Land Use Planning Review ProcessTri-City Planning Office
17 Second Street East — Suite 211
Kalispell, Montana 59901
Phone: (406) 751-1850
Fax: (406) 751-1858
tricity@centurytel.net
REPORT TO: Kalispell Mayor and City Council
FROM: Narda A. Wilson, Senior Planner
Thomas R. Jentz, Director
Chris A. Kukulski, City Manager
SUBJECT Land Use Planning Review Process
MEETING DATE: July 22, 2002 —Work Session
BACKGROUND: Recently the city council has been asked to review several master
plan amendments for Kalispell. Plan amendments are typically infrequent and
because of this the city council has raised some questions as to what is specifically
involved in a plan amendment and how a plan amendment fits into the overall
development review process. A basic understanding of the purpose of the master plan
document and the review process may be helpful as we move through the master
plan, zoning and subdivision review processes, particularly in light of the complexity
of the Wolford project currently in the works.
Master Plan
Montana has state enabling legislation for the adoption of master plans now referred
to as "growth policies" because of changes to the statutes by 1999 legislature. The
master plan or growth policy forms the basis for zoning and subsequent development
that would occur. Most development proposals we receive (single family residences,
subdivisions, office complexes, shopping centers) comply with the master plan and
the applicable zoning. In those cases, a developer may simply apply for a building
permit or, if a subdivision of the land is involved, the developer would submit a
subdivision proposal to the City for review and approval. In those cases where a
project does not comply with the zoning, the applicant has the option of applying for a
change in the zoning. Under Montana case law (Little vs. Flathead), all zoning
amendments must be in substantial compliance with the adopted master plan (growth
policy). If a requested change in zoning does not comply with the master plan, the
applicant has the option of facing a denial of the zone change or may first apply for an
amendment to the master plan to a designation that would accommodate the
proposal. As you can see, the master plan then becomes the guiding factor in
directing growth and development.
A master plan (growth policy) is intended to be a document that is both long range
and comprehensive in nature. It is a document that anticipates development issues
and establishes policies so that each time an issue arises, the decision makers,
elected officials and staff don't have to "reinvent the wheel." The master plan
document has two components — the map and the text. They are intended to be
Providing Community Planning Assistance To:
• City of Kalispell • City of Columbia Falls • City of Whitefish
Land Use Review Memo
July 18, 2002
Page 2
complementary and when complex issues arise, they should be consulted in a way
that clear answers can be formulated.
Master plan amendments should be rare and discouraged. Plan amendments should
only take place when there are unexpected circumstances, events or unique
situations that have not been anticipated under the existing policy document. Even in
that instance, the map and the text should both be consulted to provide guidance so
that established policies are followed. If a major policy change is warranted, there
should be some reasonable basis for that that can be cited and documented.
The master plan (growth policy) adoption and amendment process is outlined in the
state statutes, which are attached. You will note the statutes require a public hearing
before the planning board and then adoption of a resolution of intention to adopt,
revise or reject the proposed growth policy or any of its parts. The statutes also clarify
the use of the adopted growth policy.
When the staff evaluates a master plan (growth policy) amendment, the criteria that
are used would be the same criteria that is outlined in the statutes and included in
the primary document. Specifically in the case of Kalispell, this would include;
• Growth Management,
• Land Use,
• Economy,
• Environmental Considerations,
• Transportation,
• Public Facilities,
• Recreation,
• Agriculture
• Housing
• Historic Preservation
In using this framework, an evaluation can be made as to how the amendment
relates back to these elements in the primary document and whether or not the
amendment furthers established goals and policies.
Zoning
With the master plan in place or with the adoption of an amendment, zoning becomes
the primary implementation tool. Zoning will regulate the type of use, setbacks,
height and density. Zoning will oftentimes have additional development standards or
requirements such as landscaping and infrastructure improvements.
