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PZ Recs/Staff ReportSTAFF REPORT Hearing Date: October 2, 2012 E IDIAN'~-- TO: Mayor and City Council I D A H O FROM: Bill Parsons, Associate City Planner (208) 884-5533 SUBJECT: CPAM-12-004 and CPAT-12-001 -South Meridian 1. SUMMARY DESCRIPTION OF APPLICANT'S REQUEST The City of Meridian Planning Department has submitted applications for a Comprehensive Plan Map Amendment and Text Amendment (CPAM and CPAT) to the 2011 version of the Comprehensive Plan (the Plan). The subject applications includes changes to the following: 1) amendments to future land use designations, adding an Airport-Overland Road extension, and amending entryway corridor locations on the Future Land Use Map (FLUM); 2) amending the Area of City Impact; 3) text changes to the Ten Mile Interchange Specific Area Plan (TMISAP); 4) amendments to the Existing Conditions Report and 5) various text changes to the Plan. 2. SUMMARY RECOMMENDATION Staff recommends approval of the proposed CPAM and CPAT applications based on the analysis provided below and the Findings of Fact and Conclusions of Law listed in Exhibit B of the staff report. The Meridian Planning & Zoning Commission heard these items on August 16, 2012. At the public hearing. the Commission voted to recommend approval of the subiect CPAM and CPAT reauests. a. Summary of Commission Public Hearing: i. In favor: City of Meridian staff ii. In opposition: None iii. Commenting: None iv. Written testimony: None v. Staff presenting application: Caleb Hood vi. Other staff commenting on application: None b. Key Issue(s) of Discussion by Commission: i. There was a Commission comment that the plan lacked adequate residential density. c. Key Commission Change(s) to Staff Recommendation: i. None d. Outstanding Issue(s) for City Council: i. Since the P&Z Commission Recommendation, some new information regarding the southwest portion of Meridian's Area of City Impact (AOCI) has come to light. Staff requests additional time to consider and present all the impacts of amending our AOCI to Council, and that no change to the AOCI boundary be pursued at this time. Instead, Staff recommends adopting the preferred South Meridian land use designations from the public involvement process including the incorporation of additional text in Chapter 3 of the Comp Plan for a new "Rural /Estate Residential" designation. Staff will further explain the text changes and AOCI impact information during the public hearing. 3. PROPOSED MOTION Approval After considering all staff, applicant and public testimony, I move to approve File Numbers CPAM- 12-004 and CPAT-12-001 as presented in the staff report for the hearing date of October 2, 2012 with the following comments: (Add any proposed comments.) South Meridian CPAM-12-004 &CPAT-12-001 - 1 - Denial After considering all staff, applicant and public testimony, I move to deny File Numbers CPAM-12- 004 and CPAT-12-001 as presented during the hearing on October 2, 2012, for the following reasons: (State specific reasons for denial of the subject CPAM and CPAT application.) Continuance After considering all staff, applicant and public testimony, I move to continue File Numbers CPAM- 12-004 and CPAT-12-001 to the hearing date of (insert continued hearing date here) for the following reason(s): (State specific reason(s) for a continuance.) 4. APPLICATION a. Site Address/Location: City wide b. Applicant/Representative: Caleb Hood, Planning Manager City of Meridian Planning Department 33 E. Broadway Avenue Meridian, Idaho 83642 c. Applicant's Statement/Justification: See applicant's narrative for this information. 5. PROCESS FACTS a. The subject applications are for a Comprehensive Plan Map Amendment and Comprehensive Plan Text Amendment. A public hearing is required before the Planning & Zoning Commission and City Council on this matter, consistent with Unified Development Code, Title 11, Chapter 5. b. Newspaper notifications published on: July 30 and August 13, 2012 (Commission); c. A public service announcement was emailed on August 6, 2012 (Commission) regarding this application. 6. COMPREHENSIVE PLAN ANALYSIS The Comprehensive Plan is a document that contains goals and objectives that encourage and promote a well designed community, with the ultimate goal to make the City of Meridian a premier place to live, work and raise a family. By regularly updating the Comprehensive plan, opportunities are provided for the community and City staff to measure the success of the plan and its impact on the community. Staff believes the proposed amendments to the plan (including the FLUM) provide the necessary guidance to meet the future growth needs related to transportation, land development, public facilities, recreational amenities, housing, economic development and community desires. The specific objectives and actions that support the proposed text amendment are listed below: • Update the Comprehensive Plan and Unified Development Code as needed to accommodate growth