RESOLUTION NO. 97- 07

WHEREAS, the most recent edition of the Moscow Comprehensive Plan was adopted by the Moscow City Council by resolution on October 7, 1985; and,

WHEREAS, the Planing and Zoning Commission appointed a committee to review the Moscow Comprehensive Plan and fo rward recommendations to the full Commission, and which committee held ten public meetings between July, 1982 and January, !985; and

WHEREAS, the Planning and Zoning Commission considered the Comprehensive Plan, evaluated the most recent information available and prepared recommendations fo r updating during the course of fifteen public meetings between July, 1982 and April, 1985; and

WHEREAS, pursuant to Idabo Code Section 67-6509, the Moscow Planning and Zoning Commission conducted two duly advertised public hearings on May 22, 1985 and July I 0, 1985 on the 1985 Update ofthe City of Moscow Comprehensive Plan and Comprehensive Plan Map, which are fo r the management of the physical and economical development of the City of Moscow, Idaho; and

WHEREAS, subsequent to those public hearings, the City of Moscow Planning and Zoning Commission considered the testimony, and by unanimous vote on June 12, 1985, moved to recommend the 1985 Update of the City of Moscow Comprehensive Plan to the City of Moscow City Council fo r final approval; and,

WHEREAS, pursuant to Idaho Code Section 67-6509, the City of Moscow City Council conducted one duly published public hearing on September 16, 1985 at 8 00 p.m. in the Council Chambers of City Hall; and

WHEREAS, the Comprehensive Plan adopted on July 21, 1980 which is the basis upon which the 1985 Comprehensive Plan Update has been prepared was adopted after the City Council and Planning and Zoning Commission conducted a total of nine workshops, sixteen public meetings, and five public hearings as disclosed in Resolution No. 373 of the Moscow City Council; and

WHEREAS, the Mayor and Council of the City of Moscow, Idaho sitting as the governing board for Moscow, Idaho that the 1985 Update of the City of Moscow Comprehensive Plan, as recommended by the City of Moscow's Planning and Zoning Commission was adopted and approved as Resolution No 85-15 on October 7, 1985 as the City of Moscow's Comprehensive Plan of 1985 pursuant to Idaho Code Section 67- 6509(c); and

WHEREAS, the physical and cultural environment and economic conditions in the City of Moscow have changed since the adoption of the Comprehensive Plan; and, WHEREAS, periodic updating of the data in the Plan is necessary in order that the goals, objectives and policies may be properly evaluated and revised in consideration of changed local conditions; and

WHEREAS, in order to adopt an overall planning philosophy that would reflect citizens' goals fo r the future of the City of Moscow and will meet the requirements of Idaho's Local Land Use Planning Act of 1975, it is the City of Moscow's intention to maximize public participation in the planning process; and,

WHEREAS, the Planning and Zoning Commission considered the Comprehensive Plan, evaluated the most recent information available, and prepared recommendations fo r updating the Comprehensive Plan during the course of numerous public meetings between March 25, 1992 and September 9, 1996; and

WHEREAS, pursuant to Idaho Code Section 67-6509, the Moscow Planning and Zoning Commission conducted duly advertised public hearings specific to the 1997 Update of the City of Moscow Comprehensive Plan and Comprehensive Plan Map on November 9, 1995, February 28, 1996 and July 24, 1996; and,

WHEREAS, subsequent to those public hearings, the City of Moscow Planning and Zoning Commission considered the testimony presented, and then successfully moved, to forward to the Moscow Mayor and City Council, with recommendations fo r adoption of the fo llowing elements, as partial update, of the Comprehensive Plan Introduction; Natural Resources & Hazards; Parks & Recreation; Public Services, Facilities & Utilities; Transportation; Area of City Impact Subsection to Land Use Element; Citizen Participation; and Private Property Rights; and

WHEREAS, pursuant to Idaho Code Section 67-6509, the Moscow Mayor and City Council conducted duly advertised public hearings specific to the 1997 Update of the City of Moscow Comprehensive Plan and Comprehensive Plan Map on June 17, 1996 and September 9, 1996; and

WHEREAS, subsequent to those public hearings, the Moscow Mayor and City Council considered the testimony presented, and then successfully moved to adopt the fo llowing elements, as partial update, of the Comprehensive Plan Introduction; Natural Resources & Hazards; Parks and Recreation; Public Services, Facilities & Utilities; Transportation; Area of City Impact Subsection to Land Use Element; Citizen Participation; and Private Property Rights.

NOW THEREFORE, be it resolved by the Mayor and City Council, sitting as the governing board fo r Moscow, Idaho that the fo llowing elements, as recommended by the Moscow Planning and Zoning Commission, be hereby adopted, as partial update, to the Comprehensive Plan Introduction; Natural Resources & Hazards; Parks and Recreation; Public Services, Facilities & Utilities; Transportation; Area of City Impact Subsection to Land Use Element; Citizen Participation; and Private Property Rights pursuant to Idaho Code Section 67-6509(c). At least three copies of this document shall remain on file at City Hall for public inspection.

PASSED by the City Council and APPROVED by the Mayor this .25.:!J:L day of August , 1997.

y/��-ey0r - Paul C Agidius,

ATTEST

Resolution/comp planidm 1/27/97

SECTION 1

INTRODUCTION

THE COMPREHENSIVE PLANDEFINED

The Comprehensive Plan is the official statement of the City's legislative body (City Council) which sets forth its major policies concerning desirable future physical development. The published comprehensive plan includes a single unified physical design for the community, and it attempts to clarifY the relationship between physical development policies and social and economic goals. It consists of text, maps and other exhibits and includes all community planning elements as required by Idaho Code Section 67-6508. The Comprehensive Plan is specifically implemented through the Zoning and Subdivision Ordinances as well as through administrative decision-making.

A community is always in a state of change. As changes are made in the community, it is important that they are made in a way that they will be compatible with the efficient functioning of the rest of the community for the present and in the future. Once you start to do some thinking about the community the planning process has begun.

In order to develop a plan that reflects what citizens want their community to be in the future, the ideas and desires of its citizens must be collected. The existing conditions must be inventoried and then the citizens must decide what opportunities and problems exist. Once the opportunities and constraints have been identified, goals and policies must be developed to maximize the opportunities and mitigate the constraints. Finally, a course of action for implementing the policies is prepared. When the planning process is completed, the finished product is:

I. A collection of ideas and desires of the citizens of the community as to what they want for their community in the future.

2. A statement adopted by the governing body listing its objectives and policies for future development that informs property owners, developers, citizens and public agencies of the City's intentions.

3. A guide for decision-making for the advisory and governing bodies in the city, federal and state agencies considering the funding of projects within the City.

1 1/27/97

PURPOSES OF THE COMPREHENSIVE PLAN

1. To improve the physical environment of the community as a setting for human activities -- to make it more functional, beautiful, decent, healthful, interesting and efficient.

2. To promote the public interest, the interest of the community at large, rather than the interests of individuals or special groups within the community.

3. To facilitate the democratic determination and implementation of community policies on the physical development.

4. To effect political and technical coordination in community development.

5. To inject long-range considerations into the determination of short-range actions.

6. To bring professional and technical knowledge to bear on the making of political decisions concerningthe physical development of the community.

PLANNING AREA

The Comprehensive Plan shall have jurisdiction over all lands within the incorporated boundary of the City of Moscow as well as all lands outside of the incorporated boundary of the City but within the designated Moscow Area of City Impact.

HOW TO USE THE COMPREHENSNE PLAN

The Comprehensive Plan is legally intended to be a guide for governmental bodies -- not a law which must be adhered to in the most stringent sense. However, state law requires that zoning ". . . be in accordance with the adopted comprehensive plan . . " The plan therefore becomes binding to an extent, though revisions can be made in accordance with the Local Land Use Planning Act.

A comprehensive plan is general in character. The goals and policies included in it should guide the community in general concepts. The land use map of the plan and the relevant text should be referred to for each issue. Although the land use map designates the basic type of land use to be permitted in an area, the text will give further information regarding densities intended for the types of! and use, ideal extent of particular zones, and other information that cannot be shown on the map.

The plan may be amended as needed. Factors that necessitate changes to the plan are growth, changing conditions and various decisions made by the City over time. A

2 l/27/97 review of the entire plan every two years and the making of desirable revisions at that time should make it unnecessary to do a complete revision of the plan for a long period of time.

The plan has been developed to provide fo r a balance in all aspects of the community. A change in any area of the plan has the potential of upsetting the balance if it is not considered carefully and if related elements aren't considered and adjusted in response to the change. When considering an amendment to the plan, decision-makers should ask themselves: have conditions changed so that the plan does not reflect the City's development or its goals?

If this question cannot be answered affirmatively, any amendment should be considered with caution. Whenever any amendment to the plan is made, it should be done through the same process of public hearings as when it was originally adopted.

SETTING

The early settlers of the late nineteenth century found the hill land of the Palouse region very promising fo r agriculture. Growing of cereal crops began with considerable success with the major problems being the transport of the crops to the Snake River fo r shipment, and the distance to be traveled fo r goods and services. To obtain retail goods, residents had to travel to Walla Walla, a distance of I 00 miles. To move the crops to market, wheat and lentils were hauled by wagon to Wawawai on the Snake River, down the treacherous walls of the canyon, and floated down the Columbia River to Portland. In response to these hardships, retail shops were started in Moscow, and in 1885 the first railroad was built to serve the community. The town thus became a trade center fo r the Palouse region.

To keep the northern part of the Idaho territory from joining Washington or Montana in a quest for statehood, the southern Idaho farmers had promised the north that it would be the location of the State's land grant university. In 1889 the University of Idaho was established by the Territorial legislature and located in Moscow which helped the city gain the prestige of county seat.

The City today still reflects the importance of agriculture and the University. The City benefits from a variety of community events. Retail trade and service establishments are numerous as a result of the University students, faculty, and staffwhich comprise the majority of the City's population, and the farm population in the surrounding area of Latah County and Whitman County, Washington. Moscow maintains several recreational parks and a vibrant, pedestrian-oriented downtown. Several turn of the century commercial buildings and the Fort Russell residential district carry over Moscow's historic character to current residents and visitors. Multi-family and other student-oriented housing is found throughout the City, as well as single-family dwelling neighborhoods. The University buildings, agricultural warehouses and the shopping districts stand out as one views the City from the hillsides. Wheat and lentil fields surround the community with open space. All of these aspects of the City contribute to our unique sense of place. compp!an\sectionl\sr

3 1127/97

SECTION 2

NATURAL RESOURCES AND HAZARDS

INVENTORYAND ANALYSIS OF NEEDS

The Palouse region of the Columbia Plateau is characterized by rolling hills rising between 20 and 80 feet above the local drainages. Underlying the surface are thick layers of basalt rock which have been buried by windblown sediments or loess. The loess is over !50 feet deep in some places and has been shaped by wind and snow into hills. Drainage courses have cut through the deep soil and have deposited alluvial material in their valleys.

The major soil that has developed in the loess deposits around Moscow is Palouse Silt Loam, the most productive of the soils in the Palouse region for agriculture. Associated soils are found in smaller areas. Besides being highly productive for agriculture, these soils are characterized by a high water capacity potential and by a potential for severe erosion when stripped of vegetation. In the alluvium deposits of the drainage courses, the Caldwell Silt Loam and its associated soils have developed. Figure 2 is a map showing land capabilities for the Moscow planning area.

