09/04/01 Resolution 4655/Reso of Intent/Master Plan Amendment1 ' - City p of Kalispell
Post Office Box 1997 - Kalispell. Montana 59903-1997 - Telephone (406)758-7700 Fax(406)758-7758
REPORT TO:
FROM:
SUBJECT:
MEETING DATE:
Honorable Mayor and City Council
Chris A. Kukulski, City Manager
Resolution 4655 to Adopt, Revise or Reject a Recommended Amendment to the City
/County Master Plan
September 4, 2001
BACK GROUND: The Kalispell City -County Planning Board on August 14, 2001 considered a request
by Wolford Development Inc. and Stokes and Associates to amend the Kalispell City -County Master Plan by
changing the land use designation of approximately 144 acres of land at the east side of US Highway 2, north
of East Reserve Drive and west of Granite View subdivision from industrial, residential and agricultural to
commercial. After a public hearing and discussion, the Planning Board adopted Resolution KPMA-01-102
approving the Master Plan amendment. The City Attorney has prepared a Resolution of Intention to adopt,
revise or reject the Planning Board recommendation as required by Montana law. We have scheduled a public
hearing for September 17, 2001 and anticipate the Council will consider a final Resolution on October 1,
2001. The Master Plan amendment and public comment will be discussed in detail during a work session
scheduled for September 24, 2001.
RECOMMENDATION: City Council adopt the attached Resolution No 4655 informing the public of the
Council's intension to adopt, revise or reject the Planning Boards recommendation to amend the City/County
Master Plan.
FISCAL EFFECTS: No fiscal effect.
ALTERNATIVES: As suggested by the Council.
Respectfully submitted,
Chris A. Kukulski
City Manager
Report compiled September 29, 2001
RESOLUTION NO. 4655
A RESOLUTION OF INTENTION TO ADOPT, REVISE OR REJECT A RECOMMENDED
AMENDMENT TO THE KALISPELL CITY -COUNTY MASTER PLAN.
WHEREAS, the Kalispell City -County Master (Comprehensive)
Plan was originally adopted by the Kalispell City
Council on October 17, 1974 and by the Flathead
Board of County Commissioners on October 14, 1974,
and
WHEREAS, a comprehensive amendment and update to the
Kalispell City -County Master (Comprehensive) Plan
was adopted by the Kalispell City Council on April
7, 1986 and by the Flathead Board of County
Commissioners on February 6, 1986, and
WHEREAS, Wolford Development Inc. and Stokes and Associates,
on the 9th day of July, 2001, made an application
to amend said Master Plan by changing the
designation on approximately 144 acres of land
located generally on the East side of LaSalle Road
(U.S. Highway #2), North of East Reserve Drive and
West of Granite View Subdivision, described as
Assessor's Tracts 7, 7G, 7J, 7F, and 3BA, Section
28, Township 29 North, Range 21 West, P.M.M.,
Flathead County, Montana, from "Industrial",
"Agricultural" and "Residential" to "Commercial"
and
WHEREAS, on August 14, 2001, the Kalispell City -County
Planning Board held a public hearing, after due and
proper notice, received public comment upon, and
received Flathead County Planning and Zoning Office
report #KPA-01-102, which evaluated the proposal
based upon the goals and objectives of the Master
Plan, the purpose of zoning and current
circumstances in the planning jurisdiction, and
WHEREAS, at the conclusion of said public hearing and after
consideration of the proposed amendment, the
Kalispell City County Planning Board, adopted
report #KPA-01-102, as the findings of fact and
recommended approval of the proposed master plan
amendment, and
WHEREAS, the City Council of the City of Kalispell considers
it advisable that they consider the proposed Master
Plan amendment and the recommendations of the
Kalispell City -County Planning Board, and adopt a
Resolution of Intention to Adopt, Revise, or Reject
a Proposed Amendment to the Kalispell City -County
Master Plan.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF
KALISPELL, AS FOLLOWS:
SECTION I. That pursuant to Section 76-1-604, MCA, the
City Council of the City of Kalispell intends
to consider a proposed amendment to the
Kalispell City -County Master Plan, and a
recommendation by the Kalispell City -County
Planning Board to grant said amendment, said
amendment consisting of changing the plan for
the area described above, from industrial,
residential and agricultural to commercial by
adopting, revising or rejecting said proposed
amendment.
SECTION II. That the City Council of the City of Kalispell
shall hold a public hearing to consider
whether to pass a final Resolution concerning
said amendment to the Master Plan at a meeting
to be held on the 17th day of September, 2001,
at 7:00 P.M., in the Council Chambers, City
Hall, Kalispell, Montana, and subsequent to
the conclusion of said meeting the City
Council will consider Resolutions to Adopt,
Revise, or Reject said proposed amendment.
SECTION III. The City Clerk is authorized and directed to
give notice of said meeting in accordance with
Section 7-1-4128, MCA.
PASSED AND APPROVED BY THE CITY COUNCIL AND SIGNED BY THE MAYOR OF
THE CITY OF KALISPELL, THIS 4TH DAY OF SEPTEMBER, 2001.
Wm. E. Boharski
Mayor
Attest:
Theresa White
City Clerk
NOTICE OF HEARING
Notice is hereby given that the City Council of the City of
Kalispell has a proposal, submitted by Wolford Development, Inc.
and Stokes and Associates, to adopt an amendment to the Kalispell
City -County Master Plan. The proposed revision to the Kalispell
City -County Master Plan has been reviewed by the Kalispell City -
County Planning Board and the Kalispell City -County Planning Board
forwarded to the Kalispell City Council and the Flathead Board of
County Commissioners a recommendation that said proposed amendment
be approved, in accordance with § 76-1-604, M.C.A. The City Council
on the 4th day of September, 2001 passed a RESOLUTION OF INTENTION
TO ADOPT, REVISE OR REJECT A RECOMMENDED AMENDMENT TO THE
KALISPELL CITY -COUNTY MASTER PLAN. Said proposed amendment would
change the Kalispell City -County Master Plan from "Industrial",
"Agricultural" and "Residential" to "Commercial" for certain tracts
of land located East of LaSalle Road (U.S. Highway #2), North of
East Reserve Drive and West of Granite View Subdivision. Said
tracts are generally described as Assessor's Tracts 7, 7G, 7J, 7F
and 3BA, Section 28, Township 29 North, Range 21 West, P.M.M.,
Flathead County.
On the 17th day of September, 2001, at 7:00 P.M. in the
Council Chambers, City Hall, Kalispell, Montana, the City Council
of the City of Kalispell will hold a public hearing on the proposed
amendment and subsequent to said public hearing may consider
passage of a final resolution adopting, revising or rejecting the
proposed amendment to the Kalispell City -County Master Plan. For
further information contact: City Clerk , P.O. Box 1997, Kalispell,
MT, telephone: 758-7756.
Done by order of the City Council this 4th day of September,
2001.
Theresa White
City Clerk
Publish: September 5, 2001
September 12, 2001
August 24, 2001
To: Kalispell City Council
Re: Wolford Master Plan Amendment
Dear Council:
After the public hearing and subsequent action by our Board to recommend approval
of the application for Master Plan amendment by Wolford Development, the board
discussed the mechanism whereby our recommendation and findings would be presented
to the City Council.
It was determined that the only appropriate way for this matter to be presented to the
Council was by the joint board itself. The Flathead County Planning Office, although it
prepared our staff report, does not present matters to the City Council. The Tri-City
Planning Office did not participate in the staff report, public hearing or board discussion
and is not authorized by our Board to present this application or the recommendation to
the City Council on our behalf. Therefore the only appropriate entity to present this
matter to the Council is the joint Board.
The President of the joint Kalispell City -County Planning Board and Zoning
Commission will be available to present the report of our staff and the recommendation
of our Board when it reaches your agenda.
Sincerely,
Gre ttevens
President
Kalispell City -County Planning Board
Flathead on ty Planning & Zoningf ice
723 5th Avenue East - Room 414
Kalispell, Montana 59901
Phone: (406) 758-5965
Fax: (406) 758-5964
August 28, 2001
City of Kalispell
PO Drawer 1997
Kalispell, MT 59903-1997
Re: Master Plan Amendment Request from Wolford Development, Inc.
Dear Mayor and Council:
The Kalispell City -County Planning Board held a public hearing at their regular
meeting of August 14, 2001 at 7:00 PM in the Kalispell City Council Chambers.
During that meeting they considered a request by Wolford Development, Inc. to amend
the Master Plan on approximately 144 acres from a mixture of designations ranging
from Agricultural to Light Industrial to Commercial. The proposed use for this
location is the construction of a 683,000 to 750,000 square foot mall complex.
Forrest Sanderson of the Flathead County Planning & Zoning Office reviewed the staff
report KPA-01-102 and recommended that the Kalispell City -County Planning Board
adopt the staff report as findings of fact and approve the Master Plan amendment.
