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C O M M U N I T Y C H A R A C T E R The pattern of land use and its density, arrangement, and scale each contribute to the overall visual character of the community. Individual land use decisions that are made over the course of time, whether involving zone changes for proposed new development, reuse, or redevelopment of vacant and underutilized properties, or major public facility and infrastructure improvements, have a role in determining the future form and character of the community. The importance of character in creating the image of the community, which contributes to its economic development and desirability as a place to live and work, warrants planning in advance as to when, where, and how the community will develop. INTRODUCTION Through the course of the public involvement process, residents of Laramie expressed their pride in the community and the reasons they have chosen to call it home. They cite its western character and small‐town feel, views of the surrounding ridgelines and expansive prairie lands, the presence and value of the University and WyoTech, the visual attractiveness of the tree area, the local flavor and genuineness of Downtown, the array of outdoor recreation opportunities, quality parks and nature trails, valued environmental resources, and the friendliness of people as the assets that make Laramie a special place. As such, protection and preservation of these values is a high priority. At the same time, residents also expressed concern as to the future and the means for strengthening and resolving issues that present ongoing challenges to their treasured community. Residents envision a community that has fully embraced its western character by managing growth in a manner that prevents sporadic and premature development of the surrounding rangeland. They want a definitive edge to the community that clearly distinguishes urban and rural development, thereby strengthening the identity of Laramie. They wish to protect the environment within and around the community by avoiding unnecessary encroachment of the protection area for the Casper Aquifer and its well fields, including Spur Ridge, Turner, Pope Springs, and Soldier Springs. Sensitive land use planning adjacent to the Laramie River, Spring Creek, Pioneer Canal, and their floodplain 3 CHAPTER Community character is a system for evaluating the features of individual developments that collectively contribute to the overall character of the community. The components that distinguish the quality of development include more than its use, such as the amount of preserved open space and vegetation, the amount of imperviousness, the orientation of buildings and parking areas, and the relationship of buildings (scale and bulk) to the site. Together with aesthetic enhancements such as the design of buildings, landscaping and screening, sign control, and site amenities, the community character may be significantly improved. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 2 L A R A M I E C O M P R E H E N S I V E P L A N A series of land use planning workshops were held with small groups of residents to visualize their preferences for the pattern and character of future development. areas is also viewed as important in protecting water quality and preventing the effects of flooding on buildings and properties. Reclamation and reuse of brownfield sites also provides opportunity for environmental cleanup and redevelopment. Residents seek an integrative community that allows a mixture of uses and housing types designed to be both compatible and walkable. They would like neighborhoods to bridge otherwise divisive social and economic fabrics thereby leading to community cohesiveness. This involves infill development to make efficient use of existing infrastructure and public services. The University and WyoTech campuses and Downtown would all be interwoven into a community framework that gives a heightened sense of place. The appearance of these distinct areas as well as the community entrances and corridors would all be improved with enhanced landscaping, signage, and design treatments that again, relate to the preferred community character. Lastly, residents acknowledge that they must act in the interest of the community at‐large. The City’s standards and regulations must be consistent with this vision and be held intact through fair and proactive enforcement. PURPOSE The preparation of this plan element involved examination of the community’s past growth; the existing pattern and character of development; currently committed (approved) developments such as Grandview Heights and Coughlin Pole Mountain 3rd; and development constraints such as government‐owned lands, flood prone areas, and the aquifer protection zone. As a result of these planning considerations, the alternatives as to the community’s land use and future growth plans were evaluated and compared against the targeted future population (Chapter 2, Conditions & Outlook). Through a series of community dialogues, a consensus land use plan was developed, which provides a vision for the future physical development of Laramie and its one‐mile fringe area. The vision as to how Laramie will develop in the future was formed by the concerns and ideas expressed by residents during the public workshops, stakeholder interviews, and community meetings. The chapter begins by outlining the key issues relating to the community’s existing and future land use and character, which is followed by exploratory discussion and recommendations to effectively guide ongoing land use and community character decisions. An outcome of this process is the Future Land Use Plan, which visually depicts the intended pattern of use and the density and design characteristics of Laramie’s future development. COMMUNITY CHARACTER Throughout this chapter the term “community character” is used, which directly relates to the use of land but also clarifies the relationship of land use and its influence, both individually and collectively, on community character. There is an essential difference in evaluating the current development pattern from the perspective of land use, as opposed to community character. Simply conducting an inventory of uses and classifying them according to their ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 3 The view of open range land with a mountainous backdrop helps to define the scenic western character of Laramie. functional use, such as low and higher density residential, business office, commercial, industrial, and public/quasi‐public uses, does not account for the widely varying characteristics of these uses as to the physical character that is portrayed. For instance, while the tree area (approximately located south of Grand Avenue, north of Steel Street, west of 15th Street and east of 7th Street) and some of the newer subdivisions are both used for single family purposes, they exhibit very different characters. The character categories reflect not only land use but the physical traits that contribute to its character. Therefore, this chapter is the generalized use of land, along with its character, which relates to such factors as density (generally determined by lot and building size), intensity (floor area or building coverage), ratios of open space and impervious cover, and the amount of vegetation or volume of landscaping. To protect and enhance Laramie’s character, this plan must articulate the land use components and development design elements that contribute to its desired “small‐town” character. Once the plan establishes the overall policies and strategies, the zoning ordinance and subdivision regulations of the City and County must be amended to ensure new development occurs in a manner that is consistent with the vision of this plan and, more importantly, the community. Character Considerations Residents of Laramie cite its small‐town atmosphere, access to quality primary and local higher learning institutions, plentiful parks, open spaces, and natural amenities such as the Laramie River, Laramie Range Mountains, and Medicine Bow National Forest, and strong family values as its most valued assets. They enjoy the benefits of a small town located in a rural environment that has reasonable access to more populated areas. The expanse of open range land surrounding the community and its agrarian use contribute to its small‐town community character. Residents have a strong sense of pride in their community and enjoy it as a place to live and raise a family. This Comprehensive Plan must, therefore, translate these intangible values into future development and growth strategies so that future decisions enhance these important community values. Even with a proactive approach to land use planning and development design, there remains a natural impact to Laramie’s small‐town character. Growth, while a positive indicator of economic stability and desirable for sustaining the integrity of the community, may eventually shift the character of the community. Therefore, this plan must seek to sustain the traits that contribute most significantly to the valued character of Laramie. ISSUES AND OPPORTUNITIES Through the plan development process, particularly including the public workshops and stakeholder input sessions, there were a number of concerns expressed as to the future growth of the community and its influence on development character. These concerns formed the basis of the following issue statements. The purpose of these statements is to The influence that uses exert on other uses and the impacts associated with their operations, which are individually unique, have important implications on development outcome and thus, quality of life. Therefore, the character of uses have essential land use policy implications that must be handled according to their performance - in the context of their natural and built environments - to achieve the intended quality outcome. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 4 L A R A M I E C O M P R E H E N S I V E P L A N Snow melt and rainfall collect along the Laramie Range where it is absorbed into the ground and becomes part of the City’s water supply. summarize and draw focus to this plan regarding the community’s values, expectations, and priorities for land use and community character. Following the identification of the key issues, is discussion of the necessary implementation steps, specific recommended actions, and their advantages and benefits. Environmental Consciousness, Protection and Sensitive Planning Citizens of Laramie are keenly aware of their environment and its value on community livability. They view sustainability of quality open spaces and protection of resources as essential considerations to guide the pattern, direction, and type of future development. Among the environmental resources that are highly valued for protection are the Casper Aquifer and its four well fields, including from north to south, Spur Ridge, Turner, Pope Springs, and Soldier Springs. Protection from the encroachment of incompatible and increasing development density is critical for preserving the delineated primary and secondary recharge areas, which are located along the western foothills of the Laramie Range Mountains bordering the eastern edge of the City limits within and beyond the one‐ mile fringe area. Most of the Casper Aquifer recharge area is situated outside of the City limits, which restricts the City’s ability to apply its zoning authority and exact control over its primary source of drinking water. Since the County regulates land use through zoning regulations, it is within their authority to govern the use and development within the protection zone. Excessive use of water and contamination of the wellheads are additional concerns considering that the aquifer is designated as one of two main sources of drinking water for the community and its surrounding residents, accounting for 100 percent of the drinking water for rural residents and as high as 70 percent or higher during times of drought for City residents.1 Continuation of current development trends poses a risk to the preservation of the aquifer, including development within the City, its one‐mile fringe area, and within the County beyond the City’s area of planning authority. Based upon the trends experienced during the last decade, which reflected residential development within the aquifer protection area increasing at a rate of 2.5 percent annually, 2 without a proactive stance for resource protection there will be a considerable amount of new development within this highly sensitive area. While the City adopted an Aquifer Protection Overlay Zone3 providing for a prohibition of certain designated uses and their associated activities the establishment of setbacks from vulnerable features, design standards, sunset provisions for wastewater 1 Casper Aquifer Protection Plan, June 2002 2 As many as 1,331 new residences may exist in the aquifer protection area by the Year 2020, according to the report entitled, “Aquifer Protection and CommunityViz in Albany County, Wyoming”, June 2003 3 Section 17.82.030, Allowed and Prohibited Uses, Chapter 17.82, Aquifer Protection Overlay Zone ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 5 LaPrele Park along Spring Creek is exemplary example of incorporating a water feature into a park while providing an amenity to the adjacent neighborhood and nearby residents. treatment systems, procedures, on‐site treatment systems and non‐conforming uses, need additional regulatory provisions so further mitigation can occur. The current standards allow conventional development to occur subject to restrictions regarding adequate setbacks from recharge features, placement of structures on suitable soils and slopes, and specifications for connection to public treatment facilities or compliance with installation standards. As an alternative, it is advisable for the City to consider requiring development clustering within the protection zone, which, in effect, shifts development to a less sensitive portion of a site while maintaining a close‐to‐equivalent density. Such approach maximizes the amount of preserved open space, area for recharge, greatly improves the efficiency of utility provision, minimizes impervious cover, as well as reduces contamination levels and water consumption. Such approach would require amendment of the City’s zoning and subdivision regulations to meet landowner and community objectives. Alternative subdivision designs, such as clustered housing, conservation (50 percent open space) and preservation (80 percent open space) development should also be considered. These alternative neighborhood environments would allow the City to maintain its small‐town character while protecting its rich natural resources. Incentives should be created to allow increased density generally equivalent to the loss of units required to set aside land for open space and resource conservation. Incorporation of a site capacity calculation into the requirements will allow for adjustments of development intensity to actual site conditions. This tool allows sites that are constrained environmentally, such as that within the aquifer protection zone, to develop with a character that is consistent with other neighborhoods and the rest of the community while, at the same time, safeguarding the environment. No matter the subdivision design, clustering, conservation or preservation, annexation should be required so the city can exact control over the type, scale, pattern and density of new development. Another step that could be taken would be to consider placing this area in a conservation easement. Such a conservation easement could be used for open space and recreational purposes as well as protecting the aquifer. It may either be voluntarily created by the property owner(s) or acquired by a government agency. The easement would be a legally binding covenant that is publicly recorded and runs with the property deed for a specified time or in perpetuity. It gives the holder the responsibility to monitor and enforce the property restrictions imposed by the easement for as long as it is designed to run. An easement does not grant ownership nor does it absolve the property owner from traditional owner responsibilities, i.e. property tax, upkeep, maintenance, or improvements. There are other areas interspersed throughout the community and the larger fringe area that possess valuable natural resources warranting protection. Lands along the Laramie Nitrates: Water naturally contains less than 1 milligram of nitrate- nitrogen per liter. Higher levels indicate that the water has been contaminated. Common sources of nitrate contamination include fertilizers, animal wastes, septic tanks, municipal sewage treatment systems, and decaying plant debris. The ability of nitrate to enter well water depends on the type of soil and bedrock present, and on the depth and construction of the well. State and federal laws set the maximum allowable level of nitrate-nitrogen in public drinking water at 10 milligrams per liter (10 parts per million). ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 6 L A R A M I E C O M P R E H E N S I V E P L A N River, Pioneer Canal, Spring Creek, Soldier Creek, within floodplain areas and wetlands, offer many opportunities for resource conservation and land preservation. While these areas are sensitive to urban development, they may be utilized to fulfill other community objectives, such as environmental protection and sound resource management. The restoration of natural areas, such as wetlands, creeks, and vegetated lands within protected open spaces or parks can also serve as a catalyst for economic development. Similar to the attractiveness of the park and open space along Spring Creek, there are similar opportunities along the Laramie River and other natural features to give public focus rather than abutting the rear lots of adjacent development. With good design, resources can provide a unifying linkage throughout the community, which greatly influences land use decisions and community character. Residents of Laramie are interested in creating a community that is both unique and attractive. Numerous comments were received regarding the desire for more green space integrated as an amenity into development. This objective may be achieved by adopting sound environmental conservation and responsible land development practices. Sensitive areas along the river and creeks and within the floodplain and wetlands may be incorporated within development as a natural amenity, while sustaining their resource function. Doing so requires a regulatory system that balances development efficiency and resource protection. Through sound land planning, resources may be preserved and effectively integrated into development without compromising private interests. Brownfield development involves environmental clean‐up of contaminated sites thereby reclaiming it for redevelopment and reuse. “Cleaning up and reinvesting in these properties increases local tax bases, facilitates job growth, utilizes existing infrastructure, takes development pressure off of undeveloped, open land, and both improves and protects the environment.”4 These sites generally include abandoned, under‐utilized, or otherwise defunct industrial buildings and grounds that offers an opportunity for infill development and return to the tax rolls. Incidentally this is a valuable component of managing growth by making the most efficient use of properties within the developed area of the City that are already served by public facilities (water, wastewater and drainage infrastructure) and services (police and fire protection). Thus, redevelopment of brownfield sites does not push industrial development to the community’s fringe requiring a costly extension of facilities and services. The added benefit is the removal of blight, which improves property values and enhances community character. Throughout this section is has been demonstrated that the City of Laramie and it’s residents are conscious of the environment. Laramie should strive to be a “green community” and a model for other communities with respect to all aspects of the environments. Energy consumption, energy efficiency, recycling, aquifer protection, air quality, noise and light pollution, sprawl, water usage and quality, “green” business, renewable energy, wildlife, open space, and “green” technology among many other issues, are all concerns of Laramie and it’s residents and should be considered in the decision making processes at all levels. 4 U.S. Environmental Protection Agency, Brownfields Cleanup and Redevelopment (http://www.epa.gov/swerosps/bf/about.htm) A brownfield is “an abandoned, vacant, derelict or underutilized commercial or industrial property where past actions have resulted in actual or perceived contamination and where there is an active potential for redevelopment. Source: NRTEE, Cleaning up the Past, Building the Future: A National Brownfield Redevelopment Strategy ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 7 The tree area (lower photo) exhibits a substantially different character than the most recently developed neighborhoods (upper photo) due to factors beyond their single family residential use. Open Space Preservation Preservation of open space is also of high value to community residents who view it both as a means to protect and enhance community character and as a way to provide for recreational opportunities or other public purposes. There is concern for the future of the expansive open spaces surrounding the community, which offer ridgeline views and contribute to the definitive edge of the City. Sporadic rural development around the City and its one‐mile fringe area compromises this open space. Residents have articulated their desire to maintain a compact community form with a defined edge to the urban development. Such a stance necessitates implementation methods to contain sprawling development and thus, preserve open space. Discussion regarding the preservation of open space as a means for managing growth and achieving a compact urban form will be addressed in Chapter 6, Urban Growth. The expanse of open space that contributes to the feeling of openness and the “small‐town” character referred to by residents is temporary rather than permanent. The natural open space and views of the landscape are “borrowed” from the adjoining land. This land may either be an individual undeveloped parcel or, as is the case for those on the edge of town, the surrounding rural land. Consequently, as development occurs abutting these neighborhoods, the existing character will change. This leads to dissatisfaction when there are proposals to develop the adjacent land. Therefore, to maintain views and achieve the character desired by residents, the borrowed open space must be incorporated into development as permanent open space. Currently, the residential zoning districts are defined by lists of permitted uses, with varying degrees of intensity allowed within the same district and subject to the same height and area regulations. Furthermore, due to the cumulative nature of the ordinance whereby each district permits the uses of the