 and the segment of Reserve Drive from US 93 to US 2
(LaSalle Road) could also serve as an alternate route for US 2.
Additional System Improvements:
Improvements included in the First Priority grouping would result in the
greatest benefit to existing traffic system performance. Second Priority projects
will primarily serve future development needs as urban development expands
35
into the adjacent rural areas surrounding Kalispell. Improvements to these
Second Priority roads will also increase safety for motorists, pedestrians and
bicyclists. Other long-term improvement alternatives were considered but not
recommended. A description of these considerations is also provided below.
First Priority Projects:
The following five projects, listed in order of importance to the Kalispell area
street network, are deemed most critical to meet existing traffic demands:
1. Meridian Road between Idaho Street and US 93 North. This segment of
Meridian Road is currently being improved to include feur three lanes from
Idaho Street north to Three Mile Drive and t3:ree two lanes north of Three
Mile Drive to US 93 as an urban minor arterial with curb and gutter and
pedestrian/bicycle accommodations, consistent with city plans to enhance
the quality of the North Meridian neighborhood's residential character.
Tl...+'l. Me,;a;,.r Mahe +e Tl,_ee AA41e This project is planned to go to
contract in the spring of 0991 2003. Purchasing right-of-way is the largest
remaining activity. This project requires a City contribution to address
storm drainage in the area.
West 1.7a e e a l.,_. A., t alt 1,... fthe four lane e l,1a e
2. Tz.St-�a�x�rr+• /�Ox--inl�ixv��sar&�zmr"v'v'�i=i-zvy-o
St., west of !-xAvenae West ; planned to ge- to + +1-e winter of
nnnn The entire roadway be1-...ee4B +l.e 1.....,:11 l.e milled .._.,] then savped
..;+1. piia1+ erl.,.. This e,.+ sel.e.7..led to begin the
`vrrar-m=�&�vxmv--vr�z-ram--rrrr�—j rc7ccrxo �crrc-naxco--c�vcScri--a-r-rric—jc�-
2090.
3 East kla e St (US 2) Ml) 1T has planned to t-y .. "eanerete
uhiteteppiRg" OR ldall.e St., €rem Ia Ave. Le+ +e � Ave. East. They
no,.Pe a.1-. ..+ +l.e ee�pretp, .:11 1..,++e resist ++ ritiS-iv=ra+'cr'pui+ca +ac&t thisiiav�
pr-ejeet s e..l,l ge +e .. ntr- e +l.. r, e . r,+er of nnnn
a
4. US-93, Ashley Creek to Courthouse - MDOT has is aempletin final plans
for this project and are in the process of doing right-of-way appraisals and
acquisition. The current schedule calls for this project to go to contract in
the spring of 2001 with construction starting in spring 2002. Right-of-way
acquisition could delay the project and there is a great deal of City utility
relocation and possible extension of water and sewer.
NORM"
..__ - _ .
1
36
6. Whitefish Stage Road between Oregon Street and Reserve Drive. The road is
recommended for widening and minor realignment to include eight -foot
paved shoulders, improved vertical and horizontal sight distance through
the curves in the vicinity of the Stillwater River, and a center left -turn lane
at major street and driveway intersections. Federal highway funds have
been obtained to complete this project which is in the design phase and will
go to bid in spring of 2002.
7. The Edgerton Trail is proposed to be approximately 1.6 miles long with an
eight foot wide asphalt bike/pedestrian path to be located along the west
side of Whitefish Stage Road. The project begins at Reserve Drive on the
north and goes south to the area of R.J.'s Northern Park where it will
terminate and was completed in the fall of 2000. Qqnstraetien is
8. Willow Glen Drive from US 93 to Conrad Drive. This two-lane rural arterial
road is recommended to be widened to include paved shoulders, improved
sight distance and left -turn lanes at Kelly Road, Woodland Avenue and
Conrad Drive.
9. LaSalle Road Extension. (Conrad Connection) LaSalle Road is recommended
to be extended south of the US 2/MT 35 intersection to Conrad Drive. This
improvement will provide a more direct connection from the Central
Business District via 2nd Street/Conrad Drive and from Willow Glen Drive
to US 2 north.
10. 18th Street Extension. 18th Street is recommended to be extended west to
connect with Sunnyside Drive and Valley View Drive as a two-lane collector
road. This improvement will provide a desirable additional east/west
connection from existing US 93 to the proposed western bypass route along
the BNRR right-of-way.