There were 6 people who spoke in favor, and 9 people who spoke in opposition of the
amendment.
The Board discussed the proposal and considered the public testimony. A motion was
made to adopt staff report KPA-01-102 as findings of fact and recommend approval of
the Master Plan amendment. The motion passed unanimously.
Please place this matter on the agenda at your earliest convenience. You may contact
either this Board or Forrest Sanderson at the Flathead County Planning and Zoning
Office if you have any questions regarding this matter.
Sincerely,
Kalispell City -County Planning Board
41 � I 9�1 ZH.
Greg Stevens
President
GS/fs
Attachments: Memo to Chris Kukuluski
Memo to Mayor and Council
Resolution KMPA-01-102 with Map Exhibit
Kalispell Mayor and Council
Re: Wolford Master Plan Amendment Request
August 21, 2001
Page 2 of 2
Draft Minutes from the 08/ 14/01 Planning Board meeting
Flathead County Planning & Zoning Report #KPA-01-102 and
attachments
Application for Master Plan Amendment
Certification of notice to Adjoining Landowners
Copy of Legal Notice
Planning Board Agenda (8/ 14/01)
CC w/o attachments: Wolford Development, Inc. James L. Wolford, 1200
Mountain Creek Road, Suite 102, Chattanooga, TN 37405
Stokes & Associates, Jean Johnson, 343 First Street West,
Kalispell, MT 59901
L: \... \ KAL\2001 \KMPA-01-102cty
RESOLUTION
CITY-COUNTYAN AMENDMENT TO THE WEST VALLEY NEIGHBORHOOD PLAN AND
THE KALISPELL
A RESOLUTION ADOPTING AN AMENDMENT TO THE KALISPELL CITY
COUNTY MASTER PLAN BY RECLASSIFYING APPROXIMATELY 144 ACRES
FROM AGRICULTURAL, RESIDENTIAL AND LIGHT INDUSTRIAL TO
COMMERCIAL WITHIN THE KALISPELL PLANNING JURISDICTION
WHEREAS, the Kalispell City -County Master Plan was adopted by the
Kalispell City Council on April 7, 1986 with Resolution 3641 and by the Board
of County Commissioners on February 6, 1986 with Resolution 578A; and
WHEREAS, Wolford Development has petitioned for a revision to the
Kalispell City -County Master plan which would change the designation of an
area containing approximately 144 acres indicated on the Kalispell City County
Master Plan Map attached as Exhibit A, and made a part of this resolution from
the current Agricultural, Residential and Light Industrial land use designation
to a Commercial land use designation by enacting a plan amendment for the
property; and
WHEREAS, the Kalispell City -County Planning Board held a public
hearing on August 14, 2001 at 7:00 PM in the Kalispell City Council Chambers
after due notice to the public and received comments upon the proposal and
evaluated the proposed plan amendment in accordance with the goals and
objectives of the Kalispell City -County Master Plan; and
WHEREAS, the proposed amendment would effectively amend the
Kalispell City -County Master Plan by reclassifying approximately 144 acres as
commercial within the jurisdiction of the Kalispell City -County Master Plan
NOW THEREFORE BE IT RESOLVED, that the Kalispell City -County
Planning Board recommends to the Kalispell City County and the Flathead
County Board of Commissioners that the proposed amendment be adopted.
Greg Stuns, President
Kalispell City -County Planning Board
WOLFORD A request for a Master Plan amendment for a land use change
DEVELOPMENT from an Industrial designation to a Commercial designation to
provide for a large-scale commercial facility. The property is
located on the west side of LaSalle and north of East Reserve
Drive.
STAFF REPORT Forrest Sanderson of Flathead County Planning & Zoning Office
reviewed the Evergreen & Vicinity Zoning Map and Master Plan
map for the Board.
Sanderson noted that there is not a statutory guideline for a
Master Plan amendment or adoption. He said the old law -
Master Plan is a may situation, you may address this or you
may address that. That is changing with the growth policy
legislation and the Growth Policy Act of 1999 states that you
will address all of these issues. Sanderson reviewed the issues
he felt were important. Sanderson suggested that if there were
additional issues that need to be addressed he would address
them to his Board at the Special Meeting being held next
Tuesday.
Sanderson said that the request is to rezone approximately 144
acres from a myriad of zoning designations, SAG-10, R-1, I-1H
to B-2, county general commercial to facilitate the construction
of a regional shopping center. Sanderson said it is a
substantial block of land for fairly intensive development. He
noted that in the traditional sense when you look at intensive
development you start with low intensity - Agricultural AG-80
through industrial properties, I-2 in Flathead County being the
most intense use of property which is anticipated to be heavy
industrial. Sanderson added that when you look at the Master
Plan the zoning and the Master Plan maps do not perfectly
mesh with respect to the industrial.
Sanderson stated that the staff recommendation is that the
Kalispell City -County Planning Board and Zoning Commission
adopt staff report KPA-01-102 as Findings of Fact, and approve
the Master Plan amendment.
APPLICANTS / Jean Johnson, Stokes and Associates, stated that they are the
AGENCIES consulting engineering firm hired to provide technical
assistance to Wolford. Johnson introduced Mr. Bucky Wolford,
CEO of Wolford Development, Doug Breckenridge, Architect of
Architects Plus, and Scott Leiams, Vice-president of Wolford
Development and Chad Wolford. Johnson noted that they are in
concurrence with the staff report.
Johnson reviewed the sewer options that include City of
Kalispell, Evergreen Water & Sewer, and on -site systems.
Johnson noted that all three of these options are going to have
to be approved by MDEQ, no matter what they use. Johnson
noted that because of Legislation passed that allows the
Kalispell City -County Planning Board
August 14, 2001 Meeting Minutes
Page 7 of 12
creation of annexation districts, the City of Kalispell would not
have to spend a penny for 10 years, but as soon as the
agreement is signed would be receiving taxes. The developer
would request to be hooked up to city sewer and would, at the
expense of the developer, extend the line from the nearest
facility to the proposed development.
Mr. James L. Bucky Wolford, President and CEO of Wolford
Development, Inc. 1200 Mountain Creek Rd, Ste. 102,
Chattanooga, Tennessee said that he has been in the
development business for 27 years. During that period he
personally developed over 22 million square feet of shopping
center space - 15 enclosed regional malls. One of the first
places he visited after he opened up his company in March of
1999 was Kalispell, MT and Flathead County. He then came
here in the summer of 1999 and was able to negotiate an
option agreement with Ms. Darlene Rothe and her family for
their property. Wolford said that the reason they were
impressed and choose this site is that the site is very centrally
located in the triangle of Kalispell, Columbia Falls, and
Whitefish. In addition it is located on Hwy. 2 which is a main
corridor for Glacier International Airport as well as all the
tourist traffic that is coming from Glacier Park into Kalispell
itself, which is projected about 1 1/2 million to 2 million visitors
a year. He said that nothing in his opinion is any stronger or
any better then Flathead County and this market, and for the
opportunity of a major enclosed mall at this type.
Wolford said that the actually have under option 232 acres of
land, but are only submitting roughly 150 acres for the Board's
consideration. He added that this is a good commercial
property, and they feel that they can bring national tenants
that are not in the area this time. Wolford said that the project
would begin next August and be finished in 2004.
Wolford continued that in addition to the retail opportunities
this is a major opportunity for employment. He said that 1300
people could potentially be employed. Employment is an
important factor in this development not to mention the
contractors it will take to construct the facility. He stated that
annual payroll would be over 30 million dollars, retail sales are
anticipated in excess of 150 million dollars, and $400,000
would be paid in local taxes every year. There was a
comparison of the proposed Evergreen mall and two other malls
that are in similar economic markets.
Douglas Breckenridge stated that he is the leading architect
and his firm has been around since 1968 and added that their
forte is shopping malls. Basically, they look for design
precedence in each market and search out what people in the
area will relate to. The layout of the mall is a traditional layout
of tenants. Breckenridge said that they have done several
Kalispell City -County Planning Board
August 14, 2001 Meeting Minutes
Page 8 of 12
things to make this conducive of the area including moving the
food court to get a better view of the mountains - opening up a
large glass area so people can see the mountains. He also
reviewed the landscaping work that would be done.
There was discussion regarding the 60 million dollar cost of
construction.
PUBLIC HEARING The public hearing was opened to those who wished to speak
on the proposal.
PROPONENTS Darlene Joe Rothe stated that she is part owner of the proposed
mall site. She feels the new mall will add a great deal to the tax
base and attract more consumers from different places. They
had many offers to buy their land, but she feels that Mr.
Wolford was the most honest and organized. Rothe added that
he has been very straightforward about what he wanted to do
with the property.