trends (Chapter 3; pg. 45). Staff believes the proposed changes to the plan are necessary to accommodate growth trends. Several internal, focus group and public meetings were held to discuss the appropriate land use mixes for South Meridian. As a result of these meetings, staff believes the appropriate future land use designations have been assigned in the area. Further, the other text and map changes proposed have been identified by City staff, developers, Commissioners, and make the Plan a more useable and clearly-defined document for future growth. • Work with transportation agencies and private property owners to preserve transportation corridors, future transit routes and infrastructure, road and highway extensions, and to facilitate access management planning; use COMPASS' Access Management Toolkit (Chapter 3, pg. 45). South Meridian CPAM-12-004 &CPAT-12-001 - 2 - ACHD and private property owners were actively involved in determining the location for the Airport Road - Overland Road extension. Further the Corridor Study calls for access management along the corridor, as development occurs. • Require the public street system to be continuous through each mile section. This does not preclude the use of traffic calming measures, nor does it imply the roadway have a straight alignment (Chapter 3, pg. 48). The Airport Road -Overland Road Alignment Study calls for an arterial public street (Overland) to be extended west of Ten Mile Road into Canyon County. This area currently lacks continuous public streets, particularly arterials. • Coordinate with Public Works, Police, Fire Departments on proposed annexations and development request and impacts on services (Chapter 3, pg. 50). Public Works was very involved in the Planning process to determine how much of South Meridian could be serviced and the minimum density necessary to support said services. Land uses have been planned accordingly. Additionally, some of the proposed text changes further define the role of the City and the transportation authority for future road connections. • Plan for a variety of commercial and retail opportunities within the Area of City Impact (Chapter 3, pg. 51). Part of the process to ident~ land use designations in South Meridian, was to recognize where the market may call for commercial and retail opportunities in the future. Although no "commercial " designations were ultimately identified by the community, several "mixed use " areas were, which allow for commercial and retail opportunities. • Coordinate with Ada County and establish and maintain an Area of City Impact Agreement, to ensure that rural areas are developed in accordance with all applicable provisions of this plan (Chapter 3, pg. 52). City staff has coordinated with Ada County on the proposed comp plan changes, particularly in South Meridian and the Area of City Impact proposals. After Council action, City staff will work with Ada County to update the Area of City Impact Agreement (Ada County, Title 9). Part of that process will be to ensure that rural areas both within and outside the Area of City Impact will be developed in accordance with City and/or County regulations. • Evaluate feasibility of establishing preservation standards and incentives for protecting the long- term use of land with prime agricultural soils for agricultural purposes (Chapter 3, pg. 52). Ada County was among several agencies participating on the Project Advisory Group (PAG) to ensure that planning efforts provided for appropriate future development of rural areas in accordance with City and/or County regulations. The City evaluated and provided the public with analysis of prime agricultural soils, and was used for identification of areas suitable for viable preservation. Part of the outreach engagement process included arural/estate future land use, which provided the public an option for preservation of agricultural related uses. Identified areas for preservation were predominately located in the south west corner of the planning area, and are reflected in the staff preferred scenario. Part of the process was to also ident~ commercial and retail opportunities within the planning area, of a suitable scale and density appropriate for the nearby land uses. The City, working with the public, PAG, and in consideration of other specific plans and neighboring land uses, identified several mixed use areas which will allow for appropriate levels of commercial and retail opportunities within the planning area. • Integrate transportation plans and studies into the Comprehensive Plan and City ordinances (Chapter 3, pg. 53). South Meridian CPAM-12-004 & CPAT-12-001 - 3 - Part of the subject application is to integrate the Airport Road -Overland Road Alignment Study into the Comprehensive Plan. Further, as land use designations for South Meridian were contemplated, ACHD studied the future roadway and intersection needs in the area. As ACHD finalizes the network, that too will be integrated into the Plan and ordinances as