PUD Process
A planned unit development (PUD) is a zoning tool that can be used to provide
flexibility, improved site design and a mixing of land uses. A PUD classification is
handled as an "Overlay" zone. There will be traditional zoning on the property such
Land Use Review Memo
July 18, 2002
Page 3
as B-2, General Commercial. The PUD designation can then be specifically crafted for
a project or development utilizing the parameters of the underlying zone with a
provision for modification and flexible design that may exceed the underlying
standards when it can be shown that it will provide improved design and benefit the
public. A PUD is in essence a "zone change" and goes through the same review
process but is scrutinized more closely by the planning board and city council. The
Kalispell Zoning Ordinance outlines the submittal requirements for a PUD, which
have been attached for your information. The zoning ordinance also outlines
additional specific review criteria for a PUD that are followed when evaluating a
proposal. With the PUD application and review process, additional requirements,
standards, timing or other appropriate conditions can be placed on the zoning. In
other words, the development standards are "negotiated" between the city and the
developer with provision to exceed the underlying zoning standards where it can be
shown that it will provide improved design and / or public benefit. This allows the
decision makers to approve a specific project subject to caveats and to place an
expiration date on a project if for some reason it does not come to fruition.
A developer would be motivated to use the PUD process in situations where there is a
large scale project in order to bring several review processes together, i.e. conditional
use permit, variance and zone change, under one public review; a mixed use project
that could not be accommodated by a single zone classification or when dealing with a
property that has site limitations or environmental concerns that may dictate a
unique design. The process offers flexibility in design however; it also opens a project
to much greater public review and scrutiny. The increased level of review also
typically results in better project design and greater assurances that it will be
developed as proposed.
w
�o
o aa~�gm
� ei
A
o°
((�, m
e�-
CD <<
m apq `rf'
mON
R m
m n
CD p
G G
erz
Gn O
m
n C
m
o a
o' n.
y
° a•O
cm
`< p
m n aq
o m°
m
e
R m 'C' o C n aq m a4 m
qP w n7' I m cCo N' . a. m m R m
n m � n �<
7 ?n
.. m.�-].,moo Q.R°-RO`04
mm'.m..� C p, mO OO�
P. m m G P. O. p G. m it,�.
n m
aq MN n
m o m ny G r�°- o O m
eP a pj R °• •� +l n• M IO m
to mm R.p.G 6,0 m-n O
aq R
m aq m m a' ''Y G n W 0
"'b m tr
G O o•o o� p
mpGo'" m m'aG O
rvn+ "� R " m .n•. O
p aq P• m " n aq O.
. r r-
�
G k m
7 Ropt
$ m C. O G
ID'a� m mm =m'q
Cm_m
,W0-0
n pp77
m
oo �.m Ch
mG ,7 ,v. 0
roQ-a ° mo'w m
m. o m m.b m 0 m
�c.w anm o mm m o
fl m.m m ° �n'ti m fCD
Fi
ym
A. m OmG p �• � � R
CD aq
sm
G m C T py
m•' Mb m m mm fD
mc�'.. m.
m
m
F, ,n,• ��-�m G'm
ma x:m ti ^G Yr.'
CL
t" p�
6 m Rx�-p.m n m`ID-
a n 7 w m m
mma. sD c
m o M Or,
n waq
n C1 o G m•b ° ° m
:r
.a aq '•3 �. N
O
"�O'mm �•fp c'° r "
mr° m aqaq o
.. m O• r- R o
rmap,=mm CC
n-co -o•m" o
mm
nmi a m o pyp
•'7+ a m p c m' a m p�,
Go CL
G ° n I m
o
CL
• e� O m :m
;qa Or m msw -
f� ��G
!' mCaq mm�.� •
�Vr vn O ~ R'.•J R F vvr � � � q C ��•G:v�vv�V� m �: .':vv v ..vv�
�aO OC mm nm �"K mm m_m m m O.m G m n m p, G p m .,y �b R. ...J "'ef m
�'G m R m Al m :° n m m m �, n m a .. �. �. a a� m R m �. R aq R m °b'' o .° R` `C n'
mm�tOD R0m�mSD ,aq G.m•'��Gmm *nm� G. m o my �O .mG.GP. �RS���,
.m .on. mRm p, m w O'e m..m CRM,Rb 'mi m R,�... m. °:n `m 5 ,mm n o m o G•w m o mr.'