Mr. Hall, a former Planning Board Member stated that he
believes that it was never etched in stone that the Master Plan
could not be changed. The City of Whitefish can see the future
and has created more tax credits for business coming into the
area. Annexing the project into the city is a good suggestion.
There will be substantial financial benefits with additional
consumers coming to Flathead County. Hall recommended
that the board members support this project.
Carla Clark, 136 10th Avenue W., Kalispell stated that she is a
frequent shopper with children. Currently, she shops outside of
Flathead County, but she would rather have more opportunities
here in the Flathead County.
Ken Kalvig, 126 Lambert Court, Kalispell stated that he is
counsel for Wolford Development and he helped prepare the
application for the Master Plan amendment. Kalvig said that he
is actually here on behalf of Linda Anderson who is the
Executive Director of the Glacier Country Regional Tourism
Commission. Kalvig submitted a letter in support of the project
from Anderson in which she explains that 25% of the tourist
dollar is spent on retail. She added that major retail shopping
centers are good for any economy.
Maurice Eddy stated that he managed the water district in
Evergreen for about 15 years. He has property across from this
project and he thinks it will be an asset to this area.
Dennis Smith, 129 E. Reserve Drive said that he is a property
owner near the proposed mall area. In comparison to the other
developers they have been approached by, Wolford has been a
positive development.
Kalispell City -County Planning Board
August 14, 2001 Meeting Minutes
Page 9 of 12
OPPONENTS Caroline Robinson, 370 E. Reserve Drive stated that she is
concerned about the electric problems, the traffic and property
taxes. She is also looking at the affect the project will have on
the current Kalispell Center Mall.
Suzanne Johnson, 680 Stone Street said she thinks it is going
way to fast for consideration. There needs to be more study of
the project, particularly to traffic. She does not think the
project will produce the positive economic affect that has been
mentioned
Diane Conradi, Citizens For a Better Flathead, 35 4th St. W.,
Kalispell stated that she believes this mall is on the fast track
and is the largest retail expansion this Valley has seen in a long
time. There are meetings that are being proposed quickly and
do not give people the opportunity to have meaningful
participation. Citizens For A Better Flathead is for a project that
keeps Kalispell a great place to live and work. They are for a
project that is decided in the open. The staff report does not
provide enough information for the board to make a sound
decision. Industrial use tends not to compete with existing
businesses that are already in the Valley. There is no doubt
that this project will have a huge financial impact on downtown
Kalispell. She urged the Planning Board to send this
application back to the planning staff with the recommendation
to have the applicant conduct a traffic impact study, economic
analysis, and to ask the affective agencies their opinion whether
there are adequate services available to serve this property.
Don Connors 126A E. Reserve, Kalispell said that he is just to
the South of the mall. He was born and raised in this valley
and thinks that that the city is losing its small town
atmosphere. He would like a little more time to consider this
development.
Sharon Dimester, 415 Chestnut Drive in Kalispell said that she
is the owner of Paper Chase on E. Oregon St. She is concerned
about the growth in the Valley and cited comparisons to
Spokane, Washington. Dimester noted that there is no reason
we cannot utilize current developed land and not touch the
open space we still have available.
Patricia Johnson, 714 4th Ave. East, Kalispell stated that her
family owns Mountain Valley Foods. She noted the time is now
11:00 p.m. and suggested that it was too late to have a public
hearing on a development of this magnitude. Johnson believes
that planners from all of the tri-cities should be involved,
because they would ultimately be affected. She is concerned
about water, sewer and traffic and pointed out that there is a
large amount of vacant retail space in Kalispell. Johnson said
it is foolish to consider building more retail space. She thinks
the board should take a little more time to consider this project.
Kalispell City -County Planning Board
August 14, 2001 Meeting Minutes
Page 10 of 12
Laura Strachzuski said that they live directly across from where
the South end of the mall will be on Mountain View Drive at
566 Mountain View Drive, Kalispell. She is concerned about
the traffic impact, light pollution, water, pedestrian safety and
the tranquility of the area.
Ron Shadow stated that he is speaking on behalf of himself and
some of the residents of Granite View Drive, which is East of
the proposed mall area. They are also concerned about he
traffic and water quality, and the current bike path. He
submitted a paper signed by other residents who could not be
here. Shadow asked that the Board take a longer look at the
development.
Mayre Flowers, 2770 Upper Left Creek Road stated that she is
in opposition to the development. She reminded everyone that
Master Plan is being revised by the city and noted it is
important to look at this new plan and apply it to this project.
Flowers asked the Board to look at the economic value of
keeping our unique character by looking at how they can infill
additional retail in the downtown area. She said that revenue
sharing needs to be addressed and they need time for all the
surrounding communities to decide where to put these large
retail proposals. Flowers said that they need to have a real
community dialogue and not try to ram this through in a 2
week period.
Kelly Bernard, Granite View Drive East of the proposed area
said he has the same concerns that were previously mentioned.
REBUTTAL Bucky Wolford said that the stores in downtown Kalispell were
more specialty stores and he felt that they should not be
affected by the proposed mall.
Hearing not other comments, Stevens closed the Public
Hearing.
BOARD DISCUSSION The Board discussed that they didn't feel that this was a
rushed deal and that the developers have gone through the
same requirements as any other Master Plan amendment.
Stevens stated that there is no other reason to do a Master Plan
amendment than to facilitate a zone change. Mr. Wolford has
been talking to the city officials for some time, about 2 years
and he added that there is no underhanded deal between
anyone on the Board.
MOTION Mann moved and Heinecke seconded that the Kalispell City -
County Planning Board adopt Flathead County Planning &
Zoning Office staff report KPA-01-102 as findings and facts and
recommend to the Kalispell City Council and County
Commissioners approval of the Master Plan Amendment.
Kalispell City -County Planning Board
August 14, 2001 Meeting Minutes
Page 11 of 12
BOARD DISCUSSION Stevens said that he has studied the Master Plan and he does
not believe that this project needs a Master Plan amendment to
proceed. The Plan presents goals, objectives, and policies
necessary to give guidance to make decisions concerning
development. It does not indicate site -specific solutions. The
Board promotes the clean light industries and retail shopping
centers for local areas. Stevens said that the project is in
substantial compliance to the Master Plan and noted that
Kalispell has become a trade and service center because of its
location.
Van Natta said that he has been aware of this proposal for
some time. If the Master Plan amendment does take place,
there are still a lot of things to be taken into consideration at a
future date.
There was additional discussion about the planning and zoning
process for the project.
ROLL CALL On a roll call vote the motion passed unanimously.
The Board will send a letter of transmittal to the City Council
and Greg Stevens will appear in front of the City Council with
the Planning Board's recommendation and the staff report.
There was discussion that a zone change should be considered
along with the Master Plan amendment in the future.
Sanderson agreed to attend the City Council meeting as a
technical advisor.
OLD BUSINESS There was no old business.
NEW BUSINESS The Urban Renewal District and The Work Program were put on
September's meeting agenda.
ADJOURNMENT At approximately 12:00 a.m. the meeting was adjourned. The
next meeting will be Tuesday, August 21, 2001 at 7:00 p.m.
Greg Stevens, President Traci Tull, Recording Secretary
Approved as submitted/corrected: _/_/01
Kalispell City -County Planning Board
August 14, 2001 Meeting Minutes
Page 12 of 12
RUG.29.2001 10:41 406 758 5964 FLP.THEPL CO PLPNNING & ZONING #0309 P.002/002
FLATHEAD COUNTY PLANNING AND ZONING OFFICE
KALISPELL CITY -COUNTY MASTER PLAN
STAFF REPORT #KPA-01-1.02
JULY 31, 2001
A report to the Kalispell City-COUni.y Planning 'Board and Zoning Commission, the
Kalispell City Council and the Flathead County Board of' County Commissioners
regarding Dui amendment to the Kalispell City -County. Master Plan. A public hearing has
been scheduled before the planning board for August. 14, 2001 beginning at. 7:00 PM in
the Kalispell City Council Chambers. The Plaiining Board will forward a recommendation
to the Kalispell City Council and the County Con-imissioners for final action.
A. Petitioner: Wolfbrd Development. lnc.
James L. (Becky) Wolford
1200 Mountain Creek Road, Suite 102
Chattanooga, TN 37405
(423)-874-0811
Technical Assistance: Stokes and Associates
Jean Joluison
343 First. Street. West.
Kalispell, NTF 59901
(406) 755-8707
This is a proposed �.uileiidiuent to the Kalispell City County Master Phut, which
was adopted by the City of Kalispell on April 7, 1986 acid by Flathead Coiuity on
February 6, 1986. The applicant proposes to amend the master plan map
designation on a block of property (approximately 144 acres) near the norLheast
boundary of the Planning Jurisdiction to commercial. Currently, the area is a
mixture of designations ranging from Agricultural to Light. industrial.