In addition to the valuable agricultural soils, clay deposits rich in alumina and ilmenite, a source of titanium, exist in the northeast Moscow area. These clay deposits contain enough alumina that mining of them in the future is possible.

As a result of the fine agricultural soils and reasonably mild climate, dryland wheat, pea and lentil farming has been successful in the Palouse. The urban community of Moscow has developed, completely surrounded by some of the most productive agricultural lands in the world. In addition to producing valuable crops and income for Moscow's businesses agriculture has been responsible for maintaining the open space surrounding the city.

Moscow's climate is reasonably mild with summer temperatures reaching above 90° F only for short periods of time and winter temperatures below 0° F occurring only occasionally. Annual precipitation averages 22 to 23 inches with November through January being the wettest months and July and August the driest. The growing season averages 150 days.

The crops and stubble in the fields have provided cover ?Jld food for numerous types of wildlife including ducks and geese, HungarianPartridge, Mountain and California Quail, grouse, ring-necked pheasants, whitetail and mule deer.

Farming has resulted in an alarming loss of original topsoiL The Latah Soil Conservation District (SCD) reports that sheet, rill and gulley erosion have resulted in

1 11 27/97 topsoil losses of 25% to 75% or 80% of cropland. An additionallO% of cropland has lost over 75% of its original topsoiL These figures are relative to the time since a particular piece of land started being farmed. Because soils in the Moscow area are highly erosive, it is important that appropriate measures are taken to minimize erosion when land is converted from farm to urban uses.

Air quality in the entire Palouse region has been affected by dryland farming techniques. During drier periods, the fallow fields and pulverized soils lie exposed, and even a light breeze will blow dust particles into the air. Moscow has not been experiencing significant air pollution from fallow field dust. Tests by the Community Development Department which compare actual airborne particulate counts to national standards show that Moscow does not have a major air pollution problem. Field burnings, wood-burningstoves, and dust storms do result in brief periods of unhealthful air but none which has lasted in excess of the 24 hours necessary to declare an air pollution alert. In fact, air quality has been improving with more conscientious farming techniques and a steady trend of using gas space heaters instead of wood-burning stoves in Moscow homes.

The rolling topography found in the Palouse is a feature unique to the region. The varied relief created by the gentle hills is a visual asset to the City's design that can be enjoyed by all area residents. Excellent residential view sites are found on the ridges in and around Moscow. The north and northeast slopes of the hills are often as steep as 40 percent to 50 percent, while the south and southwest slopes are generally between 10 percent and 25 percent. On the northern faces of the higher hills, small stands of Douglas fir and ponderosa pine trees occur. Paradise Ridge, to the southeast of Moscow, is heavily forested on all sides. These stands of timber offer an amenity to home sites and cover for wildlife.

The problems presented by the topography are as numerous as its pleasing aspects. The steeper slopes increase building costs and make development difficult on an intensive basis. Pumping is necessary for water and sewer service in some areas. As slopes increase the velocityof moisture runoff is increased, which in tum increases the severity of erosion to the vulnerable fine-grained soils. Where vegetation is removed periodically in the fields, severe erosion of the topsoil occurs, reducing the land's productivity, creating siltation in streams and damaging water quality. Where land is developed and vegetation is not replaced nor expensive retaining walls built, excessive moisture can cause land slides.

Moscow is located within Seismic Zone II where there is potential for moderate earthquake damage. The appropriate building code requirements are applied to minimize potential damage. There are no active faultswithin the Moscow Planning Area.

Two water courses have developed alluvial valleys· through the area. Paradise Creek begins in the Palouse Range to the northeast of Moscow and runs along the east side of the city limits, cutting through the southeast comer of town, and then following the Burlington Northern - Union Pacific rights-of-way through the center of town and on to

2 11 27/97 the west toward Pullman. A small tributary, Hogg Creek, cuts through the northwestern area of the city and flows into Paradise Creek along the Pullman Road. The South Fork of the Palouse River normally has year-round flow and contains a declining population of brook and rainbow trout The valleysof these three waterways, with more level land than is found in other areas around the city, attract development. Both the river and the creeks, however, are subject to occasional flooding during winter and early spring when warming conditions bring melting of snow and heavy precipitation.

The areas that are subject to I 00-year flood inundation have been designated and mapped by the Federal Emergency Management Agency (FEMA). Flood mitigation requirements for development within a floodway and/or floodplain have been incorporated into the Moscow Zoning Ordinance. Focal points for flood damage in the recent past have been as follows: Paradise Creek on the north side of East "D" Street, west of Eisenhower Street; the east end of Hillcrest Drive and the north end of Bridge Street; the land south of the creek, east of Mountain View Road, west of Meadow Street and north of Joseph Street; Meadow Street north of Joseph Street; Harding Street; Ghormley Park and Home Street; east of Line Street at its intersection with Highway 8 and 3rd Street; South Fork of the Palouse River east of Highway 95 South at Palouse River Drive; west of Highway 95, south of Palouse River Drive.

Moscow obtains its water supply from ground water sources most notably the Moscow-Pullman Water Basin (The Basin). The layers of basalt rock underlying the loess of the Palouse Region are aquifers which carry large amounts of water at depths from about 1 00 feet to more than 1, 000 feet below the surface. Moscow relies on ground water for its municipal water supply. Municipal wells extend into basalt aquifers underlying the loess. Ground water is held in fractures and in sediments between individual basalt flow within these formations. The Wanapum basalt underlies the loess, and extends to depths of approximately 250 feet The most productive municipal wells extend into the Grande Ronde basalt, which underlies the Wanapum basalt The ground water, part of which is high in manganese and iron, is treated in the Moscow municipal water system. The cities of Pullman and Moscow and the two universities are the major water purveyors in The Basin. Most of the water is pumped from wells penetrating various depths of the basalt aquifers. Primary uses of the water are municipal, institutional, and private; essentially no ground water in the area is used for agricultural irrigation.

Aquifers in The Basin are thought to be recharged by (1) areal infiltration (water percolating through the soil), (2) by areas where the basalt is uncovered by loess, (3) leakage through stream beds, and ( 4) by more direct recharge near the contact zones between basalt and granitic zones surrounding the basin. Exact recharge rates and recharge patterns are not yet well understood.

Water levels in some portions of The Basin are decreasing at a rate of approximately 1 to 2 feet per year. The Pullman-Moscow Water Resources Committee (the Committee) is charged with coordinating planning for a stable, long-term water

3 1/27/97 supply. Concerns over water level declines have motivated hydrogeologic studies of local aquifer system issues. Knowledge about our water supply has increased, and continues to increase, but significant uncertainty remains. While it appears that existing water supplies are sufficient for current needs, there remains uncertainty about the extent of additional pumping capacity.

The Committee is developing and encouraging the development of water conservation programs throughout The Basin area. The purpose of these efforts is to implement low-cost, prudent measures that decrease the rate of local pumpage increases.

While some local ground water contamination has occurred in shallow aquifers water in the Wanapum and Grande Ronde aquifers is generally of high quality. Municipal water consistently meets all drinking water standards.

Annual precipitation in The Basin ranges from 15 inches along the Snake River to about 50 inches at the top of Moscow Mountain at the northeast comer. Precipitation averages 22 inches annually for Pullman and 24 inches annually for Moscow. Most of the precipitation in the area falls in the period November to June. In general, precipitation in The Basin increases eastward and with increased elevation. Streams in the area flow generally to the west and northwest Ground water in The Basin is believed to flow primarily westward.

In planning for the use of its natural resources, the community must take into account the five roles which the resources can assume:

1. The ecological role -- how can the city best function and at the same time preserve a healthful area of clean water and air, healthy vegetation and wild animals and birds?

2. The economic role -- how can the city best preserve land for new development and good soil for agriculture?

3. The recreation role -- where and how can identified resources meet the growing need for a variety of recreational opportunities?

4. The amenity role -- how can identified resources be developed to enhance the livability and appearance of the community?

5. The safety role -- how can the natural resources be best managed to assure the safety of residents of the community?

GOAL

Manage the natural resources of the area in a manner that will balance their ecological, economical, recreational, aesthetic and safetypotential s.

4 1/27/97

OBJECTIVES

1. Promote the conservation of prime agricultural land and protect Moscow's agricultural setting.

2. Improve and protect the air quality in the area.

3. Promote the conservation of natural areas.

4. Minimize floodand earth slide hazard potential from development impacts.

5. Minimize soil erosion.

6. Protect the appearance of visually prominent areas.

7. Improve the appearances and conditions of natural waterways.

8. Maintain the quantity and quality of water in the Moscow-Pullman water basin.

IMPLEMENTATION POLICIES

1. New development that has high impact on natural resources and requires substantial infrastructure within the Moscow planning area should be located in close proximity to existing urban development in the city.

Through careful administration of its Area of Impact, Moscow can zone land outside of the city limits to avoid improper timing of development. Land farther away from the city limits should remain zoned for agricultural and rural use, while only land close to existing urban development should be zoned for higher intensity uses or for smooth transition to urban development. As development moves outward, additional lands would be zoned for urban uses as needed. (See Area of City Impact Section.)

Because soil conditions in much of the area around Moscow make septic systems unacceptable except in the case of large parcels, sewer service is needed for any intensive development. By limiting the length of extension of water and sewer services into undeveloped land, Moscow can more effectively direct development and maintain the concentrated nature of the community. (See Public Facilities and Services Section.)

5 1127/97

2. Land use in the Moscow area should be efficient. Large lot subdivisions should be avoided unless carefully planned fo r potential transition to urban development.

In addition to controlling the location of development, the city can control the type and intensity of development when it will have an impact on the natural resources. Subdivision of land into large (in urban terms) lots of half an acre to several acres in size not only uses excessive amounts of prime land, but makes more intense subdivision awkward at a later time.

3. In areas of steeply sloping land with soil conditions that indicate a potential for landslides, low density development should be considered and/or grading plans with compaction tests and soils reports should be required. Development that causes minimum disturbance to steeper areas should be encouraged.

On steep slopes of 15 percent to 20 percent and above, larger lot zoning (one half to several acre sized lots) should be applied to minimize storm runoff and slide potential and to assure maximum absorption. In areas of somewhat lesser slope, zoning should require large urban residential lots (10,000 to 15,000 sq. ft.) for the same purpose. Cluster types of development can be well designed into parcels of difficult topography by grouping structures close together on level land, leaving steeper areas in open space.

4. Development practices which aggravate erosion potential should be minimized. Revegetation should be required for all undeveloped ground where construction has caused its removal.

To minimize erosion and slide potential, particularly in steeply sloping areas, development standards should be adopted tbat require a developer to submit a program for mitigation of erosion factors in the project. Revegetation of land where construction has caused the removal of vegetation should be required within the established standards.

In addition to the requirement of an erosion control program,. subdivision review should include consideration of the project's design as it relates to the relief of the land and its potential impact on erosion. Cluster developments can be useful in maintaining the natural contour of the land and in making maximum use of the land and amenities. By grouping dwelling units, whether apartments, townhouses or detached single units, on the more level land, steeper areas can be left in open space.

6 1/27/97

5. A pathway should be designed and developed along Paradise Creek that will improve the appearance of the creek, protect flood-prone areas from development, and provide recreational opportunities.