11. Kelly Road Upgrade - Kelly Road between Hwy. 93 and Willow Glen Drive
needs to be upgraded to a better standard. Currently the road has ponding
and slumps. Increased traffic in the area can be anticipated with increased
growth. Some improvements to the intersection of Hizhwav 93 and Kelly
Road will be undertaken with the upgrade of Highwav 93 in the spring of
2002.
Second Priority Projects:
1. Existing US 93. The¢stiing .a lane se-mett ()A- � 4 TrS t
Gr,,, an .,:eia,,,,_ Mi_lp Dfiypto Rese__e _a south of the Courthouse to
Ball's Crossing is recommended to be widened to include four through
travel lanes plus center turn lane.
2. Constructing a connector street between Sunnyview Lane and Conway
Drive will be accomplished as a private road as part of Kalispell Regional
Medical Center's master plan for the hospital upgrade. The current street
system requires going back to the highway to make this connection.
37
3. Construct a connector street between Woodland Avenue across railroad
tracks to Seventh Avenue E.N. to provide access to Idaho Avenue.
4. Reserve Drive between US 93 and US 2. This two-lane major arterial is
recommended to be widened to include four through travel lanes and center
turn lane.
5. Existing Rural Minor Arterials. Table 7-2 outlines existing rural minor
arterial road segments in need of widening to include paved shoulders,
improved recovery zone, and left -turn lanes at major intersecting streets or
drives. These road segments include West Springcreek Road, Stillwater
Road, Four Mile Drive, Whalebone Drive, Foy's Lake Road, Conrad Drive,
Helena Flats, Reserve Drive west of US 93, Three Mile Drive and Evergreen
Drive from Whitefish Stage Road to LaSalle Road.
6. New Rural Minor Arterials. Two new segments of rural minor arterial road
are also recommended to be added to the system to provide increased
accessibility by completion of the mile grid network of roads. These new
road segments are the extension of Four Mile Drive to the proposed bypass
and the extension of Grandview Drive/Evergreen Drive from US 93 east to
Whitefish Stage Road. Both road segments cross difficult terrain and may
require a curved alignment off the section line to negotiate the steep slopes.
The segment of Evergreen extension will also require a new bridge over the
Stillwater River and environmental impact mitigation considerations.
7. Existing Rural Collectors. Seven Several existing rural collector road
segments are recommended for widening to include paved shoulders and
left -turn lanes at major intersecting streets. These roads include Two Mile
Drive, Evergreen and Reserve Drives east of LaSalle Road, and Center Street
o,...- ed y o..t t.. tl. o pre p es a El 1..p as (iir-b an ..'.11 ec,#R« ..,:#4q_4. e t., 1:.-..;ts)
8. Existing Urban Minor Arterials. Three existing urban minor arterial road
segments are recommended for improvements including Grandview Drive,
7th Avenue East north of Idaho and Four Mile Drive west of US 93.
9. At -Grade Railroad Crossings. At -grade railroad crossings may be affected
by improvements or traffic diversions to Meridian Road north of Center
Street, 3rd and 4th Avenue East and Reserve Drive west of LaSalle Road.
Road improvement plans should address rail crossing safety by considering
individual crossing geometrics, signalization, signing and pavement
markings and MDT road design standards, policies and procedures.
10.If the BNRR tracks are abandoned through the city, conversion of the right-
of-way to a new saris net reeeHh-neiaded beeausethepr-afe�ed 4is Rf
that land is a eentiauai=is commercial area with the integration of a linear
park and bikepath running east -west through the city is encouraged.
Im
11. INFRASTRUCTURE AND PUBLIC SERVICES
Infrastructure and the provision of public services is one of the highest priority
issues for both the City of Kalispell and Flathead County Adequate provision
of services for new development within the planning jurisdiction in both the
rural and urban areas are important considerations when considering growth
policies and planning for future land uses.
STREETS AND ROADS
Issues:
1. Street maintenance is a major item in the City and County budgets.
2. Flathead County has not accepted any new county roads since the
1980's, due to the budget constraints. However the City continues to
accept new roads as properties are developed or annexed into the city
limits.
3. Most roads within the planning jurisdiction are paved but many county
roads are not paved. The County Road Department has a very limited
budget for paving its e:xisting gravel roads.