'Itie purpose of the amendment would be to facilitate a rezone of the area to
County B-2 (General Commercial) in anticipation of the construction of a 683.000
square foot mall complex. The Master Plan application, supporting docliments
and findings submitted by the applicants have been included as an inforrnatiorial
itein with this packet.
The property proposed for the map aniendnient is located on the east side of
LaSalle and north of East Reserve Drive. A location map with the subject property
highlighted is attached to this report. This property is west of Gran.1te View
subdivision and can be described as Assessor's Tracts 7, 7C=, 7J, 7H and 3I3A located
in Section 28, Township 29 North, Range 21 West, P.M.M. Flathead Comity, Montana.
A title report with a meets and bounds description is attached to this report.
D. Existing Land Use and Zoning!
The site is currently used for active agricultural purposes. This property is part of
the Evergreen and Vicinity Zoning District. This district was created by Flathead
County on 7/17/90. The Zoning District has various use designations and
implements the Kalispell City -County Master Plan.
The property proposed for the Master Plan amendment is currently zoned B-2
(Commercial), I-1H (Light Industrial -Highway), R-2 (Residential) and SAG-10
(Suburban Agriculture). The zoning reflects the current status of the Kalispell
Master Plan Map. It is my understanding that the proposed Kalispell Growth
Policy Map contains the same or very similar use designations for the subject
property.
E. Adjacent hand Uses and Zoning: This area can be described as being located on
the fringes of the planning jurisdiction and is characterized by having a mixture of
uses ranging from agricultural to commercial.
North: Commercial (B-2) and Suburban Agricultural (SAG-10)
South: Commercial (B-2), Residential (R-1) and (R-2)
East: Suburban Agriculture (SAG-10) and Residential (R-2)
West: Agricultural (AG-80), Residential (R-2) and Commercial (B-2)
The Kalispell City -County Master Plan is intended to provide guidance for long-term
growth in a general and comprehensive manner. The Kalispell Master Plan was adopted
by the City of Kalispell on April 7, 1986 and by Flathead County on February 6 1986. As
the board is aware, the Kalispell plan is in the process of being updated to a growth
policy that may be adopted by the City of Kalispell and Flathead County as early as
November of this year.
The proposed plan amendment should be considered in the context of the overall goals
and policies of the Kalispell City County Master Plan. No specific evaluation criteria
currently exists in the Kalispell City -County Master Plan nor under state statute for plan
amendment requests. In evaluating the proposed map amendment, the proposal will be
evaluated in the context of whether the overall goals and objectives of the neighborhood
plan and the master plan are being served as well as the specific elements of the
neighborhood plan. Consideration will also be given to several elements outlined in the
state statutes for master plans which would include: growth management, land use,
transportation, environmental considerations, economy, availability of public services
and facilities. Consideration will also be given to the circumstances under which
proposed master plan request is being made which would justify approval of the
amendment.
1. Relation of the plan amendment to the master plan: The primary goals and
objectives of the Kalispell Plan is to insure responsible and orderly development of
the City and the 41/2 mile planning jurisdiction. These goals, in some areas
encourage the preservation of agriculture and a rural atmosphere. While in others,
moderate to high -density residential, commercial and industrial development are
encouraged. These goals were the driving force that resulted in the adoption of
9
zoning by Flathead County in all areas affected by the Kalispell City -County Planning
Jurisdiction.
`chile it would be an interesting exercise to look at the draft Growth Policy Map to
see what the Planning Board and City Council have set as theoretical planning
guides for this property, County Staff would submit to the Planning Board and
Governing Bodies that the issue is moot until such time as the document has been
adopted.
This project involves 144 acres, which as discussed in the information sections above
has several zoning classifications that are substantially consistent with the current
Master Plan for the area. However, a liberal interpretation of the existing Master Plan
Map would lead one to believe that the vast majority of the property, approximately
100 acres has a plan designation of either commercial or industrial. As such,
approximately 44-acres of the project site are Master Planned for low -density
residential or suburban agriculture.
When evaluating a request, one of the questions fronted by proponents and
opponents alike is the intensity of use of the land. First, it is important to remember
that eleven -percent (15.8 acres) of the property carry the proper plan and zoning
designation for the anticipated use. Couple this fact with the assumption made in
traditional planning that land uses range from low intensity (Agricultural) to high
intensity (Industrial). Given this, approximately 58 percent of the lands (84 acres)
involved in this request are planned for a substantially more intensive use than what
the applicant has requested.
For planning purposed it would appear to be a wise or at a minimum advisable to
trade lower use intensity on roughly 84 acres with an increase in intensity on
approximately 44 acres of land. The Planning Board and Zoning Commission should
also factor into the equation that there will be significant areas surrounding this
development that will be parking areas and vegetative buffers between adjacent land
uses.
Staff concludes that the proposed amendment is consistent with the intent of the
existing master plan policies and goals.
2. Growth Management Considerations: The single largest negative presented with
this application is that the development will cannibalize downtown Kalispell
commercial operations, force vacancies in the existing business and redirect growth
into the unincorporated portions of Flathead County. It is unreasonable to assume
that government in the exercise of its legislative authority has the ability to preserve
or protect existing commercial enterprises. Business in its purest form is capitalism
at its finest, those that provide the best service at to best price will remain in
business those that do not will fail and be replaced by another entrepreneur.
The Kalispell City -County Master Plan is 15 years old. The demographics of the
region have changed substantially during these years. Staff would submit to the
Board that the amount of commercially planned properties has not kept pace with
residential growth to the planning and zoning documents for the jurisdiction.
The site is within reasonable proximity to the urban services and there has been
discussion of the creation of an annexation district to the City of Kalispell that will
infuse large amounts of tax revenue to the City in exchange for limited services. It is
logical to conclude that should the City annex this property further annexation will
occur further expanding the City tax base and revenue sources. Development with
the use of on -site sewage treatment systems within the development is an option for
the developer. However the applicant has stated that the development is superior
with public a public water supply and sewage treatment. Staff would concur with this
assessment of the situation.
While one could conclude that the plan amendment does not further good growth
management policies, staff would submit that it is far better to locate a project of this
scale within a jurisdiction that is planned, has development standards and is within
the designated growth area of the City. Given this, staff would conclude that the
proposal represents responsible growth management policies.
3. Environmental considerations: One of the most important considerations that can
be considered with regard to this proposal is the need for public water and sewer.
While the project could theoretically succeed with on -site sewer and water, there are
a number of potential issues that the developer would need to resolve with the
Flathead City -County Health Department. It is recommended that the developer
actively pursue the extension of public water and sewer to the property to insure that
the basic public health and safety considerations are resolved.
Without question, a mall site with 683,000 square feet of commercial space is a huge
undertaking. This coupled with the required parking areas will place a tremendous
portion of the property under impervious surface. This proposal has the potential to
dramatically alter the storm and ground water characteristics of the area. This
coupled with the fact that the water table in this portion of the County is relatively
shallow. While staff is not qualified to quantify or address the potential impacts, the
developer should work to resolve these issues.
The potential negative affects of this development need to be tempered by the fact
that 55.6 acres of the project property carry and industrial zone designation.
Clearly, some of the permitted uses within this zoning district have the potential to
adversely affect this review criterion at a rate equal to or greater than what this
applicant has requested. Given this, staff would conclude that the project will not
adversely affect the environmental considerations of the Kalispell City -County Master
Plan.
4. Economy: Traditionally commercial and industrial development within a jurisdiction
are encouraged because they pay significantly more in taxes than they generate in
demand for services. The development of a regional shopping center in addition to
affording local consumers with additional options, a regional shopping center will
serve as an attractant to consumers from outside of our traditional market. It is
logical to assume that once the out of the area consumer is into our market area that
they would spend money in other areas of the economy thereby increasing the
viability of other businesses and services within Flathead County.
In the past, agriculture and timber have been an important part of the local
economy. However, there has been a trend in recent years toward a more service -
oriented economy as well as a decline in agricultural and timber related activity. The
property owners have traditionally farmed this property and need to divest
themselves of a portion of their farmland for personal reasons. The economic
viability of farming in the Valley has taken a tenuous turn for the worse, and the sale
of this property may allow the property owners to extract some measure of profit
from their ownerships.
While there may be an adjustment period where competing interests sort out their
niche, the end result should be positive for the whole of the commercial base of the
City of Kalispell and Flathead County.
5. Availability of public services and facilities: Consideration of public services in
the area including roads, schools, fire and emergency services and water and sewer
facilities.
Traffic generation as a result of this type of intensive commercial development would
result in significant impacts to Highway 2 and East Reserve Drive. While it is
impossible to establish a correlation of the impacts of this development verses the
potential development of the site as permitted under the current zoning, it is fair to
conclude that the applicant should be required at the time of rezoning to submit a
traffic management plan and proposed off -site improvements for review and approval
by the County Commissioners. It is not equitable to allow any developer to change
the dynamics of an area without requiring their participation in improvements that
they and their customers will benefit at the public expense.