In order to maximize the potential amenity of Paradise Creek, the City has created a Linear Park Task Force to cooperate with land owners along the creek, to clean up the course, improve it for aesthetic and recreational purposes, and maintain it as a permanent pathway through town. (See Recreation Element, Linear Park.) Figure 3 is a sketch of potential use of lands adjacent to Paradise Creek.

6. Development in the designated floodplains should continue to conform to the City's Flood Hazard Areas Ordinance.

The Federal Emergency Management Agency, with the assistance of the Army Corps of Engineers, has designated certain areas along Paradise Creek and the South Fork of the Palouse River as being within the 100 year floodplain (see Figure 2). The City has adopted a Flood Hazard Areas Ordinance to control development in these areas. Enforcement of this ordinance should be continued so that potential hazards due to flooding are reduced and in order for property owners of structures within these floodplains to continue to be eligible for federal flood insurance.

Work should be done to clean up the entire drainage course along the banks and within the channel of both man-made and natural debris, and maintain it at a minimal level. The Planning and Zoning Commission has passed a Resolution of Intent to minimize flooding and to protect by acquisition or by easement lands located within the I 00 year floodplain. Flood control measures on the creek and the river should be designed to maintain the pathway concept. Enlargement of undersized culverts and bridge crossings can also help to eliminate the flooding problem without changing the nature of the waterways. Public ownership, easements or leaving of the creek and river lands, and the proposed clean-up program would facilitate clearance of brush and other debris that clog drainage areas and cause flooding.

7. Development along Paradise Creek and the South Fork of the Palouse River should be designed to maximize the aesthetic and recreation potentials of the waterways.

The aesthetic and recreational potentials that are offered by Paradise Creek and the South Fork of the Palouse River have been largely ignored, or even fenced offby development, resulting in a decline in the appearance of the waterways. If developments were designed to orient to the waterways utilizing the setback from the creek as a landscape area, the appearance of

7 1/27/97

the drainages could be enhanced and the siting would contribute to the desirability of the development. A site design review process by the City of Moscow officials could be required to ensure that the proposed development would enhance rather than decrease the amenity of the waterway. Upon review of the subdivision plats, the proposed layout should be evaluated by the Planning Commission and Council to consider the potential impacts on the waterway.

8. Public dedication of areas which are judged by the City to be of value in their natural state should be encouraged (See PARKS AND RECREATION section).

In all mining activities, the City should be assured that the surface and vegetation destroyed by mining will be restored. This could be a condition of a land use permit required in the zoning ordinance, and could be guaranteed by bond.

9. Future major commercial and industrial developments should be required to project their water use.

The aquifer underlying the City has been experiencing dropping water levels since 1896. The City shares this aquifer with Latah County and the City of Pullman and Whitman County in Washington. These political entities should unite in an effort to reverse this historical trend of aquifer depletion to prevent a water shortage from occurring. One step in this direction has been accomplished with the formation of the Water Resource Committee comprised of representatives of Moscow, Pullman, Latah and Whitman Counties, the University of Idaho and Washington State University. This committee is presently studying the problem of declining water levels and is exploring possible solutions as well as developing water conservation guidelines for water users. The expertise that is found within the two university communities should be employed in data collection and analysis as well as in the provision of possible solutions. (Also see Section 7 regarding the Ground Water Management Plan developed by the Pullman-Moscow Water Resources Committee in 1992). While the dropping of water levels problem is being studied, the City should take this problem into consideration when making decisions concerning future development.

10. The City should encourage the use of water-saving plumbing fixtures, landscaping and irrigation systems.

The Pullman-Moscow Water Resources develops and implements strategies to help people minimize their water usage. Distribution of free water-saving shower heads, educational programs, and use of utility billing

8 1/27/97

to distribute information have been employed in both Moscow and Pullman. Additionally, several years ago the City of Moscow went to a water pricing schedule that increased rates during summer months to discourage waste often associated with irrigation.

Figure 3 EXAMPLE OF DESIRED IMPROVEMENTS ALONG PARADISE CREEK

compplan\section2\sr

9 Adopted

SECTIONS

PARKS AND RECREATION

INVENTORY

Moscow and the surrounding Palouse area provide various recreational opportunities for the enjoyment of its citizens. A well-developed, wide-ranging city parks and recreational program coupled with nearby public lands, private recreational businesses, and limited use of University ofldaho facilities provide choices for the individual in search of recreational needs and opportunities for Moscow's citizens through its Recreation Plan and subsequent updates. This plan endorses the planning concepts represented in the Moscow Parks and Recreation Plan Update of 1989. As the city continues to grow, it is important that additional open areas and parks be provided, and that recreational opportunities are offered to meet the needs of its residents.

The City of Moscow, the Moscow School District, and Latah County provide over I 00 acres of recreation and open space within the city limits. The University ofldaho has over 200 acres that are used to supplement the recreational opportunities provided by the city. Additionally, Moscow owns 160 acres outside the city limits. It is leased to Better Living, Inc. which supports an environmental park for the youth of Moscow. Figure 7 is a generalized map showing the public park and recreation facilities in the City of Moscow.

PUBLIC RECREATIONAL LAND IN MOSCOW

City of Moscow Acres

Almon Asbury Lieuallen Park 157 Bridge Street property .68 East City Park 7.04 East Gate Park 175 Eggan Youth Center grounds 1.47 Friendship Square .25 Anderson/Frontier Park 4.65 Ghormley Park 10.54 Kiwanis Park!Hordemann Pond 2.75 Mountainview Park 16.00 Jim Lyle/Rotary Park 2.14 Moser property 4.87 Deerfield property .15 Melgard property .13 Itani property .34 Adopted

Moscow School District

Junior High School 16.94 Oylear property 9.00 Lena Whitmore Park 3.00 McDonald Grade School 8.60 Russell Grade School 1.12 West Park Grade School .78

Latah County Fair Board

Rodeo Arena 8.93 Lions Park 6.37

University ofldaho 230.9

(See Figure 7)

The majority of parks in Moscow are neighborhood parks which are planned and designed to attract users from the immediate area. Neighborhood parks can contain playground equipment, a multi-purpose slab, landscaping, grass, water fountain, open area, benches, and a picnic area. This type of park provides an opportunity for a moderate amount of recreation within walking distance of all homes within the neighborhood, and enables active neighborhood participation in planning the parks development Almon-Asbury­ Lieuallen Park, Rotary Park, East City Park, Lena Whitmore Park, are examples of neighborhood parks.

Another class of parks are community parks which house facilities of a community-wide nature and significance. Ghormley Park contains the City's swimming pool, two lighted softball fields, three lighted tennis courts, playground equipment, and covered picnic shelter. Mountain View Park has playground equipment, basketball court, playing fields for soccer and baseball, and a picnic shelter. East City Park, considered a neighborhood park, contains a stage for performances which is used during the summer months as well as for the annual Renaissance Fair. This park also has a basketball court, paved walkways, a volleyball court, a playground, horseshoe pits, and formal gardens.

Mini-parks are designed to provide a limited population or a specific group and may be developed to serve a specific, yet limited, need. A mini-park can contain landscaping, a tot lot, benches, grass, and a multipurpose slab. Friendship Square, located in the Central Business District, and Eastgate Park are two of the City's existing mini-parks.

Another class of parks is the linear park This is an area developed for one or more types of activities. The mayoral-appointed Linear Park Task Force (the Task Force) has addressed this concept extensively. While there currently are no linear parks in Moscow, certain areas have been identified as desirable for linear park development and the .

2 Adopted possibility of a linear park exists in the near future as recreational development along Paradise Creek expands. The Task Force has identified pathway development from College Street to Highway 95 as a pilot project for the fiscal year 1996 budget. The Task Force has produced a recommendations document entitled A Linear Park System for Moscow, dated 1995, and expands on this concept with a Linear Park System Vision:

A community linked together physically and visually through a series of linear parks and tree-lined connections designed for transportation, recreation, and resource conservation enhancement purposes. Easy access is provided for people of all ages to safely enjoy and learn about a variety of natural settings typical of the Palouse landscape. The spine of this system is the Paradise Creek and Railroad Corridor with links to Moscow's major origin and destination points such as the University, parks, schools, business areas, and neighborhoods. This concept of connections symbolizes Moscow's commitment to growing as a community of distinct yet interconnected neighborhoods and districts.

The University of Idaho has several types of athletic/recreational facilities, the availability of which is limited by academic classes, major events, and programs. Use of some facilities by the general public is available only through purchase of a recreational pass or tickets for performances Indoor facilities include the Kibbie-ASUI Activity Center, Memorial Gymnasium, Swim Center, and the Physical Education Building. Included in these buildings are racquetbalVhandball courts, volleyball courts, an adventure education room, basketball courts, two weight rooms, dance studios, locker rooms, and multiple use areas. The Student Union Building has a bowling alley, pool tables, and video arcade games. Outdoor recreational opportunities are available through the use of Wicks Fields, the 18-hole golf course, a 400-meter track, tennis courts, a 9-hole frisbee disk course, and two arboretums. The University of Idaho also offers other cultural opportunities at the Pritchard Art Gallery, the University Auditorium, and the Hartung Theater.

The City of Moscow operates the Eggan Youth Center adjacent to the junior high school, which provides ping pong tables, foosball tables, other games and television after school. Administrative offices for the Parks and Recreation Department are located at the center and the building is used for meeting space. The Community Center in the Old Post Office is also available for public gatherings. The public library system in Latah County is headquartered in the Moscow downtown area. Several commercial recreational businesses operate in town, including a bowling alley, seven movie theaters, a fitness center, and a historical museum. In addition to the facilities located within the City, there are also a number of facilities available within reasonable travel time of Moscow.

The Moscow Department of Parks and Recreation operates a year-round recreation program that offers a variety of activities for nominal fees for the participant. Many of these activities are coordinated with the Moscow schools. The schools offer a number of extracurricular recreational activities for students. Recreational and crafts courses are

3 Adopted available through the University of Idaho, and private clubs offer many other programs and events.

ANALYSIS OF NEEDS

Historically, much of Moscow's parkland has been acquired through gifts or as a result of excess City lands. Although such acquisition has resulted in an attractive and heavily used park system in Moscow, it can lead to odd-sized parcels that are not practical for use and in unequal distribution of parkland throughout the City. A parkland dedication ordinance was adopted by the City Council on November 18, 1985, requiring land developers to donate parkland or payment for future parkland development as part of their development costs to enhance planned recreational opportunities. Some landowners, in a creative approach to parkland dedication, have negotiated with the City to pre-dedicate acreage for parks for entire parcels which then allows the City to develop the park and increase the marketability of the surrounding parcel.

Several of the older residential areas of the City contain little or no parkland and little vacant land is available for parkland acquisition. Scattered mini-parks might be developed in these areas until opportunities to acquire land for a neighborhood park become available.

Community and neighborhood parks must be furnished with service facilities. Adequate parking lots, restrooms, drinking fountains, and benches are needed. Where facilities are available for organized activities, seating for observers should be available. In children's playgrounds, seating for parents should also be provided. An aggressive parkland acquisition program addressing both neighborhood needs as well as larger areas for community-wide playfields should be encouraged and financially supported. Acquisition of floodplain lands for parks purposes should be considered (Also see Section 2 Natural Resources and Hazards).

Parks and recreational activities must be developed to serve the needs of all neighborhood residents. While they may be used most often by younger children for active pursuits, they are also needed by older children and adults for more passive use. Walking is an activity often enjoyed by adults, particularly through interesting and attractive areas. Passive uses are more difficult to accommodate when park facilities are combined with schools.