applicable. • Preserve and protect viable farm ground and agricultural resources (Chapter 5, pg. 69). The City evaluated and provided the public with analysis of prime agricultural soils, and was used for identification of areas suitable for viable preservation. Part of the outreach engagement process included arural/estate future land use, which provided the public an option for preservation of agricultural related uses. Identified areas for preservation were predominately located in the south west corner of the planning area, and are reflected in the staff preferred scenario. Keep current the Unified Development Code and Future Land Use Map to implement the provisions of this plan (Chapter 7, pg. 89). These applications are meant to keep-current and applicable, the Future Land Use Map so the provisions of the plan may be implemented. • Develop and adopt new procedures for engaging the public in land use planning processes by using a variety of methods to inform and solicit comments (Chapter 7, pg. 89). Public engagement in the South Meridian planning process took many forms. A project website was established: www;youarethemap.com. This website was used to keep interested parties updated and informed on the status of the project. It also contained a survey, maps, and other relevant studies and background information. Further, the City's website, Facebook, Twitter, and other social media outlets were used. More traditional methods -Palley Times story, postcards, phone calls -were also used to engage the public and stakeholders. Three public workshops were held; the first one was centered around an interactive game called "You Are the Map! " which allowed stakeholders to `paint" South Meridian with d~erent land use types. These original scenarios (4) were used as the basis for developing the preferred alternative land use designations proposed in the subject CPAMapplication. • Integrate land use and transportation planning to ensure that they mutually support the communities' goals and desires (Chapter 7, pg. 89). Part of the subject application is to integrate the Airport Road -Overland Road Alignment Study into the Comprehensive Plan concurrently with the land use designations in the area. Further, as land use designations for South Meridian were contemplated, ACHD studied the future roadway and intersection needs in the area so they would support each other. As ACHD finalizes the network, that too will be integrated into the Plan. STATE REQUIRED COMPREHENSIVE PLAN ANALYSIS Idaho's counties and cities are required by law, Idaho Code 67-6508, to prepare, implement, review, and update a comprehensive plan which outlines goals and policies for land use. Fifteen elements which must be addressed in the plan are listed in the Code. It is the detailed ordinances that then spell out how these policies are to be achieved. The order in which the following policies are presented and analyzed implies no order or priority. a. Community Design The purpose of this element is to ensure a pattern of planned growth resulting in orderly and attractive developments within the City of Meridian. To promote quality design, future development must comply with the City's design standards contained in the UDC and Meridian Design Manual. South Meridian CPAM-12-004 & CPAT-12-001 - 4 - b. Population The City of Meridian must ensure that population growth is accommodated in an orderly pattern. Residential and commercial developments must be easily served by City infrastructure and public services. Services to this portion of Meridian will be developer driven. Based on the planned land uses, Public Works Department has the capacity to service the area. c. Housing The City of Meridian is charged with ensuring an adequate and attractive living environment which meets the needs of City residents of different ages, family sizes, lifestyles, and income levels. To accomplish this, the plan identifies areas appropriate for residential development and areas not appropriate. The proposed land use designations envision a mix of housing types and commercial opportunities into the future. d. Economic Development Meridian's economic base has been gradually shifting over the last 20 years from afarming-based economy to a retail, service, and manufacturing-based economy. During this time, local policy with regard to the types of lands needed to support the economic and employment needs of the community has also changed. The 2011 Comprehensive Plan forecasts the need to continually adjust the provision of commercial lands in order to gradually broaden economic opportunity throughout the City. The subject area is adjacent to properties in the TMISAP which is planned to develop with a mix of employment opportunities to largely support the economic needs of this part of the community. e. Public Services, Facilities, and Utilities Public services, facilities and utilities will be provided at the expense of the developer upon development of any property in the area. Impact fees will be used to support