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MISSOULA OFFICE OF PLANNING & GRANTS 435 Ryman MISSOULA MT 59802-4292 PHONE: (406) 258-4657 MISSOULA COUNTY M E M O R A N D U M DATE: August 18, 2009 TO: Missoula City Council Members Mayor Engen FROM: Laval Means and Roger Millar Office of Planning and Grants SUBJECT: Proposed Downtown Master Plan Consideration with other area plans Summary: This memorandum addresses the coordination of the Greater Downtown Master Plan with other existing area plans, including the Historic Southside Neighborhood Plan, the Joint Northside/Westside Neighborhood Plan, the Southside Riverfront Area Comprehensive Plan Amendment, and the Draft West Broadway Corridor Community Vision Plan. Between the numerous existing plan recommendations and proposed Greater Downtown Master Plan recommendations there are consistent suggestions for guiding change within the downtown study area. In some situations the adopted related neighborhood plan provides cautions regarding the need to address transition and historic character with minimal specific land use details, while other associated plan documents provide more detail than the draft Downtown Plan. All the associated neighborhood and vision plans can function together, complement each other (as overlapping plan areas) and provide helpful guidance for change within the Downtown study area. Introduction: The draft Greater Downtown Master Plan is proposed as an amendment to the Missoula County Growth Policy. Page 14 of the draft document provides an overview of the “land use framework.” It states that the plan is consistent with the overlapping and related existing community plans. The proposed Master Plan extends the guidance of existing land use designations to provide more specificity and vision for change. Neighborhood or area specific plans help to provide additional detail while also remaining consistent with the overarching general policies that are part of the Missoula County Growth Policy. The proposed Downtown Master Plan furthers the following goals and objectives from the Missoula County Growth Policy: o Create a truly healthy community by: 1) protecting critical lands and natural resources, such as wildlife habitat; riparian resources; hillsides; air and water quality; and open spaces; and 2) enhancing the community’s resources in the areas of health and safety; social, educational, recreational, and cultural services; employment; housing and the valued characteristics of communities (page 3-2). o Preserve areas with scenic open space value (river corridors, vistas). Increase opportunities for preservation of and appropriate use of natural areas and green spaces within and around Missoula (page 3-3). o Identify, evaluate, and develop ways to protect historic and cultural sites, structures and trails (page 3-3). o Identify where in Missoula County certain types of growth should or should not occur and how the integration of developed lands and open spaces can best be accomplished (page 3-3). o Accommodate growth, retail historical resources, and provide appropriate open spaces in the design of development so that areas of greater density remain healthy, safe, and livable (page 3-4). ---PAGE BREAK--- Missoula City Council Members and Mayor Engen August 18, 2009 Proposed Downtown Master Plan Page 2 o Encourage and support new land development within or immediately adjacent to areas where public services are currently available both to maximize local government efficiency and to promote a logical growth pattern (page 3-4). o Encourage a residential land use pattern that provides a high quality living environment in a variety of residential settings, protects public health and safety, minimizes local government costs, and preserves natural resources (page 3-4). o Allocate land for commercial and industrial land uses that meets their specific needs and adheres to adopted land use policy. Efficiently and economically provide public services to those areas (page 3-4). o Create smooth transitions from commercial to non-commercial uses (page 3-5). o Allow for diverse business and employment opportunities and a competitive business climate (page 3-5). o Achieve the overall mix and placement of housing needed to support a community rich in social, cultural, and economic diversity and an environment rich with natural resources (page 3-5). o Encourage a land use pattern that facilitates use of all modes of transportation and provides for safe, healthy, affordable, efficient and convenient access to transportation connections for residential, commercial, industrial, and emergency traffic (page 3-6). o Maximize use of present facilities and encourage joint use rather than expansion (page 3-6). o Improve, rather than extend, the present transportation system network for the conservation of natural resources, energy and public funds (page 3-6). o Concentrate commercial and residential development in activity centers where the transportation system can support it (page 3-6). o Provide accommodations for and promote the use of more sustainable modes of transportation, including public transit, bicycle, and pedestrian facilities. Expand the service of the transportation network by providing families, commuters, and senior citizens access to community and neighborhood centers. Promote the use of renewable energy and less reliance on fossil