A recent report of the Moscow Parks and Recreation Commission and a citizens' committee recommends that a public swimming pool with an attached multipurpose facility be constructed to meet the needs of this community. Provision of indoor recreational space is considered to be a major priority of the Parks and Recreation Commission and Department. Although there is consensus on lhe facility, the cost of development continues to be an area of concern.

Additional recommendations mentioned in the Moscow Parks and Recreation Commission's Plan Update,' 1989, include acquisition of abandoned railroad rights-of-way

4 Adopted and recreational development along Paradise Creek. In addition, space for playfields is still of importance.

There are a large number of bicycle riders in the community due in part to the presence of the University. A recent survey indicated that many bicyclists use their bikes for transportation and recreational purposes. While the scope of the survey was limited, it showed that most bicyclists use their bikes during all but winter. Those surveyed indicated that safety, distance, time constraints, insufficient carrying capacity, and weather were the biggest obstacles to bicycling, and that local government could provide more bike paths and lanes (specifically on the south side of 6th Street), more bike racks (covered racks preferred), and emphasize education and enforcement of regulations. The hilly topography and heavy traffic on city streets create obstacles to the bike rider. Few roads lead out into the country from Moscow that are adequate for bicycling. As state and federal highway programs begin to include bicycle paths within new and rebuilt designs, greater opportunity for bike routes for recreational and transportation purposes will emerge. A bicycle plan for Moscow that embodies much of the thoughts of the survey will better plan for bicycle facilities and will set priorities for implementation

GOAL

Provide a year round park and recreation program in Moscow that provides open space and recreational opportunities in all neighhorhood1·jor citizens uf all ages and differing physical abilities.

OBJECTIVES

I. Maintain existing facilities and provide additional facilities to support a varied recreational program.

2. Provide at least one neighborhood park within each neighborhood of Moscow, when feasible.

3. Take advantage of natural features in locating and planning new parks.

4. Work toward the development of a Linear Park system as set forth in the 1995 Linear Park Task Force Recommendations document.

5. Provide adequate accessory facilities in parks to accommodate the needs of park users.

6. Maintain and expand the existing recreation program.

7. Improve opportunities for recreational bicycling and walking.

8. Continue to emphasize shared use of facilities where possible.

5 Adopted

9. Construct aquatic and indoor recreation facilities to meet needs of community

IMPLEMENTATION POLICIES l. Parkland should be provided within each neighborhood of the City.

2. Land acquisition for new parks or recreational fa cilities, and the development of needed facilities, should continue to be pursued by the City through its parkland dedication ordinance and City capital fu nds budgeted provision.

3. In areas where parkland is needed and natural features exist which lend themselves to active or passive recreation, the City should acquire this land fo r that purpose.

4. Public dedication of areas judged by the City as valuable for recreational or scenic purposes should be encouraged.

5. The City should continue to work with other agencies to develop cooperative park and recreation programs.

6. The current parkway along Paradise Creek should be enlarged to parallel the length of the creek in Moscow and recreational use of the parkway and adjacent areas should be developed where possible.

7. Areas fo r passive recreation should be provided within all city parks.

8. Supporting fa cilities should be available in city parks including restrooms, drinking fountains, benches, bicycle racks, and adequate parking.

9. Parks and recreational areas should be protected from incompatible developments on adjacent properties. l 0. Bicycle routes and facilities, in addition to those developed as part of the Linear Park, should be developed in Moscow for both recreational and transportation purposes. ll. Service organizations should be encouraged to undertake park development as organization projects within planned guidelines.

12. It is the policy of the city to conform to ADA requirements and policies in its Parks and Recreation activities and programs.

Comprehensive Plan!dp

6 1127/97

SECTIONS

PUBLIC FACILITIES AND SERVICES

The existence of public facilities and utilities not only allows urban development to take place, but also directs the locations of that development. Access to existing facilities and utilities often determines which lands are developed. It is therefore important in planning to consider both the adequacy of the supply and the location of these services. Figure 12 shows the location of public facilities in Moscow.

WATER

Water demand in Moscow varies greatly during the year and is not always correlated with population. During the fall and winter months, when the City's population is the greatest, the average demand of about 1.9 million gallons daily is substantially lower than in the summer months when the peak demand has reached as high as 5.3 million gallons daily, and is usually between 4. 5 and 5 million gallons daily.

Moscow's municipal water supply presently comes from six wells. The three primary wells, #6, #8 and #9 are deep wells taking water from lower basalt aquifers. They are approximately 1200 feet below ground level. Wells #2 and #3 are much shallower (200 feet +) and along with the Cemetery well (550 feet deep) supply water high in iron and manganese, and are used only as auxiliary wells to meet peak summer demands. A treatment plant to decrease the iron content of the City water was activated in 1975 and 1977. The University ofidaho operates its own water system from its own wells. The two systems are connected for emergency purposes.

The amount of water that the City's system can supply in a given day is a total of the pumping capability from its wells and the storage capacity of its storage tanks. Wells #6, #8 and #9, which supply the majority of the City's water, are capable of producing approximately 1400, 1200 and 2400 gallons per minute, respectively, while wells #2, #3 and the Cemetery well, used to supplement the supply during the year when water demands increase, jointly produce an additional 2860 gallons per minute for a total of about 11 million gallons a day. The City's four water storage tanks have a combined capacity of 4.8 million gallons. To maintain an emergency supply of .5 million gallons at all times, only 4.3 million gallons of this amount can be considered working storage. During peak summer demand periods an 8 hour period every night or the next day's demand might draw from the emergency reserves.

City water is distributed in mains ranging between 6 inches and 24 inches in diameter, the majority being 6 inches. A program of pipe replacement for inadequate lines has been in progress in recent years, as well as expansion of the system into areas of growth.

I 1/27/97

The existing pumping capability and storage facilities are adequate to meet the City's normal water demand. In past years there were periods of high summer demand during which maintenance of emergency water supply has been possible only by implementing an alternating watering schedule within the City. With the recent installation of Well #9, and a 2 million gallon reservoir, this problem has been corrected.

Since 1896, water levels in the deeper aquifers in the Moscow area have progressively lowered. This is the result of the City taking water at a faster rate than natural recharge can occur. While studies of ground water supplies in regard to the future availability are conflicting, most have agreed that research on either alternative sources for municipal water supplies or more efficient management of present ground water resources is needed. The Pullman-Moscow Water Resources Committee, including representatives from the City of Moscow, City of Pullman, Latah and Whitman Counties, University of ldaho, and Washington State University have been studying the water problem for the past several years. A ground water management plan has been adopted by those representatives and approved by the Idaho Department of Water Resources and the Washington Department of Ecology as a reference for future requests for water permits.

Future planning decisions concerning any new development in the Moscow area should consider the amount of water to be used by the development, the nature of the water use, and the source of the water supply. The City should establish guidelines for the amount of water usage based upon the nature of the new development. Developers of large commercial or industrial developments that are expected to use large quantities of water should be required to quantify the future water demands of any future development and the impacts of those demands on the City's water supply. Finally, the City should develop a mechanism(s) to insure that new developments continue to meet the established guidelines as set forth in the management plan.

Future industrial development that would require large quantities of water could be encouraged to consider alternative sources of water. The present use by the University of Idaho of the City's sewage effluent for lawn watering is one example of such an alternative source.

SEWER SYSTEM

Sewage collection in Moscow is accomplished by the gravity tributary system with mains ranging between 6 inches and 24 inches in diameter, the majority being between 6 and 19 inches in size. A pump station located south of Palouse River Drive pumps sewage from the urbanized area south of Lauder Avenue through a 10 inch pressure line up the hill on Main Street to Taylor Avenue. An extensive inventory of the sewage collection system has recently been completed to locate sewer lines in the City and to determine their size.

Two sewer districts have recently been formed in the Moscow area; one is in the area to the southeast of the City and one is to the north along North Polk Street. The southeast district is in operation with its collection system connected through a second lift station

2 1/27/97 with the Moscow system for treatment. The North Polk Sewer District gravity flows to the Moscow system for treatment purposes.

The City's secondary trickling filter sewage treatment plant has a design capacity of 3.5 million gallons per day and operates at a base load of2.8 million gallons per day. Treated effluent is presently discharged into Paradise Creek.

During periods of heavy rain, storm runoff infiltrates the sewage system. The additional liquids in the sewage at those times can overtax the trickling system of the plant. The trickling system will therefore need to be expanded in the future to handle the excess liquids.

STORM DRAINAGE

The City's storm runoff drains into a system of pipes, culverts, and natural draws which carry it ultimately into Paradise Creek. In some areas runoff is collected in an underground system, carried out of the immediate area, and then emptied into areas of minor natural drainage. In many cases, such handling of storm drainage will become inadequate as development intensifies, causing isolated flooding. This flooding will intensity due to the City's policy of requiring all new commercial developments with parking lots to connect their runoff system with the City's runoffsystem.

Where storm drainage is channeled through underground pipes, many of the pipes are undersized fo r the runoffloads they now must carry, and excess water floods areas around catch basins. This occurs particularly in the areas adjacent to the central business district.

While the City's storm runoffis being routed into Paradise Creek, that creek itself creates some serious storm drainage problems. This creek's course through most of the City is above ground, routed through culverts under City streets. It goes underground for a short distance in the vicinity of the University of Idaho's physical plant. The Paradise Creek area has been designated a flood prone area by the Federal Emergency Management Agency. Periods of high runoffhave resulted in flooding in areas adjacent to the channel, and water damage to residences has occurred. The natural tendency of the creek to flood has been enhanced by the collection of debris, which obstructs the flow within the channel at restrictive points such as culvert openings. In the winter, ice often causes obstructions and adds to the flooding problems. The culverts along the creek located under the City streets serve as bottlenecks to floodwaters even without obstruction from debris or ice.

Recent cleanup efforts by the City within the Paradise Creek channel have reduced debris and have resulted in less flood potential within the area. This is a practice that should be encouraged and budgeted by the City. The City also plans to reduce the number of culverts along the channel by replacing them with bridges. However, despite these efforts and plans, there is still a need to further improvethe "bottlenecks" in order to minimize the impact of additional storm runoff on the existing system.

3 1127/97

SOLID WASTE DISPOSAL

Moscow's solid waste is collected for disposal by a privately-owned service provider franchised by the City. The solid waste is delivered to a transfer station/landfill fa cility southeast of Moscow. Compostable materials and inert/demolition waste are retained there. A City-owned, privately-managed recycling center and residential yard waste drop-offis located on North Jackson Street.

STREET LIGHTING

With the exception of the lighting along Main Street, which is owned by the City, street lighting in Moscow is leased by the City of Moscow from a private utility company. In the past, less than desirable street lighting was provided. Planning for adequate lighting is needed at the time the City is accepting new subdivisions and major new developments.

FIRE ANDPOLICE PROTECTION

The Moscow Fire Department is a volunteer organization operated with a full-time fire chief, fire marshal, and training officer and more than 70 volunteers. In addition to the downtown headquarters at Sixth and Main Streets, a second station with training facilities is operated at White Avenue and Mountain View Road. The Fire Department has three trucks, three pumpers, two ambulances, and other accessory fire fighting vehicles.

The Police Department staffincludes chief, captains, and administrative sergeants who are administrative officers; twenty-five patrol officers; three part-time parking enforcement officers; six dispatchers; and one animal control officer. The department operates twelve vehicles.