The Evergreen K-8 and Kalispell 9-12 School Districts will be the major beneficiaries
of this development. As stated above, commercial ventures pay substantially more
taxes than they receive in service. This is best illustrated in the school system. The
commercialization of this property will significantly increase the taxable valuation of
the school districts while little to no increase in student enrolment is expected.
Fire and emergency services could be adequately accommodated by the Evergreen
Volunteer Fire Department or in the instance of annexation by the City of Kalispell.
The Kalispell Regional Medical Center and associated medical professionals should
not be adversely affected by the change of use proposed on this property.
In the absence of annexation, water and sewer facilities are limited to on -site septic
systems and water systems. The uncertainty of public sewer to this property is the
single greatest element of concern of the staff. The use of on -site sewage treatment
systems undermines the goals for the protection of water quality in the Valley. If
public sewer were to be extended to the site then this project would be of greater
value. However, in its absence, the conversion of this land from its current mixed
and underdeveloped use to a viable regional commercial center could be considered
premature
19
The main negatives of the proposal center on traffic generation on LaSalle and East
Reserve Drive and the unknown of how sanitary sewer and public water to the project
will be supplied. The City of Kalispell can solve both of these problems by annexing the
property, providing water and sewer. The off -site traffic impacts should be resolved
through the site review process or possibly through the imposition of a PUD overlay to
insure that traffic safety and other public safety issues are resolved prior to the issuance
of construction permits.
As a whole, the project is a potential net positive for the City of Kalispell and Flathead
County. The fragile tax base that for many years has been driven by down turns in the
agriculture and timber industries will to some degree be replaced. We would establish
ourselves as a potential regional commercial center drawing consumers from great
distances to pump money into our economy. While there may be some casualties during
the transition, casualties in the business community occur on a daily basis as the needs,
wants and desires of the public change.
With the rapid growth in our residential population the need for additional commercial
properties is necessary. This is substantiated by the number of inquiries this office
receives on a daily basis by individuals and real estate professionals looking for locations
for new or expansions to existing commercial developments. Conversely, if one looks to
the underutilized zones within the City -County area, staff submits that the I-1H is the
most under utilized zone in the jurisdiction. It is logical to conclude that we have an
excess of I-1H and a shortage of general commercial (B-2) properties in the Kalispell City -
County jurisdiction.
This project is about the down zoning of roughly 84 acres of industrially planned
property and an up zoning for 44 acres, the balance is properly planned and zoned for
the intended use. In the staff opinion, provided that the developer can address the
identified issues with the project, this is a positive change for both the City of Kalispell
and Flathead County.
Based upon the above evaluation, the staff would recommend to the Kalispell City -
County Planning Board and Zoning Commission adopt the Flathead County Planning
and Zoning Office staff report KPA-01-102 as findings of fact and recommend to the
Kalispell City Council and the Board of County Commissioners that the proposal to
amend the Kalispell City -County Plan Map on the subject property from industrial,
residential and agricultural to commercial. Further, staff recommends that the Kalispell
City County Planning Board and Zoning Commission prepare a resolution approving map
amendment for the president's signature to be presented to the city council for their
September 4, 2001 regular meeting and county commissioners as soon as possible.
h
NOTICEOF
KALISPELL CITY -COUNTY PLANNING BOARD AND ZONING COMMISSIOV
Request for Kalispell City -County Master Plan Amendment
The regular meeting of the Kalispell City -County Planning Board and Zoning
Commission is scheduled for Tuesday, August 14, 2001 beginning at 7:00 PM in
the Kalispell City Council Chambers, Kalispell City Hall, 312 First Avenue East,
Kalispell. During the regularly scheduled meeting of the Planning Board, the board
will hold public hearings and take public comments on the following agenda item, in
addition to the items previously announced in the Daily Interlake. The board will
make a recommendation to the Kalispell City Council who will take final action.
1. A request by Wolford development for a Kalispell Master Plan Text Amendment.
This request asks for a master plan amendment for land use change from an
industrial designation to a commercial designation on the Master Plan to provide
for a large scale commercial facility. The property is legally described as the W1/2
SE1/4 SE1/4, a portion of SW1/4 NE1/4 and NW1/4 SE1/4, a portion of SW 1/4
SE 1 / 4 excepting portions deeded to the State, a tract of land in the SW 1 /4 NE 1 /4
and the S 1 / 2 SE 1 /4 NE 1 /4 and NE 1 /4 SE 1 /4 excepting portions deeded to the
state, Section 28, Township 29North, Range 21 West.
Documents pertaining to these agenda items are on file for public inspection at
Flathead County Planning and Zoning, 723 Fifth Avenue East, Room 414, Kalispell,
MT, 59901, and are available for public review during regular office hours.
Interested persons are encouraged to attend the hearings and make their views and
concerns known to the Board. Comments in writing may be submitted to Flathead
County Planning and Zoning at the above address prior to the date of the hearing .
Forrest Sanderson
Planning Director
PUBLISH: Legal Notices
Daily InterLake
Sunday, July 29, 2001
BILL: Flathead County Planning and Zoning
723 Fifth Avenue East, Room 414
Kalispell MT 59901
Note: This office is acting as an agency of the City of Kalispell and should be billed at
the City's contract rate.
H:\FRDO\LEGALS\KA\01 \KPBAUG14.adl
PUBLISH: Legal Notices
Daily Interlake
Sunday, July 29, 2001
BILL: Flathead County Planning and Zoning Office
723 Fifth Avenue East, Room 414
Kalispell MT 59901
Note: This office is acting as an agency of the City of Kalispell and should be billed at
the City's contract rate.
H: \FRDO \LEGALS\KA\O 1 \KPBAUG 14.ad1
No. 4899
NOTICt=&—T-FUBLIC"
HEARING
KALISPELL CITY -
COUNTY PLANNING
BOARD .AND_ZONING '
COMMISSION.
Request. or Kalispell.
City -County Master.Plan
Amendment
The regular meeting of
the .Kalispell City -Coun-
ty Planning Board .and
Zoning Commission is
scheduled 'for Tuesday,
STATE OF MONTANA
August 14, 2001 begin-
ning at 7'00 PM in .the
Kalispell City Council
Chambers, Kalispell
FLATHEAD COUNTY
City Hall, 31.2 First Ave-
nue East, Kalispell, MT.
During She regularly
i scheduled meeting of
AFFIDAVIT OF PUBLICATION
the Planning Board, the
board will hold public.
ke public
hea men s on
DOROTHY GLENCROSS BEING DULY
comments on follow-
t
ing agenda item; in ad-
SWORN. DEPOSES AND SAYS: THAT SHE IS
dition to the items .previ-
ously announced in the
LEGAL CLERK OF THE DAILY INTER LAKE, A
Daily Inter Lake. The
board will make a rec-
DAILY NEWSPAPER OF GENERAL
ommendation to the Ka-
lispell City Council who
CIRCULATION, PRINTED AND PUBLISHED IN
w1. ill take:fin.
A ireq actest `.by'
THE CITY OF KALISPELL, IN THE COUNTY OF
Wolford Development
for a Kalispell Master
NTANA FLATHEAD, STATE OF MO ,AND THAT
Plan Map;Amt.
1 O. 4899 LEGAL ADVERTISEMENT WAS
a
This .request askssksfor a
for
Master. Plan amend-
PRINTED AND PUBLISHED IN THE REGULAR
menu. for Land use
change from an industri-
AND ENTIRE ISSUE OF SAID PAPER, AND IN
al designation to a com-
mercial designation on
EACH AND EVERY COPY THEREOF ON THE
'the Master Plan to pro-
vide for a large scale
DATES., OF JUL. 29, 2001
commercial facility. The
property islegally de-
as'!SE1/4eSE1/4j aeportion
AND THE RATE CHARGED FOR THE ABOVE
N 1/4 SE `4, a p and
NW1/4 SE114, a .portion
PRINTING DOES NOT EXCEED THE MINIMUM
ofSW1/4 SE 1/4 ex-
GOING RATE CHARGED TO ANY OTHER
cepting .portions deeded
to the state, a .tract 4
ADVERTISER FOR THE SAME PUBLICATION,
--
land intheSW1I4
NE1I4 and the 'S1/2
SET IN THE SAME SIZE TYPE AND PUBLISHED
SE1/4 NE1/4 and NE1/4
SE1/4 excepting por-
OR THE SAME ER OF INSERTIONS.
tions deeded to the
State, Section 28;
Township 29 'North,
Range 21: West.