fuels (page 3-6). The Downtown Master Plan overlaps several existing neighborhood plans and a draft “corridor vision plan.” OPG has reviewed all the related neighborhood and vision plans and finds the proposed Downtown Master Plan to be generally consistent with the recommendations in the related plans. The following is a review of the overlapping neighborhood plans and their relationship to the draft Downtown Master Plan. There are three related Neighborhood Plans: o Historic Southside Neighborhood Plan – adopted in 1991 o Joint Northside Westside Neighborhood Plan – adopted in 2000 and updated in 2008 o Southside Riverfront Area Comprehensive Plan – adopted in 2000 o Draft West Broadway Corridor Community Vision Plan – developed between 2006 and 2007 (not adopted) Historic Southside Neighborhood Plan: The “Higgins Hip Strip” portion of the Downtown Plan Study area overlaps with the Historic Southside Neighborhood Plan. The area is designated “City Center” according to the Missoula County Growth Policy. The land use designation is described in the 1998 Urban Area Comprehensive Plan as: A new “City Center Designation” is recommended. It follows the boundary of the Missoula Redevelopment District [at the time] and encourages redevelopment. Because this area encompasses more than traditional storefront uses associated with downtown, it is further proposed that five districts within the City Center be designated as described in Chapter 6 under “Commercial Land Use” to address specific development problems and to maintain the unique values of each of the areas within the City Center District. The Southside District encompasses the riverfront and the commercial businesses along Higgins. With additional improvements planned along the south riverfront, increased circulation across the river should occur, strengthening the link to the downtown. Residents and business owners are currently working on implementation for the adopted neighborhood plan for this district.” The Historic Southside Neighborhood Plan describes land use (past, present, and future) for five sub-districts within the study area. The districts that most directly relate to the draft Downtown Master Plan are the “Riverfront Corridor” and the Business Area.” ---PAGE BREAK--- Missoula City Council Members and Mayor Engen August 18, 2009 Proposed Downtown Master Plan Page 3 The description of the Riverfront Corridor emphasizes the natural setting, the importance of views across the river toward the hillsides to the north, the public spaces and trails. It also recognizes a small private commercial enclave housed in older buildings at the east end of the riverfront corridor. The description of the Business Area emphasizes the historic character of the commercial development, the variety of services available, the varied rooflines (three story and lower) and detailed facades that line the streets, the concerns over parking and safe pedestrian movement, and the transition to adjacent residential areas. The plan foresees no expansion of commercial development into the residential areas or the development of taller buildings (beyond three stories). If parking and traffic concerns can be met as development occurs, the area can prosper by taking advantage of the and opportunities which the location and configuration of the area contain. (page 52) Specifically, the Historic Southside Neighborhood Plan states the following goals that relate to the Downtown Master Plan: o To develop methods for protecting the historical quality of the neighborhood and the historical character of many of its buildings while change and novelty enter into the district. (page 32) o To encourage an aesthetically attractive appearance to building exteriors and grounds in the neighborhood and to encourage the sensitive buffering or mitigation of any needlessly harsh contrasts between separate properties. (page 38) o To maintain and enhance those viewing points on the riverfront corridor, the bridges, and the river bluff which offer opportunities to enjoy the aesthetic quality of the planning district and the larger context of our lives. (page 42) o To maintain the present boundaries of the business area and to establish transition or buffer zones where possible between uses within the business area and those in the adjoining residential areas. (page 52) o To foster and support the business area in its distinctive character. This means: to help maintain the dominant character which is given to the district by the character and operation of many of the businesses; and in both cases, to encourage continued but compatible diversity among businesses in the area. (page 54) o To prohibit the introduction into the planning district of further gambling operations and establishments, as well as of all further places which dispense liquor for on-site consumption (except when such dispensing is an accessory use to a restaurant which has no gambling machines or activities on its premises). (page 54) o To promote the harmonious interlinking of the business area with the adjacent residential areas, so that the connection may be as mutually agreeable and supportive as is possible. (page 57) o To reduce the negative impacts of automotive traffic in the business area and to address the problems of hazards and increasing volume in ways which do not simply create a greater parking problem. (page 