❑ --a ma RS n mn m wa m w n Mm m Nc ^.m m n 3.aq o m m� o a w m a m
cm w m o a o m mo o a. m o m
�� `m i;�a�°.- am 'n�°O<m G•o�"'ma'
a�ymsmaa=�°Ka°aaoay�c mc°rycoa ]mmm mew cm
'L % CS P �.'t7 a�q m O
t{ G '° v, m O m 0-m gmg o e. a .+i n^y '� o' m m ° �a �o m R" �aa70. m-•~R•'. m
tr
'C �• W m .7 G E- F. m R'C �+ R N ? m m °m•'o n0 m mR a
O .0
w M, m;bmmFom mm�.naK a.n.v mG Torow off':
R
aq W ?'m.. p 'J','SR'm •O C y aq - "mom, m p�, wry m �' m ^'m p ^7".
° G m .°. m.0 R'_'� aaoo m ] '3 .JR.m G N -' P. p1 aq-
ro. n.. G m m m in
oo �-• 0-4
4 ... a � y, y m � aq aR' M� a o p`nga r- � R ro =.
C pa a ' aq em•' p � .aGY ti aqq o amp* n. m,F_ m m .G•t � C•
Qp1w R I+--
°• .��• k7 . c' m ❑ G rp O `L G m" pOp11 �y .a C a. Q
aq il. ... O'aq S'- m i°...�I. R a wm m 7. O m � •° Iy �.
y -0 aq G< n° �' m. ° m m m �° tl h7 m a4 0
.�R. P, °.
aq p G.: (m� 7' m S O R M�. O- G C G. p
n m tmn 8 Oq n• m y mm �... � � °' m c°•' � C R �.
m m n G
G o �aq R m Rb m m m m m vi
aq 0° w m n p
m
G .. °• � G m m e�. n m� m m p, O � a4�
'O
aq C O �' "�' '.� m O' G. n m tT' m O R
aq o. m 'ti . R R m0. G 'O aq M.
m m
O m G+ Ut n em•' R
b
m R o� m�. � ,�,`7 a�0' me x
a• � '.y m G G= m m O. m R ncGi- m m apq R. m'
.mRC.. R•.n.J 'tea" m P:
aA wH 7�o .. w�iw.. m O m sa' I
0 CD
mom wmcoom�m.o.a�� �`Ro°�mamvv.<movm Cam mt"t"�i�wH�m C.�me o. .�"T'm
a 1D m a „0m° Z.
� � m'^ c Ro m `_2 gy �7 o o 'e. a.o Cr t3 P.o
6�d w''a m�P.R Gmm 0, Cr �4Q•
ryR 3mao 2a '°mga�•-m.o�o R°^ mmm. ��, m M�y m O
omp MOn GC] mS..mmYSaq 063m
0 —0 am anm m f o pnpG D W
aq
m A M m Y_ 'O m
P. ° CO w �Y W O G 0 'C -P) aq
G7 °�. m a m m m.ppaqq m �rpa,.y tp
n O S n C N fj n O O• G a m i'O
�H m ._❑_ �?: �. m_7 w,=, aw �� 2m x7�N �5.�pO. G'm❑ °°.m
�'° R°m° .m mw- "� naq
'❑ �m �c ° ro o a m� o .2`R nm •T< m c crn e ]
m, ro r ° CD p : C° - C
E m< D C do No a•:�mm �O m O)
H uq ..� _ aq °• o _ m@. CD
m `C co ram. ° CO °+ O
o 'O n ^+C'O m �>w m 0
�°c R 5.�:`0 G �� w 0 m . * B o � m, m � ° �a
C W D 7 d G c. '-: G 00
'°?�.�o D. �•v.+mm co R,L-'Q °Go•°e�mm Gm� ag^C W'mD M¢, b'c. .J .�,.. O M
7O•+a R5R, R,R�35< R Oft am`d.� mtie•F aNr(Dn7^m °wnaqS9Pm x<^ Y°
aCDpamW DmmRo oC° rny 7mm
C m m y `�"^'. o, o m o A a' '` •s tl ". m G' C G ^W N .�-- G
'nS G m w R -°' a 8 �: < m a' M n a G _• m 0 P. ^O'"t°e n m a P 7 o o 'n+ emm. ^+ W y er O .7 aGq 'Fi C7 a: O
m 9
m°ch�o-`�� m0f+..W
m o" O °•R t+ x a m'=" m m �' _' D..mm+ �. n C au y C m a C? H ra < �- °mi G p'• aSip C=
C P+