Police, Fire ACHD and Parks. Depending on the land uses adopted, long-term facility and utility planning will need to be further evaluated in South Meridian. f. School Facilities and Student Transportation The purpose of this element is to direct new residential development to areas with adequate school facilities and student transportation. At this time, this element is not applicable to this application. g. Transportation The purpose of this element is to promote an efficient and safe transportation system within the City. Several proposed text changes reference clarification on transportation corridors. h. Natural Resources The purpose of this element is to promote the conservation of areas of natural significance, where appropriate. The Comprehensive Plan encourages the preservation of natural resources. i. Special Areas The subject amendment does not directly impact any lands designated for open space, natural resources, or scenic areas, nor does the parcel contain any known significant or sensitive natural resources. Several waterways exist in this area that may need to be more closely evaluated once development is proposed in this area. j. Hazardous Areas The purpose of this element is to ensure regulation of development in hazardous areas, such as floodplains, unstable slopes, etc. This area of Meridian is high in nitrogen rich soils from agriculture and has significant slopes that impacts serviceability in the area. Staff s South Meridian CPAM-12-004 & CPAT-12-001 - 5 - recommendation includes removing a portion of South Meridian from the Area of City Impact that would be difficult to serve with sewer by the City (see Exhibit A.2). Further, the density the community envisions for portions of South Meridian is not conducive or economically feasible for extending services to. k. Recreation The proposed FLUM changes designate future park sites and pathway segments on the plan. These designations will not change as result of this application, but additional discussion will need to occur to designate new recreational facilities in South Meridian. The proposed text changes further clarify the City's expectation for these types of recreation facilities. 1. Land Use The Comprehensive Plan Future Land Use Map is a graphic representation of applicable policies and goals of Meridian's Comprehensive Plan. The Map has been prepared to identify suitable areas for future residential and mixed-use development. The Map is designed to be a projection of growth patterns for the City. Therefore, the Map is to be used as a guide for decisions regarding requests for land use changes. m. Implementation The City provides the necessary staff and facilities to administer and enforce the policies and goals of the Comprehensive Plan. The City of Meridian Planning Department will administer the Comprehensive Plan and its policies through the Unified Development Code. The Planning & Zoning Commission is also authorized by the Council to review, approve and make recommendations on proposals affecting the public's interest in land use. The City Council is the ultimate decision making authority on most land use applications. n. Property Rights The purpose of this element is to ensure that the land use policies, restrictions, conditions, and fees do not unconstitutionally violate private property rights, and establish a consistent review process that enable the City to ensure that any proposed actions will not result in an unconstitutional taking of private property without due process of law. Staff believes that the requested Comprehensive Plan Land Use Map change would not unconstitutionally violate private property rights. o. Agriculture The City's Comprehensive Plan encourages the preservation of agricultural lands. Staff believes agricultural and related rural uses/densities will continue to be the primary uses for most of South Meridian for the foreseeable future. 7. ANALYSIS a. Analysis of Facts Leading to Staff Recommendation The City is proposing a host of changes to both the text of the plan and the future land use map (FLUM). Staff believes the proposed amendment to the FLUM and text of the Comprehensive Plan and its supporting documents provides an improved guide to future growth and development review in Meridian. Staff provides a detail analysis based on the submitted applications. The first section references the proposed changes to the FLUM and the second section refers to the proposed changes to the text of TMISAP, Existing Conditions Report and the text of the Plan. Staff has prepared a table that depicts the proposed text changes in astrike-through and underline format. Due to the size of the document, the proposed changes will accompany the staff report as separate PDFfile. Refer to the PDFfile for specific text changes. COMPREHENSIVE PLAN MAP AMENDMENT (CPAM): South Meridian CPAM-12-004 & CPAT-12-001 - 6 - Future Land Use Map (PLUM; the Map) Changes: Several changes to the Future Land Use Map (PLUM; the Map) of the Comprehensive Plan are proposed