58) o To encourage and reinforce other modes of transportation through the business area: pedestrian, bicycle, pubic transportation. (page 58) o To thoroughly and accurately assess the parking situation as it affects the business area and to find satisfactory solutions to any problems. “Satisfactory” means here effective, in keeping with the distinctive character of the business district, and without undue displacement of parking into adjacent residential areas. (page 59) o Using Parking Commission enforcement efforts and other study options, develop a parking strategy which maintains on-street parking along Higgins and at the same time provides what off-street parking is necessary in the most unobtrusive and dispersed fashion and one which best harmonizes with the character of the area. The strategy also should not result in shifting the parking burden to adjacent residential areas. (page 59) The draft Downtown Master Plan describes commercial uses, employment opportunities, and high-density housing within the area referred to as City Center in the current growth policy. All those uses are consistent with the City Center designation and will replace the City Center designation as land use recommendations. The commercial and employment locations proposed for the Higgins Hip Strip area are consistent with existing uses. The proposed high-density housing location is intended to identify “desirable areas adjacent to either existing parks and natural resources or near planned green spaces; encourage adaptive reuse of existing structures and infill development within the downtown core; set forth recommendations for protection of historic or stable downtown neighborhoods; and encourage the development of a significant number of affordable housing units within each district” (page 24, draft Master ---PAGE BREAK--- Missoula City Council Members and Mayor Engen August 18, 2009 Proposed Downtown Master Plan Page 4 Plan). The recommendation for high-density housing in this area is also intended to “strengthen the vitality of the existing commercial district” (page 30, draft Master Plan). Standards are proposed to encourage compatibility with adjacent historic neighborhoods and the need to address parking on-site as structured parking (rather then surface parking). The suggested density minimum (60 dwelling units/acre (is similar to the maximum existing density (58 du/acre) that could occur with the existing zoning district that is applied for this area. The draft Master Plan considers the potential for developing 125 new residential units to the west of Higgins (on within the Higgins Hip Strip area. This area coincides with the Business Area mentioned in the Historic Southside Neighborhood Plan. The existing neighborhood plan does not specifically contemplate high-density housing in this location, but does emphasize the need to establish appropriate transitions between the adjoining residential neighborhood to the west and the commercial uses between and Higgins. Placement of high-density residential development can serve as a transition in density, building type, and use from commercial areas to less-dense residential areas depending on the details of a proposal. However, the existing neighborhood plan recommends development within a three story height limit even though existing zoning permits up to 125’. The draft Downtown Master Plan recommends development not to exceed 65’ height. Implementing this recommendation will provide a better transition to the adjacent residential neighborhood. The ongoing City Zoning Ordinance rewrite project proposes the existing C zoning district to be renamed as C1-4. The renamed district would retain the existing height limit of 125’, require 1000 square feet of lot area per unit (43 du/acre) for single-purpose residential development, remove density limits for vertical mixed-use development, and provide buffering standards for commercial uses adjacent to residential districts (requiring stepbacks with height). A recommendation from the Downtown Master Plan is to establish an overlay for implementing the zoning recommendations from the plan. The draft City Zoning Ordinance acknowledges the concept of developing a Downtown Overlay and includes a placeholder for the future tool. Should an overlay be approved it could include the recommendation for limiting the height in this area to 65’. The draft Downtown Master Plan includes consideration for “neighborhood protection” and encourages the development of standards to address specific forms, massing, and setbacks depending on the area. “The character and livability of historic and established low-density neighborhoods should be shielded from inappropriate incremental multi-family housing development.” (page 31) A proposed neighborhood protection area is indicated surrounding the existing commercial district along South Higgins (page 25, draft Downtown Plan). Parking is also addressed in the draft Downtown Master Plan. The need for a new public parking structure is identified within the Higgins Hip Strip sub-district. This parking area coincides with the location for some potential high-density housing. The need for parking and housing can work well together and accomplish the goal of transition from commercial uses along Higgins to the adjoining residential area to the west. Finally, the draft Master Plan provides additional