Document Billings_doc_9b2fa32742

Billings Highland - 1960 The Highland Neighborhood Plan
Prepared by the Planning & Community Services Department Adopted by the Billings City Council on February 26, 2007 Adopted by the Yellowstone Board of County Commissioners on March 13, 2007 Billings Highland - 2005 ---PAGE BREAK--- 2 Table of Contents ACKNOWLEDGMENTS 3 INTRODUCTION 4 Purpose 4 Planning Area 4 Community Background 4 EXISTING TRENDS AND CONDITIONS 6 Introduction 6 Land Use 6 Population 6 Age Distribution 7 Race 8 Education 8 Population Projections 9 Housing 9 Group Quarters 10 HIGHLAND NEIGHBORHOOD PLANNING PROCESS 11 NEIGHBORHOOD ISSUES, GOALS AND ACTION 12 TRANSPORTATION 12 INSTITUTIONAL FACILITIES 17 LAND USE 22 HOUSING 23 PARKS & RECREATION 25 SCHOOLS & EDUCATION 26 MAPS MAP 1 – Highland Neighborhood Boundary Map 5 APPENDICES 28 APPENDIX A – MAPS 29 Map 1 – Highland Neighborhood Boundary Map 30 Map 2 – Highland Neighborhood Vacant Properties Map 31 Map 3 – Highland Neighborhood Parks and Public Lands Map 32 APPENDIX B – Present Zoning Map 34 Zoning District Definitions 35 APPENDIX C – Preferred Future Land Use Map 38 APPENDIX D – Executive Summary of Goals 39 APPENDIX E – Neighborhood Planning Participants 44 ---PAGE BREAK--- 3 Acknowledgments Highland Neighborhood Steering Committee Mark Restad – Chair Nancy Boyer – Council Member James Scott – Co-Chair Ed Ulledalen – Council Member Mary Jo Greenfield – Secretary Aimee Brown – Member Rachel Stagg, Member Ceci Bentler – Member Kathy Aragon, Member Josi Wilgus - Member Dave Kalberg – Member Joan Kalberg – Member Eakle Barfield – Montana State University – Billings Billings City Council Mayor Ron Tussing Chris “Shoots” Veis Peggie Denney Gaghen Vince Reugamer Jim Ronquillo Nancy Boyer Joy Stevens Ed Ulledalen Larry Brewster Richard (Dick) Clark Donald W. Jones Yellowstone Board of County Commissioners Jim Reno, Chair Bill Kennedy John Ostlund Yellowstone County Board of Planning Bill Iverson Alex Tommerup Donna Forbes Teen Patterson Carol Gibson Dennis Cook Fred Rogers A.J. Micheletti Doug Clark Al Littler Clinton McFarland Rich Whitney City Administration Tina Volek – City Administrator Bruce McCandless – Deputy City Administrator Planning Division Candi Beaudry – Interim Planning Director Aura – Subdivision Coordinator Lora Mattox – Neighborhood Planner Scott Walker – Transportation Planner Wyeth Friday – Planner II Cal Meyer – City Code Enforcement Officer Juliet Spalding – Planner II Karen Miller – Planning Associate Nicole Cromwell – Zoning Coordinator Dave Green – Planner I Tammy Deines – Planning Clerk Darlene Tussing – Alternative Modes Coordinator Liz Allen – Planning Clerk Participating Organizations Highland Elementary School Highland Elementary School PTSA McKinley Elementary School North Elevation Task Force Billings Clinic St. Vincent Health Care Montana State University – Billings ---PAGE BREAK--- 4 Introduction Purpose The purpose of the neighborhood plan is to assist the governing agencies, planners, developers and residents make the right choices when determining future growth patterns and development in the Highland Neighborhood. The neighborhood plan is not a regulatory document; instead, it is adopted as part of the City of Billings and Yellowstone County Growth Policy as an advisory document. The plan includes general and specific recommendations that reflect the values of the community, encourages sound decision-making, and empowers people to take action. The plan also includes realistic implementation strategies that involve both private and public actions, as well as regulatory decisions. Planning Area Several factors are reviewed when determining planning boundaries. These factors include natural boundaries, design boundaries (streets etc), census tracts, existing plans and planning issues related to the area. The Highland Neighborhood Planning area is shown on Map 1. Also located within the Highland Neighborhood is the North Elevation Neighborhood Task Force. This area is delineated on Map 1. This task force was initiated by the concern of residents’ over a variety of events influencing the neighborhood. Initially, a concern over traffic brought residents together and led to further discussions about developing goals to proactively protect and improve the neighborhood. Community Background The Highland Neighborhood was identified by the Planning Department and the City Council as a priority to complete a neighborhood plan per implementation of the 2003 City/County Growth Policy. In 1886, four years after Billings was founded, Henry C. McKinsey applied for a 160- acre homestead in what is now the southeastern portion of the Highland Neighborhood. In 1904 the first filing of the North Elevation Subdivision was platted and in subsequent years additional filings were platted. The oldest elementary school still in operation (McKinley Elementary) is located in the Highland Neighborhood and serves children from the Highland, North Elevation and North Park Neighborhoods. The medical industry has played an important role in the neighborhood with the opening of the first hospital in 1899. The hospitals have continued to expand into the neighborhood and provide regional health care to numerous people. The Highland Neighborhood also is home to Billings Senior High School. Completed in 1940 in the area of Grand Avenue and Virginia Lane, the school board received much ---PAGE BREAK--- 5 criticism for building a school “way out in the country”. The school itself contained 24 classrooms, four science, two craft, three commercial, two music, one public speaking room, a cafeteria, and administrative offices. By 1967 the number of students had increased to almost 1,800, and a larger addition was added. Map 1 ---PAGE BREAK--- 6 Existing Conditions and Trends Introduction The following discussion on physical conditions and census data is vital to understanding how the neighborhood has developed in the past and gives clues on how the neighborhood will develop in the future. Land Use The Highland planning area is composed of various zoning districts. The area includes large institutions such as Montana State University – Billings, Billings Clinic and St. Vincent Health Care. The hospitals are located within the Medical Corridor Permit Zoning District, which consists of regulations regarding medical campus development. The area of the neighborhood that is bordered by Grand Avenue is mainly commercial zoning. The remainder of the area offers a variety of residential zoning from single- family to multi-family. There