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1. Growth PolicyFlathead e i al Development Office 723 5th Avenue East - Room 414 Kalispell, Montana 59901 Phone: (406) 758-5980 Fax: (406) 758-5781 REPORT TO: Kalispell Mayor and City Council FROM: Narda A. Wilson, Senior Planner SUBJECT: Kalispell Growth Policy Plan MEETING BATE: November 13, 2000 City Council Work Session BACKGROUND: In working through some of the growth policy plan issues identified by the council, the council held a work session on October 23, 2000 to discuss the potential for the adoption of an urban growth boundary and / or an urban service area (boundary) as part of that document. Based on a recommendation from the Kalispell Planning Board and other practical issues related to the subject, the council generally concluded that there may be unintended consequences to an urban growth boundary because of the unregulated nature of the areas outside the planning jurisdiction. It was generally decided at that meeting that an urban growth boundary- was not an effective growth management tool, but that the service area boundary - established in the Kalispell Extension of Services Plan could be used as a tool for anticipating where urban scale growth would occur. In working through the list of issues, the council decided to discuss several issues at the next work session scheduled for November 13, 2000. Because of the need to gather certain technical data in order to have a meaningful discussion, I have postponed the issue of "where to provide for large scale and big box commercial, if there is adequate space for additional retail and do we need or want more." Therefore, I have attached a brief outline as a springboard for discussion relating to the tyvo growth policy plan issues before the council. Those issues are: ® Develop a vision statement as a tool for focusing policy and issues ® That the city and county consider the adoption of extra -territorial zoning to provide greater consistency in development standards and to streamline the annexation process. COMMENDATION: Develop a vision statement for the plan to be inserted in the beginning of the document. Develop an objective related to intergovernmental cooperation and some goal statements supporting the objective. Review "the list" and define for the staff the scope of the next work session topic, i.e. the need for neyv commercial areas in the planning jurisdiction. H\... \KCCMP\UPDATE\2000\GPMEMO.DOC Providing Community Planning Assistance To: • Flathead County • City of Columbia Falls • City of Kalispell • City of Whitefish Kalispell City County Growth Policy Plan Memo November 9, 2000 Page 2 A vision statement can be used as a tool or reference point for relating policy and issues back to the basic "vision." Developing a vision statement is as "simple" as a matter of stating what you would like the future to be. It is taking a look at the big picture and framing it in a few simple words or sentences. A vision statement should be short, a few sentences that embodies an overall idea about the future. Developing a vision statement essentially establishes leadership and understanding. We always knew the Enterprise's mission because someone back at StarFleet headquarters has made it very clear: "These are the voyages of the starship Enterprise. Her continuing mission, to explore strange new worlds, to seek out new life and new civilizations and to boldly go where no one has gone before." The vision statement in a land use plan gives us a concept of what type of community the leaders envision. It can guide the development of polices and goals for the area. The vision statement has an end in mind and provides a focus for common purpose around which a set of objectives and standards can be established. As an example: "The Kalispell area will continue to strengthen its position as the regional center for the Flathead Valley community in creating a diverse economic base, efficient public services and a variety of housing options. New urban scale development is encouraged in areas where public services and infrastructure are available, while protecting the important rural, historical and natural resources inherent in the area." What is your vision statement: Kalispell is (fill in the blanks)... Kalispell City County Growth Policy Plan Memo November 9, 2000 Paae 3 One of the issues identified by the city council to facilitate intergovernmental cooperation is that "The city and county consider the adoption of extra -territorial zoning to provide greater consistency in development standards and to streamline the annexation process." The State statutes have a provision for zoning beyond the corporate limits of the city as outlined in Section 76-2-310. This section is as follows: "Extension of municipal zoning and subdivision regulations beyond municipal boundaries. (1) Except as provided in 76-3-312 (this doesn't apply to Kalispell), and except in locations where a county has adopted zoning or subdivision regulations, a city or town council or other legislative body that has adopted a growth policy pursuant to this chapter 1 may extend the application of its zoning or subdivision regulations beyond its limits in any direction subject to the follow limits: (a) up to 3 miles beyond the limits of a city of the first class as defined in 7-1-4111; (b) up to 2 miles beyond the limits of a city of the second class; and (c) up to 1 mile beyond the limits or town of the third class. (2) When two or more noncontiguous cities have boundaries so near to one another as to create an area of potential conflict in the event that all cities concerned should exercise the full powers conferred by 76-2-302, 76-2-311 and this section, then the extension of zoning or subdivision regulations or both, by these cities must terminate at a boundary line agreed upon by the cities. " Kalispell is a first class and therefore eligible to extend zoning three miles beyond its city limits. However, because Flathead County has already extended County zoning into this area, the County would first have to relinquish its prior right to zoning in the effected area. As the council is aware, there is County zoning surrounding the city limits of Kalispell. In order to accomplish extra -territorial zoning, this would first require an agreement between the City and the County that this would occur. A perimeter boundary for the extended zoning would be established. Concurrently, the