with the subject application. The major changes are in South Meridian where land use designations are being added where the "Future Planning & Referral Area" designation currently exists. The Airport-Overland extension alignment, entryway corridor designations, and the Area of City of Impact will also be amended in the South Meridian portion of the Map. Changes to the Map are also proposed in the legend (clarifying that "Waterways" shown on the map are "Existing", and that there will no longer be a "Future Planning and Referral Area"); the Ten Mile Interchange symbol and Kleiner Park (to reflect that they now exists); Broadway Avenue and E. 3`d Street Extension (shown as "Future roadway"). See Exhibit A.2 for all proposed PLUM changes. COMPREHENSIVE PLAN TEXT AMENDMENT (CPAT): Comprehensive Plan Text Changes: Several changes to the text of the Comprehensive Plan are proposed with the subject application. A number of changes are intended to clarify and update portions of the text; enhance dialog of transportation networks; enhance the usability of the Goals, Objectives, & Action Item tables; and generally clean-up portions of the text for consistency with other documents, plans and City Code. Some of the more substantive changes include: 1) An addition to the Downtown Transportation Network section in Chapter 3. This section is dedicated to the discussion of future transportation planning efforts in Downtown Meridian. This section currently makes mention of two north-south improvement projects, both the Split Corridor and 3r Street Extension, but does not make mention of possible future east-west connection from Main Street to Locust Grove, north of the railroad tracks. The intent of this Comprehensive Plan amendment is to acknowledge in the Plan, that a future east-west connection downtown is needed. 2) Adding an additional section in the Transportation portion of Chapter 3 titled: "Supplemental Network Improvements." This new section will initially be used for the Airport-Overland Road Alignment Study that was completed in 2011. The purpose of the Study was to identify a more direct east-west transportation route connecting the Nampa Airport and Garrity Road Interchange in Canyon County with the newly-realigned Overland Road /Ten Mile Road intersection in Ada County. In the future, additional non-State transportation plans, studies, and special projects are also envisioned to be placed in this section of Chapter 3. 3) Updates and enhancements to the Goals, Objectives, & Action Item tables at the end of each chapter. There are a few changes to text and responsible leads, but the biggest changes are through the addition of a new numbering system to help enhance and streamline references. Additionally, the priority column has been completed and relocated in the table. See attachment for full list of changes to the Goals, Objectives, and Action Item tables in the Comprehensive Plan. 4) Addition of Action Items related to Welcome to Meridian Signs to Chapter 2. This new text lays out the need for a sign plan throughout the community. 5) Amendment to the Future Acquisitions Map (PAM) section in Chapter 3. This section will be amended to reflect that the City is not adopting a PAM, but working on a future facilities map. Ten Mile Interchange Specific Area Plan (TMISAP) Text Changes: The Ten Mile Interchange Specific Area Plan (TMISAP) is adopted as part of the Comprehensive Plan by reference. The TMISAP has a number of sections where text does not fully describe intent, where descriptions are open to misinterpretation, and where text conflicts with other City documents such as the Unified Development Code (UDC). These proposed changes are intended to bring additional clarification to the TMISAP and create greater consistency with other City documents and development tools. The proposed changes to the TMISAP are generally clarifications of text, occur throughout Chapter 3, and all relate to the look and feel of new development. The largest proposed change is specific to South Meridian CPAM-12-004 & CPAT-12-001 - 7 - canopies and awnings, and is intended to bring greater consistency with the UDC. Currently, terminology in the TMISAP specific to canopies not only overlaps in intent with other areas of the plan, such as Awnings and Buildings to Scale, but conflicts with terminology used in the UDC. The UDC definition of canopies is fundamentally different from the Plan, where the UDC references construction requirements intended to support vehicular scale design, and the Plan references pedestrian scale guidelines that restrict vehicles. Because the intent of Canopies as described in the TMISAP is intended to bring pedestrian scale elements and protection, and because this is already covered in both the Buildings to Scale and Awnings section, this section is easily removed without loss of descriptive clarity. Staff believes that the proposed changes to the TMISAP more appropriately convey intent of guidelines and framework for design elements and