are also several large public zoning areas including Pioneer Park and the Highland Golf Course, as well as the Rimrocks being the north boundary. Appendix 1 shows a current zoning map of the Highland area. Population Demographic information is provided to show trends in population, age distribution, race characteristics, education attainment, and population projections. The Highland Neighborhood lies within portions of Census Tracts 4, 5, and 6. According to the US Census Bureau, the Highland Neighborhood saw a 4 percent decrease in population between 1990 and 2000. Chart 1 shows a population comparison between the Highland, Billings, and Yellowstone County. The census data shows the Highland area having a population of 9,370 persons is 1990 and 8,991 persons in 2000, which is a 4 percent decrease. Billings as a whole saw a 10.7 percent increase in population in the same time period. The decrease of population in the Highland Neighborhood could be due to the expansion of the medical facilities and the college. In the medical corridor, many of the residential units along North 30th Street have been converted into medical offices and clinics. ---PAGE BREAK--- 7 Chart 1: Population Comparison – 1990 to 2000 Age Distribution Age characteristics in Highland shadow a similar trend for Yellowstone County where there has been a shift in the median age. In 1990 the median age of persons in the Highland neighborhood was 33.7 years. The 2000 Census shows that the median age has risen to 36.2 years. This increase in median age is a reflection of an aging population nation-wide. Table 1 looks at the age characteristics for Highland. Table 1: Age Characteristics – Highland Neighborhood Age 1990 Percent of Total 2000 Percent of Total Percent Change 1990-2000 Under 5 520 5.5% 433 4.8% (16.7%) 5 to 9 496 5.3% 439 4.9% 12.9% 10 to 14 504 5.4% 429 4.8% 14.8% 15 to 19 748 8.0% 812 9.0% 8.5% 20 to 24 841 9.0% 944 10.5% 12.2% 25 to 34 1,362 14.5% 1,172 13.0% (14.3%) 35 to 44 1,368 15.0% 1,225 13.6% (10.4%) 45 to 54 863 9.2% 1,200 13.3% 39.0% 55 to 64 828 8.8% 734 8.2% (11.3%) 65 to 74 1,015 10.8% 701 7.8% (30.9%) 75+ 825 8.8% 902 10.0% 9.3% Total 9,370 100% 8,991 100% Median Age 33.7 36.2 Source: U.S. Census Bureau of Population, General Social and Economic Characteristics 11.5% 10.0% Highland 8800 8900 9000 9100 9200 9300 9400 1990 2000 Highland Source: U.S. Census Bureau of Population, General Social and Economic Characteristics ---PAGE BREAK--- 8 Race The racial diversity of the Highland Neighborhood has not significantly changed over the last ten years. In 1990, 95 percent of the neighborhoods population was white and in 2000, the all-white population dropped to 93.3 percent. Overall, the census data shows that there was not a significant change in racial diversity. Table 2: Racial Characteristics – Highland Neighborhood Race 1990 Percent of Total 2000 Percent of Total White 8,903 95% 8,390 93.3% Black/ African American 32 .03% 34 .04% American Indian Alaska Native 172 1.8% 190 2.1% Asian or Pacific Islander 71 .08% 57 .06% Other Race 51 .05% 115 1.3% Hispanic Origin (of any race) 141 1.5% 205 2.3% Total Population 9,370 8,991 Source: U.S. Census Bureau of Population, General Social and Economic Characteristics Education Since 1990, the median years of education completed among persons 25 years old and older has increased. The percentage of the population in that age group that has completed a four-year college degree and/or graduate or professional degree has continued to increase as well. In 1990, the percentage of people in the Highland Neighborhood who had completed high school was 92.3 percent and the percentage of people who had complete four or more years of college was 37.1 percent. According to the 2000 census, the percentage of those who graduated high school rose to 94.4 percent and increased to 42.3 percent for those who completed four or more years of college. Table 3: Education Attainment of Persons 25 Years and Older – Highland Neighborhood 1990 2000 Less than 9th Grade 123 80 9th to 12th Grade (No Diploma) 424 261 High School Graduate (including GED) 1,491 1,390 Some College (No degree) 1,640 1,631 A.A. 326 191 B.A. 1,524 1,797 Graduate or Professional Degree 803 813 Total Population 25 Years and Older 6,261 6,163 Percent High School Graduates 92.3% 94.4% Percent Four or More Years of College/Bachelor’s Degree or Higher 37.1% 42.3% Source: U.S. Census Bureau of Population, General Social and Economic Characteristics ---PAGE BREAK--- 9 Population Projections The Census and Economic Information Center (CEIC), a department within the Montana Department of Commerce, released population projections for counties up to the year 2025. Yellowstone County is expected to grow an average of 1 percent per year. At this rate, the County population was projected to reach approximately 137,990 by 2005; 145,880 by 2010; and 162,410 by 2020. The City of Billings is anticipating a growth rate of approximately 1.5 percent to 2.0 percent per year. Using the formula of 1.5 percent, we get the following population estimates for the Highland Neighborhood. However, due to the current density and build-out of the neighborhood, it is anticipated that this population projection could only occur if additional lots or land became available for re-development. Table 4: Population Projections Year Highland Population Projection 1990 9,370 2000 8,991 2005 9,686 2010 10,435 2015 11,242 2020 12,110 2025 13046 This is only a projection, many factors known and unknown can determine actual population numbers Housing The following section discusses the household composition, or the characteristics of the residents of Highland. The information in this section describes the number of people living in households, their income and the trends in household distribution. An inventory of existing housing units is presented along with information on the number and type of units and whether they are rented or owner-occupied. Table 5 illustrates a comparison of varying housing characteristics between Highland, City of Billings and Yellowstone County. There are several significant statistics to review on this table including the decrease of housing units in the years between 1990 and 2000 and the decrease in the number of vacant housing units. ---PAGE BREAK--- 10 Table 5: Housing Characteristics – Highland Neighborhood, Billings and Yellowstone County Highland % Change Billings % Change Yellowstone County % Change Year 1990 2000 1990 2000 1990 2000 Housing Units 4,412 4,148 6.0% 35,964 39,293 9.26% 48,781 54,563 11.85% Median