The Latah County Sheriffs Department is also headquartered in Moscow. While this department has the authority to patrol the city, by informal arrangements they only act within the city when they see an infraction. The Police Department and the Sheriffs Department will assist each other when necessary.

As development continues in the Moscow area, it will be important that sufficient staffing, facilities and equipment are available to maintain the present high level of emergency services. It is also important that new developments provide for complete access of emergency vehicles to within a reasonable distance of all points of structures so that adequate protection can be given.

GRITMAN MEDICAL CENTER AND OTHER MEDICAL SERVICES

Gritman Medical Center, Incorporated is a general public hospital with sixty-two beds serving all of Latah County. There is an emergency room at the hospital and ambulance and emergency medical technician (EMT) service is provided by the Moscow Fire Department. Gritman Medical Center is located at the south end of the central business

4 !127/97 district on the block bounded by Main, Washington, 7th and 8th Streets with the main entrance at 700 South Main Street.

There are three nursing homes in Moscow. Latah Health Services located on West Palouse. River Drive, is county owned and is operated under the direction of a seven­ member board elected by the county-wide membership. The non-profit corporation provides a large out-patient physical therapy department, Latah Home Care and Hospice, an 84-bed skilled nursing fa cility and a 36-bed shelter care resident center for the fragile, self-care elderly. Meals-on-wheels are provided by Latah Health Services to Meal-on­ Wheels, Inc.

Good Samaritan Village is northeast Moscow provides 66 retirement apartments, 16 duplexes (32 units), and I house. It has 52 beds for skilled nursing care and in-patient hospice care, 8 beds for Alzheimer's-dementia care, and 12 beds fo r assisted living care. Good Samaritan Village is part of the Evangelical Lutheran Good Samaritan Society and is a Christian non-profit facility. The facility is funded by local contributions and operates financially independently.

Moscow Care Center is owned by Hillhaven Corporation from Tacoma, WA It is located on Rowe Street in southeast Moscow. The facility provides intermediate and skilled nursing care and is licensed fo r 94 beds.

There are two home health agencies in Moscow. Latah Home Care and Hospice run by Latah Health Services and Gritman Home Health run by Gritman Medical Center. Services provided by these agencies include nursing, physical therapy, speech therapy, and social services.

The North Central Health District is located on East Palouse River Drive and provides health teaching, maintenance and communicable disease prevention. The Health Department is funded by state and county taxes.

Hospice of the Palouse is a separate corporation managed by Gritman Medical Center, Inc., fo r home care and support of the dying patient and his or her family. It is located in Gritman Medical Center. In-patient hospice accommodations are offered by Good Samaritan Village.

LATAH COUNTY LIBRARY DISTRICT

A branch of the Latab County Library including the District's administrative offices is located at the corner of East 2nd and Jefferson Streets with approximately 70,000 volumes. The largest branch of the county system, the library is in a City-owned building, which underwent a majoraddition in 1983.

5 1127/97

GOVERNMENT OFFICES

The City offices are located in multiple sites. The main City Hall is at 206 East Third Street, the Old Post Office Building. The city supervisor, city attorney, and community development department (planning and building) are located on the third floor. The second floor houses the Mayor's office and the City Council chambers. The main floor is the Community Center and the Senior meals are held there on Tuesdays and Thursdays. The City Hall Annex is located at the comer of 4th and Washington Streets and houses engineering, finance, and human resources departments, along with the police department via a separate entrance. The Parks and Recreation Department is located at the Eggan Youth Center at the comer of East D Street and Mountain View Road; the Water and Sewer Departments are at the corner of West A and Jackson Streets; the Street Department and City Shop are at 650 North Van Buren Street.

Latah County Courthouse is between Adams and Van Buren and East 5th and 6th Streets. The SheriffDepartment and County offices are here, while driver and car licensing are located at the Eastside Marketplace, Blaine Street and Troy Road.

The Idaho State Employment Officeis located in the central business district at the corner of First and Jefferson Streets, and the Idaho Department of Health and Welfare is also in downtown at 200 S. Almon. North Central Idaho Health District Offices are located on East Palouse River Drive in the southern part of Moscow.

Federal offices including the Post Office are located in the Federal Building on Washington Street between Fourth and Fifth Streets. District Offices of Clearwater National Forest are located at 1221 S. Main.

The City, County, and Moscow School District have been discussing ways to fully use or share facilities to keep these services near the center of Moscow and use some of the older, historic buildings for practical purposes.

SPECIALIZED FACILITIESAND SERVICES

Several independent and voluntary agencies operate in Moscow to provide for more specialized needs of City residents and are generally coordinated by Volunteers in Moscow, a multipurpose service organization. The Area Agency on Aging, operating within Latah and adjacent counties, provides bus service for the elderly and handicapped through federal funding and City assistance, and serves to organize other activities fo r older residents, such as a twice-weekly lunch program.

The Community Center, located in the Old Post Office/City Hall, offers a meeting facility fo r numerous groups and activities. The Center contains a large meeting hall and kitchen.

6 1127/97

The Clearwater Economic Development Agency has relocated to Lewiston. This multi­ county agency offers technical assistance to local units of government and individuals in · such areas as economic development planning.

The Adult/Child Development Center, located at the Idaho Department of Health and Welfare offices, provides evaluation, diagnosis, and individualized programs to developmentally disabled infants, children, and adults. Specialized staffassist individuals in the development of pre-academic and self-help skills, language and motor skills, and daily living.

PUBLIC FACILITIES AND SERVICES GOAL

Provide public fa cilities, utilities and services of such amount, location and quality to meet the needs of the residents of Moscow now and in the future, and to assist in directing the location of new developments.

PUBLIC FACILITIES AND SERVICES OBJECTIVES

I. Promote public utility policies that will discourage urban sprawl and needless destruction of productive agricultural lands.

2. Promote public utility policies that are economically efficient.

3. Promote coordination between agencies in the planning process and administration in order to make maximum use of existing and futurepublic facilities and services.

4. Maintain and improve the City's water system to fulfill domestic, irrigation and industrial needs, and to provide ample water for emergency purposes. Before new irrigation and industrial developments are permitted, their water demands will be identified and their impact on the existing water supply will be determined. Industries requiring large quantities of water may need to look to alternative sources of water.

5. Maintain and improve the City's sewer system to serve all urban development in the City and to comply with environmental standards.

6. Flood-prone areas will be identified, and flood hazards eliminated where feasible.

7. Maintain the high level of service provided by emergency service departments in Moscow.

8. Provide adequate programs and facilities to accommodate public services.

9. Locate public facilities with maximum convenience to potential users. Ensure compatibility of public facilities with adjacent land and land uses.

7 1127/97

PUBLIC FACILITIESAND SERVICES IMPLEMENTATIONPOLICIES

1. The City ofMoscow should maintain control ofall sewer and water service in the area. Extension of the City services, particularly water and sewer, should encourage new development to occur adjacent to existing urban development.

The major reason-for-being of local government is the provision and maintenance of necessary services and facilities in an area. If these services are provided in unincorporated areas around the City by numerous special districts, or if City services are provided to unincorporated areas, the general purpose government will have no control over how or where development around it is to occur. The City's present policy requiring annexation of any land to receive City services should be continued. Any special districts to be created within the Moscow Area of City Impact should be allowed only if they are to be connected to the City's systems. The City should maintain complete control over all new hookups and line extensions within such districts by written agreement before the new lines are connected with the City's system or by dedication of new lines to the City.

The City also has some valid concerns regarding areas lying beyond the Moscow Area of City Impact. Within this Comprehensive Plan Area of Interest, the City and County should cooperate in planning and zoning. Such cooperation would help limit urban development until such times as City services could be provided.

Since urban development is to a great extent dependent on the presence of water and sewer and the extension of major streets the existence of those services will direct the location of development. Thus, the most effective means for the City of Moscow to encourage the most efficient, economical development on its borders and thereby conserve agricultural land is to avoid lengthy extensions of services into undeveloped areas. However, to provide sufficient land for additional residential development in Moscow, limited service extensions into undeveloped areas may be necessary. These two concepts are not necessarily incompatible. Service extensions can be made into areas of existing scattered development where new development will fill in the vacant areas, and can be designed in other areas to keep new development close to the urban fringe. Shorter service extensions in several directions will maintain the equilibrium between new development and existing services and facilities in the areas as opposed to a single, lengthy extension in one direction.

2. Public utility system including water and sewer lines, etc., should be scaled in accordance with the densities proposed fo r the area in the comprehensive plan.

8 1/27/97

3. The Pullman-Moscow Water Resource Committee's study of long-range water needs and alternative sources should be continued to ensure an adequate water supply at a reasonable cost fo r the City in the fu ture.

The water supply of Moscow, Pullman, and the two universities is evidently from the same aquifer system, and thus the problem and perhaps the solution are shared in common. A sizable project for developing future water supply may be possible only through sucb cooperative efforts.

4. Water demand within the City should be continually evaluated to insure that demand does not exceed potential fu ture supply.

Further information needs to be gathered concerning the potential quantity of water that will be available to Moscow in the future. This information, combined with data on present demand and future needs, will assist the City in making future developmental decisions. Planning controls should be implemented to insure that demand does not exceed future supply.

5. A program should be developed fo r replacement of inadequate lines in the water distribution system along with extension of mains to developing areas. Priority fo r improvement should be to the southeast and northwest areas of the City.

A program fo r improvement of the City's water distribution system should include line extension, replacement of undersized lines, additional fire hydrants, and looping oflines that are presently dead-ended.

6. The sewage system should be studied to develop a program fo r replacement of older inadequate parts of the system, as well as fo r gradual expansion of the system.

7. A long term improvement project fo r the City's storm drainage system should be planned and implemented. Plans fo r flood control measures on Paradise Creek should be compatible with a parkway concept along that drainage.

A comprehensive approach should be taken to developing a storm drainage system improvement plan to include culverting or piping of storm drainage now allowed to fo llow natural drainage in developed areas, replacement of existing undersized pipe, and replacement of undersized culverts on Paradise Creek and in other areas of the system. Consideration should also be given to future improvements to Paradise Creek to alleviate fl ooding conditions along its course, including possible diversion channels.

9 1/27/97

8. New development within the Moscow area should include on-site detention capability fo r storm runoffwhen determined to be needed.

9. The Moscow Flood Hazard Ordinance should be continued to be enforced in those areas near Paradise Creek and the South Fork of the Palouse River that have been designated as flood-prone areas.

Certain portions of the flood plains are more vulnerable to hazardous flooding than other areas and therefore require greater regulation. There are uses including recreational and seasonal uses that can be made of even the most restricted areas of the flood plain. Other more intensive uses can be permitted in less vulnerable areas through compliance with specificconstruction standards.

10. As the population of Moscow increases, staffing and equipment needs fo r City services, particularly the emergency services, should be continually reevaluated.

11. Adequate emergency vehicle access to all buildings must be provided in all new developments so that the emergency services can be assured at all times.

Development site plans should be reviewed by the fire and police departments for adequate access to buildings.

12. In Moscow, adequate street lighting should be planned along with all new developments.

13. Government facilities and other institutional uses serving the public should generally be located in the eastern portion of the central business district and in the area immediately adjoining it to the east.

The cluster of institutional and office uses along the eastern edge of the central business district is a logical and beneficialdevelopment and should be encouraged in the future by maintaining city offices, facilities and services there. This type of use can be further encouraged by zoning the area for office, institutional and similar uses along with high density residential uses. Adequate parking and landscaping should be provided along with new development.