CCan wp R.O T5.M°, .'*' a:PwCm p M m`n WG S'mm Om W"' a,OO m
p a. & A g m '� W ."7+ p,, m P
m ob�C a.mrn`m. �. n m m p•o �'°3 7 co
m wty' ny dP� mad N �.... w y
n a o °• m, ..� H i-• G 7 R O C R 0mq umi n i� w P�. Y o m C� C (AMl
;a
'-'� �.ml � � � ° .°,� em.-- � � m � 7. m 7 �n. p• O ' m � 10 � a o- M lD lD e+ O m ° e.F
.°.,� m Off' m �+ O � m N O m m D .�?. D m f ^+� m � �. m' m H m � n ff �" M e•t �" "t �
D o m � ❑'� o .. m w m G❑ o o C � d m° x 'm�' � �m �� H S �t.��-+ "D °
HH m• m .., o ar °.., as H H_ a H ,+ m �. � o m ro m
anq G 'n m 9C o" xo ti Ro Z 0m°.� �W
£ �mw PCK4`"',o°_mm S a:w Bm�g�wo°CD m
.mv
ca CD CD
tl n CD � N N a C m� a eG•' aqIt
R Fs�•+
p°.aym�rovXm�°�0�moo>°ana ��•�o
onmCm�nma.�...o 's'a.o ;a 5P., a, D m morn
`O `C 0 aq R m M m G m a. a m C aq „ b
G O O CD �p �y
mm G G �- ,m>✓'U 4 m G o°q o R� --ow m 0 pP�. 07 m y
"O '.� ° `. m 'S'ryy0 a m Q ro m..7
o - m Im m m � `� o C a=°'aqtr `a aq
c mao
mwR- ° a°o',°„"-°wc'r�4'�c mrn°o•`�_W Ntr�' o�p
O m m mm G O "� O. ,}.`� °'• ,y pad °d y„ .H-
�m r• m ° mm m� dm O M
Pi h + m m CD
m" C mO ° O• �mmmti M�°, �o O
o CO,-mar:m c o no o °,E C-�G a w
m W 0 O n .� ^! m• y'O c+; n v m
M N G O G O LJ Oq 0. e�•r er m O K @@ aq
'II P. of ,:" C �•. m O °"' ° m d m m m w
a G a: "! Gam" m ID �. O N O m m b+ `• °�'� ° G `<
aC
G. y p <.� R O ❑ O O ��m--mC �] m K O• p7
r°ti n 'ray' O cG•' '^+ •- m N �D p C[' G° m 5 lFryy
remp"°
Rp, 'yp
m rG. mcz
f. o+ p J a Cr'Ro m•"'_" �m�m Fl mG•'R GG
W m ^f
° b w�' ab b m
� 7
G n ° H • .ti G• G
.O.
Lm�.w
Ba p�7 mD oAE ac. m.F a�m mmj
90 mP_•�F'...m q gibm
. 9. o �_ m •8 '�:-:
a: m ro
. �. Rm 'ml. m o cm+. �nD rr H t3 ❑ o `C..
❑'n-T. O Fya., pmf�o e�i•`°'�p P� N
E'd
tv
H
RON Mc oO10 i+m� o c�+•C H MC• -.m5a �'m:
m t" C ppg �R m o' md
m. `.o
m C: 'a'
CD 1
o R n CD
m m
o em. .•a C e°r- �.y' ° CI- n! R CI Ef'�• CO
�UQ
F m
m 7C.H ty o•
�p�m�a°Qr ��C, �• m
n H F p R+
CD n
D R N ry n n I--� �• D 0 H N e'
m R H D i tp
m N D
t
N
w Oro o ro a o cr R^ .PD o
R G m �. K M G ON amp -R. CL m.:r' . m 7 m m
CD
ism m `R" O "•m1 v 0 w v o n 0 M: W F+ 7 v- G v
G� A
aID� m fo POw 7
o9 o. GGoO �10 D.: bro..--.•ro 7no`{ m
roCcm.GG C�WOOG.0w00.5 pm.�pQm3�R�K-Oo�,RyC
r0 R w O W O' R R a O•' -el RR
_o x'c•p,�� w-°<�m. o�'�,�, �'Oaam`o..m.p fir;-.m w R�.oGm
N O N m °< C. O aq :'m m m 'C. °. 7_ G m ma M M Q Q m m n m
%Ro'y'b RWW� So t< o-, o`C -�_. �'a. GW Gp aq
.m�G G a �. 0_.4 CD m G @.a Z G'.1 w O- m 7 c oo n -G1. K m-:gym. G' o
Py.R- �•m' mQpro o. $. _f1'7azq e G m..