Year Built 1953 1952 1966 1970 1970 1973 Occupied Units 4,102 3,943 3.9% 33,181 37,525 13.12% 44,689 52,084 16.55% Vacant Units 310 205 33.9% 2,783 1,768 36.47% 4,092 2,479 65.07% Owner- Occupied 2,476 2,456 .08% 20,297 24,025 18.37% 29,371 36,026 22.66% Renter Occupied 1,626 1,477 9.2% 12,884 13,500 4.8% 15,318 16,058 4.83% Median Household Income $26,008 $42,127 70% $31,906 $35,147 37.08% $25,942 $36,727 41.57% Average Household Size 2.14 2.06 3.7% 2.39 2.32 2.92% 2.49 2.43 2.40% Source: U.S. Census Bureau of Profile of Selected Housing Characteristics Group Quarters In Table 6, group quarter information is provided for the neighborhood. Group quarters is defined as, “As of 1983, group quarters were defined in the current population survey as non-institutional living arrangements for groups not living in conventional housing units or groups living in housing units containing ten or more unrelated people or nine or more people unrelated to the person in charge.” Examples of people living in group quarters include a person residing in a rooming house, in staff quarters at a hospital, college dormitories or in a halfway house. Beginning in 1972, inmates of institutions have not been included in the Current Population Survey. According to the census data, 745 students were registered in dormitories in the Highland Neighborhood, which is an increase of 22 percent from 1990. Table 6: Group Quarters – Highland Neighborhood Highland 1990 2000 % Change Institutionalized person Correctional institutions 0 0 - Nursing homes 0 0 - Other institutions 40 41 .03% Other persons in group quarters College dormitories 610 745 22.13% Military quarters 0 0 - Other non-institutional group quarters 17 54 218% Source: U.S. Census Bureau of Population, General Social and Economic Characteristics ---PAGE BREAK--- 11 Planning Process Based on concerns by residents of the encroachment of the hospital campuses and the university into the Highland Neighborhood, the Planning & Community Services Department recommended that a neighborhood plan be developed to assist the neighborhood with this issue and other issues affecting the area. On January 27, 2005, the Planning & Community Services Department met with several Highland residents to identify issues facing the Highland Neighborhood. The issues identified by residents included (in no particular order): 1. Expansion plans of MSU-B, Billings Clinic and St. Vincent Health Care 2. Rentals along Virginia Lane 3. Traffic patterns 4. Street, alley maintenance 5. Park Maintenance 6. Ditch use and maintenance 7. School expansion plans 8. Infill development remaining on tax roles 9. Building disrepair 10. Bike/pedestrian routes 11. School crossings 12. Public Transportation On March 8, 2005, the Planning and Community Services Department hosted a Highland Neighborhood Planning Kickoff Meeting. Approximately 31 residents attended this meeting. At this meeting residents were informed about the neighborhood planning process. The Billings Police Department and Code Enforcement also attended the meeting to discuss current conditions in the neighborhood address by the police department and code enforcement. It was recommended at this meeting to identify smaller issues to work on initially. Residents also decided to hold steering committee meetings to guide the development of the neighborhood plan and to hold task force meetings as an opportunity for educational programs. The steering committee began holding meetings to discuss neighborhood planning and the issues affecting the Highland Neighborhood. Several issues were addressed in an effort to alleviate some immediate concerns. The steering committee worked with the City of Billings Public Works Department to install yield signs at the corners of Parkhill and North 32nd Street. This intersection was a primary concern of the neighborhood. In addition to this intersection, a joint effort between the City, Highland Steering Committee, the Highland Elementary School Parent, Teacher, Student Association and residents worked to install a temporary school cross walk at the intersection of Poly Drive and 11th Street West. On November 1, 2006 and November 4, 2006, a draft version of the neighborhood plan was presented to residents. Residents were asked to review the draft and provide comment. Also, residents worked on the preferred future land use map. The preferred future land use map is a map designed to assist the local government in future land use decisions. ---PAGE BREAK--- 12 Neighborhood Issues, Goals and Actions Transportation The Highland Neighborhood identified several transportation issues affecting the neighborhood. At the July 12, 2005 Highland Neighborhood Planning meeting, residents were asked to identify the top 3 intersections of concern located within the neighborhood. Residents were given 3 dots marked as 1, 2, and 3. Residents were asked to place those dots on the map at intersections they consider as most of a concern within the neighborhood. The exercise identified the following: Intersection Total Weight Rank Parkhill/13th Street West 17 1 Beverly Hills/N 32nd Street 16 2 Poly Drive/Virginia Lane 13 3 Avenue C/N 32nd Street 6 4 North 30th Street/10th Ave N 6 4 Rimrock Road/Virginia Lane 5 5 Grand Ave/North 32nd Street 3 6 Parkhill/Virginia Lane 3 6 Poly Drive/11th Street W 3 6 Poly Drive/13th Street W 3 6 Virginia Lane/Highland Park Dr 3 6 13th Street W/Avenue F 2 7 Poly/North 30th Street 2 7 Grand Avenue/5th Street W 1 8 Rimrock Road/Yucca Street 1 8 During the process of reviewing concerns and issues affecting the neighborhood, the following transportation issues were identified. Issue: The intersection at Parkhill Drive and North 32nd Street is an area of concern by residents in regards to pedestrian and vehicular traffic. Goal: To ensure pedestrian and vehicular safety. Through discussions with the residents of the neighborhood, the City Engineering Division developed three scenarios for this intersection in an attempt to address residents concerns. These figures were shown and discussed with residents, after this discussion, residents were asked to rate these scenarios as possible solutions to the configuration of the intersection. Figure 1 on page 15 shows these scenarios. After review, residents chose Scenario C as the preferred long-term solution. This scenario depicts a raised pedestrian refuge island located in the center of North 32nd Street with a marked pedestrian crosswalk across North 32nd Street from 11th Avenue North to Parkhill Drive. A request was made by the Highland Neighborhood