4. Transportation, road construction and maintenance continue to be a top
priority for residents in the planning jurisdiction.
Goals:
1. All roads, parking lots and allev be paved.
2. Roads are reconstructed and upgraded to urban standards when
needed.
Policies:
1. Require paving of roads allevs and parking lots for new development-
2. Encourage paving of gravel roads when needed
Recommendations:
1. Develop and strategy and mechanism for needed road and street
upgrades.
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SEWER AND WATER
Issues:
1. High groundwater infiltration and storm runoff inflow are having a
significantly negative impact on the City's collection system.
2. Most of the Kalispell service area which at this time is not developed will,
upon development, require new sewage lift stations or will impact
existing sewage pumping facilities.
3. Throughout the Kalispell sewer service area there are residential
neighborhoods utilizing septic sewage disposal.
4. Outside the city limits, Kalispell is ringed by areas of residential
development with septic sewage disposal.
5. Provide safe, potable water for the needs of the domestic, institutional,
industrial and commercial consumer and to provide adequate pressure
and flow to meet fire fighting and irrigation within the jurisdiction.
6. The influences of continued property development, failing septic disposal
systems, and the States Water Quality and nondegradation rule will
combine to bring many of these areas onto the City's sewer system.
7. The ultimate capacities of the North Village and Evergreen sewer
districts are constrained by the limits of their allocation under interlocal
agreements.
Goals:
1. Areas / lots in areas of the city currently using on -site sewage treatment
will be connected to City sewer and water.
Policies:
1. Dead-end lines should be avoided to provide water for fire fighting
purposes.
2. Annexation to the city of Kalispell shall be required when either water
are sewer services are extended to an unincorporated area to provide
services for new development.
3. Areas within the unincorporated area of Kalispell that are receiving
either water or sewer services should be annexed to the citv as part of a
comprehensive annexation plan for the area.
40
Recommendations:
1. Begin a studv and analvsis of expansion of the wastewater treatment
facilities when needed.
2. Develop and adopt a facilities plan that addresses water and sewer
services in the urban area.
STORM WATER MANAGEMENT
Issues:
1. There are no public storm drainage systems in most of the planning
jurisdiction. Storm water retention onsite in small developments is often
overlooked, creating off site drainage problems.
Goals:
1. Develop drainage facilities for all of the urban areas of the planning
jurisdiction.
Policies:
1. As new city streets are constructed, and as existing streets are
improved, storm drainage infrastructure will be installed or improved.
2. The quantity and rate of runoff from a developed piece of property
should not exceed that which would occur had the property remained
undeveloped.
3. As new city streets are constructed, and as existing streets are
improved, storm drainage infrastructure will be installed or improved.
Recommendations:
1. As the city's street reconstruction program continues, storm drainage
should be improved_
SOLID WASTE MANAGEMENT
Issues:
1. The landfill site, with 220 acres of land available has nearly a 100 year
capacity.
2. Several private firms in the Kalispell area provide recycling services.
41
Recommendations:
1. Begin a study and analysis of expansion of the wastewater treatment
facilities when needed.
2. Develop and adopt a facilities plan that addresses water and sewer
services in the urban area.
STORM WATER MANAGEMENT
Issues:
1. There are no public storm drainage systems in most of the planning
jurisdiction. Storm water retention onsite in small developments is often
overlooked, creating off site drainage problems.
Goals:
1. Develop drainage facilities for all of the urban areas of the planning
jurisdiction.
Policies:
1. As new city streets are constructed, and as existing streets are
improved, storm drainage infrastructure will be installed or improved.
2. The quantity and rate of runoff from a developed piece of property
should not exceed that which would occur had the property remained
undeveloped.
3. As new city streets are constructed, and as existing streets are
improved, storm drainage infrastructure will be installed or improved.
Recommendations:
1. As the city's street reconstruction program continues, storm drainage
should be improved.
SOLID WASTE MANAGEMENT
Issues:
1. The landfill site, with 220 acres of land available has nearly a 100 year
capacity.
2. Several private firms in the Kalispell area provide recycling services.
41
3. Solid waste collection and disposal is provided to the majority of
residents by the City of Kalispell and to the majority of businesses by
private hauler. The licensed private hauler in the Kalispell area is
Evergreen Disposal.