14. Cooperative efforts between the City of Moscow and other agencies which maximize the capabilities of public fa cilities, utilities and services should be continued.

Currently, the University of Idabo contracts for police and fire protection from the City and there is a common water agreement for emergency purposes between the two entities. The University is also using the City's sewage effiuent for lawn water in the summer months. The Pullman-Moscow Water Resource Committee is

10 1/27/97

another example of the cooperative effort needed to maximize the capabilities and efficiencies of public facilities.

15. A Capital Improvement Program should be established by the City.

For all of the public facilities and services proposed above and for other capital improvements advocated by the plan, including street improvements and landscaping, parks, and bicycle routes, a capital improvements program would greatly aid City planning efforts by establishing project priorities in an integrated manner. The comprehensive plan is not a complete guide for physical City development in itself because it lacks a schedule and priorities. compplan\section8\sr

11 Draft 1127/97

SECTION 10

TRANSPORTATION AND CIRCULATION

People and goods are circulated to, from, andthrough a city by various transportation modes. An efficient transportation network is crucial to the well-being of the city. A well planned transportation system will benefit the city economically, environmentally, and socially.

There is a complex relationship between transportation and the land use in an area. It is a reciprocal relationship where land use patterns affect travel patterns and travel patterns affect land use patterns. Also, both business and fa mily travel patterns can change due to other reasons such as changing values and cultural norms. Therefore, each transportation decision should take into account local land use and cultural influences.

Motor vehicle traffic is a predominant means of travel within Moscow. The city street system, therefore, is an important component of circulation, and will be dealt with in detail in this section. Bicycles are fr equently used modes of transportation in Moscow. Many people also walk to their destinations. These methods of travel have many advantages both for the bicyclists and pedestrians as well as for our entire community. The city should encourage and fa cilitate the use of these transportation modes whenever possible.

Connections in and out of Moscow, to the surrounding area, and ultimately the rest of the world are also crucial. Moscow is a small city in a rural ar�a and the efficient transportation of people and goods in and out is necessary for our economic viability.

Transportation and Circulation Goal

To provide a systemof transportation and circulation within and around the City of Moscow that will make it possible for all people utilizing various modes of transportation to reach their destination as safe ly and as easily as possible with the least disturbance to adjacent uses.

Transportation and Circulation Objectives

1. Ensure a complete and logical circulation pattern throughout the Moscow area in the future.

2. Provide a circulation pattern that will adequately serve adjacent land uses. . 3. Maintain and enhance the quality oflif e in Moscow by creating transportation systems that move people effectively and safely. Draft !/27/97

MOTOR VEHICLE CIRCULATION

Three types of traffic use Moscow's circulation system. Local traffic involves short trips having both their origin and destination within Moscow and the immediate area. Inter-city traffic consists of traffic between Moscow and another area. Through traffic consists of trips where Moscow is neither the origin nor the destination, but is along the route.

The location of major traffic generating activity centers influence the pattern of the city's local traffic. Activity centers in Moscow include the west Highway 8 business area, the southeast Moscow business area, downtown, and the University ofldaho.

Traffichas become heavier within Moscow. Between 1983 and 1990 the average traffic volume within Moscow increased by 15.6 percent. The change appears to be primarily due to within city driving rather than through-city traffic. Although traffic increased on the Moscow-Pullman Highway by 16%, (on average, at the state line), the other routes in and out of Moscow did not increase as significantly.

Vehicles per Day in Downtown Moscow and Near Campus

Streets 1986 1996 %Change Jackson from 'A' to 6th 6,815 9,712 +42 % Main from 6th to 'A' 1,886 2,066 +9% Washington from 6th to 'A' 6,979 8,904 +28%

6th between Line and Perimeter 4,907 3,420 -30% Line between 6th and Hwy. 8 3,320 1,681 -49 % (Moscow Engineering Dept.)

Major Streets

Streets can generally be classified as one of four types, depending on their function. Principal arterial streets carry traffic through or past a city and connect major activity centers within town. Minor arterial streets connect the various districts or neighborhoods in town with each other and with the principal arterial streets. Collector streets carry traffic between neighborhood areas and more major streets, either principal or minor arterials. Local neighborhood streets serve only as access to individual lots from higher level streets.

With some qualifications, streets in Moscow can be classified in one of the above categories. However, a major part of Moscow developed and still exists with a grid street system, not with a well definedhierarchi cal street system. Minor arterial streets such as ''D" Street, Third Street and Sixth Street evolved from local streets to their present status because they had a longer continuous alignment or had topographic advantages over other streets in their vicinity. Because individual lots still require direct access to these streets, a conflict exists between the transportation and access functions of these streets. Traffic volumes are dispersed over many

2 Draft I /27/97 streets in this area, with the intended results of creating lower levels of traffic on residential streets.

East-West Arterials and Collector Streets

With the majority of residential areas lying to the east of Main Street and most of the major centers of shopping and employment lying to the west in the central business district, the university, and along west Third Street and Pullman Road, local traffic movement is largely in an east-west direction. This has resulted in congestion along Pullman Road.

Moscow's east-west designated arterial streets must carry heavy amounts of traffic which pass through low density residential areas. Efforts need to be made to distribute the east-west traffic more equally over the available routes as growth occurs in the various areas of the city. The northeastern and southeastern areas of existing development are especially in need of new east­ west arterial circulation. The availability of vacant land in the western part of the city and its proximity to the university may stimulate development here in the future. Better arterial circulation will be needed to connect development as directly as possible with the campus area.

Pullman Highway (State Highway 8) is Moscow's major east-west arterial on the west side of town. The portion of the highway fr om the state line to Line Street is scheduled to be rebuilt in 1997, to accommodate heavy trafficin this segment . Third Street from Line Street to Washington is a major traffic bottleneck, but there are no obvious design changes that would accommodate this traffic downtown -- suggesting that alternatives which would divert cross-town traffic around downtown should be pursued.

The primary purpose of State Highway 8 west of town (Washington State Highway 270), is to connect Pullman and Moscow. These two cities are closely interconnected economically and socially. Many people live in one city and work in the other. In addition, the two universities are complementary in many ways, and departments collaborate on research as well as offering cross­ linked courses. Therefore, it is imperative that a safe and efficient means of transportation is maintained between Pullman and Moscow. Since State Highway 8 is the only direct link between the cities, it must be maintained for this purpose. Other uses of the highway should not interfere with the transportation function of the highway. If businesses are built, they should be connected to the highway with an access road rather than with multiple additional drives offof the highway.

The Moscow-Pullman corridor is increasingly used by commuting cyclists. Therefore, a wide shoulder or bike lanes should be maintained fo r these users. This bikeway should be in addition to the recreational path to be constructed along the Paradise Creek. This is because commuting cyclists travel much faster than recreational walkers or cyclists who would be using the recreational path. Commuting cyclists also prefer shoulder bikeways because they are usually better maintained with fewer potholes and loose gravel.

State Highway 8 follows the Troy Highway to the east. Following redesign and construction at its intersection with US 95, this route should be generally adequate fo r existing traffic. Traffic volumes may soon require a traffic signal at the intersection with White/Styner Avenue, of State

3 Draft 1/2 7/97

Highway 8 from US 95 to White Avenue. Upgrading the intersection with Mountain View to allow traffic flow south on Mountain View should be a priority. The absence of two-way traffic diverts vehicles to a more circuitous route and perhaps onto minor streets.

Sixth Street is also a major east-west arterial, presently continuous from Perimeter Drive west of the University of Idaho (UI) campus, east to Mountain View Road. Where it passes through campus, it encounters heavy pedestrian and bicycle traffic, suggesting that further increases in through traffic should be discouraged in that segment. One method suggested by UI is to create more parking on the east side of campus. This will decrease the amount of traffic coming from the eastern residential areas and traveling through campus to reach parking on the west side of campus.

East of downtown, Sixth Street is a major corridor fo r cross-town local traffic, although the steep grade of the Sixth Street hill is a problem, especially in winter. It should be a priority to continue Sixth Street directly to the east of Mountain View Road, to serve developing residential areas, and to continue on to a connection with other future arterials. While it might be desirable to continue Sixth Street to the east where it could attach to some north-south arterial, a more practical route is fo r Sixth to curve to the north where it will cross 'D' Street extended, and eventually connect with Mountain View Road.

Third Street east of downtown is also a major carrier of east-west local traffic. Its desirability as a traffic corridor is limited by its proximity to the high school campus, by narrow widths in the section east of Hayes Street, by the lack of a bridge over Paradise Creek, and by a lack of parking for a two block portion. While neither Sixth nor Third Street are ideal fo r heavy traffic, if both are treated as arterials, they can better handle the distributed traffic. Grades are more moderate on Third Street, which is especially important for bicyclists. Third Street should be continued east, bridging Paradise Creek, crossing Mountain View, and continuing east to connect with Sixth Street extended.

'A' Street, between Line and Main, presently serves as an important east-west route, especially for traffic from northeast Moscow trying to avoid the congestion of Third Street downtown. The present design of the couplet, and the narrow width of 'A' Street east of Main precludes its use as an arterial to the east.

Traffic added on the newly constructed western portion of'A' Street will create a need to improve the section between Peterson Drive and Washington Street. 'A' Street should be continued behind the Palouse Mall, connected to the partially completed segment behind Wal-Mart, and continued to the state line. The alignment should be chosen to allow for eventual construction on the Washington side of the line which would extend 'A' Street either to the southwest to connect with the Pullman Highway, or to the west to intersect with Airport Road.

'D' Street east of Main also handles large volumes of local east�west traffic. It too has problems with pedestrian traffic, especially immediately east of downtown where it lacks sidewalks, near St. Mary's School, Moscow Junior High, and McDonald School. Near its eastern end 'D' Street needs major reconstruction to handle existing and projected traffic. 'D' Street should be extended

4 Draft l/27/97 to the east, connecting with the projected Sixth Street extension, and eventually connecting with Robinson Lake Road west of Syringa Mobile Home Park.

The lack of east-west arterials, and the topographic difficulty of providing them is a major problem in Northeast Moscow, especially in light of major residential growth occurring along the corridors defined by North Polk Street, Orchard Avenue, and Mountain View. Presently the northernmost arterial collector between Mountain View and North Main is 'D' Street. The possibility of east-west connections to the north of 'D' Street is severely constrained by existing development and several very steep north-south ridges. One projected east-west route that should be planned will use Trail Road east of Orchard, north on Orchard fo r a short distance to near its present end, west across the ridge to North Polk, south for a short distance on North Polk, and west across the ridge to North Main.

It is over a mile between 'D' Street and this more northerly east-west collector which may be constructed at some uncertain future date. An east-west connection closer to 'D' Street would serve present and near future needs. Future development in this area should be designed to facilitate future east-west connections.

White Avenue will eventually develop into a major carrier of east-west trafficin Moscow. At its west end, it has a direct tie into Styner Avenue, which in tum aligns with Lauder Avenue providing an important link to the UI campus. Westbound traffic also has the option of turning onto Troy Highway with its links to US 95 and the campus. The importance of White Avenue will be realized after it has been extended from its current eastern terminus near the animal shelter to the northeast, making a connection with Robinson Park Road. The current flow of traffic fr om Robinson Park Road onto Joseph Street will not be appropriate as land east of town develops and traffic volumes increase. After the traffic gets to Mountain View Road it must either proceed west onto local streets or tum onto Mountain View Road. A re-alignment of the Robinson Park Road traffic onto White Avenue is therefore an important element of Moscow's east-west arterial street system.