Planning Steering Committee to place Yield Signs at the intersection of Parkhill Drive and 11th Avenue North as a short- term solution to the traffic concerns of this intersection. ---PAGE BREAK--- 13 Objectives: Through design and signage, establish an intersection that will provide a safe route for pedestrians and an easily interpreted turning route for vehicles. Actions: Install a raised pedestrian refuge island located in the center of North 32nd Street with a marked pedestrian crosswalk across North 32nd Street from 11th Avenue North to Parkhill Drive Issue: Non-motorized transportation facilities are lacking in some neighborhood areas. Goal: Provide safe routes for pedestrians to travel between schools, parks, neighborhoods and other community facilities. Objectives: Develop a Safe Route to School Plan. There is a perception of inadequate sidewalks and trails to allow for pedestrian walking and biking trails to school, parks and other community facilities. These routes should provide a safe connection to schools and parks for children. Actions: Establish and periodically review a Safe Route to School Plan. Implement projects to meet the goals identified in the plan. Issue: The intersection at 13th Street West and Parkhill Drive is difficult to traverse. Goal: Provide a safer and more navigable route for vehicular traffic. Objectives: To improve traffic flow at the intersection of 13th Street West and Parkhill Drive. Actions: During future improvements at or near this intersection, a redesign should be incorporated to allow for easier flow of traffic. Issue: The intersection at Poly Drive and Virginia Lane is an area of concern by residents in regards to pedestrian and vehicular traffic. Goal: Provide a safer and more navigable route for vehicular and pedestrian traffic. Objectives: To improve the traffic flow and pedestrian crossings at the intersection of Poly Drive and Virginia Lane. Actions: Review traffic data associated with this intersection and determine whether this intersection warrants additional traffic control devices. As part of the development of the safe routes to school plan, review recommendations for pedestrian crossing at this intersection. ---PAGE BREAK--- 14 Issue: Residents are concerned about MSU-B students taking up the on-street parking in residential areas around the college. Goal: Maintain residential parking in the residential areas around MSU-B. Objectives: To retain residential on-street parking in the residential areas around MSU-B. Actions: Review and determine the interest by residents in a City Ordinance that would create Residential Parking Districts. ---PAGE BREAK--- 15 Parkhill Drive 11th Avenue North Parkhill Drive 11th Avenue North North 32nd Street Scenario A Yield signs placed at Parkhill Drive and 11th Avenue North. Scenario B Two way traffic to one way on Parkhill Drive as shown on the diagram. Figure 1 Parkhill Drive/North 32nd Street Scenarios North 32nd Street ---PAGE BREAK--- 16 Parkhill Drive 11th Avenue North North 32nd Street Figure 1 Parkhill Drive/North 32nd Street Scenarios Continued Boulevard with pedestrian refuge island Pedestrian Crossing Scenario C Center boulevard on North 32nd Street with pedestrian refuge island. Posted crosswalk signage on Parkhill Drive, 11th Avenue North and North 32nd Street. ---PAGE BREAK--- 17 Institutional Facilities The Highland Neighborhood has several large institutions located within their planning boundary. These institutions include Montana State University-Billings, St. Vincent’s Healthcare, and Billings Clinic. Montana State University-Billings was established as the Eastern Montana Normal College in 1927 and is located on an approximate 112-acre campus located between Rimrock Road and Poly Drive (see campus map below). The college has an average enrollment of 4,600 students including 400 graduate students. Students come from every area of Montana, in addition to more than 25 other states and 12 foreign countries.¹ Figure 2: MSU-B Campus Map Mother Xavier Ross and the Sisters of Charity at the request of Father Pierre Jean DeSmet established St. Vincent’s Healthcare in Billings in 1898. The hospital officially opened on February 1, 1899. By 1915, the city and region had grown dramatically and the demand for healthcare increased. In 1917, the community broke ground on the northern edge of the city (the current location) for a larger, more modern hospital. The new hospital was completed in 1923. Since its beginnings over 100 years ago, St. Vincent Healthcare has grown into one of Montana’s largest comprehensive hospitals, serving over 400,000 people in a four-state area.² (See Figure 3 for a campus map) ¹ Montana State University-Billings, Fast Facts, www.msubillings.edu ² St. Vincent Healthcare, a History, www.svh-mt.org ---PAGE BREAK--- 18 Figure 3: St. Vincent Healthcare Medical Campus Map The Billings Clinic evolved from the general practice of Dr. Arthur J. Movius who founded his practice in 1911. Dr. J.H. Bridenbaugh joined the practice in 1915 and by 1930; four physicians were part of this clinic and were known as the Movius- Bridenbaugh Clinic. In 1939, the partners devised a plan to bring physicians to the practice and the name was changed to The Billings Clinic. After World War II, the facilities were expanded and construction was started across the street from Billings Deaconess Hospital. The clinic has grown from two physicians into the largest multi- specialty group practice in the regions with over 200 physicians that offer 35 specialties. Billings Deaconess Hospital was incorporated in 1917 but didn’t open until after World War I. In 1922, The Reverend Charles D. Crouch was appointed by Bishop Charles Wesley Burns to complete the community fundraising efforts. Reverend Crouch is credited with raising funds in the amount of over $75,000 for the hospital construction. The hospital opened on June 30, 1927. Today known as Billings Clinic Hospital, the ---PAGE BREAK--- 19 hospital has grown into a 272-bed trauma center that provides care serving people in a three-state region.