Documents ;pertaining
to these.'a:genda items
are on file for public in-
spection at, Flathead
Subscribed and sworn to before me this
County Planning and
D. JUL. 3 2001
Zoning Office,; 723 Fifth
.Ave.nue Ea t�-�mom�'�
59901 and are availa
-
; . a
ble for public review"
during regular office
hours,
Y NOt Pul is for the State of Montana
Interested persons are
l Residing 1n allspell
encouraged to attend
the hearings and make
�Si` C(7I21m1�SiOn expires 5/30/03
,
their views and con-,,.
cerns known to. the
°a£,
Board Comments in
writing may,be:;submit-
ted to Flathead county
Planning and Zoning Of-
fice` at the above ad-.-,
dress.prior to the date of
the hearing: .
Is/Forrest Sanderson
Forrest Sanderson
Planning Director:`„.
July 29, 2001
APPLICANT: Wolford Development
FCPZ FILE #: KPMA 01-102
I, the undersigned certify that I did this date mail via certified or registered mail a copy
of the attached notice to the following list of landowners adjoing the property lines
of the property that has requested a Master Plan Amendment.
Date: 20-Jul-01
Assessor's Lot/Trac Property Owner & Mail
No. S-T-R t No. Address
NOTICEOF
KALISPELL CITY -COUNTY PLANNING BOARD AND ZONING COMMISSION
Request for Kalispell City -County Master Plan Amendment
The regular meeting of the Kalispell City -County Planning Board and Zoning
Commission is scheduled for Tuesday, August 14, 2001 beginning at 7:00 PM in
the Kalispell City Council Chambers, Kalispell City Hall, 312 First Avenue East,
Kalispell. During the regularly scheduled meeting of the Planning Board, the board
will hold public hearings and take public comments on the following agenda item, in
addition to the items previously announced in the Daily Interlake. The board will
make a recommendation to the Kalispell City Council who will take final action.
1.
This request asks for a:. master.. plan .amendment or land use cfrom ,an .:
mdustnal designation to.. a commercial designation on the Master Plan to;;provde
fora large"scale-'coinmercial facility: The property is legally described as the W1/2
SE1/4.SE1/4;; a,.portion o StiUl/4 NE1/4'.and<NW4/4 SE1/4 a"portion of --SW 1/4
Documents pertaining to these agenda items are on file for public inspection at
Flathead County Planning and Zoning, 723 Fifth Avenue East, Room 414, Kalispell,
MT, 59901, and are available for public review during regular office hours.
Interested persons are encouraged to attend the hearings and make their views and
concerns known to the Board. Comments in writing may be submitted to Flathead
County Planning and Zoning at the above address prior to the date of the hearing .
Forrest Sanderson
Planning Director
PUBLISH: Legal Notices
Daily InterLake
Sunday, July 29, 2001
BILL: Flathead County Planning and Zoning
723 Fifth Avenue East, Room 414
Kalispell MT 59901
Note: This office is acting as an agency of the City of Kalispell and should be billed at
the City's contract rate.
H:\FRDO\LEGALS\KA\01 \KPBAUG 14.ad1
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Consulting Engineers
July 9, 2001
Forrest Sanderson
Flathead County Planning & Zoning Office
723 5'h Avenue East
Kalispell Montana 59901
RE: Request for Master Plan Amendment
Wolford Development Project
Section 28, T.29N., R-21 W.
Dear Forrest;
343 First Avenue West
Kalispell, MT 59967
Telepba®e (406) 755-8707
FAX (406) 755-2613
Enclosed you will find our check 4100128 in the amount of $1,720.00, said check
represents the applicable fees for the above mentioned project. The fees are based on
$1,000.00 for the application and the $720.00 is based on 144 at $5.00 an acre.
As you are aware this application posses several obstacles to be overcome. We are
working on all phases and will keep you updated as we proceed. The Wolford group has
a projected ground breaking time in the spring of 2002, with a proposed opening date
sometime in 2003. You will find enclosed the initial plans for the proposed shopping
center consisting of approximately 683,000 square feet under roof with applicable parking
and green areas. The total acreage involved in this request for master plan amendment is
144 acres.
Questions pertaining the project should be directed to James L. (Bucky) Wolford @
Wolford Development Inc., Four Squares Business Center, 1200 Mountain Creek Road,
Suite 102, Chattanooga, Tennessee 37405. Phone (423) 874-0811, ex. 103, internet
bwolford@wolforddevelopment.com.
Very Truly Yours n
PA&J STOKES & A1SS CIAT S. INC.
Jean A.
Project
c: James L. Wolford
Ken Kelvig
file
fr onts<ati=ns"rks/Wonrtlma lU%&w
i Request
Wolford Development requests that the map to the Kalispell —Flathead County Master
Plan be amended to show that the area designated on the map accompanying this application is
designated for commercial development.
SUMMARY OF THE PROJECT
Wolford Development seeks to develop a 750,000 square foot, fully enclosed shopping
mall, which will likely house four major department stores as anchor tenants, approximately 90
to 100 retail stores, food court with indoor and outdoor seating, and movie theater. Many of the
tenants will be national retailers who presently are not located in the Flathead Valley. Wolford
Development anticipates that the mall will draw shoppers from a region that extends south
halfway to Missoula and north into Canada.
The proposed site is located near the northeast corner of U.S. Highway 2 and East
Reserve Drive on approximately 150 acres of land. The land presently has Master Plan
designations of commercial, light industrial; and agriculture/silviculture. County zoning on the
property is B-2 General Business, I-1H Light Industrial, and SAG-10 Suburban Agricultural.
Wolford Development is willing to either be annexed into the city of Kalispell or waive protest to
future annexation.
VISION STATEMENT
Wolford Development's shopping mall will secure Kalispell's and Flathead County's
status as the retail, commercial center of Northwest Montana. The Flathead Valley will have a
shopping mall that is able to offer goods and services to an extent presently not provided in
Northwest Montana, which will help the retail sector catch up and keep up with the demand that
has and will continue to accompany the population growth in Flathead County. The shopping
mall will increase the number of retail dollars spent in the local economy; many of which are
presently leaving Flathead County or are simply not being attracted here.
The shopping mall will be located to the north of Kalispell, the direction in which much
of the commercial, health care, and residential growth has gravitated in recent years. This
location adds to the variety of goods, services, and entertainment that will be readily available to
most of the county's population, which is situated in and around Kalispell, Evergreen, Whitefish,
and Columbia Falls. It is anticipated that being centrally located to the population core in these
cities, as well as being located in the direction where much of the growth has been happening, the
shopping mall will help attract other commercial business to Flathead County. Being near the
recently expanded Glacier International Airport, and along the major highway to and from
Glacier Park, makes this an ideal setting to capture the attention of the millions of tourists who
annually visit Flathead County.
To secure Kalispell's and Flathead County's status as the retail center of Northwest
Montana.
2. To keep existing retailers in Flathead County and attract new retailers to the county by
providing a first-class shopping center.
3. To develop a retail shopping center that will reduce the number of retail dollars that
Flathead County is presently losing to markets such as Missoula and Spokane.
4. To develop a first-class, attractive shopping center that captures the attention of Flathead
County's millions of recreational and business visitors who travel through and along
Glacier International Airport and Highway 2.
5. To locate the shopping center where there is substantial room for sensible future
expansion and peripheral growth.
ME
1
am
Flathead County experienced a phenomenal 38.2% growth in population from 1990 to
2000. The Flathead Valley continues to grow in terms of population, commercial activity, and
interest by retailers presently not located here. This growth is projected to continue. As the area
continues to grow, the proposed development is beneficial to area residents, makes for good use
of the subject property, and is consistent with the foreseeable growth and land use patterns in
Flathead County.
While much of the subject property is currently designated as agricultural and light
industrial, to date, little industrial development has occurred on, or around, the property, and
agricultural land throughout the Flathead Valley has steadily been converted to other uses as
agricultural activity has become financially difficult and less sustainable over the past several
years. Considering the amount of commercial development that has occurred along Highway 2,
and that continues to occur toward and around Glacier International Airport, changing the land
use designation for the subject property to commercial is consistent with the development and
land use trends in this part of the planning jurisdiction.
DOES THE PROPOSED PLAN AMENDMENT FURTHER THE
OVERALL GOALS AND OBJECTIVES OF THE MASTER PLAN
WHEN CONSIDERING THE SPECIFIC ELEMENTS OF THE PLAN?
1. Basis of Need
The Master Plan amendment is needed to redesignate to Commercial those areas within
the subject property that are currently designated as Light Industrial and Ag./Silviculture. While
the technical change to the Master Plan of redesignating land uses is needed, the change is
needed to further the goals and objectives of the Master Plan.
