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23 UNIQUE NEIGHBORHOODS T he strength of a neighborhood’s identity, values, and positive attributes extend beyond traditional residential areas and can benefit the overall character of the City. Focusing most of the higher density residences and jobs into the City Center, village centers, and Meadowbrook Center and road corridors is a way to maintain and protect existing neighborhoods, while ensuring the availability of a variety of housing options during the coming decades. Attractive neighborhoods are fundamental to Millcreek’s livability. Each of us deserves a great neighborhood in which we can live, gather, recreate, relax, learn, and play. Neighborhoods create a sense of place around a shared built environment and shared experience. A “complete” neighborhood provides residents safe and convenient access to the goods and services they need on a daily or regular basis. These include grocery stores and other neighborhood-serving commercial services, quality public schools, public open spaces, recreational facilities and access to efficient transportation. A complete neighborhood also includes an interconnected network of streets, sidewalks and trails that makes walking and bicycling within and to these places safe and relatively easy for people of all ages and abilities. Millcreek’s neighborhoods are not all the same. Millcreek residents recognize and celebrate the diversity of their neighborhoods– whether they are established, changing, or emerging. Many Millcreek neighborhoods have changed very little since their beginning. Others have undergone changes, as their character and proximity to urban and recreational features attract a new generation of young families. Creating and recreating resilient neighborhoods will require attention to physical details, connectivity, SUBCHAPTER 3.1: UNIQUE NEIGHBORHOODS The first element of Millcreek Together is perhaps the most vital, as it recognizes the importance of Millcreek’s existing neighborhoods. Neighborhoods are the backbone of the Millcreek community, an essential element of the City’s form, and a source of pride for most residents. 3.1.1 THE IMPORTANCE OF OUR NEIGHBORHOODS ---PAGE BREAK--- 24 and encouragement of integrated land uses where appropriate. Millcreek Together focuses on recognizing the diversity of neighborhoods, and that one size doesn’t necessarily fit all. In Millcreek, community councils play a critical role in providing first level representation for neighborhood residents in support of their neighborhoods’ character and function. For Millcreek neighborhoods to thrive, it is essential that they be well represented. This chapter describes the defining characteristics of Millcreek neighborhoods in order to provide a sound basis for individualized and focused direction to protect, enhance, and revitalize different neighborhood types. It also establishes a framework for future neighborhood-specific planning. What We Heard • Strong desire to maintain neighborhood character. • That not everyone has access to the type of housing that meets their needs. • Concerns about loss of neighborhood character. • Concerns about rising housing costs. • Concern that community services (schools, parks, health facilities, etc.) are not equitably distributed through all of Millcreek’s neighborhoods. • There is interest in providing for accessory dwelling units, but many such units may not qualify as affordable under HUD guidelines. 3.1.2 TRENDS Growth According to recent population projections by the Kem C. Gardner Policy Institute at the University of Utah, Salt Lake County is expected to add 600,000 new residents by 2065, a 54.7% increase. Millcreek is experiencing significant infill development, and is expected is to add over 8,000 new residents between 2017 and 2040. “What’s a neighborhood? Obviously, it’s a collection of physical objects: of houses and streets, parks and stores. But the real importance of a neighborhood is that it is made of neighbors. . . Neighbors are not simply people who live in physical proximity. Neighbors are people who are acquainted with each other. Neighbors have some sense of human connection. Neighbors recognize and acknowledge each other. Neighbors have some sense of responsibility to each other. Neighbors are not anonymous.” -David Sucher, City Comforts: How to Build an Urban Village SALT LAKE COUNTY Population Projections 2016: 1.1 million 2065: 1.7 million ---PAGE BREAK--- 25 UNIQUE NEIGHBORHOODS Housing Throughout the Millcreek Together community engagement process, residents expressed their concerns that future growth could threaten their existing neighborhoods, and potentially