County would rescind the County zoning and the City would adopt new City zoning in that area. As briefly discussed at the last work session, the City of Whitefish and the City of Columbia Falls have extra -territorial zoning approximately one mile beyond their city limits. Extra -territorial zoning was adopted in these areas prior to County zoning being in place, with the exception of a relatively small area that was later brought into the extra -territorial boundaries in Whitefish. A map indicating a one mile area around Kalispell is attached to this memo. Kalispell City County Growth Policy Plan Memo November 9, 2000 Page 4 It should be noted that the issue here was "intergovernmental cooperation." Extra- territorial zoning was one way to facilitate that intergovernmental cooperation. Possibly a goal statement could be included in the growth policy plan that addresses potential extra -territorial zoning. If the document is adopted by both the County and the City agreeing there is the potential for this, further discussion might occur. Note:_ an implementation.. policy. Kalispell City County Growth Policy Plan Memo November 9, 2000 Page 5 Under the Administration section of the Kalispell Growth Policy Plan, a short section on Intergovernmental Cooperation could be inserted. As a springboard for discussion, here is some language that might be incorporated into the plan: Issue and Objective Develop a cooperative relationship between the elected officials, government agencies, service and utility providers that results in consistent development standards, efficient use of public infrastructure and resources, and quality development. That City extra -territorial zoning be extended one mile from the city limits to provide greater consistency in development standards and to streamline the annexation process. ® That a memorandum of understanding be signed between the City and the County that would form an agreement between the parties to adhere to: - Urban development standards - Subdivision plat review processes - Annexation policies including transfer of County roads to City - Extension of municipal services including sewer, water - Etc. ® That the City and County identify ways to share equipment and other resources to increase the efficiency of local government operations. ® That the City and County meet with the school district, public utility and service providers to share and coordinate long-term plans for capital expenditures, future development plans and utility extensions. Can you think of ways that there could be greater intergovernmental cooperation? ® (fill in the blanks)... Kalispell City County Growth Policy Plan Memo November 9, 2000 Page 6 Below is the list of issues we have been working from. Some of the issues have been addressed and show a strikethrough. Other issues are still on the list, and may warrant some refinement so that there is a clearer focus of the task at hand. under-standingbetween thegoverning Public services and infrastructure should be developed in existing commercial areas rather than expanding additional commercial areas that do not have public services readily available. (A policy statement that is in the current 1987 plan document.) This is a policy statement. Do you want to include this in the commercial land use section of the plan? The issue of where to provide for large scale and big box commercial has not been addressed. Is there adequate space for retail, and do we need / want more. Do you still want this as the next work item for the council? That the existing neighborhood plans should be reviewed for relevancy and consistency with the adopted growth policy plan, especially those which are over five years old. Some may be outdated. This is a big work item. How do you want to handle it? Parks and recreation element may need additional review and coordination with parks and rec director. We could integrate the bike and pedestrian plan as part of the parks and recreation element. What do you think? Kalispell City County Growth Policy Plan Memo November 9, 2000 Page 7 A provision in the plan that requires (new) zoning to comply with the adopted growth policy plan which currently it does not. (This is a policy statement.) This is a policy statement. Do you want to include this in the implementation section of the plan? The 1999 draft eliminates nearly all references to natural resources, location of future developments and preservation of community values. The sections dealing with open space, watersheds, wildlife habitat and other elements of the natural environment have been generally eliminated. Do you want the staff to work on some additional language for the natural environment section of the plan? Developing a policy regarding when productive agricultural land should be converted to a higher intensity residential or commercial uses. Do you want to work on a policy statement regarding agricultural lands? Updating the Plan Document: That the proposed map should be reviewed section by section and consideration given to reconciling the 1998 and 1999 map land use designations such as urban j suburban residential, commercial and the concept of "priority growth centers" and "urban expansion areas." Map review should come near the end once the plan has been generally developed. The map should comply with the plan and review is warranted. When do you want to work on this item? Additional mapping of the fire districts, school districts and existing land uses could be done which are missing from the resource and analysis document. Do you want the staff to continue to work on this item? Baseline data, which includes an inventory of land uses, should be established in order to monitor and gauge the amount and type of growth within the planning jurisdiction. This is a big task that warrants some refinement as far as the scope of work is concerned. Narration in the overall format of the document would make it easier to read and to understand as well has to provide a better overall understanding the community. Do you want the staff to integrate the resource and analysis section of the plan in the plan document similar to the existing plan? The plan lacks a pedestrian and bicycle component of the transportation section which has been prepared in a draft form, but has not been reviewed or integrated into the plan. We have a draft document. Do you want the staff to work on this as part of the parks and recreation section?