create greater consistency between planning documents and the UDC. Existing Conditions Report 2010 Text Changes: The Existing Conditions Report 2010 is adopted as part of the Comprehensive Plan by reference. The Existing Conditions Report contains an error where a portion of text is covered by a graphic and is not visible. This amendment is to reconcile this formatting error and ensure that all text is easily and fully readable. This fix also adjusts the formatting of several pages before and after in an effort to prevent the additional text from cascading changes throughout the chapter. This formatting error occurred in the final document and was not present during previous drafts reviewed by Council. Staff believes that the proposed changes to Existing Conditions Report 2010 are necessary for conveyance of accurate and usable information. Staff believes that the proposed additions to the City of Meridian Comprehensive Plan help accurately reflect the City's planning efforts. See Exhibit B for Required Unified Development Code Findings. 8. EXHIBIT A. Drawings 1. South Meridian Vicinity Map 2. Proposed Future Land Use Map B. Required Findings from Unified Development Code South Meridian CPAM-12-004 & CPAT-12-001 - 8 - South Meridian CPAM-12-004 & CPAT-12-001 - 8 - Exhibit A.1: South Meridian Vicinity Map Exhibit A.2: Proposed Future Land Use Map ' „~ _. I ,~ ~ ~trEf., ~ ~ " ~ ~ " City of Meridian - ~ ~~- :~ ~~~ ' .~. ~. Future Land Use Map ~"` { ~~ i _~ r ~_ ._ .___. Le end , _ _,.,,w ,y„ ~ u I 9 ~ * '" ® Fna 6;aton ~ i ~' .m _ ' SYtwl _..... ~ _._ __ ~«. • Pars ~ a y. g t ¢ T ansn Sa!.on 4~R~~a"~w+~mxttnser« i'~= ~ tR .: r~,t~ ~~~~ _ ,. #,; ~ rr S„ -.> F t FaclM1le4 .",asyr<-y~ f~ i ~t „$ w~t ~ ~`,~'y~= ~' / '.. ~ ~ Ta M'le Intrxchunga $pfrlf<C ~~~ ~ - - Y4'! F d x Roadway ~ -. 9 ~ ._ :. Fu ure Irterr!'argp., ~ s ~ y I ~g a~> ,~ • Ftf D e pass ~ ggg t °Mot x .---Eno}way Gar tlnr ~ r...r s.w.m+M+.•;en•n~i ;?~ I -~. ~ F.zsting Wntar.~at~ ~ j :\'.C~. 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Pp®5rvr Eafamrnf Maetl Use P.rfidrM~al Adopted Nbnth Day, 2012 ante MAxetl Use R gsac Msatl Ufa Canmeroal ~ F i oM rg~na• t ~ In4 tnnl Mae,O Uae-I,YaHarnpe Greer SFare:FaYZ land ®LReshle Cemn South Meridian CPt1M-12-004 & CPAT-12-001 - ] 0 - B. Required Findings from Unified Development Code 1. Comprehensive Plan Amendment Findings Upon recommendation from the Commission, the Council shall make a full investigation and shall, at the public hearing, review the application. In order to grant an amendment to the Comprehensive Plan, the Council shall make the following findings: a. The proposed amendment is consistent with the other elements of the Comprehensive Plan. The City's existing Comprehensive Plan contains all of the fifteen (15) elements required by Idaho Statute. The proposed changes are meant to reinforce these elements. Thus, the Commission finds the proposed changes are consistent with other elements of the Comprehensive plan. b. The proposed amendment provides an improved guide to future growth and development of the city. The Commission finds that the proposed map and text amendment provide an improved guide to future growth and development within the City and its Area of City Impact. The proposed changes clearly convey the City's vision to stakeholders. c. The proposed amendment is internally consistent with the Goals, Objectives and Policies of the Comprehensive Plan. Internal departments, other agencies and external stakeholders were consulted in the amendment process. The Commission finds that the proposed amendment is internally consistent with the Goals, Objectives, and Policies of the Comprehensive Plan and other planning documents. d. The proposed amendment is consistent with the Unified Development Code. The Commission finds the proposed map and text amendment provides the necessary guidance to effectively administer the requirements of the Unified Development Code. e. The amendment will be compatible with existing and planned surrounding land uses. The Commission finds that the proposed map and text amendment will be compatible with existing and planned land uses for the area. Multiple stakeholders provided input during the planning process thus staff's recommendation reflects those efforts. f. The proposed amendment will not burden existing and planned service capabilities. The Commission finds that the proposed amendment would not burden existing and planned service capabilities in this area of the city. The proposed plan and text amendment further clarifies future expansion of public services. g. The proposed map amendment (as applicable) provides a logical juxtaposition of uses that allows sufficient area to mitigate any anticipated impact associated with the development of the area. At this time, no development is planned for the subject area. h. The proposed amendment is in the best interest of the City of Meridian. The Commission finds that the proposed amendments are in the best interest of the City. Exhibit B - 1 -