4. In areas outside the city limits and beyond the Evergreen Disposal
service area, strategically located public dumpsters are provided by the
County.
Goals:
I. Expand recycling efforts to reduce tonnage at the landfill
Policies:
1. Encourage citizens to recycle all recyclable items
Recommendations:
1. Develop a proactive program that substantially expands recvcling
POLICE PROTECTION
Issues:
1. Within city limits, police protection is provided by the Kalispell Police
Department; outside of city limits, the Flathead County Sheriffs Office has
jurisdiction. The city and county also have an interlocal agreement to
provide mutual aid upon request. The Flathead County Jail located in
Kalispell serves both the city and county and is continually overcrowded.
2. The Flathead County Sheriffs Office is also located in Kalispell. The Office
serves all of the unincorporated portion of the planning jurisdiction.
3. A general guideline for adequate police staffing is one officer per 500
population. In 1999, the ratio was approximately one officer to 530 people
in Kalispell and one officer to 1,100 people in unincorporated areas.
4. The existing jail facility, located in Kalispell, which opened in 1987, was
built to house up to 64 beds, and it currently has 85 beds and it is
anticipated that up to 125 — 130 beds will be needed within the next five
years.
Goals:
1. Ensure that we have safe and healtnv neighborhoods
42
Policies:
1. Adequately staff law enforcement agencies.
Recommendations:
1. Coordinate between law enforcement agencies to provide a seamless
service.
2. Continue to pursue grants to provide funds for staffing and equipment.
FIRE AND AMBULANCE SERVICE
Issues:
1. Fire protection by the Kalispell Fire Department is currently provided to
areas within the city as far as 2.9 miles from the downtown station with
response times to six to eight minutes. Development on the northern
and southern boundaries of Kalispell strain response times.
2. Kalispell Ambulance Service is owned and operated by the Kalispell Fire
Department and is funded by user fees.
3. Fire protection within the city limits is provided by the Kalispell Fire
Department, and the remainder of the planning jurisdiction is served by
volunteer fire departments. The Kalispell Fire Department and the
surrounding volunteer fire departments also have interlocal agreements
to provide mutual aid upon request.
4. Lack of coordination ean arise vAaieh i;1A.XA-1VP 4qUall between fire
districts can create _______c __-_ --- _. - inefficient use of
resources.
Goals:
1. Reduce the citv's Insurance Service Offices (ISO) rating.
2. Develop and automatic aid agreement with fire districts adjacent to the
city.
Policies:
1. As development and redevelopment occur construction shall be required
to comply vrith the Uniform Fire Code.
43
Recommendations:
1. A fire substation is needed to serve the growing northern portion of the
city. According to the American Insurance Association, a city the size of
Kalispell with its present equipment and personnel should have a
maximum service radius of 1.5 miles or approximately five minutes.
2. In some instances small rural fire districts should be reassessed and
merged when practical.
3. Foster stronger relations between rural fire districts and the Citv of
Kalispell.
PUBLIC EDUCATION
Issues:
1. There are seven public elementary school districts within the planning
jurisdiction, some of which are overcrowded and require busing to other
schools.
2. Some of the school districts are at or near full enrollment while others
are seeing declining enrollment.
3. Flathead High School in Kalispell had a 1996 enrollment of 2,359
students, far exceeding optimum school size.
Goals:
1. Provide quality education and a safe environment for all students.
Policies:
1. Support the school resource office program
Recommendations:
1. Pursue additional grant resources.
2. Consideration should be given to siting second high school.
3. Since the college's enrollment has grown substantially over the last 30
years, additional land for future needs should be acquired.
44
KALISPELL CITY AIRPORT
Issues•
1. Kalispell City Airport does not meet the minimum safety requirements
established by the FAA and poses safety problems for its users and
neighbors.
2. The airport has been developed solelv through Citv funding without any
participation from the Federal Aviation Administration.
3. The current airport has not been included in the National Plan of
Integrated Airports Systems (NPIAS) airports because is does not comply
with B-II airport standards.
4. In its current configuration there are penetrations of both approach
services encroachments into the runwav object free area and non
compatible use of the runway protection zones.
5. The general public has unrestricted access to the airport, including the
active runway, due to the lack of complete perimeter fencing.