Kalispell has been identified as the retail center of the county for many years. Developers
and retailers have continued to express interest in Kalispell. With the rapid development by
national and regional retailers along Highway 2 in Evergreen, and the interest of other national
retailers near the corner of Highway 93 North and West Reserve Drive, the retail center for the
county continues to be in or near Kalispell. The Master Plan's section on Land Use provides that
"Kalispell should continue to maintain its role as the commercial/service center for Flathead
County and areas beyond." To further this goal, the Master Plan needs to be amended by
redesignating as "commercial" the property near the corner of Highway 2 and East Reserve Drive
to allow the largest retail development in the county to remain in or near Kalispell, rather than be
located elsewhere in the county and outside the planning jurisdiction. Due to the size of the
development, there is not land that is available within Kalispell's current city limits, or elsewhere
in the planning' urisdiction.. that is large enough to accommodate the development and satisfy the
retailers who will occupy it. If the shopping mall is to be kept within the planning jurisdiction,
the proposed location is the best site for it.
The Master Plan notes that a large percentage of potential retail sales are leaving Flathead
County-3 5% in 1981. The county is still losing a very large percentage of retail sales dollars.
The addition of a large shopping mall, which increases consumer choices by attracting new
retailers to Flathead County, will substantially reduce the amount of retail dollars leaving the
county and will attract more retail dollars from nearby areas that are not presently being captured.
Due to changing trends in the local economy, it is important; now more than ever; for the county
and city to takes steps necessary to stop retail sales dollars from leaving the county and to attract
other retail dollars to the county.
2. Growth Management
The growth management goal states that all needs of the community are to be provided
for, and that the growth management program must be adaptable to changing trends. Changing
the Master Plan designation for the subject property to commercial furthers this goal because the
modification is consistent with changing trends, and use of the property for a shopping mall will
provide for and satisfy community needs.
3
Having the shopping mall in or near Kalispell satisfies many needs of the community,
including the following: (1) it will ensure that Kalispell remains the retail center of the county
for decades to come; (2) it will bring desired retailers and trade to the local area, keeping more
retail dollars in the county and attracting new retail dollars from other counties, (3) it will
increase competition which will make for more competitive pricing; (4) it will benefit the local
economy by bringing new employment opportunities to residents of the Flathead Valley; (5) the
economic benefits do not come at the expense of harmful pollutants to the air, soil, and water; (6)
despite the size of the development, it will not create the need for new roads, water, or sewer
systems, such that a large burden is placed on the public; (7) it will generate higher tax revenues
than the current uses of the property; (8) it places this kind of development in a location that
allows for orderly future growth and commercial expansion —unlike the existing Kalispell Center
Mall; and (9) placing this kind of development in a location that is largely undeveloped allows
planners to anticipate and manage future growth around the development.
Changing the land use designation on the subject property also is consistent with recent
trends. The timber and agricultural parts of the local economy have become less viable, thereby
increasing the importance of retail and tourism. Another trend is for national retailers is to build
larger stores. The size of the subject property, permits development to the scale the large
retailers desire. The presence of large anchor tenants located in the same development serves as
a magnet to other retailers that otherwise would not move into this new market.
Wolford Development intends to request annexation or to waive protest to future
annexation, which furthers the objective that fringe development be dealt with aggressively to
preserve and add to the City of Kalispell's tax base and to allow the city to plan for orderly
growth. While several large commercial developments have located in Evergreen, outside the
control and taxing ability of the City of Kalispell, Wolford Development desires to be a part of
the City of Kalispell, pay fair share of taxes, and be subject to the control of Kalispell"s rules and
regulations, thereby reversing the trend of development in or near Evergreen that has occurred
with no involvement or control by the City of Kalispell.
3. Environment
The shopping mall development will not have an adverse affect on air and water quality.
This kind of development produces little or no air pollutants. Wolford Development desires to
be connected to municipal wastewater treatment systems, rather than utilizing a septic system.
Wolford Development's track record has been to work with local planning officials to find
mutually agreeable ways to make its developments attractive and first-class. Storm and water
run-off will be addressed in engineering plans to mitigate water pollution and reduce damage
caused thereby.
In
4 � ,
The Master Plan goal is for the area to have a healthy, diversified economy promoted by
careful planning of type, location and design of industrial sites, shopping areas and tourist
facilities. Two of the Master Plan's objectives associated with this goal are (1) to maintain
Kalispell 's position as a retail shopping mall for Northwest Montana, and (2) to promote tourism.
The Master Plan identifies that the economy of the planning jurisdiction is based on timber,
agriculture, tourism, and retailing; however, retailing and tourism are becoming increasingly
important to the local economy due to recent decline in the timber and agricultural industries.
The Master Plan's objectives regarding, retail and tourism are furthered by this development in
different ways.
Locating this development at the proposed site will benefit and promote the local retail
and tourism economies. Placing this development at the proposed site ensures Kalispell will
remain the retail center of not only Flathead County, but also for Northwest Montana.
Concentrating the valley's retail trade in and near Kalispell will benefit retailers already located
in the commercial center by creating more traffic flow around these businesses. It will also make
the existing commercial center more attractive to prospective retailers, service businesses,
restaurants, and lodging facilities because the commercial center will be a larger magnet by
which to draw in consumers. By expanding the edge of the commercial center northward, it also
makes it more convenient to access from Whitefish and Columbia Falls, thereby creating
additional draw from those parts of the county. This concentration of retail benefits consumers
because more is available to them in a smaller area and they will have more choices as new
businesses are attracted to the commercial core.
Tourism will benefit by placing the shopping mall at the proposed location. The
proposed site will better enable retailers to capitalize on the approximately two million annual
tourists visiting, Flathead County and Glacier National Park, many of whom fly in to Glacier
International Airport or travel on Highway 2 to and from Glacier National Park. This high
visibility will increase awareness of the shopping opportunities for visitors to Flathead County.
While there may have been a time when most visitors came to Flathead County to enjoy the
recreational opportunities provided by the area's mountains and waterways, more and more
visitors are coming to enjoy the area's other attributes, such as its 8 championship golf courses,
cultural activities, or its favorable spring, summer, and fall climates. Providing a first-class
shopping mall that offers more space, retail shops and social amenities will make the Flathead
Valley even more attractive to this new mix of visitors; without interfering with tourist activities
at Glacier National Park or the area's other wilderness and scenic areas.
Wolford Development has carefully considered various sites in the planning jurisdiction
for its development, including south of Kalispell near the city airport, the existing Kalispell
Center Mall property, the county fairgrounds site, the 60 acre Mountain View Plaza site on
Highway 93, and the state lands on the other side of Highway 93. While these may be good
locations for commercial development, they will not work for this shopping mall, because either
the land parcels are not large enough, the retailers desire to be centrally located to Kalispell,
Whitefish, and Columbia Falls, the land could only be leased rather than purchased, or there is
not sufficient room for sensible future development around the shopping mall.
5
Finally, this development and the shopping mall will benefit local employment. The
shopping mall will provide an estimated 1,400 new jobs in the retail sector, and the development
of the property will create additional work for area contractors. In normal times, this
development's beneficial impact on the local economy would be favorable; however; the
beneficial impact will be even greater considering that the construction and retail employment it
will create will help offset some of the reduction in the local manufacturing, industrial, and
timber industry workforce that has occurred over the past several months.
5. Land Use
The Master Plan's land use goal is for orderly development of the planning jurisdiction
with ample space for future growth, and ensuring compatibility of neighboring land uses.
Locating the shopping mall on the subject property furthers orderly development in the planning
jurisdiction and areas just beyond the north perimeter of the planning jurisdiction, and makes the
use of the subject property compatible with neighboring land uses.
Due to the size and nature of the shopping mall development, the proposed site offers the
most advantages in terms of good land use. While it makes sense to locate certain kinds of new
commercial development in places that would fill in existing commercial areas within the
planning jurisdiction, that planning concept simply will not work for the size of commercial
development many national retailers desire or demand. No development can address all goals
and objectives in the Master Plan, but placing the shopping mall at the proposed location makes
for good use of the subject property, makes good sense for this type of development, and
provides planners with the opportunity to effectively plan for future growth.
It is desirable to locate the shopping mall where there is space available for future
development or that can accommodate the future needs of the retailers and other commercial
occupants. Because large retailers, such as anchor tenants, periodically increase the size of their
stores, a large commercial development should be placed where there is room for fixture growth.
A disadvantage of the Kalispell Center Mall location is that there is very limited room for
growth, which is not sufficient to best accommodate future needs of existing anchors; or to allow
for the kind of peripheral development typically found near a large shopping mall, such as
restaurants, entertainment or service -oriented business; and other retailers. The proposed tract is
large enough to provide anchor retailers with adequate space for the foreseeable future and to
accommodate the number of retailers that will want to locate in or near the same development
with the large anchors; in addition there are large quantities of land to the east and north of the
subject property that could allow for future peripheral development.