prior less‐intensive district (e.g. all uses permitted in R2, Limited Multiple‐Family are also permitted by right in R3, Multiple‐ Family), there are uses of drastic differences in their intensities allowed within the same district. Take for example, the R3, Multiple‐Family district, which permits multiple family dwellings by right. Since this district also permits by right all uses in the LR, Limited One‐ Family; R1, One‐Family; RR, Rural Residential; R2, Limited Multiple‐Family and R2M, Limited Multiple‐Family Mobile Home districts, in effect, all types of residential uses are permitted. In other words, any type of residential use can be built directly abutting another residential use without regard to its intensity or scale, and with no provision for separation or buffering. Such system results in significant incompatibilities of use character within the same zone as well as in adjacent zones. This is essential to the character of Laramie ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 8 L A R A M I E C O M P R E H E N S I V E P L A N Integration of permanent open space into development avoids the loss of “borrowed” space when abutting development occurs. considering a majority of the community is zoned R2, Limited Multiple‐Family and R3, Multiple‐Family. The City’s current zoning ordinance is limited as to its requirements for open space other than a minimal required landscape area (on development less than one acre in size) and a modest density bonus within planned unit developments. Based upon the input of citizens, more open space is preferred. As such, a land use system based on character versus use alone is warranted. Aside from the use of land, such factors as density, open space, and vegetation contribute to the character of the use. This is most visible in the tree area, which exhibits a much different character than other neighborhoods, particularly the more recent neighborhood development. Therefore, classifying uses according to their character will result in different outcomes with a certainty as to its appearance. Increased open space can be achieved by delineating more suburban districts (proposed to have 35 percent open space) on the land use plan as well as increasing to 20 percent the amount of required open space in the auto‐ urban districts (refer to Section Titled, Community Character Types, pages 3‐17 thru 3‐22). Doing so will allow land to be set aside within development, which may either be improved open space for parks and trails or unimproved space that is preserved as the native landscape. It may also be used to protect a resource feature, such as the Laramie River, Spring Creek, or any of the designated recharge areas, wellheads, or springs. In addition to the issues addressed above, ridgeline protection was identified as an issue of concern that was brought up throughout the public input process and in the land use planning exercise facilitated with five different groups of residents and stakeholders as well as the Citizens Project Advisory Team (CPAT). Being aware of this issue when development of a subdivision is occurring we can further the objective of Open Space Preservation. Amendments will need to be made to the zoning ordinances in order to enforce and regulate this protection. Means such as reservation of land and setback requirements should all be considered in an effort to protect this asset. Compatible Pattern of Development The pattern of existing development is generally well‐planned, with the primary commercial areas located in Downtown and along the principal transportation arteries (U.S. 30/Grand Avenue, U.S. 287/3rd Street, and Interstate 80), industrial development is located along the railroad with good access to U.S. 287 and I‐80 and generally concentrated away from incompatible lower intensity uses, and an assortment of well‐ established and newer residential neighborhoods nestled around the University, schools, parks, and community facilities. The compatibility of new development must continue to ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 9 Strip commercial development is the prevailing pattern of use along U.S. 30, which impacts the community’s visual identity and character. honor this pattern of land use. Current zoning regulations are limited as to their ability to ensure land use compatibility due to the fact that it is a use‐based code and pyramidal in nature. Current zoning allows for many uses that do not promote compatible development. There must be development policies and ordinance provisions in place to ensure new uses that contribute positively to the character of the community and are not undesirable for existing adjacent uses. There is a concentration of commercial retail, office, and service uses along 3rd Street, stretching the entire length of the City limits and extending further to the north and south outside of the City. There are also concentrated nodes at the intersections of I‐80 and Curtis Street and Snowy Range Road/Clark Street. To serve the University there is a small campus‐town environment along Grand Avenue for roughly one‐half block on either side of 17th Street. The most recent commercial development is occurring along Grand Avenue approaching its intersection with I‐80. Smaller convenience stores and neighborhood commercial uses are also located at intersections around the community. These areas described are distinct and valuable assets to the community. Protection of these nodes, through zoning, building placement and through other means, should be examined if and when redevelopment occurs. There was concern expressed as to the compatibility between adjacent land uses and the resulting impacts on property values. Due to traffic patterns and volumes, properties abutting the arterial roadways have higher land values thereby almost obligating the land for more intensive non‐residential development. Such condition leads to strip commercial development as is occurring along U.S. 30/Grand Avenue to the east. The effect of this land use pattern is neighborhoods abutting the commercial frontage ‐ thereby creating issues of incompatibility and undesirable impacts on community character associated with a blurred community edge, multiple signs and driveway entrances, large expanses of paving for parking lots, and limited open space for landscaping. An alternative to strip commercial development is concentrating it in nodes at major intersections where the infrastructure can be designed to accommodate increased traffic and buffering intensified to separate and protect adjoining properties. While the City’s current ordinance provisions provide for buffering neighboring residential uses5 with a 15‐foot bufferyard, sight‐obscuring fence, and trees, there is no determination as to the scale or intensity of commercial or industrial uses. Furthermore, the minimum rear yard setback within the B1, Limited Business; B2, Business; C2, Commercial; LM, Limited Manufacturing; I1, Limited Industrial; and I2, Industrial districts is 13 feet while the minimum required front setback is 40 feet (60 feet in the I1 district). As a result, parking is placed within the front yard adjacent to the street with the building placed toward the rear of the site closest to the abutting residential use. Without buffering standards that increase according to the intensity of the abutting non‐residential use and the neighborhood they 5 Section 17.43.060, Required Lot Landscaping and Bufferyards, City of Laramie Zoning Ordinance A cluster subdivision generally sites houses on smaller parcels of land, while the additional land that would have been allocated to individual lots is converted to common shared open space for the subdivision residents. Road frontage, lot size, setbacks, and other traditional subdivision regulations are redefined to permit the developer to preserve ecologically sensitive areas, historical sites, or other unique characteristics of the land being subdivided. Source: Ohio State University Factsheet ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 10 L A R A M I E C O M P R E H E N S I V E P L A N The building form and architecture in Downtown contribute to its urban character. are in, there is limited protection of neighborhoods from their associated impacts. Rather than designating the requirements according to major use categories (residential, commercial and industrial), base the requirements on an opacity factor with variable allowances for bufferyard width, density of landscaping, and the use of fences and berms. A palette of plant unit options should be developed to allow flexibility and encourage an assortment of plantings including those plants that are native to the area. This was articulated in several instances by residents noting, for instance, that the City needs regulations for light pollution and spillover onto adjacent properties. Yet another alternative and one that emerged as a preference through the public input process is that of mixed‐use neighborhoods. This differs from the current zoning approach, aside from the planned unit development. Such a land use system has led to the pattern of use existing in the community, with commercial uses lining each of the corridors and residential uses abutting them and away from the arterial roadways. A mixed‐use development, on the other hand, integrates such uses in a compatible and cohesive manner through site and building design and effective buffering. The Turner Tract plan represents this approach, with a variety of residential densities and limited business and business uses buffered by expanses of open space. The use of planned unit developments (PUD) to further the goal of compatible uses must not be understated. In addition to the extreme flexibility found in a PUD development, the short review time and improved certainty of approval make this process even more attractive. PUD’s are attractive and allow this flexibility while still preserving open space, increasing mixed use development, encouraging more compatible densities and encouraging multiple housing types among many other advantages. Downtown Success and Economic Sustainability Downtown Laramie is a special place. After all, it represents the community’s history dating back to its founding in 1866. For this and many other reasons, there is strong interest on behalf of the residents to strengthen, expand, and enhance the Downtown and it’s position within the community and the larger region. To date, there have been several studies and plans6 developed to give direction as to its physical enhancement and revitalization. The identification of the Downtown character, its challenges, contextual relationships with the balance of Laramie and the greater region, goals and opportunities, design and development alternatives, and recommendations remain valid and important. However, the success and sustainability of Downtown rests in its economic stability. The strategies formulated and actions taken to create an economically viable downtown will determine its ultimate success as a local and regional destination and hence, a generator of business and economic activity. In the beginning, Downtown was the center of local commerce. It 6 Previous studies and plans for Downtown include: “Laramie Downtown Revitalization and Development Plan”, February 2002; “Third Street Study”, Laramie, Wyoming, 2000; and, “Downtown Streetscape Master Plan, Project Summary Report”, February 1992 ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 11 was the core of business activity where everyone converged to do business and socialize. Over time, and particularly due to the advent of the automobile and its rising