even their homes. Some residents also expressed concern that the General Plan itself could be an agent of unwanted change. The General Plan’s goal is to document the vision and goals of City residents and businesses, and to guide the inevitable future growth and development into identified centers and along major transportation corridors, while protecting the essential character of the City’s residential neighborhoods. Housing Types and Choices. As of 2017, there were a total of 26,978 housing units in Millcreek, including all single-family residences, townhomes, mobile homes, duplexes, condos, apartment units, and special group units. The majority of Millcreek residences are owner-occupied, while approximately 40% of Millcreek homes are rentals. This rental rate is higher than the County average of 34%. Many Millcreek residents expressed a desire for opportunities to live in Millcreek long- term, through multiple stages of life, frequently referred to as life-cycle housing. In order to meet this demand, new housing should offer both affordable options for singles, couples and young families, and accommodate the desire of empty-nesters and older adults to age in place. Salt Lake County’s share of the population aged 65 and older is projected to double over the next 50 years, and this trend is expected to occur in Millcreek as well. Millcreek has a population of approximately 9,271 residents over age 65 (15% of the total population). As this group continues to age in place, there will be additional need for senior living, assisted living, and retirement communities in Millcreek. The City could also help seniors remain in their homes through programs that support retrofitting, repairing and maintaining their homes. Another choice is to move to more walkable neighborhoods near amenities if there are such housing options available. BY THE NUMBERS • 26,978 housing units • 60% owner-occupied units • 66% of all units were built before 1979 • $296,800 median home value • $59,291 median Income • 32% of residents spend more than 30% of income on housing ---PAGE BREAK--- 26 The 2018 Millcreek Housing Study indicated a need for more diversity in housing types in Millcreek in the future to provide for residents in a variety of stages of life. These housing types would include small-lot single-family, attached single-family, and urban style multi-family residences, especially near major job centers and transit lines to provide choices to meet these needs. Residents in all of Millcreek’s neighborhoods need a satisfactory supply of safe, affordable, quality housing. Issues related to housing supply at the neighborhood level include housing age, choices, condition and maintenance, construction quality, and affordability. In addition, complete neighborhoods should offer convenient access to shopping, recreation, open spaces and transportation. Housing Age. The age of residences in Millcreek is generally older than housing in Salt Lake County. For example, 66 percent of all residences in Millcreek were built before 1979, compared to 51 percent throughout Salt Lake County. Because Millcreek has relatively little vacant land, new residential development in recent years has been primarily infill and redevelopment of lands previously used for other purposes. Within the life of this plan, there were be a significant inventory of substandard houses. Housing Choices. Recent residential infill development and redevelopment has raised some concerns about the compatibility of those developments with existing neighborhoods in terms of the character, design and perceived density of the new residences. Context-sensitive development policies can ensure the character of neighborhoods is protected and enhanced by new development. The types of housing that are built and where they are located are largely driven by the market—and on the business models of housing developers. However, the General Plan, Millcreek land-use regulations, and City policies can guide the types and locations of new housing projects. Millcreek has capacity for infill development of appropriate types and in appropriate locations, and can benefit from partnerships with local housing developers who are already active in creating urban, mixed- use, multifamily projects. The City and development community can work together to address changes in housing preferences and needs, and provide more housing choices for buyers and renters at all price levels to meet housing objectives. Condition and Maintenance. Poor property maintenance and structural deterioration can degrade neighborhood quality and property values. Property maintenance can be a challenge for older residents. Selected redevelopment of aging housing and under- utilized commercial areas can raise property values in the vicinity, and incentivize better maintenance of nearby properties. Programs to provide maintenance assistance to older residents can also be effective. 