Along the entire southern fringe of Moscow's developed area, Palouse River Drive offers an obvious future arterial route. As surrounding development proceeds, as the roadway is improved, and especially if the proposed connection between Palouse River Drive and Pullman Highway is built, this route will provide an alternative to State Route 8 for east-west traffic serving through travelers, east-side residents, patrons of the industrial areas in southern Moscow, and shoppers at southeast retail establishments.

Presently east-west traffic at the state line is accommodated almost entirely by the Pullman Highway. As Moscow expands to the north, it will be desirable to provide additional connections toward Pullman. 'A' Street provides one potential additional route. Further to the north, a route through the northern part of the Ul farm, probably following the present route of Harden Road, which could be extended to connect to the airport road in Washington, providing an alternate route to the Pullman Highway, and direct access to Pullman on Airport Road. Better connections on the Moscow end, and on the Pullman end with an upgrading of the Roundtop Road entrance

5 Draft 1/27/97 to Washington State University (WSU) could make this an important alternative route between the two university cities.

North-South Arterials and Collector Streets

The north-south arterials, though not generally under the traffic pressures of east-west arterials, will become more critical as Moscow grows to the north and south. US Highway 95 is Moscow's most important north-south corridor. It handles heavy traffic, including trucks with large volumes of grain and wood chips. The one way couplet system downtown works well, but even with the couplet, this traffic passes through downtown, where it encounters local shopping traffic, pedestrians, andbicycles.

Feasible alternatives to US 95 fo r through traffic are limited_ More than a decade ago the Idaho Transportation Department and the city reviewed the general route for a west side highway bypass. Later, the state indicated no interest in this alternative, preferring instead to focus on the downtown couplet It is city policy to preserve this west side corridor, if not for a highway bypass, then at least for major west side arteriaL The state has expressed some interest recently in looking at the bypass alternative once again_

The most important of these west side links is the connection from Palouse River Drive -­ branching offto the north just to the west of the UI Arboretum, skirting the UI golf course to the west, crossing the Old Pullman Highway east of the mobile home park, and continuing on through the UI farms to align with Warbonnet Drive. If completed, this street would substantially relieve downtown Moscow east-west traffic problems, especially easing access to commercial, industrial and residential sites in southern Moscow. The west side connection north of the Pullman Highway is probably less imminent, and its likely route is less certain. Its route will probably follow northeast from the present end of Warbonnet Drive, perhaps connecting with existing county roads north of the UI farms, and eventually with US 95 _

Inside of this outer ring, north-south connections will be based on the present alignment of Perimeter Drive. This route should continue across State Highway 8 to the north on Farm Road, and then along the route of the present gravel road through the UI Sheep Farm, connecting eventually to US 95 somewhere north of the locker plant

In the established residential areas in eastern Moscow, the alignment of Blaine Street, Hayes Street, and Orchard Avenue provides a nearly continuous north-south link. Much of north Orchard was originally built as a low-volume county road and needs reconstruction to handle present and projected traffic. To the south, Blaine now crosses the Troy Road as far as Tidyman's, and should be connected with Palouse River Drive. Blaine should be developed as a neighborhood collector street and not as an arteriaL Local street connections from the Indian Hills area to Palouse River Drive should not be made until an improved connection between Palouse River Drive and Troy Highway has been made with Mountain View Road, or until Blaine Street has been extended to Palouse River Drive

6 Draft 1/27/97

Further east, Mountain View Road serves as a major, although presently inadequate, arterial. This roadway was originally constructed as a county road and so does not meet the standards of an arterial street. While it is very narrow and has no sidewalks, it serves vehicular, pedestrian and bicycle traffic for Moscow Junior High School, McDonald School, several parks, the Latah County Fairgrounds as well as large traffic volumes generated by the continuing residential development to the east. Churches have also located along Mountain View Road. They benefit from the direct access to an arterial and at the same time function as a buffer between the road and the adjoining low density residential neighborhoods. The intersection with the Troy Road is so poor that southbound traffic is prohibited in that area. Reconstruction of Mountain View Road to meet present and future needs should be a high priority, and should include widening, repaving, sidewalks, and bicycle lanes. This reconstruction should include an adequate crossing of the Troy Highway, allowing eventual service as an arterial south to Palouse River Drive.

The importance of Mountain View as an arterial is heightened by the difficulty of routing any north-south arterial further east. At some future time a connection from Lenville Road, through the UI farm, connecting to the present route of Robinson Lake Road, and eventually to 'D' Street extended, may be the best possible east side arterial.

Local Neighborhood Streets

The hilly topography of the area, along with the absence of policy regarding the continuation of streets in the past has resulted in a broken street pattern. This has resulted in the inadequate connection of new outlying developments with the city's circulation system.

The city's intermittent street network challenges emergency vehicle service. The first difficulty is navigating the discontinuous streets. Vehicles must make numerous turns in order to reach certain sections of discontinuous streets. Another difficulty is confusion due to the difficulty of naming discontinuous streets. Sometimes a single name is applied to different street sections, making it hard to know which section is meant.

Although flow within residential neighborhoods should be facilitated in a safe and efficient manner, traffic which has neither its origin nor its destination within a neighborhood should be routed around that neighborhood. Traffic calming devices may be utilized to limit out-of­ neighborhood traffic on residential streets. Inadequate circulation planning in the City's early development has created the flow of minor arterial traffic through otherwise quiet residential neighborhoods. The noise and danger of the traffic through low density areas with houses closely oriented to the street interrupts association within the neighborhood, lowers property values, and interferes with residential activities.

Motor Vehicle Goal

To provide a safe and ef ficient motor vehicle transportation system respecting non-motorized modes of transportation.

Motor Vehicle Objectives

7 Draft 1/27/97

I. Route traffic around neighborhoods that are neither the origin nor the destination of the traffic, unless the traffic can be diffused onto a number oflocal streets.

2. Route tbrougb traffic around Moscow in a city bypass highway system.

3. Encourage forms oftransportation other than the single occupant automobile, which will reduce vehicular congestion and will accommodate transportation needs of more people.

4. Develop street naming practices that will avoid confusion.

5. Upgrade existing substandard streets to City standards.

Motor Vehicle Implementation Policies

1. A north-south and east-west system of minor arterial and collector streets should be continued as the city develops outward with minor arterials spaced at approximately 3,000 feet or 6 block intervals and collector streets spaced at approximately 1800 feet or 3 block intervals where environmentally and economically feasible.

Existing arterials and collectors should be continued wherever possible to extend the arterial­ collector street system. New arterial streets should be located on neighborhood boundaries. Collector streets should service traffic within only one neighborhood and may be located within that neighborhood. Exceptions to the location intervals may be necessary fo r topographic, environmental, or economic reasons.

2. The arterial street system indicated on the Comprehensive Plan Map should be implemented as lands along the proposed routes are developed or as streets are deemed necessary to ensure a safe and efficient transportation system.

Major streets shown on the Comprehensive Plan Map roughly conform with Policy #1 above, designating the general location of existing and proposed future arterial streets in the City of Moscow and the Area of City Impact. While specific locations of the streets and their design will be determined at the time land is developed or when streets are constructed, critical points (such as proposed intersections, and fe asible grade locations) should be identified early in the planning process and protected from contrary development. Subdivisions and other land development projects should incorporate major streets shown on the Comprehensive Plan Map into their design.

3. Intervals between neighborhood streets should be a maximum of 600 feet unless topographic or other irregular conditions demand a greater interval. Local neighborhood streets should be designed to deter traffic from passing through the neighborhood.

8 Draft 1/27/97

While at least two accesses to each residential development are required for safety purposes, through traffic in residential areas should generally be discouraged. Where existing access streets have been designated within arterial streets, diversion devices can be installed at the intersections to impede through trafficmovement.

4. East-west flow of traffic between the residential areas and the university should be a high priority fo r improvements by the city in the near future.

Existing principal or minor arterial streets which are not constructed to the city standards fo r these classifications should be improved to the applicable standard. Efforts should be made through traffic regulation and further street improvements to facilitate traffic flow on the existing arterial streets.

Through east-west arterial streets should be created in the northern and southern areas of the city. A Styner-White link should be constructed to create an arterial connection along White, Styner, Lauder, and Taylor Avenues. While there are alternatives available to the Styner-White arterial system that might be further considered; topography, land acquisition, and land use fa ctors strongly favor this alignment.

An arterial could be developed on the line of Public Avenue cormecting between North Main and Mountain View, or fo llowing the Thatuna alignment between Mountain View and Orchard. Another possibility is an arterial running east from North Main, at a point just south of the wind power tower, to North Polk. Such an arterial might then curve northeast and connect to Orchard Avenue north of Highland.

5. It is a priority of the city to develop a west US Highway 95 bypass. A corridor fo r the bypass should be identified before development occurs.

The alternative to a western bypassof Highway 95 is an eastern bypass. However, several factors make the western alignment a more logical choice. These reasons include the deterrents to city growth on the west, proximity to the university, as well and the central business district and shopping areas, proximity of Pullman, and the potential of city growth.

6. An arterial loop system should be developed around the existing city perimeter to move local traffic between traffic generators in a shorter period of time.

7. All developments should be designed to minimize direct vehicular access to and from arterial streets.

In preliminary discussions with developers and subdividers, the city staffcan work to minimize direct access from arterial streets in development designs. In commercial developments, a single access to an arterial might be permitted. Direct access from a side street feeding into the arterial would be better. For interior lots, egress might be provided along a rear alley while ingress would be permitted from the arterial street. While fr ontage roads should be considered to serve developments along new primary arterials, they would be difficult to implement in areas of

9 Draft 1/27/97 existing development. Curbing and driveway cuts should be required in all commercial areas to limit and direct ingress and egress movement.

A provision for such minimum access design should be included within development standards for the city adopted by the Council and within the subdivision ordinance. When considering subdivisions, the P&Z and Council should give high priority to minimizing direct access onto arterial streets, consistent with the realities of topography and traffic intensity. Prior to the issuance of a building permit, the Public Works Department should review the site layout of the development fo r access and certifY on the permit application that the access provided is acceptable. Where direct lot access cannot be avoided, vehicular turn-arounds should be required on lots to eliminate the need for vehicles to back onto arterials.

8. The city should ensure that streets in new residential developments are developed to city standards.

9. As fo rmer county roads are forced to handle additional traffic volumes, they should be upgraded to City standards.

10. The fo llowing principles fo r naming streets within the city and area of impact should be considered to avoid confusion fo r residents, visitors, and emergency services:

a. Duplication of street names should be eliminated.

b. Any through street should retain the same name fo r as long a distance as practical. If a street name must change, then it should only change where it intersects a major street.

c. Discontinuous streets with the same name (e.g., Vandal, Haring), should have different suffixes (e.g., Drive, Place, Lane, etc.). If a discontinuous section of street does not have the potential to eventually be connoted to another street section with the same name, consideration should be given to changing the name of the street.

d. Only one intersection of a street with a particular name should be permitted with another street. (Examples of where there are two intersections of a street with another are White Avenue with Troy Highway and Highland Drive with Orchard Avenue.)

e. Where a street makes a change in direction of more than 90 degrees (except where the change is accomplished with a gradual curve), the street name should change.

f The City should attempt to reduce the proliferation of street names. Very short streets with few dwellings should, where possible, retain the name of the main street providing access to it.

g. When renaming streets is warranted, efforts should be made to minimize impacts on residents of existing developments. Short-term inconvenience to · residents and

10 Draft 1/27/97

historical acceptance of a name should be weighed against potential long-term benefits of change.