-_ m m. ..y. CDO'' �_ m m 7 o O. R.b
yq 0`JO a• m 0'm ID
p ^t7,.. R m p C m o m m:m: Gg'� �! "@^G C C `O"" •Oro pmp
0 m "�= O Rom' '�2 Rm- m.a .mj 'm0
,t. R R, 'G aq cr'O - m A. ❑ G
-ma:O K<o.o7'�fmo� gem o'C .m°o� �'0
b 0 0 O O ^T "� m' .3- e•r O ro O W C Q+ m.. m 0 H" W `Y O
O" 0 7- rop o OG•• R O ^C C3. m O m T O m •O m�� �s m C. `y �+ ro m yO •'T'
14 `"Sron eP'r-tr h7
- ��' I Cr
m o
,.' a- _m s m a m d .� O p, -G `o' ^ y• n
CD
o�o°G w K o �:`CNm.-�_wo 0y G't
K o- m G n m _ Pq' OGn Ti 'P�1 RO `C ; ... m mR'❑C,., Pi ;C rG0. G m o rn ° .mm m
CD OP.mOaD °� 9."c Om
CD WCA
aP. G. r mm.Yl MG 1 '.'•^1„
'
sm O 0 ^Y W
O O m
GK roL • "COc�+-' m Ra"e•'Gm P1T m�w m'a yy wc,. o
po.aq m. m:.. •`'�r• - N V GG . 'O� 1FA.: T d
in m
RE•o y y � o-�p.o oroo o':o p,, x.��? � �. to Ra'A
G P+ m
mao °:o• ] o_w �a °p m c"�°2 fir,
CD ti.. M'G
rowti R �-ate m_Rrom m � .�.o�
o t•+ m- m 'P'.�
aq -,1 G m m ry ."R-' C m N fQ' :� m n' m m C
i-• �' � R B 7 t+
�° N 'mf mCOm Np�
ayG a pQ m
m -cnm am
� � m•OmR m °
R9 rm ?ey
S
o�,� 8 rr
c5
S 'om c
m a o Owi
y y y � J
m
Om O�v FFL
FL FL
m P-
Nm m ry y oPa
Clio cmOCml °'
" m m cO w< S 7
R m
x a r Cr
^o yaNm`a �' mm
o cia
°'=mKON GC]
a m7 $
P.TO Uco'�;P
91 rQm-3H H
MM
m'La
R
81w Payro n.5-m m R
m D
m ^� NWor" m
m •c a' c CO .. o. m R n
?'sw0w7 n C �.
ton-
.
CD w
m-
!'�0�90.� �' S �•• �'Ky
oy� m � D mn er o
'D m m K
.may -0 G rmn
m SP.Cc� mr Oh w G O
N Py R n m
m xm x �?? G F C
y m m ro C
o 'bwmoN�.ql
to � � _'y' m r ',D. � w "• y
a"oa � cD O o
I
Page 62 - Kalispell Zoning Ordinance
9). Such commercial establishments shall be
architecturally harmonious and compatible with
the associated residential uses and primarily
serve the needs of the persons residing in the
district and those in the immediate vicinity; and,
10). In the event that plans for a Mixed Use PUD
include a commercial use not specifically
provided by Section 27.21.030(4)(de)7), then
the City Council of Kalispell shall make a
determination on whether such use is generally
compatible with residential uses and with the
"mix" of uses proposed in the PUD.