³ (See Figure 4 for a campus map) Figure 4: Billings Clinic Medical Campus Map - Downtown ³ Billings Clinic, a History, ---PAGE BREAK--- 20 Issue: Residents are concerned about expansion of the hospital campuses into the residential area of the neighborhood Goal: To prohibit expansion of the Medical Corridor Permit Zoning District into the residential areas of the Highland Neighborhood. The Medical Corridor Permit Zoning District was established by the City Council to promote the most compatible, rational pattern of land uses in the medical corridor while establishing a core area in Billings that has a concentration of facilities offering medically related services. Site and development plans are required to be submitted and reviewed to ascertain that the development meets the criteria set forth in the code. (See Figure 5 for the Medical Corridor Permit Zoning Code Boundary Map) Section 27-903 of the Billings Municipal City Code states that, “In the medical corridor no specific land use is automatically allowed on a particular site as is the case under traditional zoning districts. Instead, a set of both absolute and relative criteria has been established which gives greater assurance that a centralized medical area can exist and be compatible with adjacent land uses, as well as, foster a healthy growth pattern in the medical corridor”. Objectives: To maintain residential character of the neighborhood by limiting medical facilities to the Medical Corridor Permit Zoning District. Actions: Improve relationship between the hospital entities and the Highland Neighborhood by requesting that the hospitals continually update the residents through public outreach on any proposed changes that would significantly impact the neighborhood. Issue: Residents are concerned about continued expansion of the MSU-B Campus into the residential areas of the neighborhood. Goal: Limit the amount of expansion and removal of housing by MSU-B in the residential neighborhood. Objectives: To maintain the residential dwellings and residential character of the neighborhood. Actions: Improve relationship between the MSU-B and the Highland Neighborhood by requesting that the college continually update the residents through public outreach on any proposed changes that would significantly impact the neighborhood. ---PAGE BREAK--- 21 Figure 5: Medical Corridor Permit Zoning District ---PAGE BREAK--- 22 Land Use The Highland Neighborhood contains mainly residential development that includes single-family, two-family and some multi-family. The main concentration of commercial development is located along Grand Avenue, which is the southern boundary of the planning area. The main issue that is a concern of residents is the possibility of the major institutions (hospitals and college) to continue to develop and expand within the residential neighborhood. Although, residents support the efforts of these institutions, they (residents) are concerned about losing the residential character of the neighborhood. Issue: Community Character Goal: Maintain the residential character of the Highland Neighborhood. Objectives: To limit expansion of the hospital and college campuses into the residential neighborhood. Actions: Continue cooperation with Billings Clinic, St. Vincent Healthcare and MSU-B on expansion or alterations within the Medical Corridor Zoning District or in vicinity of the college. Encourage neighborhood participation in changes or expansions affecting the residential character of the neighborhood. Issue: Residential Character Goal: To preserve the residential and architectural character of the Highland Neighborhood. Objectives: To maintain the character of the neighborhood through the architectural design of infill development. Actions: Identify areas where a performance zoning code could be adopted. Work between the residents located in these areas and the Planning and Community Services Department to develop a Form-based Zoning Code. Form-based zoning addresses the appearance rather than use/density of a building. For example, a multi- family dwelling could be constructed in an area where historically only single-family homes are allowed. The dwelling unit would have to comply with locally adopted design standards for size and architecture that are compatible with the surrounding neighborhood. ---PAGE BREAK--- 23 Housing Between 1990 and 2000, the Highland Neighborhood saw an approximate decrease of 264 housing units. This loss could be explained by the conversion of housing units into medical facilities or demolition of units to construct other non-housing facilities. Recently, the Community Services Department completed an update to the Housing Needs Analysis for Billings. They identified and discussed 3 areas of housing needs: 1. Homeownership Needs – the prevailing concerns related to homeownership and the current housing stock are: • Affordability and other financial barriers to homeownership • Difficulty of paying for needed repairs • Increasing cost of construction and infrastructure 2. Rental Needs – The critical concerns related to rental housing identified were: • Affordability • Condition • Rental deposits and application fees 3. Special Needs – Special needs populations include the elderly, disabled, and homeless populations. • Mail survey respondents cited the elderly as one of the top four groups of people in the community with the greatest unmet housing need. • Overall community members and respondent indicated that accessible housing for persons with a disability were well met. However, the low income statuses of these households make affordability a critical issue. • The agency serving persons with HIV/AIDS indicated that quality, affordable housing is not available for this group. Many are low income, have poor credit, and must deal with the stigma of the disease and the resulting discrimination. • According to HRDC (Housing Resource Development Council) case managers, from June 1, 2003 through May 31, 2004, 728 homeless persons were served. This included 157 individuals, and 190 families made up of 264 adults, and 307 children. Finding shelter for the homeless is a growing problem. There are many nights that all the emergency shelter beds are full. In order to find shelter, case managers must often physically visit the shelters and convince them to take another person. Issue: Neighborhood Revitalization Goal: Encourage infill housing. Objectives: To preserve and conserve resources and curb urban sprawl. Actions: Develop an incentive program to developers that will encourage infill development. Work with the Community Development Division to identify grants to develop a housing infill program. Work with the City of Billings Public Utility Department to develop incentives to create affordable infill housing. ---PAGE BREAK--- 24 Issue: Property Maintenance Goal: To maintain existing housing. Objectives: To preserve the existing housing stock and maintain an aesthetic neighborhood. Actions: Review alternatives for developing a Minimum Standards Ordinance. Review other communities’ ordinances to determine if a minimum standard for property maintenance could be adopted by the City of Billings. Infill Housing Project ---PAGE BREAK--- 25 Parks & Recreation Billings has 47 developed parks that total 595 acres and another 2001 acres of undeveloped, natural park areas. Many of the parks have facilities such as playgrounds, horseshoe pits, basketball courts, athletic fields, spraygrounds, covered shelter areas and much more. In the Highland Neighborhood area there are 2 public parks and the Highland Golf Course, which is a private course. Below is a list of those parks with their individual amenities. Grandview—Poly Drive & North 30th Street. Softball/baseball fields, sand volleyball courts, soccer/football/rugby fields and picnic area. 5 acres. Pioneer Park—Parkhill Drive between 3rd Street West and Virginia Lane Softball/baseball fields, barbeque grills, horseshoe pits, picnic area, playground, restroom, recreation building, soccer/football/rugby fields, tennis courts, jogging trails, wading pools, sledding areas, and a Folf Course (Frisbee Golf). 34 acres.
Issue: Trail Connections Goal: To create pedestrian/bike trails to link parks and recreational facilities together. Objectives: Identify needed trail links and identify priority and funding mechanisms. Actions: Implement the Heritage Trail Plan. Work with MSU-B to identify trail connections that would link to and through the college campus. Issue: Ditch Access and Maintenance Goal: To provide a trail corridor along the Billings Bench Water Association (BBWA) ditch. To maintain a free-flow waterway. Objectives: Construct a trail corridor along the ditch to connect to other trail ways. Encourage the Billings Bench Water Association to prohibit the damming or alteration of the ditch waterway. Actions: Work with the Alternative Modes Coordinator and the Billings Bench Water Association to identify opportunities for a trail corridor along the ditch. Work with the Billings Bench Water Association to inform residents of the importance of an obstacle free waterway and the impacts of impediments in the ditch. ---PAGE BREAK--- 26 Schools & Education The Billings public school district is two separate and distinct school districts operating under a unified board of trustees. The elementary district serves students in grades preschool through eighth grade. It is organized into 21 elementary (K-6) schools and four middle schools In addition, it is organized into three comprehensive four-year high schools, one career center and one adult education center. The first school opened in Billings on September 17, 1883 with an enrollment of fifty-six pupils. Since then, the school system has increased in enrollment many times with current enrollment at more than 16,000 students. In the Highland Neighborhood there are 2 elementary schools (Highland Elementary and McKinley). When Rimrock Elementary School closed in 2001, School District #2 provided discretionary bussing to the Rimrock Elementary students to Highland Elementary for 3 years until residents could find alternative means. Due to a concern by residents, a temporary crosswalk was installed on Poly Drive at 11th Street West. It is anticipated that this temporary crosswalk will become permanent in the summer of 2007. McKinley Elementary School celebrated its’ 100th birthday in 2006 and is one of the oldest elementary schools in Billings. McKinley serves the North Park and North Elevation Neighborhoods. Some concerns raised by McKinley school have been pedestrian access in and around the school. Currently, Rimrock School is being used by the School District for early childhood programs related to special education and also by the Head Start Program. The Highland Neighborhood is also home to Billings Senior High School which has one of the most diverse student populations in Montana. Issue: The Need of a Safe Route to School Plan Goal: To get students safely to Highland and McKinley Elementary Schools through pedestrian routes. Objectives: To provide elementary students with a preferred identified routes to Highland and McKinley Elementary Schools. Actions: Establish and periodically review a Safe Route to School Plan. Implement projects to meet the goals identified in the plan. Issue: Traffic Concerns around McKinley Elementary School Goal: To provide students a safe route to and from McKinley Elementary School through pedestrian routes. Objectives: To provide elementary students with a preferred identified crossing route to McKinley Elementary Schools. To use the design of curb bulb outs and other designs to slow traffic in and around McKinley. ---PAGE BREAK--- 27 Actions: School District #2 on behalf of McKinley Elementary School submitted a grant through the Montana’s Safe Routes to School Program. The Montana Safe Routes to School Program provides support for both behavioral and infrastructure investments that make biking and walking to school safer and a more attractive alternative for students. If grant funds are received, McKinley Elementary plans on developing curb bulb-outs and other infrastructure improvements around the school for pedestrian safety and traffic calming. Issue: Preservation and Continued Use of Neighborhood Schools Goal: To provide a neighborhood schools within the North Elevation and Highland Neighborhood. Objectives: To maintain McKinley Elementary School and Senior High School as functioning neighborhood schools. Actions: Encourage School District #2 to maintain and preserve McKinley and Senior as neighborhood schools. Issue: Student parking in and around Senior High School Goal: To retain residential on-street parking in the residential areas around Senior High School. Objectives: Maintain residential parking in the residential areas around Senior High School. Actions: Encourage School District #2 to develop a student parking strategy to limit the amount of traffic and parking impacts on the surrounding neighborhood. McKinley Elementary Highland Elementary Senior High School ---PAGE BREAK--- 28 Appendices ---PAGE BREAK--- 29 Appendix A Maps ---PAGE BREAK--- 30 Map 1A –Highland Neighborhood Boundary Map Zoning Map ---PAGE BREAK--- 31 Map 2A – Highland Neighborhood Vacant Parcels Map ---PAGE BREAK--- 32 Map 3A – Highland Neighborhood Parks and Public Lands Map ---PAGE BREAK--- 33 Appendix B Present Zoning Map ---PAGE BREAK--- 34 Map 1B – Highland Neighborhood Current Zoning Map ---PAGE BREAK--- 35 Zoning District Definitions Central Business District: The Central Business District classification is intended to primarily accommodate