6. Aircraft storage and parking is inadequate for the current level of use.
7. The airport has inadequate runway lighting.
8. Cost of financing airport improvements exceeds the resources of the
local government.
9. Acquisition of additional acreage will be required for upgrading the
airport to a B-II status.
10.Expansion and upgrade of the airport may require the City to condemn
private property.
11. Kalispell City Airport is the busiest general aviation airport in the state.
12.The airport provides financial and economic stimulus for the city and the
area.
Goals:
1. TO UPGRADE THE AIRPORT TO PROVIDE SAFE EFFICIENT AIRPORT
FACILITIES FOR THE USERS AND NEIGHBORS.
2. UPGRADE THE AIRPORT TO A B-II VISUAL STATUS TO CREATE THE
POTENTIAL TO OBTAIN A FEDERAL MATCH OF 90 PERCENT FEDERAL
FUNDING AND TEN PERCENT LOCAL MATCH.
45
3. DEVELOP AN AIRPORT THAT COMPLIES WITH NPLAS STATUS FOR A
B-II VISUAL AIRPORT.
4. COMPLETE THE AIRPORT STUDY WHICH ASSESES THE
ALTERNATIVES FOR UPGRADING THE AIRPORT BY SEPTEMBER 2001.'
5. FORMALLY ADOPT AN AIRPORT LAYOUT PLAN AS A RESULT OF THE
AIRPORT STUDY.
6. UTILIZE THE REVENUES GENERATED FROM THE AIRPORT URBAN
RENEWAL DISTRICT TO FUND AIRPORT IMPROVEMENTS.
7. HIRE AN AIRPORT MANAGER TO OVERSEE THE DAY TO DAY
OPERATIONS AT THE AIRPORT AND TO MANAGE CITY LEASES.
& CREATE AND OPERATE AN AIRPORT FACILITY THAT IS SELF-
SUPPORTING AND WILL GENERATE SUFFICIENT REVENUE TO COVER
ALL COSTS ASSOCIATED WITH THE AIRPORT OPERATIONS AND
MAINTENANCE.
Policies:
1. Utilize the revenue from the sales of City owned property around the
airport in Haven and DaleV fields as part of the funding sources for the
upgrade of the airport facilities.
2. Encourage the development of the additional 10 acres owned by the City
to the southwest of the runwav intended to be leased for hangars and
other airport related uses.
3. Retain all existing acreage currently owned by the City that can be
utilized as part of the airport upgrade and expansion.
4. Limit the building height of new structures within runway protection
zone to reduce further intrusions and or penetrations which would
result from the expansion of the airport.
5. Ensure that all lease holders and `through the fence" operators
compensate the City at an equitable rate.
6. Refrain from entering into any agreement which grants access to the
public landing area by aircraft normally stored and serviced on adjacent
property.
Recommendations:
1. Complete the airport studv which assesses various alternatives to the
airport upgrade and design_
46
2. Assess the costs associated with the upgrade and identifv funding
sources.
3. Assess the financial, political and social impacts associated with
additional land acquisition.
4. Formally adopt an Airport Layout Plan (ALP) .
5. Once the ALP is adopted, coordinate zoning with the County to reduce
penetrations into the object free area and the runwav protection zone.
6. Hire an airport manager to manage Citv leases and to oversee the day to
day operations of the airport
7. Evaluate the current lease activity and "through the fence" operations to
ensure that equitable agreements are in place.
8. Seek FAA funding for upgrade of the airport facilities to a B-II status.
CULTURAL FACILITIES
The Kalispell planning jurisdiction has numerous cultural facilities. The
Conrad Mansion has been restored and designated a National Historical Site.
The Hockaday Center and Flathead Valley Community College also contribute
to the culture by hosting exhibitions and plays. Recently 2.5 MIL of urban
renewal funds was spent to restore Kalispell's Central School to function as a
museum and historic educational center. However, there is need for a civic
center / multi -purpose facility to host cultural activities and sporting events.
C!I
12. NEIGHBORHOOD PLANS
Within the Kalispell planning jurisdiction several neighborhood plans have
been adopted as an addendum to the Kalispell City County Growth Policy Plan.
Some of the plans exist in a separate plan document while others are attached
in their entirety with this document and are so noted. The following is a list of
the current neighborhood plans and a brief outline of their area and purpose.