64% Single Family 10% Townhome/ Condo/Duplex 5% Other 21% Apartment HOUSING TYPE SOURCE: SLCO ASSESSOR ---PAGE BREAK--- 27 UNIQUE NEIGHBORHOODS Housing Affordability The Utah State Code (Section 10-9a-403) requires municipalities to include a plan for moderate- income housing as part of a general plan. It outlines the responsibility of a city to facilitate a “reasonable opportunity” for those households with moderate- incomes to live within the city. Moderate-income housing is defined by the U.S. Department of Housing and Urban Development (HUD) as “housing occupied or reserved for occupancy by households with a gross household income equal to or less than 80 percent of the median gross income for households of the same size in the county in which the city is located [Also known as Area Median Income or AMI].” The 2018 Millcreek Housing Assessment (Appendix B) shows that home values tend to rise closer to the foothills on the East and Mill Creek Canyon–a trend that also holds true throughout the Salt Lake Valley. Median Home Value is a useful tool for evaluating current housing conditions within a community. This tool is most useful when comparing the conditions in a variety of locations. As of 2016, the median home value in Millcreek was $296,800, while the median home value for Salt Lake County was $243,700. HUD considers 30% of gross income as the threshold for housing affordability, which includes housing payments for mortgage or rent, as well as utilities and other housing costs like hazard insurance. In 2016, Millcreek’s median household income was $59,291 compared to the County at $64,601. The 2018 Millcreek Housing Assessment found that the City is short of affordable housing for low- and moderate-income households. For households at 80 percent of AMI, there is a reasonable opportunity for moderate-income housing in Millcreek, with 33 percent of residences affordable to households with up to 80 percent of AMI. However, approximately 45 percent of households in Millcreek have incomes of 80 percent AMI or lower. Overall, there is a deficiency of 429 affordable Millcreek residences for households with incomes below 80 percent of AMI. Due to the population growth projected for Millcreek, it is anticipated that there will be a large demand for additional residences that are affordable to very low, low, and moderate-income households. ---PAGE BREAK--- 28 3.1.3 VISION & PRINCIPLES • T he following principles establish a higher- order decision-making framework to guide the growth and evolution of Millcreek for the next 20 years. The guiding principles were developed through the General Plan process to support the vision and set clear priorities for Plan development. The guiding principles articulate the overarching direction for the Plan goals, while also framing a set of criteria for evaluating unanticipated opportunities and potential deviations from the specific direction set in this Plan document. The six guiding principles include: [Housing] Support existing and future residents with a mix of high quality housing types that complement and build on our traditional neighborhood character. [Character] Identify and protect our neighborhoods’ unique elements, setting and heritage while providing for complementary development that highlights our common Millcreek identity. [Recreation] Foster the livability of our neighborhoods by providing convenient access to shopping, entertainment, parks, trails, open spaces, playing fields, and other amenities. [Accessible] Provide for a variety of services and facilities at the neighborhood level to create a sense of belonging and connection among the City’s residents, workforce, and visitors. [Diversity] Provide homes for a range of lifestyles, ages, and incomes in a way that creates vibrant neighborhoods. [Economy] Provide for convenient, accessible retail and office uses that are compatible with the character of residential neighborhoods. 