detail and suggested implementation for an improved circulation framework and parking strategy that would further many goals identified in the Historic Southside Neighborhood Plan. The draft Downtown Master Plan proposal for commercial uses, employment opportunities and high-density housing is generally consistent with the existing Historic Southside Neighborhood Plan. Depending on the design of future projects that may fulfill the recommendation for housing, the desired transition between the existing commercial uses along Higgins and the adjoining residential areas can be addressed through the change in density, parking accommodations, design of structures and compatibility with surrounding historic character. Joint Northside/Westside Neighborhood Plan (updated in 2008): The West Broadway (area west of Orange Street) and the “Railyard Housing” portions of the draft Downtown Master Plan study area are within the existing Joint Northside/Westside Neighborhood Plan. The West Broadway area is primarily designated “City Center” according to the Missoula County Growth Policy. The land use designation is described above. The existing neighborhood plan describes a vision for change along West Broadway ---PAGE BREAK--- Missoula City Council Members and Mayor Engen August 18, 2009 Proposed Downtown Master Plan Page 5 as “Activity Center West Broadway Corridor” (page AD6). The Activity Center for this area describes a revitalized mixed-use area with buildings developed closer to the street and a pedestrian-friendly experience along the streetscape. The draft Downtown Master Plan recommends a mixture of high-density housing, commercial and employment uses close to Orange Street and commercial, high-density and mid-density housing close to Russell Street. These more detailed land use descriptions are consistent with the existing City Center designation and the guidelines within Activity Center Page 28 of the draft Downtown Master Plan also includes a more detailed description for potential development along the west end of West Broadway (close to Russell and California Streets) that is consistent with the existing neighborhood plan. The Railyard Housing is currently designated as Historic Mixed Use and is described in the existing neighborhood plan as: Historic Mixed Use: this designation is intended to include areas which have traditionally offered a mixture of uses including commercial, residential, and light industrial; and is within a designated historic district or potential historic district. The uses within this district should be considered compatible with one another and not degrade the overall character of the area. Any development in this area should contribute to the overall historic character. Performance standards should be established for this area, which will help to preserve the district. Development, improvements, alterations and demolition in this area should consider historic value, representation, reuse, and compatibility. (See Appendix D, Activity Center Guidelines and #12 for specific guidance; and Appendix C, Neighborhood Historic District Design Guidelines for specific guidance.) The area proposed as “Railyard Housing District” coincides with the Joint Northside/Westside Neighborhood Plan vision described as Activity Center North First Street (page AD-1) and Activity Center Area East of the Missoula Rail Link (MRL) Turntable (page AD11). These activity centers describe a revitalized mixed use area that has the ability to promote jobs, provide clusters of neighborhood housing, extend the city street grid, provide visual as well as physical connection to the downtown, and reflect the historic character of the area. The proposed Downtown Master Plan describes the long-term potential for a mixed-income neighborhood in this area. Land use designations are proposed as high-density housing, commercial and a new plaza. The description of the “Railyard Housing District,” found on page 29 of the draft plan, also acknowledges the importance of the railyard character and the need to be compatible with the Missoula Railroad Historic District. These more detailed land use descriptions are consistent with the existing Historic Mixed Use designation and the guidelines within Activity Centers #1 and Development in this area should reflect the historic character of the area. The draft Downtown Plan recommends “Neighborhood Protection Areas” adjacent to the West Broadway and Railyard housing districts (page 25). The Neighborhood Protection Areas coincide with the existing or potential historic districts. The draft plan recommends development of policies for shielding inappropriate development and preservation of historic neighborhood character in these areas. Southside Riverfront Area Comprehensive Plan Amendment (2000): The Sawmill District (Mill Site) portion of the Downtown Plan Study Area is within the existing Southside Riverfront Area Plan. This area is currently designated as a combination of mixed use, residential (16 dwelling units/acre) and parks and open space. The description of mixed-use within the existing area plan (page 11) does not include a specific density for housing. Since adoption of the existing area plan, a special zoning district was approved for the Sawmill District. The draft Downtown Master Plan reflects the more current land use pattern for the area, including an extended