stores, hotels, governmental and cultural centers and service establishments at the central focal point of the city’s arterial and transportation system, where the CDB can conveniently serve the population of the entire urban area with a varied and specialized selection of goods and services. In order to protect the public interest and welfare and facilitate an attractive, efficient and prosperous CBD, the emphasis is on larger scale building and specialty shops. Community Commercial: The Community Commercial zone is intended primarily to accommodate community retail, service and office facilities offering a greater variety that would normally be found in a neighborhood or convenience retail development. Facilities within the classification will generally serve the community, and is commensurate with the purchasing power and needs of the present and potential population within the trade area. It is intended that these business facilities be provided in business corridors or in islands (thirty (30) acres) centrally located in the trade area rather that a strip development along arterials. Medical Corridor: The Medical Corridor Permit Zoning District was developed to promote the most compatible, rational pattern of land uses in the medical corridor while establishing a core area in Billings that has a concentration of facilities offering medically related services. Neighborhood Commercial: A zone for commercial centers and limited retail activities conducted in a unified development designed to serve the surrounding neighborhood with shopping facilities consisting of convenience retail and personal service establishments which secure their principal trade by supplying the daily needs of the neighboring population. Only uses serving the above purpose without undue detriment to surrounding residences should be permitted. Public: The Public zone is intended to reserve land exclusively for public or semipublic uses in order to preserve and provide adequate land for a variety of community facilities which serve the public health, safety and general welfare. Residential 6000: A zone intended to provide for medium density residential dwellings on lots served by public water and sewer services, with provisions for multi-family dwellings with a maximum of ten (10) dwelling units per structure. Residential 7000: Primarily a single-family residence district, with provisions for duplexes on lots that are served by public water and sewer services. Residential 9600: A zone intended to promote a single-family residential environment on lots that are served by public water and sewer service. Residential Multi-Family: A residential classification intended to provide adequate sites for multi-family development including high-rise apartment complexes. Dwelling unit ---PAGE BREAK--- 36 density is increased in this classification to encourage development in areas where it will complement existing developments. Land within the classification should be located with access to major arterial transportation routes plus financial, cultural and retail stores and be served by public water and sewer services. Residential Multi-Family Restricted: A residential classification intended to provide adequate sites for multi-family developments. The classification is intended to provide higher density apartment development, which may establish a buffer between single- family residence areas and other zoning classifications. Lots are to be served by public water and sewer services. Residential Professional: A zone intended to accommodate limited commercial and professional offices as would be compatible with adjoining residential districts and consistent with the objectives of the comprehensive plan. ---PAGE BREAK--- 37 Appendix C Future Preferred Land Use Map ---PAGE BREAK--- 38 Map 1C – Highland Neighborhood Future Preferred Land Use Map ---PAGE BREAK--- 39 Appendix D Executive Summary of Goals ---PAGE BREAK--- 40 Transportation Goal Actions Responsible Party Contact Time Frame 1. Non-motorized transportation facilities Provide safe routes for pedestrians to travel between schools, parks, neighborhoods and other community facilities 1. Establish and periodically review and update a Safe Route to School Plan. Implement projects to meet the goals identified in the plan 1.Public Works Engineering Division 1. Vern Heisler, City Engineer [PHONE REDACTED] 1 – 3 years 2. Residents are concerned about MSU-B students taking up the on- street parking in residential areas around the college Maintain residential parking in the residential areas around MSU-B 1.Review and determine the interest by residents in a City Ordinance that would create a Residential Parking Districts 1.Public Works Engineering Division 1. Vern Heisler, City Engineer [PHONE REDACTED] 1 – 3 years 3. The intersection at 13th Street West and Parkhill Drive is difficult to traverse Provide safer and more navigable route for vehicular traffic 1. During future improvements at or near this intersection, a redesign should be incorporated to allow for easier flow of traffic 1. Montana Department of Transportation 1. Bruce Barrett, MDT Billings District Manager [PHONE REDACTED] 3 – 8 years 4. The intersection at Poly Drive and Virginia Lane is an area of concern by residents in regards to pedestrian and vehicular traffic Provide a safer and more navigable route for vehicular and pedestrian traffic 1. Review traffic data associated with this intersection and determine whether this intersection warrants additional traffic control devices 2. As part of the development of the safe routes to school plan, review recommendations for pedestrian crossing at this intersection 1.Public Works Engineering Division 1. Vern Heisler, City Engineer [PHONE REDACTED] 3 – 8 years 5. The intersection at Parkhill Drive & North 32nd Street is an area of concern by residents in regards to pedestrian and vehicular traffic To provide pedestrian & vehicular safety 1. Install a raised pedestrian refuge island located in the center of North 32nd Street with a marked pedestrian crosswalk across North 32nd Street from 11th Avenue North to Parkhill Drive 1. Public Works Engineering Division 1. Vern Heisler, City Engineer [PHONE REDACTED] > 8 years ---PAGE BREAK--- 41 Institutional Facilities Goal Actions Responsible Party Contact Time Frame 1. Residents are concerned about expansion of the hospital campuses into the residential area of the neighborhood To prohibit expansion of the Medical Corridor Permit Zoning District into the residential areas of the Highland Neighborhood 1. Improve relationship