3.1.4 FRAMEWORK MAP T he Neighborhood Framework Map (page 34) provides a graphic framework for the City’s vision of Unique Neighborhoods. This map is intended to further the City’s focus on neighborhood planning based on logical, manageable, and inclusive areas. This map is expected to be a living and evolving graphic, as neighborhoods grow or change. All areas of the City have been identified by neighborhood historic typology for the purposes of generalizing a development pattern. This map is not intended to strictly define neighborhood boundaries or create neighborhood identity. In order to realize the full spectrum of neighborhood identification, representation, advocacy, and planning needs, more refined neighborhood boundaries based on neighborhood identity will be necessary. More detailed geography will also be necessary to fully implement the Millcreek Together vision. VISION: Millcreek is a City of attractive, proud, stable, unique and emerging neighborhoods that offer a variety of home types, vibrant gathering areas, and access to quality community amenities. ---PAGE BREAK--- 29 UNIQUE NEIGHBORHOODS Neighborhood Areas Community councils have been an important part of Millcreek for many decades. Millcreek has four: Millcreek Community Council (MCC), East Mill Creek Community Council (EMCCC), Canyon Rim Citizens Association (CRCA), and Mt. Olympus Community Council (MOCC). Comprised of elected representatives, the community councils were initially formed to inform and advise the Salt Lake County Council on land use applications, as well as neighborhood needs and concerns. Although it is recognized that there are many individual neighborhoods within each Community Council area, the Council’s generally represent each of the four areas of the City. As referenced in the Unique Neighborhood’s Goals and Strategies, it is recommended that individual neighborhood plans are created to better define and set the vision for each neighborhood area. Neighborhood History The historic character of Millcreek describes how the City developed into what it is today. From the fragments of old stone mills and bridges along the Mill Creek, and the remnant trees and fences of old farms and orchards, to the clean lines of mid- century subdivisions, past patterns, materials and methods provide a rich precedent for understanding Millcreek’s unique neighborhood areas. Agriculture: The middle slopes of the township were scattered with large farmsteads, including several dairies. Remnant roadways, tree rows and structures remain in a few locations, although most were lost when the area developed into residential neighborhoods before and after WWII. Big Cottonwood: Similar to the conditions in the lower reaches of Mill Creek, this area is defined by the tall trees and mature vegetation that lines the lower banks of Big Cottonwood Creek just before it joins the Jordan River on its journey north to the Great Salt Lake. Foothill Mountain: The steep slopes provide a glimpse of how the Wasatch Mountains may have appeared when settlers first arrived. Mature stands of Gambel Oak, Sumac, Mountain Mahogany and Rocky Mountain Maple are indicative of the vegetation that has evolved here over thousands of years. Mid-Century: The steep slopes of Olympus Cove and the Bonneville Shoreline were largely undeveloped until the 1960’s, at which time large homes were developed along a system of winding roadways. Perhaps the most unique aspect of these neighborhoods is the lack of sidewalks and street trees, and attempts to incorporate Gambel Oak, other native stands of vegetation and natural hillside features into the landscape. Millcreek Heritage Area: The Millcreek Heritage Area stretches from the mouth of Millcreek Canyon to the Jordan River, and is marked by the large native trees and shrubs that line the river; remnant stretches of stone walls used to reinforce the river banks; and the remains of the old mills that dotted the area. Orchard: Although few examples remain, the upper slopes of the east bench were scattered with large fruit orchards and berry patches prior to being developed as residential neighborhoods following WWII. Post WWII Industrial: Stretching primarily from State Street westward to the Jordan River is an industrial/commercial zone with few discernible historic features. However, the areas east of Interstate 15 are generally older than those areas west of the freeway, and includes some iconic buildings and signs representative of the era they were developed. Evergreen Avenue Historic District: Stretching from 2300 East to 2700 East and 3300 South to Neff’s Lane, nearly 150 homes are identified as being historic or contributing to the historic character of this district. In addition to the eclectic mix of homes, the area also includes era-representative lanes, retaining walls, stone-lined irrigation ditches, head gates and out-buildings. Source: The neighborhood history section text and corresponding map layer is credit of the 2015 Walk Millcreek Manual. ---PAGE BREAK--- I2 I2 I2 I2 3300 South 3900 South 2300 East Highland Dr. 1300 East 700 East 500 East 4500 South 300 East State Street 2000 East Millcreek