popularity and affordability, the community began to spread outward. In the early years, though, it remained generally compact as the original town area developed in a dense grid of streets and modest‐sized homes. As years passed, the grid expanded, eventually giving way to more contemporary ways with curvilinear streets and larger homes and lots. Such development patterns formed markets elsewhere in the community, which were met by commercial development outside of the Downtown area. This progressive history has led Downtown to its current standing. While it remains vital to the local history and economy and has done well to preserve its uniqueness, it is increasingly challenging to secure its market share, particularly as development continues along the U.S. 30/Grand Avenue corridor extending toward its interchange with I‐80. As development continues to occur on the edge, which contributes to the macro‐economy, the micro‐economy of the Downtown is affected. Therefore, the land use policies and decisions of this plan must recognize and respond to the economic objectives of the community as well as the Downtown and other areas. Residents are quite articulate as to the preferred refinements and improvements to Downtown. They greatly value Downtown and recognize its importance and influence on community character. Among their priorities are: enhancing aesthetics, maintaining its history and architectural integrity, attracting retail anchors, preserving its local businesses, strengthening ties to the University and other areas of the community, and improving access and parking, and mixing commercial and residential uses. The most significant challenge confronting Downtown is one of economics. In order to be successful the community must take a proactive stance and be willing to entertain bold initiatives. For instance, today there is little apparent opportunity for any substantial development or redevelopment given the existing built environment in and around Downtown. What impact though, could the recently completed recreation center or soon to be constructed University conference center have had if either had been located near Downtown? These are both examples of significant anchors that would have drawn increased traffic and potential patrons to the area, spawning additional opportunities for businesses. This proposition is admittedly of grand scale but is advanced as a possibility for economic reinvigoration of Downtown. A project of this magnitude would require public‐private partnership to assemble sufficient land and finance such a significant redevelopment undertaking. Involvement of the City, County, University, Downtown business and landowners could bring a project of this ‐ or something of similar or lesser ‐ scale to fruition. An overriding emphasis of this plan is community character enhancement. While the appearance of corridors and individual properties, the integrity of neighborhoods, protection of views, and preservation of valuable open space are individually and collectively essential to this vision, there is perhaps no greater opportunity to establish an identity than enhancement of the Downtown character. Care must be taken to ensure that individual improvements and new development honors the building form and ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 12 L A R A M I E C O M P R E H E N S I V E P L A N architectural unity of Downtown. Currently, this area is zoned Business as is the entire 3rd Street corridor, U.S. 30/Grand Avenue corridor from 20th Street east, Snowy Range Road corridor west of I‐80, and several other areas. The uniqueness of its urban character, architecture, and opportunity for mixed uses, among other reasons, warrants a special Urban Commercial district. This district would have a different set of permitted and conditional uses including upper floor residential use, height and area requirements suitable to an urban environment, and design standards associated with the building form and architecture. Specific provisions of the district might include a required build‐to‐line at the front property line; zero side yard setbacks; minimum two‐story building height; allowance of upper floor residential use and incentives for high‐density urban living; and building form requirements and design standards relating to building bulk and scale, historic façade materials and architectural detailing, window and doorway fenestration, awnings and canopy treatments, and sign placement. District provisions must address pedestrian ways and amenities, street trees and planters, gardens and plazas, public art displays, outdoor activities and displays, and other applicable standards. Also of significance to the future of Downtown is the means of access to, and circulation within, the immediate area, including vehicles as well as bicyclists and pedestrians. A relevant issue is the decision regarding the location of the railroad overpass. There are several alternatives but the two most considered are those on one or both Clark Street and Harney Street. Left solely to traffic movement, the best alternative appears to be overpasses on both Clark and Harney Streets, due to decreased traffic on Reynolds Street, minimal change to traffic on I‐80, and the capacity for an additional 2,800 vehicles per day (VPD)7. Due to fiscal constraints, the final solution is likely one street or the other. Enhanced Community Character and Appearance The physical appearance of Laramie is perhaps, the single most evident glimpse of its economic viability, government pro‐activeness, and civic pride. The initial impression of the community is formed by the quality appearance of its development, including the nature of community aesthetics, condition of municipal facilities and spaces, amount and quality of public open space, maintenance of roadways and public infrastructure, and the overall attractiveness of the community. The appearance of the community contributes to quality of life and livability for those who reside in Laramie, as well as those who may be making an investment or relocation decision. Simply put, beauty adds value to the community. The appearance of a community is one of the foremost influences of value and hence, one of its most regarded assets. Residents take pride in their community and its attractive and interesting places. Businesses also like to locate in attractive environments, which improve their ability to recruit employees, host clients and investors, and continue to invest in their facilities. Enhancing the character of the community and special areas requires a concerted effort on behalf of both the public and private sectors. From the perspective of the City and County, the development regulations and standards must be written to achieve the preferred outcomes. Without specific requirements for increased open space; landscaping, screening, and buffering; sign control; and standards relating to building bulk and scale, roof design, 7 Major Street and Highway System Report, 2004 ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 13 The Laramie Range Mountains provide a scenic backdrop to the entrance from the east. and placement of storage and loading areas; the appearance of individual properties and corridors are left to individual rather than collective decisions. Character and appearance are of top priorities according to a broad cross‐section of the community that participated in the public input process. Residents recognize the importance of livability in the success of their economic development and therefore, both desire and expect quality new development and redevelopment. There is a strong desire to improve the entrances to the community with distinctive gateways, enhance the roadway environs with streetscape improvements, increase the amount of green space adjacent to the rights‐of‐way and throughout the community, add more landscaping and screening of parking areas, control the size and location of signage, incorporate more public displays of art and community history, better manage the appearance of structures and vacant properties, and diligently enforce the City’s codes. Laramie benefits from its location along I‐80, which presents an opportunity to cast a positive first impression. But the appearance of corridors is one of the issues raised most often by residents. After all, 3rd Street, Grand Avenue, Snowy Range Road/Clark Street, HWY 130 and 230 and I‐80 are the most heavily traveled roadways in the community, used by those who travel them daily and those who are introduced to the community for the first time. The appearance of these corridors may be characterized first, by their wide street sections and second, by large building setbacks and expanses of parking adjacent to the street, limited provision of green space or landscaping, multiple points of ingress and egress interrupting the street frontage, a proliferation of signage (in many cases over‐sized and of an unwarranted height), and widely varying building styles and use of materials. Achieving enhanced corridor environments involves policies, programs, regulations, and incentives addressing each of the contributing factors. Enhancement of a single factor will help, but will not result in a positive visual impact. Instead, each of the factors must be handled together to revitalize and re‐ establish a desired character and appearance. Enhanced aesthetics along the interstate corridor are warranted to relay a message as to the civic pride of the community. There are two separate yet related components involved in improving the appearance of corridors. First is the street right‐of‐way itself, which is owned and controlled by the City, County, or the Wyoming Department of Transportation. Within the public right‐of‐way, the design of the pavement surface, including whether the roadway is undivided or divided by a raised median, improved with curb and gutter, or constructed of asphalt or concrete, contributes to the appearance of the corridor. Maintenance of the pavement surface, as well as the open space within the right‐of‐way, is also significant to its visual appeal. The preservation of natural features, such as vegetation and wetlands, and provision of green space and landscaping helps to soften the roadway environs and enhance views. The design of structures, such as bridges and overpasses, retaining walls, and drainage improvements, are also important elements in the overall design scheme. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 14 L A R A M I E C O M P R E H E N S I V E P L A N The very first impression of the community is the gateway improvement itself, which could be further enhanced with a larger, permanent monument, a landscaped roadway median, landform contouring, and street trees. Each of these improvements is largely at the discretion of the City (in coordination with WYDOT for the state‐owned facilities), as well as the County in the peripheral areas. The second component involves private property, which must be either regulated or provided with incentives to achieve the desired development outcomes. Typically, regulations and standards pertaining to building appearance, signage, lighting, noise, landscaping, screening and buffering, and open space are applied city‐wide or to the properties within a certain distance of specified corridors. Incentives for compliance with the standards may include expedited approval, increased density (for residential uses) or intensity (for non‐residential uses), relaxed parking requirements (meeting specified conditions), reduced dimensional standards, or financial participation through grants or when done in conjunction with a public infrastructure improvement. Trees and vegetation, or a lack thereof, contribute significantly to the appearance of the community, as seen in the tree area and several other good examples in the community. Landscaping is useful in the design of individual sites, corridors, and districts to enhance aesthetics, frame quality views, buffer adjacent uses, and screen activity areas or undesirable views, as well as to serve an important environmental function by altering the microclimate and filtering contaminants from storm runoff. People are naturally attracted to pleasant environments, whether they are well‐designed neighborhoods, commercial centers, or public spaces. The value of landscaping and open space must therefore, not be overlooked. The appearance of the community entrances from Interstate 80 and U.S. 30/Grand Avenue, U.S. 287/3rd Street, State Highway 130/Snowy Range Road/Clark Street, and Curtis Street, as well as U.S. 287 North and South and State Highway 230, are important. Residents are proud of their community and would like to portray a positive first impression on those who visit or pass through the community for the first time. The entrances offer opportunities to establish an image, communicate community values, and attract attention to local attractions and destinations. Formal points of entry or gateways also define the boundaries to distinguish it from territory outside of its jurisdiction. Gateways form the community’s physical identity. enhancement to establish formal gateways include improvements to the roadway, such as a landscaped median, increased green space, preservation of natural features and vegetation, special pavement treatments, significant entry monuments, liberal open space and well‐designed landscaping, upgraded lighting standards, way‐finding signage, and well‐maintained and attractive adjacent properties. In addition to the gateways to the community, there are also multiple ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 15 opportunities for enhancement of special district portals. Examples include notable areas that distinguish themselves by way of their character, such as Downtown, the University of Wyoming, and individual neighborhoods. Portals to these districts create identity, form a sense of belonging for those who visit or live there, and create additional opportunities for aesthetic enhancement around the community. Lastly, the City, Albany County, University of Wyoming, WyoTech, Albany County School District, and other public or semi‐public entities and agencies have the opportunity to lead by example. There are several models of highly attractive and notable structures and properties that contribute to the character of the community. For instance, the new recreation center, Downtown, several campus buildings, the parks and trail system, and other individual buildings and neighborhoods are local landmarks that communicate to the public a message of community pride and heritage. These facilities must be acknowledged for their presence and contribution to the fabric of the community by continued diligence in their upkeep and preservation. EXISTING LAND USE INVENTORY Reflected in Map 3.1, Existing Land Use, is a map delineating the existing use of land within the City and the area around the fringes. A detailed description of each character type is provided in the section entitled, Community Character Types. The land use categories are as follows: Agriculture Estate Residential Suburban Residential Suburban Commercial Auto‐Urban Single Family Auto‐Urban Multi‐Family Urban Residential Urban Commercial Auto‐Urban Commercial Urban University Industrial Special Uses (such as the airport) Natural Parks/Open Space FUTURE LAND USE PLAN The essence of comprehensive planning is a recognition that the community does not have to wait to react to development. Rather, it can determine where and of what character development will be. Through active community support, this plan can ensure that new development meets certain standards and that it aids in achieving the desired community character. As a guide for land development, the Future Land Use Plan captures and develops into policies and regulations the community’s values regarding how, when, and where Laramie ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 16 L A R A M I E C O M P R E H E N S I V E P L A N TABLE 3.1 Future Land Use Classifications Use Existing Zoning District Intensity (Unit/Acre) Avg. Lot Area (acre) Natural O 1/1,000 n/a Agriculture AG 1/1,000 n/a LR, AG 1/40‐2.5 4.0‐2.5 Estate LR 1/1 1 Suburban LR, R1 1/7,000 7,000 sf. Auto‐Urban Single‐ Family R1 1/4,000 4,000 sf. Auto‐Urban Multi‐Family R2, R2M 1/6,000 6,000 sf. Urban Residential R2M, R3 1/4,800 4,800 sf. Suburban Commercial NB, B1, C2 n/a n/a Auto‐Urban Commercial NB, B1, C2 n/a n/a Urban Commercial NB, B1, B2, C2 n/a Apt. over commercial Urban University R3 n/a n/a Industrial I1, I2, LM, IP n/a n/a will grow in the future. This is significant since the findings and recommendations contained in this plan provide the basis for decisions pertaining to the City’s zoning and subdivision ordinances, which are the primary tools to implement the plan. Future Land Use Classifications Specifications and Proposed Changes The current zoning code provides for a cumulative series of zoning districts, which do not clearly establish distinctive character. As displayed in Map 3.2, Future Land Use Plan, the agricultural district is for those areas that are intended to remain undeveloped, particularly through the horizon of this plan. Two districts, estate and are designed to provide a rural, exurban lifestyle without compromising the freestanding character of the city. Land use defined as estate is intended to be closer to the city with some improvements in order to provide rural larger lot living or clustering subdivision. is intended to be the transition between agricultural land and estate allowing limited development in cluster scenarios or with subdivisions with the agricultural characteristics still in place. The residential uses are consolidated into the following classifications designations: suburban, auto‐urban single‐family, auto‐urban multiple family and urban residential. These districts specify the allowable density, with an increase in open space corresponding with increased density. Bonuses would recognize the need for higher densities near major roads and non‐ residential land uses, and would also be given for the provision of low and moderate income housing. The urban residential district is for portions of the existing tree area and for areas surrounding the downtown. There are three commercial classifications, including auto‐urban commercial, suburban commercial, and urban commercial, each with corresponding increases in intensity. The auto‐urban commercial district is for a majority of the commercially‐zoned and used areas, although the increased open space and other standards would enhance the appearance of these areas. The suburban commercial classification is the equivalent of a neighborhood commercial classification, meaning that it has standards to ensure compatibility with adjacent and nearby residential uses. The urban commercial district is reserved for Downtown, which is unique in terms of its building form and scale. The Urban University classification is new, which is intended to increase density and intensity of uses adjacent to the campus of the University, which could also apply to the campuses of WyoTech and Laramie County Community College (LCCC), with adequate design and performance standards to mitigate the impacts. The forethought is to increase near‐campus housing to increase walking and bicycling. The classification would also encourage mixed use to provide convenient services to student residents. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 17 The requisite standards for open space and densities for residential uses and the landscape surface ratio (LSR) and floor area ratios (FAR) for nonresidential districts should be further examined. Further study is warranted to refine and modify the applicable performance standards, which would be done as part of a zoning study and amendment process. COMMUNITY CHARACTER TYPES Laramie has identified its future vision as an economically balanced, highly attractive, family‐oriented, small‐town community. To implement this vision, a means of converting this statement of future intent into land use policies and development regulations must be formed. A community character analysis was used to characterize the existing development and to document the land use patterns and design elements that form the character of individual developments and the community as a whole. This approach allows the formulation of standards to achieve the desired community character and homogeneity to remain intact. Each of the community character types described below is present in Laramie with varying degrees of significance. The more readily identifiable are the: Urban character in Downtown between 1st Street and 4th Street and from University Avenue to Custer Street; Auto‐urban nature of commercial development along Grand Avenue, 3rd Street, Snowy Range Road, and segments of I‐80 and, to a lesser extent, along other arterial and collector roadways; Industrial nature along the railroad and north and south along U.S. 287; Auto‐urban residential areas containing manufactured home communities and apartment complexes; Suburban character of neighborhoods throughout the community; Juxtaposed suburban and urban nature of the University campus with tall buildings settled within large central open space areas; Sparsely developing and agricultural rangelands surrounding the community; and, Natural areas along the Laramie River, Spring Creek, Pioneer Canal, and the Laramie Range Mountains. The range of community character types and their functions are as follows: Natural Character Natural areas are constrained for development due to features such as streams and floodplains, high water table, depth of bedrock, or severe slopes. These areas are prominent around Laramie, including the Laramie Range Mountains, Laramie River, Spring Creek, Pioneer Canal, aquifer protection area, ridgelines, valued open spaces, and the spring areas. The intensity is very low with more than 1,000 acres per dwelling unit as assigned in Table 3.1, Future Land Use Classifications. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 18 L A R A M I E C O M P R E H E N S I V E P L A N Natural Agriculture Estate Suburban Residential Agriculture Character The character of this rural area is dominated by agricultural use where homes are an accessory to agriculture. While agriculture may also be a dominant land use in the areas, which accommodate a rural residential lifestyle while allowing agricultural use to continue, in the more rural areas agriculture is intended as the sole use. The landscape is accented by farmsteads, barns, fences lining farm fields and areas for livestock, and a virtually unbroken horizon, which contribute to its rural character. This land is not to be developed within the horizon of this plan. Ranch land is likely to have more than 1,000 acres per dwelling unit and thus no density is assigned in Table 3.1, Future Land Use Classifications. Character This type of rural character includes sparse residential acreages, which are often in the outlying areas beyond the city limits where the first signs of suburbanization are present. Examples of a character may be seen in the outlying areas around Laramie, particularly to the north and south, where dwellings are on larger acreages. The common fate of these areas is often an eventual conversion to a suburban estate (more dense) character as additional acreages are developed in near proximity to these rural areas. Very low intensities are needed to preserve a character, which can be achieved by vegetative screening and flexibility as to locating homes where they are less visible. This character type may be sustained through stringent limits on minimum lot sizes or permanent protection of prime agricultural land and open space. should consider clustered one acre lots or less with open space, which would allow landowners increased density while maintaining rural character. Estate Character This type of suburban character is not common in Laramie although there are several examples around its periphery in the County. An estate character requires higher density development on larger properties (approximately one acre), with less open space then thereby producing a visual openness. As a result of larger lot sizes, open space and vegetation are intended to be the more dominate views, while the buildings are to be apparent, yet secondary to the landscape. Dependent upon the size of the home and its percent of coverage and location on the lot, the estate character may more closely resemble a larger version of the typical suburban character. To achieve an estate character, the design of these subdivisions must actively seek to imitate more rural areas through the use of rural street sections without sidewalks, vast open space throughout the development, the use of rural fence types and/or hedgerows to divide properties, the preservation or planting of native vegetation along property boundaries, and generous building setbacks on all sides. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 19 Auto‐Urban Multiple Family Auto‐Urban Commercial Urban Residential Urban Commercial Urban University Industrial Suburban Character This community character type is different from the urban and auto‐urban types. Distinguishing factors of suburban character are increased open space, both on individual sites and cumulatively throughout a development, and the preservation or use of vegetation within and between developments, which helps to create a more even balance between building mass and “green mass.” Rather than creating a sense of enclosure by buildings, as in an urban environment, trees and vegetation form a very different sense of enclosure. The physical distinction between a suburban and urban (or auto‐urban) character is the level of use intensiveness or magnitude of activity affecting adjacent uses. All too often, the open space that contributed to the suburban character of a neighborhood is abutting land that is not yet developed and open views that are not yet closed thus making this “borrowed” open space. Permanent open space should be incorporated into the development to sustain its original character. Suburban Residential Suburban environments are sought as relief from more intensive urban settings, thereby leading to the popularity of contemporary neighborhoods denoted for their larger lots, privacy fences, and open areas. This classification would be considered your typical suburban subdivision. Suburban Commercial Suburban Commercial fills the needs of the immediate surrounding suburban neighborhood. Intensity is usually much less then in an automobile oriented commercial area. Suburban Commercial areas also include the same preservation or use of vegetation within and between developments as does the Suburban classification, in order to help the development blend into the primarily residential character of the neighborhood. Auto-Urban Character This character type is most commonly associated with an automobile‐oriented commercial, residential or business strip. The primary difference in urban and auto‐urban characters is the role of the automobile in its site design. Rather than buildings oriented to the street, as in an urban setting like that found in Downtown, auto‐urban environments are characterized by large parking lots surrounding the buildings. Although the development intensity of auto‐urban areas is usually less than that found within an urban setting, this is commonly due to lower land values and design preference, as opposed to development regulations. Auto‐urban uses require a significant amount of space for high levels of automobile dependent interaction, i.e. large surface parking lots with multiple points of ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 20 L A R A M I E C O M P R E H E N S I V E P L A N Creating a pedestrian-scale Downtown streetscape contributes to the enclosure of space reminiscent of an urban environment. In Laramie, two story buildings and a narrowed vehicular pathway, with parking on either side, helps to enclose space. ingress/egress. As a result, buildings are constructed at the back of the site nearest neighboring uses and away from their roadway frontage. Auto‐urban uses also have a greater reliance on site access, thereby adding to the number of driveways and access points. The result is expansive parking areas that dominate the front setback and, thus, the character of the development. Auto‐urban uses, with very few exceptions, consume more land for streets, parking, and other vehicular use areas than is covered by buildings, which commonly exceeds a two‐to‐ one ratio. This type of development design demands large sites and proximity to a high‐ volume arterial roadway, which diminishes the importance of architecture and results in reduced open space and commonly, elimination of natural features. Auto-Urban Single Family Typically defined as a mix of single‐family and attached housing. New development should provide parks and public open space in every new development. Access to units is from on‐street driveways where their frontage is dominated by garages or parking lots. Auto-Urban Multi-Family This designation includes apartments and townhouse‐style attached single‐family units manufactured home communities, and site‐built homes on small lots with open space devoted to play areas and perimeter green space. A high relative amount of impervious surface is devoted to buildings and parking lots, and increased building enclosure. Auto-Urban Commercial A mixture of retail, service, and office uses where the retail is predominantly single‐story and the office and service businesses are generally two‐story. Fast food restaurants, gas stations, and strip shopping centers like those found along Grand Avenue and 3rd Street are the dominant commercial images of an Auto‐Urban Commercial character. Industrial New construction will typically be within a business park development with a mixture of industry, wholesale, warehousing, and some office uses. This area is still largely dependent upon the automobile for access and has a high level of intensity when it comes to the uses allowed at these sites. Urban Character Urban areas are historically the center of commerce, culture, and entertainment in the community. The features that contribute to an urban character similar to that found in Downtown are the proximity of uses to the public ways, with little or no building setbacks, ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 21 Figure 3.1 Development clustering as shown in the lower example is an alternative approach for conventional subdivision development (displayed in the upper example), which allows an equivalent density while conserving natural resources, preserving open space, and protecting recharge zones. and a strong pedestrian orientation at the sidewalk level. An urban center is designed with an intensity of use to draw people into close contact, where congestion and personal encounters are both expected and essential for a vibrant community center. The width of a downtown street in relation to height of the block face, is essential for creating an “urban” environment. This environment is formed Downtown as a result of the predominant two‐story building face abutting a moderately wide pedestrian pathway (sidewalk) and a roadway narrowed by diagonal parking. Urban Residential Typically defined as a single‐family and attached housing. New development is recommended to provide parks and public open space. This differs from Auto‐urban Single‐Family primarily by providing all garage access from alleys to create a pedestrian streetscape. In addition multi‐floored and mixed use units can allow for apartment or condominium living. Urban Commercial Downtown Laramie represents an urban character as a result of its high floor‐to‐site area ratios (multiple stories) with zero setbacks along the street front, uses that are common of today’s downtown environments, and a mixed pedestrian and vehicular orientation. Increased population, a residential component, infill, redevelopment, appropriately scaled streetscape improvements, kiosks, awnings or canopies, projecting business signs, public plazas and gathering areas, and employment in these areas can further enhance the Urban Commercial classification. Urban University The Urban University district is intended to replicate the types of physical characteristics found in the Urban Residential and Commercial areas, but not necessarily on campus. This may be accomplished with higher residential densities and an increased intensity of mixed use. To promote urban living and walking in close proximity to the campus, taller residential buildings are envisioned to have first floor retail uses, thereby offering convenient services to student residents. An urban‐scaled campus‐town environment could also be created, being careful not to directly compete with Downtown, but offering student hang‐outs, a vending depot, study areas, a book store, campus health services, and other needed outlets and services. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 22 L A R A M I E C O M P R E H E N S I V E P L A N LAND USE AND COMMUNITY CHARACTER GOALS AND ACTION STATEMENTS In this section the goals and action statements for each element of the plan are set forth. The goals and action statements are to be used as a starting point to achieve the overall vision of this plan. Land Use Policies Goals and Action Statements 1. The City’s land use pattern shall focus new development and significant redevelopment where adequate public services and utility capacity are already in place or projected for improvement, including streets, water, wastewater, and drainage infrastructure. 2. The area around the airport shall be reserved for appropriate noise‐sensitive uses. Any development that encroaches into the defined noise area should be limited and meet standards of construction for noise reduction. 3. Development of areas along the Laramie River, Spring Creek, Pioneer Canal, and other watercourses and their riparian areas shall be sensitive to the environment. Development shall not occur within the floodplain unless there is compliance with stringent floodplain management practices to maintain adequate capacity for storage and conveyance of flood waters. 4. Development shall always reflect the relashionship between the zoning of a property, the community character designation and any local neighborhood goals. 5. The aquifer protection zone, spring and wellhead areas, floodplains, wetlands, and other environmentally sensitive or valuable areas shall be reserved as natural areas and “greenbelt” preserves for wildlife and recreation, whenever possible, and used as open space buffers between incompatible land uses, whenever appropriate. 