Stillwater Destination Resort
In July 1990 the Stillwater Destination Resort Neighborhood Plan was adopted
as an addendum to both the Flathead County Master Plan and the Kalispell
City -County Master Plan. This initially addressed an approximately 300 acre
site lying between U.S. 93 North and Whitefish Stage Road north of the
Stillwater River. The plan was revised in 1992 by adding approximately 40
acres adjoining this property for a total of 340 acres. Approximately 212 acres
of this area is within the Kalispell planning jurisdiction. .
The Stillwater Destination Resort plan calls for an 18 hole golf course and other
recreational amenities covering 160 acres or approximately half of the area.
Single family and townhouse residential development would occupy
approximately 100 acres and hotel / convention facilities and associated
commercial development is proposed on approximately 50 acres. Landscaping,
buffering and the creation of an architectural scheme for all commercial and
residential uses is outlined in the plan. The commercial element of the project
would be developed to serve the golf course community and has been zoned B-
6, Resort Business. The residential element is intended to utilize a cluster
design and has been zone RA-1, Low Density Residential Apartment. No
development has taken place on this property since the plan adoption and
subsequent rezoning. This development project would require the extension of
City services.
Highway 93 Smith (Rescinded)
WIN
--------------
Efl
-------------
48
North Meridian (rescinded in part)
This plan was adopted in December of 1994 and has an area of approximately
314 acres along Meridian Road between Highway 2 and Highway 93 in the city
of Kalispell. The purpose of the plan is to address facility needs and to provide
a more predictable pattern of development. Refer to the overall Kalispell City -
County Growth Policy land use map for specific use designations in this plan
area. MR -St R-f #-4RP i—;��r-matien regarding roadway networks and publie faeilit�es
No=
"INVINNIN
-----------------
-
m
(Rescinded)
West Valley
A portion of the West Valley Neighborhood Plan boundary overlaps into the
Kalispell planning jurisdiction to the west. Basically, the West Valley School
District boundaries were used as a plan area. This plan was developed in
response to long term development patterns which had occurred over the past
30 years under the previous West Valley zoning district and the proposal to
establish a convenience store in the primarily rural and agricultural area. This
plan was adopted in April of 1997 and was the result of nearly one and a half
years of public meetings and committee consideration. Basic goals for the plan
are to maintain the rural character of the area and to provide some flexibility
for subdivision. An amendment to the plan has been made on approximately
112 acres directly adjoining Country Estates subdivision to the west, changing
the land use designation from agricultural to suburban residential and
removing it from West Valley plan area and wholly within the Kalispell planning
jurisdiction.
2 Rivers RV Resort
This plan was adopted in early 1999 with a plan area containing approximately
135 acres intended for development into a "Resort Commercial' project, the 2
Rivers RV Resort. The site is located on both sides of Conrad Dr. in the area of
the Flathead and Stillwater Rivers. The plan includes four districts that would
have a mix of commercial, recreational, residential and commercial a golf
course. A great deal of land proposed for this development is in the 100 year
floodplain and the floodway necessitating the connection to public sewer.
Because this development is outside of the city of Kalispell and the Evergreen
Water and Sewer District boundaries, issues relating to connection to these
50
facilities are unresolved. This development project also assumes the
construction of a roadway between Conrad Drive and Highway 2. No design
plans have been developed nor have funds been allocated for its design and /
or construction.
Department of Natural Resources (DNRC) Section 36
This plan was adopted in April of 1999 to assist the State Department of
Natural Resources with decisions on the future development of school trust
land located in the northwest part of the planning jurisdiction. The State trust
is responsible for managing the 640 acres that comprise "Section 36." DNRC
offices are located on the property. In 1997 the City leased approximately 134
acres to be developed as a youth athletic complex in the southeast corner of
the section. Subsequently the neighborhood plan was developed that
designates development "pods" within the section. Along the highway the
development.pod is designated as Commercial / Retail, the northwest corner of
the section is designed as a Mixed Professional Office area, the southwest
corner is designated as Mixed Use Residential. The plan includes the extension
of City water and sewer to the site to serve the development(s). The State
intends to the lease the sites for development rather than to sell the property
so that the State School Trust will continue to receive revenue from the
property. Build out is anticipated to take between 20 to 50 years.
H:/MSTRPLNS/KCCMP/ UPDATE/ 2001/REVDRAFTOIWALLCHANGES
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