Wasatch Blvd 900 East 1100 East 2700 East Valley St. £ ¤ 89 80 15 215 Unique Neighborhoods µ 0 0.5 1 0.25 Miles Agriculture Heritage Big Cottonwood Canyon Heritage Foothill Mountain Influence Mid-Century Hillside Millcreek Canyon Heritage Orchard Heritage Post WWII Industrial Year Built 1800's 1900-19' 1920-39' 1940-59' 1960-79' 1980-99' 2000- Freeway or Other Major Road Major Road Other Major Road Secondary Road Local Connecting Road Important Local Road I2 TRAX Station Frontrunner Route TRAX Route Creeks Parks Jordan River Canyon Rim Evergreen Ave. Historic District Canyon Rim East Mill Creek Mt. Olympus Millcreek Source: 2015 Walk Millcreek Manual, 2017 Salt Lake County Assessor, National Register of Historic Sites Historic Site Community Council Neighborhood Areas Map 2: Unique Neighborhoods Framework ---PAGE BREAK--- 31 UNIQUE NEIGHBORHOODS 3.1.5 GOALS AND STRATEGIES T his section presents a series of General Plan goals and an array of potential implementation strategies to achieve the goal. Chapter 4 consolidates the goals and strategies into discrete project tasks for implementation. CHARACTER. GOAL N-1: Preserve and enhance the physical elements that define each neighborhood’s character. • Strategy 1.1: Support sustainable investment in and maintenance of established neighborhoods, including use of special districts and the strategic use of grant funding. • Strategy 1.2: Partner with neighborhood and industry organizations on civic engagement programs such as neighborhood cleanups, property maintenance and repair events, and neighborhood celebrations. • Strategy 1.3: Identify neighborhood natural features such as trees, waterways, and open spaces, and incorporate them into project design. Include outdoor amenities in new development and redevelopment projects such as trails, outdoor dining areas, and plazas. • Strategy 1.4: Update plans and City Codes to allow for mixed uses in appropriate locations in ways that support “complete” neighborhoods where shopping, entertainment and recreation are accessible and convenient. • Strategy 1.5: Ensure that new infill development is compatible with existing neighborhoods by regulating structure sizes and heights; building forms and materials; yard setbacks; streetscape character; height and bulk transitions; buffering; and other factors. • Strategy 1.6: Protect neighborhood character by appropriately controlling home occupations and business activities in residential areas. CHOICE. GOAL N–2: Strive for a variety of housing choices in types, styles, and costs of housing throughout Millcreek. • Strategy 1.1: Consider Citywide and/or identify appropriate locations and standards that could allow for accessory dwelling units (ADUs), tiny homes, and small homes in Millcreek as a means to offer more housing choices. Consider initially allowing for interior ADUs (mother-in-law apartments) as a strategy to evaluate ADU impacts and compatibility in selected locations. Consider 2300 East as an area to test the compatibility of allowing accessory dwelling units, using 1100 East in Salt Lake City as a template. • Strategy 1.2: Collaborate with private sector partners to establish a comprehensive affordable housing strategy that enhances available funding and establishes financial and zoning incentives to support the development of housing for families below the area median income level. Financial incentives could include such measures as tax increment financing, grants, density bonuses and others. Zoning incentives could include inclusionary zoning, relaxation of non-conformity regulations and other similar measures. ACCESSORY DWELLING UNIT EXAMPLE SOURCE: UNKNOWN ---PAGE BREAK--- 32 • Strategy 1.3: Apply and/or create zoning in and around centers (identified on the Future Land Use Map) that allows for and supports a variety of housing types. • Strategy 1.4: Support development projects in centers and mixed-use corridors that provide a variety of housing types and sizes to serve a range of demographic sectors and meet the needs of residents and families through various life stages and income levels. • Strategy 1.5: Promote the maintenance and improvement of the existing housing stock and allow for remodeling, expansion, and additions as appropriate in the area to accommodate the changing sizes and varieties of household types. • Strategy 1.6: Support a diverse supply of accessible housing to meet the needs of older adults and people with disabilities, especially in centers and other places which are in close proximity to services and transit. NEIGHBORHOOD PLANS. GOAL N-3: Prioritize the development of effective neighborhood-scale plans and programs for those areas with the most