6. Space shall be maintained adjacent to each natural drainage course so as to facilitate future development of walkways and trails. Any drainage structures, bridges, or other improvements shall be designed to accommodate pedestrians and bicyclists, either by allowance for adequate head room, a widened pavement section, or mitigation of barriers. 7. Each of the ridgelines, particularly those in close proximity to the community, shall be protected from encroachment of incompatible development that may be harmful to the overall community character. View shed protection standards should be in place to establish necessary setback and other dimensional requirements. 8. Development form shall be such that neighborhoods are highly walkable, meaning there is a mixture of use within convenient distance such that automobiles are not essential. Appropriate standards must be in place to ensure the compatibility and visual cohesiveness of mixed use development, with provisions for buffering and impact mitigation. 9. Neighborhoods shall be designed with a variety of housing types and sizes thereby offering affordable living options in all areas. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 23 10. Development shall be focused first on vacant infill areas, and planned to occur sequentially outward as adequate facilities are available. 11. Areas outside of the defined urban growth area shall maintain very limited density. In certain instances, when compliant with the land use plan, the allowable density should be clustered to preserve views and openness. 12. Development patterns shall provide for transitions and buffering between various land use intensities. Where land uses of incompatible intensities abut, there should be adequate bufferyards to separate them. 13. New development or redevelopment on “in‐fill” parcels in developed areas shall maintain compatibility with existing uses and the prevailing land use pattern in the area. 14. Areas of historic value shall be maintained and enhanced in accordance with preservation guidelines and development standards. 15. Residential areas shall not be situated next to intense nonresidential uses without provisions for increased separation and bufferyards. Less intense nonresidential development may be appropriate next to residential development with performance standards to mitigate adverse impacts. 16. Multiple‐family housing shall be developed at a density and scale that is compatible with the surrounding neighborhood and available utilities and roadway capacity. Larger multi‐family developments should be located on sites with adequate space for off‐street parking, accessory structures, and recreational activity, and toward the edge of single‐family residential areas where higher traffic generation and taller building heights can be better accomodated. 17. Uses that commonly have moderate‐ to large‐scale assemblies of people such as churches, funeral homes, membership organizations, and other institutions, should be appropriately located on adequate size parcels with sufficient space to accommodate the off‐street parking and accessory needs. Such uses should be located so as to minimize any adverse or undue significant burden on adjacent or adjoining land uses, as well as that portion of the street network. 18. Commercial development shall be concentrated in nodes at major intersections and other appropriate locations along highway frontages and primary roadways, as opposed to scattered and/or “strip” development, to encourage more pedestrian‐ oriented commercial settings. 19. Smaller scale neighborhood retail and service uses shall be located at intersections of collector and arterial streets and at the edge of logical neighborhood areas – or within neighborhoods where suitable sites exist and conditions are appropriate to balance compatibility with convenience. 20. Industrial activities shall be conducted within enclosed structures, whenever possible, and outdoor activities and/or storage should be properly screened from public view. 21. Higher‐quality industrial and heavy commercial development shall be encouraged in industrial park settings (e.g. lower intensity uses, enhanced exterior elevations, increased amenities, and open space). 22. Redevelopment of the brownfield sites shall consider the nature and character of the ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 24 L A R A M I E C O M P R E H E N S I V E P L A N Figure 3.2 Transferable Development Rights (TDR) - The developable portions of the aquifer protection zone could be subject to TDR to transfer the allowable density to a designated “receiving zone” within the City. existing adjacent development, with adequate provisions and precautions so as not to cause undue impacts or burdens. Where feasible, consideration should be given for reuse as public open space. 23. Development near or at entrances to the city shall be, or enhanced through overlay zoning districts and specific development standards provisions. 24. Regulations and development standards shall be developed in conjunction with Albany County for areas located within the one mile boundary. Environmental Consciousness, Protection and Sensitive Planning Goals and Action Statements 1. The City should consider annexation of a defined critical area for the Casper Aquifer that is subject to increased development pressure. The boundaries of the “critical area” must be defined, but are intended for those areas that are highly vulnerable to increased development. 2. Any development or subdivision within the aquifer protection zone contiguous to the city should be considered for annexation with the approval of development or subdivision. 3. Consider revisions to the Casper Aquifer Protection Plan in conjunction with Albany County to address concerns along with issues such as monitoring, covenants, sensitive areas, development, protection and allowed uses. 4. Amend the zoning and subdivision regulations to encourage development clustering and alternative subdivision designs. Clustered development areas should be located in areas outside of the protection area or at a minimum, in an area of less sensitivity. Other designs such as conservation (50 percent open space) and preservation (80 percent open space) development should be allowed (Figure 3.1). 5. Examine the use of conservation easements in an effort to protect and preserve the Casper Aquifer. 6. For any development within, The purpose of transferable development rights (TDR) is to protect sensitive development areas from encroaching intensive development. It allows development rights within areas that are less desirable for intensive urban development, such as the designated agricultural and rural areas, to transfer their right to development to areas that are more suitable for intensive development. In the areas designated for more intensive development, zoning allows higher densities and intensities of use. Source: Ohio State University Factsheet ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 25 To be effective, bufferyards should vary in their width and/or intensity of screening depending on the intensity of adjacent uses, whether within the same or different zoning districts. Preservation of the ridgeline that frames the community’s north side is essential to protect this highly valued view shed. adjacent to, or having any potential impact on the aquifer protection zone, due to levels of water consumption, storm runoff, or individual use sensitivities, require as a condition of approval the placement of monitoring wells to regularly test for increased chemical and bacteriological pollutants. 7. Consider the option of establishing a permanent conservation easement over the defined aquifer protection zone. 8. Consider adoption of provisions allowing transferable development rights (TDR), for developments in protected areas (Figure 3.2). Open Space Preservation Goals and Action Statements 1) Amend the zoning ordinances to include and reflect community character issues identified in the Natural, Agriculture, Estate, Suburban, Auto‐Urban Single Family, Auto‐Urban Multi‐family, Auto‐Urban Commercial, Urban Residential, Urban Commercial, Urban University and Industrial community character classifications. 2) Consider developing mixed‐use zoning districts to avoid creating nonconforming situations and variances. Protection from the encroachment of incompatible uses and development types should be strived for especially within single‐family neighborhoods. 3) Incorporate decision criteria such as use and character of adjacent and surrounding properties, for all zoning request considerations. Harmony of the neighborhood should be a key factor in the decision making process. 4) Amend bufferyard requirements so variations are allowed based upon the character of the subject and abutting properties, rather than designating the requirements according to major use categories (residential, commercial and industrial). 5) Amend zoning ordinance provisions requiring designation of permanent conservation easements for the required open space areas. Alternatively, all or a portion of these areas may be dedicated to the City to comply with ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 26 L A R A M I E C O M P R E H E N S I V E P L A N Duplex Apartment Manufactured Housing – Single/Double-wide A housing palette leads to more housing types and choices. The dimensional criteria ensure a consistent character. parkland dedication requirements (Chapter 4, Parks and Recreation). 6) Annex the land encompassing the ridgeline to the north of the community running north of the Indian Paintbrush Elementary School, Alta Vista Subdivision to the W‐ Hill area, to enact development control of this important community view shed. 7) Amend the zoning regulations to incorporate ridgeline development standards to protect the ridgeline from incompatible development that would breach the horizon and permanently alter this vista and natural asset. 8) Investigate the legal authority of the City and/or County to regulate public utilities, including wind generation farms. As necessary, coordinate with the state to determine what role they or the City or County may have in establishing placement criteria as it relates to the public interest. This may include annexation, zoning regulation along with other applicable rules. 9) Designate the area around the periphery of the community, particularly outside of the designated 20‐ year growth area (Chapter 7, Urban Growth), as Agriculture or development. Development clustering or no development at all should be required so as to preserve open views of the surrounding rangelands. 10) On the Future Land Use Plan, balance the amount of land designated as Auto‐Urban Single Family and Suburban so as to increase the amount of overall open space within the community. 11) Develop and enforce development standards within the one mile boundary. Land Use Compatibility Goals and Action Statements 1. Based on the adopted land use plan and update of the zoning code, initiate City‐wide rezoning. 2. Allow increased density along land abutting arterial roads and highways, in an effort to offset higher land and development costs. 3. Amend the zoning regulations to reduce the minimum front setback to allow up to 0‐ foot front setbacks. 4. Amend zoning code to address design standards relating to streetscape and property line buffering, monument signage, and standards for blank walls adjacent to street right‐of‐way. 5. Amend the following planned unit development (PUD) standards: a) Permit the planned unit development (PUD) standard in all zoning districts, subject to the increased design and performance standards. Underlying zoning will not restrict the uses allowed in the PUD. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 27 The Downtown offers both uniqueness and intrigue, which could be heightened with a strong visual identity – something to set it apart from other areas of town and particularly, other communities. The use of a “build-to” line versus a large front yard setback shifts the placement of parking, thereby forging a very different corridor environment. b) Rather than a flat 20 percent open space requirement, the required ratio of open space should correspond to the increase in density, which secures the character of development. c) Develop density bonus to encourage the use of a PUD and to encourage greater open space, which effectively compensates the landowner with higher development efficiency. d) A minimum number of housing types should be required, each with dimensional criteria to preserve development character. e) Rather than establishing the bonuses that apply should low‐ income or accessible housing be provided, a certain percentage should be required. Specific design standards should also be in place to manage the location, scale, and appearance of these units. f) Provide different options and the ability for developers wishing to develop mixed use developments. 6. Conduct a detailed land use and zoning study to define the boundaries distinguishing proposed new neighborhood conservation districts. Distinguishing factors include lot size, street or alley access, floor area ratio, and landscape volume. 7. Develop new zoning districts to reflect the character of downtown and the University of Wyoming. 8. Develop design guidelines for specific existing neighborhoods to allow for protection of the character when redevelopment, teardown or infill occurs. Downtown Success and Economic Sustainability Goals and Action Statements 1. Develop and approve a Downtown Plan. Items to be included should involve: a. Market and economic study focused on the Downtown and its immediate environs to include analysis of its current economic conditions and contributions, such as taxable values, sales and property tax collections, its relative market area, and its capture of the local economic base. b. Prepare a branding and marketing plan to determine the portrayed image of the Downtown district. To be successful, Downtown must have its own character and identity, uniquely distinguished from the rest of Laramie and other communities. c. Fiscal impact models to gauge the economic impact of proposed new development. Models should also be used to evaluate the effect of business located ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 28 L A R A M I E C O M P R E H E N S I V E P L A N Possible Redevelopment Areas There are significant opportunities for redevelopment on the fringes of the Downtown core, which could extend and transition the urban character while offering increased business opportunities and an expanded tax base. Bypass Route Alternate Route A designated truck bypass route would mitigate the impacts of heavy truck traffic traveling on 3rd Street through the Downtown area. outside the Downtown. d. Detailed inventory of building space, including both ground and upper floors, and its current occupancy and utilization, specifically identifying leaseable space. Other factors such as operation times, building conditions, code issues, ADA accessibility, lease rates, parking, vehicular and pedestrian access and other contributing factors should be considered. e. A business mix assessment should be prepared to identify the current mix of businesses and the optimum future mix of uses. f. Strategies and necessary incentives to attract new businesses to Downtown Laramie. However, care must be taken to attract businesses that complement the Downtown and its local flavor. g. Constraints analysis to identify limiting factors for development, redevelopment, and improved utilization of Downtown properties and buildings. h. Financing mechanisms will be essential to identify means for offering incentives, attracting redevelopment, overcoming code compliance issues, and assisting in physical enhancement efforts. i. Conduct a redevelopment feasibility study for areas on the north and south fringes of the Downtown core. The study should inventory existing property ownerships, buildings, and occupancies; those vacant or for sale; assess the current taxable values and revenue generated by the properties and businesses; and evaluate the market and economic potential for redevelopment. The feasibility assessment must gauge the warrant for redevelopment given expected market conditions and the likelihood to increase occupancy, values, and revenues. Various funding mechanisms, such as tax increment financing (TIF), should be evaluated as to their feasibility. The candidate areas are as follows: i. To the north of the Downtown core, the candidate area is between University Avenue on the south and Clark Street on the north, stretching from 1st Street to 4th Street. This area could offer a large‐ scale, mixed residential/non‐residential use redevelopment project, particularly if the Clark Street overpass were to be relocated to Harney Street. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 29 Figure 3.3 A dynamic bufferyard model establishes the prescribed opacity standards between districts, and allows a landowner to choose the means for achieving it. ii. The southern area is between Custer and Sheridan Streets on the north and south, respectively, 1st Street to the west and 4th Street to the east. Given the location of the railroad depot and older buildings, this area could potentially serve as an arts district. 2. Amend the zoning ordinance to include a new Urban Commercial district, with height and area regulations suitable to retain the current urban character of Downtown. 3. Create portal entry enhancements to form a sense of arrival into Downtown along both Grand Avenue and 3rd Street. Portal entries could be located on 3rd Street and Clark Street on the north at Grand Avenue and 5th Street to the east and 3rd and Custer to the south, which would give form and demarcate entry to a “Downtown District”. 4. In coordination with WYDOT, conduct a traffic engineering and geometric design study for 3rd Street through the Downtown area. The importance of this study is to calm traffic thereby easing the movement and improving the safety of bicyclists and pedestrians crossing this major artery, which currently acts as a barrier to Downtown. The study should evaluate the feasibility and plan for rerouting heavy truck traffic from 3rd Street to I‐80, exiting on Curtis Street east to U.S. 287 North, or an alternate new alignment to the north. 5. Consider temporary closure of 2nd Street between Garfield and Ivinson Streets for special Downtown events and community activities. Rather than permanent closure, temporary closure could be accommodated with retractable bollards, signage, and lighting. 6. Continue support for downtown organization/programs such as DDA, DLBA and Main Street. Community and Special Area Character Enhancement Goals and Action Statements 1. Rezone the commercial frontage of Grand Avenue, 3rd Street, Snowy Range Road, and applicable portions of I‐80 as Auto‐Urban Commercial. Rezoning will achieve the intended buffering effect on any size parcel, offering complete flexibility to the developer while enhancing these areas. 2. In accordance with the Land Use Plan, rezone commercial parcels in other areas as Suburban Commercial, which has a minimum landscape surface area of 35 percent. This district includes provisions to ensure improved compatibility and design cohesiveness with the adjacent and surrounding neighborhoods. 3. Incorporate into the development code a dynamic bufferyard (Figure 3.3) model, which establishes a set standard between, and in certain cases within, each of the character‐based zoning districts. The dynamic nature of the model allows an applicant to determine their own preferred method of achieving the standard through a combination of bufferyard width, landscape material selection and density, earthen berms, and fences or walls may be used in various arrangements, each meeting the Tax increment financing (TIF) funds are allocated to a designated project area from an increase in the tax revenue generated by the increased value of the properties located within the project area. The TIF revenue provides a cash flow to fund public improvements on a year-by-year basis, and/or amortize bonds which have been issued to capitalize development programs within the renewal area. ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER 3 - 30 L A R A M I E C O M P R E H E N S I V E P L A N ∗ ∗ Primary Gateway Secondary Gateway Portal Entry Point There highest priorities for gateways are at each of the I-80 interchanges followed by the secondary gateway locations. The portal entries may be done by the Main Street group or the University, in coordination with the City. The use of monument signage and added green space can have a significant visual impact on roadway environs. standard. 4. Adopt into the development code building design standards. Use of these standards throughout the community, and particularly along each of the primary corridors and entranceways, will greatly enhance the aesthetic character of development. 5. Amend the City’s current screening standards8 to require that structures of consistent materials and colors to the principal building be used when adjacent to or within a specified distance of an arterial or collector road or alternatively, along specified roadways. 6. Amend the City’s sign regulations9 to identify both permitted and prohibited signs. Issues such as, the allowable size of a sign within 15 inches of the exterior walls of a building, maximum allowable size, distance from the street right‐of‐way, square footage bonuses, monument versus pole mount, residential signs and billboards among many other issues should be addressed. 7. Adopt fencing standards and incorporate them into the subdivision regulations. The location, type, and design of subdivision fencing should be submitted and approved concurrent with the final plat. Along arterial roadways, the fencing should have decorative columns and relief at least every 200 feet or other similar standard. 8. Coordinate with WYDOT along the I‐80 corridor to establish a greenbelt corridor, which may be used for landscaping, berming, and walls to improve the “front door” appearance of the community and to act as a noise barrier. 9. Establish more significant gateways at each of the community entranceways. Gateway treatments should include large permanent monuments, extensive landscaping leading to and around the entry point, lighting, a boulevard road section (where possible), well‐ manicured open space, and textured or patterned pavement. Each of the overpasses and interchanges at Grand Avenue, Vista Drive, 30th Street (future), U.S. 287, State Highway 130/Snowy Range Road, State Highway 230 and Curtis Street offer opportunities for right‐of‐way landscaping and enhancement, in 8 Section 17.40.050, Off‐Street Utility, Dumpster, Recycling, and Trash Handling Facilities 9 Chapter 17.42, Signs ---PAGE BREAK--- CHAPTER 3: COMMUNITY CHARACTER L A R A M I E C O M P R E H E N S I V E P L A N 3 - 31 coordination with the Wyoming and U.S. Departments of Transportation. The improvements at each interchange could be underwritten or sponsored by a public agency or organization. 10. Incorporate outdoor lighting and noise standards into the development regulations. 11. Prepare west Laramie revitalization plan that would address infrastructure improvements such as streets, sewer, water, parks and public services, beautification, sidewalks and economics.