between the hospital entities and the Highland Neighborhood by requesting that the hospitals continually update the residents through public outreach on any proposed changes that would significantly impact the neighborhood 1. Billings Clinic 2. St. Vincent Health Care 3. Highland Neighborhood Task Force 1. Billings Clinic [PHONE REDACTED] 2. St. Vincent Healthcare [PHONE REDACTED] 3. Chair, Highland Neighborhood Task Force Continuous 2. Residents are concerned about continued expansion of the MSU-B campus into the residential areas of the neighborhood Limit the amount of expansion and removal of housing by MSU-B in the residential neighborhood 1. Improve relationship between the hospital entities and the Highland Neighborhood by requesting that the hospitals continually update the residents through public outreach on any proposed changes that would significantly impact the neighborhood 1.MSU-Billings 2.Highland Neighborhood Task Force 1. Eakle Barfield, Director of Facility Services [PHONE REDACTED] 2. Chair, Highland Neighborhood Task Force Continuous Land Use Goal Actions Responsible Party Contact Time Frame 1. Community Character Maintain the residential character of the Highland Neighborhood 1. To limit expansion of the hospital and college campuses into the residential neighborhood through continued cooperation between the hospitals and the neighborhood when changes or expansions are proposed. 1.Billings Clinic 2.St. Vincent Health Care 3.Highland Neighborhood Task Force 1. Billings Clinic [PHONE REDACTED] 2. St. Vincent Healthcare [PHONE REDACTED] 3. Chair, Highland Neighborhood Task Force Continuous 2. Neighborhood Character Preserve the residential and architectural character of the Highland Neighborhood 1. Identify areas where a performance zoning code could be adopted. Work between the residents located in these areas and the Planning and Community Services Department to develop a Performance Zoning Code. 1. Highland Neighborhood Residents 2. Planning & Community Services Department 1. Neighborhood residents 2. Nicole Cromwell, Zoning Coordinator [PHONE REDACTED] 3 - 8 years ---PAGE BREAK--- 42 Housing Goal Actions Responsible Party Contact Time Frame 1. Urban Sprawl Encourage infill housing 1. Develop a program of incentives to encourage infill 2. Identify programs through Community Development 1. Planning & Community Services Department 2. Public Works Department 3. Public Works Department 4. Community Services Department 1. Lora Mattox, Neighborhood Planner [PHONE REDACTED] 2.Al Towlerton, Deputy Public Works Director- Utilities 406- 657-8310 3. Dave Mumford, Public Works Director [PHONE REDACTED] 4. Brenda Becket, Community Services Division Manager 406- 657-8284 1 - 3 years 2. Property Maintenance To maintain existing housing 1. Review alternatives for developing a Property Maintenance Ordinance. Review other communities’ ordinances to determine if a minimum standard for property maintenance could be adopted by the City of Billings 1. Planning & Community Services Department 1. Nicole Cromwell, Zoning Coordinator [PHONE REDACTED] 1 – 3 years ---PAGE BREAK--- 43 Parks and Recreation Goal Actions Responsible Party Contact Time Frame 1. Trail Connections To create pedestrian/bike trails to link parks and recreational facilities together 1. Implement the Heritage Trail Plan. 2. Work with MSU-B to identify connection that would link to through the college campus 1. Planning & Community Services Department 1. Darlene Tussing, Alternative Modes Coordinator [PHONE REDACTED] 2. Eakle Barfield, Director of Facility Services [PHONE REDACTED] 1 – 3 years 2. Ditch Access & Maintenance To provide a trail corridor along the Billings Bench Water Association (BBWA) ditch. To maintain a free-flow waterway. 1. Work with the Alternative Modes Coordinator and the Billings Bench Water Association to identify opportunities for a trail corridor along the ditch 2. Work with the Billings Bench Water Association on informing residents of the importance of an obstacle free waterway and the impacts of impediments in the ditch 1. Planning & Community Services Department 2. Billings Bench Water Association 1. Darlene Tussing, Alternative Modes Coordinator [PHONE REDACTED] 2. Glen Downer, Superintendent [PHONE REDACTED] 1 – 3 years Schools and Education Goal Actions Responsible Party Contact Time Frame 1. Safe Route to School To get students safely to Highland Elementary School through pedestrian routes 1. Establish and periodically review a Safe Route to School Plan. 2. Implement projects to meet the goals identified in the plan 1.Public Works Engineering Division 1. Vern Heisler, City Engineer [PHONE REDACTED] 1 – 3 years for plan development Implementation depends on prioritization and funding ---PAGE BREAK--- 44 Appendix E Neighborhood Planning Participants ---PAGE BREAK--- 45 Aaron Browning Aaron Sparboe Aimee Brown Amy Osborne Anja Bruhaug Barb Ramsey Barbara Bryan Barbara Schneeman Becky Copple Bev Wallace Bill Boyer Bill Dutcher Bob MacGrady Bob Ross Brenda Beckett Brenda Burkhartsmeier Bruce Kiser Cal Meyer Candi Beaudry Carol Forney Carolee Goni Ceci Bentler Cliff Stannebein Colleen Sand Curt Kochner Dan Carter Dave Cunningham Dave Kalberg Dave Peters David Mumford Dean Bladow Denise Gohram Diane Thormahlen Don Brutlag Don Agan Doris Eccles Doug Osborne Eakle Barfield Ed Ulledalen Elizabeth Melius Emma Lee Martin Evey Lamont Fr. Richard Wolf Harold Habein Harry Cuff Holly Kadesh Ida Mae Waller J. Dale Erbele Jacque Stannebein Jack Johnson Jackie Sullivan James Scott Jan Osborne Jane McCraken Jean MacLeod Jim Fenimore Jim Gainan Jim Sullivan Joan Daly Joan Kalberg Joe O'Brien John Felton John Heenan Josi Wilgus Judy Cuff Karen Jarussi Kathy Aragon Kathy Olson Kendall Van Dyke Kim Kronmiller Kim Lamdin Laura Ross Leah Donovan Lenny Duberstein Leslie Thomson Liz Barnea Lori Anderson Margie MacDonald Mark Restad Martha Frankel Marvin Kron Mary Jo Greenfield Mary Munsell Mary Okon Matt Brosovich Matt Sand Melina Hawkins Michael Brown Mike Donovan Mike Sims Mike Tuss Mike Weinheimer Mona Sumner Nancy Boyer Nancy Whitmer Neal Nash Nellie Rafn Nick Bailey Nick Okon Nicole Cromwell Norm Hiatt Paige Darden Pam Dimick Pam Goodridge Paul Lemire Paul Roper Peggy Gaghen Pete Schmidt Phil Frank R. B. MacLeod Rachel Stagg Rhom Bruhaug Rod Schaffer Ross Clark Shanna Henry Shanna Sparboe Shelley Van Atta Shirley Fenimore Shirley McDermott Steve Bauer Susan Gregory Terry Smith Thomas Grimm Tim Goodridge Tommie Schmidt Vern Heisler Vicki West Wanda J. Walker Wanda Wallace Wyeth Friday Zenda Zoch