park designation, location for public parking, and refers to the existing ball field as a “cultural/entertainment” land use designation. Housing of various densities is also recommended, with low-density housing located along the west side of the district, functioning as a transition to the existing adjacent neighborhood. High-density housing (approximately 40 dwelling units/acre) is recommended along a new and connected Wyoming Street and should include neighborhood- serving commercial uses at ground level, according to page 26 of the draft Downtown Master Plan. The Sawmill District, as described in the draft Downtown Master Plan, is consistent with the existing neighborhood area plan. This report does not include a review of the recently approved special zoning district. ---PAGE BREAK--- Missoula City Council Members and Mayor Engen August 18, 2009 Proposed Downtown Master Plan Page 6 Draft West Broadway Corridor Community Vision Plan: This draft Corridor Plan was intended to supplement the existing neighborhood plan and be an amendment to the Missoula County Growth Policy. As a vision plan it would not replace the land use designations for the area, but instead provide additional guidance and specificity to the land use designations. The Corridor Plan study area overlaps with the “West Broadway” portion of the draft Downtown Master Plan. The draft West Broadway Corridor Plan spans from Orange Street to west of Russell, and extends from the river to generally one block north of West Broadway. The draft Downtown Plan addresses many aspects of community development including land use recommendations, potential catalyst projects, neighborhood protection, transportation (circulation) and open space. The draft Corridor Plan and the draft Downtown Plan complement each other and serve different functions. The draft Downtown Plan proposes changes in land use designations and describes general recommendations for commercial, employment, residential and transportation system improvements for the West Broadway area. The draft Corridor Plan provides more specific streetscape recommendations and transportation system improvements. Both plans recommend implementation of the land use and streetscape improvements through future overlays. The primary intent of the draft Corridor Plan is to develop a long range vision for land use, economic development, vehicular movement and access and increased pedestrian and bicycle safety for the West Broadway Corridor (page The proposed community vision statement, guiding change in the area, is: “The West Broadway Corridor will be a safe, vibrant, and attractive multi-modal transportation gateway to Downtown Missoula, framed by and serving a dense mix of pedestrian-oriented residential and commercial development. All users will have access to a well-planned mix of destinations including businesses, residences, the Clark Fork River, trails, and open space. A well-lit landscaped West Broadway will give priority to those accessing local business and residences.” (page 18) The draft Corridor Plan includes guiding principles that should be considered (upon adoption) as improvements to this area continue. The guiding principles cover all aspects of community development including streetscape design, accessibility, safety, and development and land use. The development and land use principles specifically encourage mixed-use development, small business, and pedestrian-oriented development (page 20). A series of urban design principles are proposed to support the guiding principles. The urban principles address increased residential density and choice and the need to soften neighborhood transitions (page 21). The draft Corridor Plan recommends a vision that includes the downtown extension from Orange Street to the Bitterroot Spur; riverfront and greenway extensions westward; neighborhood commercial village between Scott Street and California Street to function as a neighborhood activity node; medium density riverfront residential development west of Burton Street; and multi-family residential north of West Broadway as a transition from commercial uses along West Broadway to low-density single family residential north of the corridor (page 27). The draft Downtown Plan also recommends increased residential density and choice with incorporation of commercial uses. Specifically the draft Downtown Plan describes the “West Broadway” residential area as appropriate for affordable and market-rate high density multi-dwelling development along with areas of medium density development (page 28). Overall, the draft Corridor Plan and the draft Downtown Plan recommend guiding development south of West Broadway, and west of Scott Street toward a mixture of uses with an emphasis on residential development. Key to implementing this recommendation will be the development of zoning tools to promote residential, and limit commercial, development. The Corridor Plan also looked at many aspects related to the transportation system. In a set of detailed streetscape recommendations, the plan addresses access management, transitions and streetscape improvement that are consistent with the draft Downtown Plan. Specifically, the draft Corridor Plan acknowledges the need to continue to study the lane configurations along West Broadway, and defers to the input from other plans (such as the Downtown Plan) (page 82).