(5). PUD Preliminary Plan. The property owner applying for a PUD
district classification shall submit three copies of a PUD preliminary
plan which shall contain the following information. If a PUD also
involves a subdivision, the submittal shall also include the information
and documents required for application stated in the Kalispell
Subdivision Regulations.
(a). Proposed dimensional layout plan super -imposed on a two to
five foot interval topographic map of the area drawn to a scale
not less than one inch equals two hundred feet showing all
streets, buildings, open space, lots and other elements basic to
the development;
(b). Proposed locations, areas, densities and types of residential and
nonresidential uses and structures within the area proposed to
be developed and maximum height of buildings or structure;
(c). Proposed plans for handling vehicular traffic, parking, sewage
disposal, drainage, water supply, site perimeter treatment and
other pertinent site development features;
(d). Elevation drawings which demonstrate visually the general
architectural features of each proposed building or
architecturally distinct group or type of buildings and the site
perimeter treatment;
(e). The plan shall show the boundary lines of adjacent subdivided
or unsubdivided land and the existing zoning of the area
proposed to be changed to PUD as well as the land adjacent
thereto;
Creation of Planned Unit Development District - Page 63 1
(f). An enumeration of covenants in detail proposed to be made a
part of the PUB and shall be enforceable by the City Council;
(g}. A statement expressing the order in which the development
shall occur and estimated time for completing the development.
In case of a phased development, estimated time schedule for
starting and completing each phase of the development shall be
provided;
(h). Adequate provisions shall be made for a private organization
with direct responsibility to, and control by, the property
owners involved to provide for the operation and maintenance
of all common facilities, including private streets jointly shared
by each property owner, if such facilities are a part of the
Planned Unit Development, and in such instance, legal
assurances shall be provided which show that the private
organization is self-perpetuating and adequately funded to
accomplish its purposes. Real property taxes of the private
streets and common areas shall be assessed as levied pro rata to
all privately owned parcels within the district;
Adequate provisions shall be made for common facilities
which are not dedicated to the public to be maintained to
standards assuring continuous and adequate maintenance at a
reasonable and nondiscriminatory rate of charge to be
beneficiaries thereof. Common facilities not dedicated to the
public shall be operated and maintained by the private
organization and at no expense to any governmental unit;
All private streets shall be maintained by the aforesaid private
organization in such a manner that adequate and safe access is
provided at all times to vehicular traffic so that fire, police,
health, sanitation and public utility vehicles can serve the
properties contiguous or adjacent thereto and so that said
vehicles will have adequate turning area;
(k). The off-street parking to be provided shall meet the minimum
standards for off-street parking as per Chapter 27.26 of the
Kalispell Zoning Ordinance;
(1). Where a PUD also involves a subdivision of land, it shall also
meet the requirements of the Kalispell Subdivision Regulations
and the Montana Subdivision and Platting Act;
Page 64 - Kalispell Zoning Ordinance
(m). The city council shall require bonding or any other appropriate
collateral to ensure that all required improvements shall be
satisfactorily completed in accordance to the approved plans,
specifications and time schedule; and,
(n). Any other information, plans and details which the Planning
Board and/or city council may desire to fully evaluate the
development proposal and its impacts.
(6). Preparation of Final Plan. Upon approval of the preliminary plan by
the city council, the property owner may proceed with the preparation
of the PUD final plan which shall:
(a). Incorporate all the conditions imposed by the City Council at
the time of approval of the preliminary plan;
(b). Have the following certification on the face of the plat:
I, , owner and
developer of the property set forth above, do hereby agree that I will
develop the above property as a Planned Unit Development in
accordance to the submitted PUD plan.
Signature
Property Owner//Developer
Approved this _ day of 19 , by the
Kalispell City Council.
City Finance Director
(7). Filing and Maintenance of Final Plan. The applicant shall submit
four signed copies of the PUD, final plan and related documents to the
Flathead Regional Development Office. Upon approval by the City
Council, one signed copy of the plan shall be returned to the applicant,
a signed copy shall be retained on file in the City Finance Director's
Office and one signed copy each shall be forwarded to the Flathead
Regional Development Office and the city building official.