potential for change and need for protection. • Strategy 3.1: Identify the locations, areas and character of mature residential areas of Millcreek. Prioritize the development of Neighborhood Plans to establish development, redevelopment and remodeling objectives and policies that protect the character of stable neighborhoods. • Strategy 3.2: Amend zoning and subdivision regulations, as necessary, to implement Neighborhood Plans (e.g. new zoning or design overlays, and/or development and remodeling standards). • Strategy 3.3: Celebrate, support and advocate neighborhood identity through the City’s marketing, programs, events and communications. ENGAGEMENT. GOAL N-4: Inform and engage with neighborhoods, community councils, and individual residents during zoning and rezoning processes, capital improvement planning, and decisions on City facilities and services. • Strategy 4.1: Create and implement state-of- the-art, transparent, clear and cost-effective methods to inform and involve neighborhoods and affected property owners in zoning and re- zoning proposals and City planning projects. • Strategy 4.2: Collaboratively include and partner with community councils and the development community on City planning projects of community or area-wide importance. COMMUNITY DESIGN. GOAL N-5: Support unique and innovative community design elements and features such as community gardens, live/work spaces, and neighborhood gathering places. • Strategy 5.1: Encourage neighborhood and school partnerships to coordinate joint use of school facilities. • Strategy 5.2: Encourage walkable civic, retail, and community gathering places as design elements within neighborhood centers. • Strategy 5.3: Encourage creation of neighborhood activity centers within walking or biking distance of residential areas. • Strategy 5.4: Develop a public art policy that considers Citywide as well as individual neighborhood approaches. Consider and encourage public arts and cultural elements in Neighborhood Plans. • Strategy 5.5: Identify and secure grants and other funding to create and sustain neighborhood identifiers including gateways, street tree plans, signage, lighting, markers, and enhanced streetscapes. ---PAGE BREAK--- 33 UNIQUE NEIGHBORHOODS CONNECTIVITY. GOAL N-7: Enhance mobility and connectivity between neighborhoods across Millcreek. • Strategy 76.1: Increase transportation and recreation choices for all neighborhoods by improving or adding bike lanes, sidewalks, off-street neighborhood trails and greenways that connect to a larger system of trails with associated wayfinding/signage. • Strategy 7.2: Retrofit existing features such as drainage ways, canals, and utility corridors with pedestrian ways and trail systems. NEIGHBORHOOD COMMERCIAL EXAMPLE ILLUSTRATION MIXED-USE. GOAL N-6: Encourage and support the integration of appropriate mixed-use development in selected neighborhoods. • Strategy 6.1: Focus incentives for mixed-use development within centers and mixed-use corridors that have the potential for enhanced multimodal access and walkability. • Strategy 6.2: Encourage vertical mixed-use design in village centers as neighborhood focal points, along with neighborhood design meant to encourage a sense of community and provide a walkable environment. ---PAGE BREAK--- 34 3.1.6 MEASUREMENTS OF SUCCESS • Neighborhood Plans: The area percentage of the City with active, up-to-date small area or neighborhood plans • Housing Location: Percent of housing units that are within 1 mile of non-residential uses (shopping, parks, open spaces, cultural features) • Affordability: By 2030 increase the percent of residences in Millcreek that are affordable by HUD guidelines up to 50% AMI. Current: 13% of units. Goal: 20% 3.3.7 ESSENTIAL QUESTIONS FOR ZONING, DEVELOPMENT AGREEMENTS, AND CITY INITIATIVES R ealizing that not all these questions will be applicable to every decision, these questions should be considered as a tool to focus on and promote implementation of our Unique Neighborhoods theme. Does the application or initiative: 1. Support adopted and relevant small area and neighborhood plans? 2. Encourage additional investment or reinvestment in neighborhoods? 3. Positively contribute to a diversity of affordable housing choices? 4. Stay within the existing mass, scale, and height of the immediate neighborhood? 5. Create options for new gathering areas or centers where possible? 6. Support the redevelopment of blighted and/or underperforming properties? 7. Enhance the connection of neighborhoods to trails, parks, recreation, and open spaces? 8. Enhance cultural, historical, educational, and/or human service opportunities to support neighborhoods?