Commercial development is a good use for the subject property. Both sides of Highway 2
through Evergreen are developed commercially right up to the proposed site, and much of
Highway 2 between East Reserve Drive and Glacier International Airport is developed
commercially. Most of the retail and other commercial development has occurred toward the
north end of the planning jurisdiction, and placing this shopping mall at the proposed site is
consistent with this trend. Furthermore, it is advantageous to have the shopping mall in close
proximity to existing large commercial retailers, such as those that currently exist in Evergreen
(Wal Mart, K-Mart, Shopko, Office Max. Staples; Super One Foods, Rex, and Vanns), and to
have those retailers and the shopping mall connected by Highway 2's four lanes. The shopping
mall will also be located in close proximity to the Mountain View Plaza/Home Depot
development, with the two sites connected by Reserve Drive.
The location of commercial activity also factors in to where it is desirable to place
different kinds of residential neighborhoods. Since there is a large amount of open, or sparsely
developed, space around the proposed development site, the development does not adversely
impact a great number of residential properties, and planners have an opportunity to anticipate
what kind of residential growth would be appropriate in this part of the county.
The Master Plan's transportation goal is for a comprehensive circulating 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. This goal is
furthered because residents can conveniently access the shopping mall using safe, four -lane roads
that are already in existence, the presence of the shopping mall will not create an instant need for
new or expanded infrastructure, and any changes to existing roadways prompted by the presence
of the shopping mall are changes that are consistent with future infrastructure plans.
Any development the size of the proposed shopping mall will impact the existing
transportation system. Placing the shopping mall at the proposed location best mitigates this
impact because a substantial number of county residents can access the shopping mall via
existing highways that are mostly four -lane roadways. People from Whitefish and Columbia
Falls will have safe, convenient access to the shopping mall, via Highways 40, 2, and 93, and
people from Bigfork, via Highways 35 and 2. Residents living west of Kalispell will have safe,
convenient access to the shopping mall via Highways 2 and 93.
Reserve Drive between Highway 93 and Highway 2 will see some increase in traffic as a
result of this development. However, if this increase in traffic requires that changes to this
stretch of road be considered, such changes would be consistent with those already
contemplated —such as changing the road to four lanes and making it part of a bypass around
Kalispell. The growth around Buffalo Hill Golf Course, along Whitefish Stage Road, Village
Greens Golf Course, as well as the existence of Semitool on Reserve Drive has caused planners
to consider upgrading the status of this stretch of roadway from a minor to a major arterial, and
expansion to four lanes would be consistent with such a designation. Furthermore, an alternate -
route bypass for Highway 93 around the west side of Kalispell has been discussed, which would
reconnect with Highway 93 at Reserve Drive. In conjunction with this bypass, it has been
considered that the segment of Reserve Drive between Highway 93 and Highway 2 could serve
as an alternate route for Highway 2. Therefore, although the presence of the shopping mall at its
proposed location may increase traffic demand on Reserve Drive, if improvements thereto
become necessary, those changes will be consistent with those already considered for the future.
r7
7. Availability of Public Services and Facilities
The Master Plan goal calls for an economical, balanced distribution of public facilities
and services throughout the planning jurisdiction for present and anticipated future residents.
Water, service to the site can be made available by the Evergreen Water District. Sewage
treatment can be handled by either an on -site, engineered treatment system, an extension of the
Evergreen collection system line that ends at the intersection of East Reserve and Highway 2, or
by extending a line to the subject property that would bypass the Evergreen collection system.
Law enforcement protection in the area is presently provided by the Flathead County
Sheriffs Department and the Montana Highway Patrol. The Kalispell Police Department may be
able to work with the sheriffs department to extend the police department's current patrol route
to include the shopping mall. The Evergreen Fire Department's station is approximately two
miles from the subject property and would be best situated to provide fire protection services,
with back-up assistance likely available from the Kalispell Fire Department.
8. Recreational and Cultural Facilities, and Historic Preservation
Because the shopping mall development will be located on the north edge of the planning
jurisdiction and not near any significant amount of developed residential property, it may be
premature to anticipate how this development can further the goals and objectives of the Master
Plan in regards to recreational and cultural facilities. However, Wolford Development is willing
to consider features within its development that can further these goals and objectives.
Locating this kind and size of development away from Kalispell's historic and cultural
district, which is in the heart of Kalispell, may indirectly benefit the historic and cultural facilities
because the development does not threaten their preservation by creating new demands on
property uses and the use of existing facilities. Kalispell's historic and cultural areas —the
courthouse circle area; historic districts, including the Conrad Mansion; Central School Museum;
Depot Park Square; Hockaday Center for the Arts; and Kalispell Repertory Theater —which are
in or near downtown Kalispell, will not be encroached upon nor constricted by development
demands associated with the shopping mall development.
9. Educational Services and Facilities
The shopping mall development will create little or no immediate burden on educational
services and facilities.
10. Coordination Between Citv & County on Matters Near City Boundaries
Coordination between the city and county will need to occur on issues such as law
enforcement and protection; fire protection, and handling of wastewater. Wolford Development
anticipates working directly with the Evergreen Water District on the issue of water service to the
property. If wastewater from the subject property is to be collected through the Evergreen
collection system for treatment by Kalispell's wastewater treatment plant, the city of Kalispell
and the Evergreen Sewer District will need to cooperatively agree on extension of the Evergreen
service area boundary under the interlocal agreement.
Presently the Kalispell Police Department and the Flathead County Sheriff s Department
have some coordination of law enforcement efforts. Regardless of whether the property is
annexed, it will likely be necessary for those two departments to coordinate how each will
provide services at and around the subject property, considering the location of the property and
the fact that traffic to and from will travel through portions of the county or areas that are
presently patrolled by city police. Considering current staffing levels, and that the KPD presently
patrols areas in close proximity to the subject property, it is not anticipated that the shopping mall
will create demands on the police department that cannot adequately be handled.
Primary fire protection coverage would be provided by either the Kalispell Fire
Department or Evergreen Fire Department, depending upon whether the property is annexed into
the city. Both departments currently provide back-up coverage to each other.
9
August 14, 2001
To: Kalispell City — County Planning Board
Re: Glacier Mall Project
As president of the Granite View Homeowners Association I regret that I, along with
many other homeowners of our subdivision, cannot be in attendance of this meeting. We
understand that development of this property is inevitable, however, I would like to offer this
letter to the board expressing our concerns over the proposed Glacier Mall.
Our concerns are as follows:
I . We believe that there are other properties available that would be less offensive to
current residential development (i.e.) existing fairground property or next to Home
Depot.
2. If allowed the development of a sewage treatment plant adjacent to our subdivision
would be unappealing and very damaging to our property value.
3. There would certainly be a greatly increased traffic flow on East Reserve along with
Helena Flats Road. Many children would be at great risk in coming and going to area
schools.
4. That small business will close in downtown Kalispell, Whitefish and Columbia Falls
is certain. Overflow from the mall would hardly patronize downtown businesses.
5. Do Flathead City and County governments have sufficient emergency and security
services to provide service to such a proposal? It seems that emergency services are
limited at this time.
6. The intersection of Highway 2 and Reserve is currently the site of many major
accidents. How has this development proposed to address this problem?
7. The City of Kalispell has proposed a multi -million dollar renovation to streets in the
downtown area. All the efforts the city is making to enhance the appearance of
downtown will be in vain due to this development. If allowed, this development
would make "Ghost Towns" in the Flathead Valley. This has been demonstrated time
and time again in many cities and towns in America.
These are just a few of the items of concern that I have heard from our homeowners.
In closing, none of us would like to see a "Giant" mall in our neighborhood. We did not
purchase our homes on the sparsely populated outskirts of commercial development to see a
development of this kind intrude on our lives. Together we feel strongly that the board and
County Commissioners take a hard look at this proposal and consider if it is best for local
businesses and current residential development.
Sincerely,
Steve Larson
President -Granite Homeowners Association
GRANITE VIEW HOMEOWNERS
f7athead County
Board Commissioners
d0.
Howard W. Gipe
Robert W. Watne
Dale W. Williams
August 6, 2001
Wolford Development Montana, LLC
1200 Mountain Creek Road, Suite 102
Chattanooga, Tennessee 37405
RE: Wolford Zone Change Request/Evergreen & Vicinity Zoning District
Dear Mr. Wolford:
This letter is to notify you of the Board of Commissioners public hearing for the
above -stated zone change. That date is August 23, 2001 at 11:30 a.m. The hearing will be
held in the Commissioners Meeting Room, 800 South Main, Kalispell, Montana.
Should you have questions regarding the scheduling of this public hearing, please
contact this office or Forrest Sanderson at the Flathead County Planning & Zoning Office,
758-5965.
Sincerely,
FLATHEAD COUNTY
COMMI IONERS' OFFICE
Elaine C. Nelson
Office Assistant III
c: Forrest Sanderson, Planning & Zoning Office
Jean Johnson
Paul J. Stokes & Associates
343 1st Ave. West
Kalispell, MT 59901 .
800 South Main ** Kalispell, Montana 59901 ** Fax (406) 758-5861
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