Street naming can generally be controlled within the subdivision approval process. Within the subdivision ordinance it should be specified that new street names will not be permitted which (1) are essentially the same as any existing name in the area or (2) sound similar to any existing street in the area. Extensions of existing streets should be required to be named the same as the street they are extended from. A single street name should be applied to intermittent streets on a line with one another only if such a street is designated in the city's master street plan to go through as a collector or arterial street or if the potential right-of-way fo r the undeveloped portions or the street are vacant and there is a good probability that the street will be developed.

11. Adequate emergency vehicle access and maneuverability should be provided to all areas.

The policies fo r integrating streets in new developments with the overall circulation system and fo r the naming of streets should facilitate emergency vehicle access to all parcels in the city While it is desirable for neighborhood access streets in residential areas to be designed to discourage or even prevent through traffic, ingress and egress fo r emergency vehicles must be provided. The only situation in which a true dead end street should be permitted is in the case of a collector or arterial street which is projected to continue through as such in the adopted city street plans. For all neighborhood residential streets not going through, a turning area at the terminus should be provided. Multiple accesses should be provided to new developments, where possible, but this provision should be evaluated on an individual basis.

11 Draft 1127/97

BICYCLE CIRCULATION

The City ofMoscow is in an ideal position to lead the State ofldaho into the modern age of inter­ modal transportation systems. The progressive nature of its citizens, combined with its relatively small size and compact design are conditions that fa vor Moscow's potential to become an exemplary multi-modal transportation community.

Forms of transportation such as bicycles should no longer be considered as alternate. The needs of bicyclists and pedestrians should be taken into account during all aspects of city planning along with the needs of motorists. Moscow desires a city-wide system of bike routes, bike lanes, bike/pedestrian path system, and a continuous pedestrian sidewalk system that will connect all areas of the city.

Classes of Bicycle Users

Transportation improvements intended to accommodate bicycle use must address the needs of both experienced and less experienced riders. One solution is to develop the concept of a "design bicyclist" and adopt a classification system fo r bicycle users which includes the fo llowing:

Advanced Bicyclists: Experienced riders who can operate under most traffic conditions, these bicyclists comprise the majority of the current users of shoulder bikeways and shared lanes on arterial streets and are best served by:

- Direct access to destinations, usually via the existing street and highway system.

- The opportunity to operate at maximum speed with minimum delays.

- Sufficient operating space on the roadway or shoulder to reduce the need fo r either the bicyclist or the motor vehicle operator to change position when passing.

Basic Bicyclists: These bicyclists are less confident of their ability to operate in traffic without special provisions fo r bicycles. They include casual or new adult and teenage riders as well as serious riders who are uncomfortable cycling in traffic. These bicyclists require:

- Comfortable access to destinations, preferably by a direct route, and either low-speed, low-traffic volume streets or designated bicycle facilities.

- Well-defined separation of bicycles or motor vehicles on arterial and collector streets (bike lanes or wide shoulders) or on separated, multiple-use pathway.

Children: Preteen riders whose roadway use is initially monitored by parents, eventually these riders are accorded independent access to the system. They and their parents require provisions of separated, multiple-use paths and:

12 Draft 1127/97

- Access to key destinations surrounding residential areas, including schools, recreational facilities, shopping, or other residential areas.

- Residential streets with low motor vehicle speed limits and volumes.

- Physical separation (multi-use pathways) of bicycles and motor vehicles on arterial and collector streets.

Generally, Advanced Bicyclists will be best served by designing all roadways to accommodate shared use by bicycles and motor vehicles. Basic Bicyclists and children will be best served by a network of neighborhood streets and separated, multi-use pathways.

Full implementation of this approach will result in a condition where every street will incorporate at least the design treatments recommended fo r Advanced Bicyclists. In addition, a network of routes will be enhanced by incorporating the bicycle facilities recommended fo r Basic Bicyclists and children.

Types of Bicycle Facilities

Bike Paths: Pathways designed fo r non-motorized vehicles and pedestrians, physically separated fr om automobile traffic. Bike paths should be designed and constructed to standards promulgated by the American Association of State Highway and Transportation Officials (AASHTO) in its publication Guide fo r the Development of Bicycle Facilities. Waterways, railroad rights of way, and utility corridors have good potential fo r separated pathways in developed areas of the city.

Bike Lanes: Sections of roadways designated for bicycles, with pavement striping and signs. Bike lanes should also be designed and constructed to AASHTO standards.

Bike Routes: Roadways designated with signs as a preferred bike route, and shared with autos. Designated bike routes should fo llow logical patterns of bicycle traffic, and connect meaningful destinations.

Signed Bike Routes are oftenappropriate fo r linking segments of Bike Paths and Bike Lanes, and as an alternative to narrow arterials. They may also be used where traffic calming devices are used to discourage through auto traffic and create pleasant routes for bicycling. Destinations should be posted on Bike Routes.

Common Streets: As every street is a bikeway and all streets are used by bicycles, every street should be designed with bicycle use in mind.

Sidewalks: Many cyclists ride on sidewalks. While sidewalks are designed for walking speeds and should continue to be pedestrian priority zones, planners need to recognize that sidewalks serve as essential transportation links fo r bicyclists, especially young, unskilled riders, and in hazardous conditions, like Third Street dovmtown. Sidewalks should not be designated as bike routes except under extraordinary circumstances. Cyclists need to be educated · about the risks

13 Draft 1127/97 and responsibilities of using sidewalks. If necessary, pedestrian only zones properly signed, could be established on some downtown sidewalks.

Generally, Advanced Bicyclists will be best served by designing all roadways to accommodate shared use by bicycles and motor vehicles. Basic Bicyclists and Children will be best served by a network of neighborhood streets and separated, multi-use pathways.

Full implementation of this approach will result in a condition where every street will incorporate at least the design treatments recommended for Advanced Bicyclists. In addition, a network of routes will be enhanced by incorporating the bicycle fa cilities recommended for Basic Bicyclists and Children.

Bicycle Goal

To increase the safe ty and convenience of those already using bicycles; to encourage the use of bicycles by those who would like to cycle but are concerned about hazards; and to consider the need fo r safe , convenient, direct bicycle access in transportation decisionsfo r Moscow.

Not only is the increased use of bicycles beneficial to the bicyclist in fo rms such as increased health, and monetary savings fr om Jess use of a motor vehicle, but it also benefits all citizens of Moscow. By increasing bicycle use, the city will cut down on air and noise pollution and will help alleviate driving and parking congestion, which are problems especially downtown and at UI.

Bicycle Objectives

I. Recognize in the planning process that all streets are used by bicyclists.

2. Develop an effective education program for bicyclists and all those who share the roadways and walkways with bicyclists.

3. Encourage the construction and maintenance of logical, connected, safe bikeways.

4. Promote adequate and secure bicycle parking.

Bicyclists use all Moscow streets. Both recreational riders and bicycle commuters will automatically search out safe and efficient routes to and from their destinations. However, unless there is a markedly superior route nearby, most riders will take the most direct route just as will drivers of automobiles. Therefore, streets which are heavily traveled by motorists will also tend to be heavily traveled by bicyclists. These streets need to safely accommodate bicyclists.

A survey of bicyclists conducted by the Planning and Zoning Commission in 1992 asked what was preventing or discouraging respondents from using their bicycles for commuting and errands. Safety was the factor most frequently mentioned by survey respondents. When asked what local government could do to encourage commuter cycling, "more bike paths and lanes," was cited more than twice as many times as any other request.

14 Draft 1/27/97

Bicycle Implementation Policies l. Arterial and collector streets should accommodate bicycles.

a. Bike lanes should be considered on new arterials and collectors. Retrofitting existing arterials and collectors with bicycle lanes should also be considered.

b. The gradients of streets should be minimized when possible to facilitate bicycle traffic, especially on arterial and collector streets.

2. Linear parks and pathways:

a. A linear parkway plan with paths and access for Paradise Creek and South Fork Palouse River should be developed.

b. Methods to preserve the Moscow-Arrow rail right-of-way for future rail service and interim use as pathway should be explored.

3. The development of biking and walking links between the neighborhoods and schools, parks, employment and shopping centers should be considered. Consider requmng non-motorized links in new subdivisions, connecting neighborhoods, parks and schools.

4. Safety education programs fo r all transportation system users and all age levels should be developed.

5. Due to the high level of potential conflicts among motor vehicles, bicycles and pedestrians in the central business district, appropriate laws and programs dealing with safety issues should be established and enforced in downtown Moscow.

6. The Bicycle Advisory Commission will help to carry out the goals of this plan and to institute a mechanism representing the bicycle transportation needs of Moscow.

7. The following is a list of potential bicycle projects that should be considered for future implementation:

1. Create bicycle lanes along both sides of Mountain View Road.

2. Create bicycle lanes along both sides of3rd Street/Pullman Highway fr om the state line to East City Park.

3. Create bicycle lanes along both sides ofthe Troy Highway (State Highway 8).

15 Draft l/27/97

4. Create a bicycle and pedestrian pathway along Paradise Creek.

5. Install sheltered bicycle racks in the downtown area, and encourage employers to provide bicycle parking.

6. Designate Eighth Street from Logan to Deakin as bicycle priority streets, diverting through auto traffic to other streets when the south couplet is rebuilt.

7. Include bike lanes on Styner Avenue reconstruction.

8. Include bike lanes on new sections of "A" Street, fr om Peterson to Farm Road.

Current roadway bicycle hazards which need to be considered:

1. Main Street downtown can be dangerous fo r bicyclists because of the diagonal on-street parking. A motorist backing out of a space finds it difficult to see approaching motor vehicles, and much more difficult to see an approaching cyclist.

2. Diagonal railroad tracks, especially at Main and Troy Highway, are extremely hazardous to cyclists.

3. The 'D' Street 'path' is not an optimal design to accommodate pedestrians and bicycles, particularly considering the location of an elementary school on the street. As with all arterials, sidewalks on both sides as well as bike lanes should be considered.

4. Electromagnetic loops used to activate traffic signals should be of a type that will be activated by bicycles and motorcycles. Hazardous situations can occur when signals cannot be activated.

16 Draft 1/27/97

PEDESTRIAN CIRCULATION

Pedestrian Goal

To increase the safe ty and convenience of pedestrians, and to encourage those who would like to walk more but do not do so because of a lack of safety, scenic opportunities, or convenience.

Pedestrian Policies

1. All roads should be built and maintained with sidewalks. Local residential streets should have a sidewalk on at least one side, while arterial and collector streets should have sidewalks on both sides.

2. A program to improve existing sidewalks and to install additional sidewalks where they do not exist should be implemented.

When roads have no sidewalks or interrupted sidewalks, pedestrians are fo rced to walk in the street. This is a safety hazard, especially when children are involved.

3. Walkways should be built directly connecting residential areas with the neighborhood park and with the local collector street. Subdivisions should be required to provide pedestrian paths where blocks, particularly where cui-de-sacs are ntilized, are long.

Because extended distances are more inhibiting to pedestrians than motor vehicles, pedestrians cannot as easily maneuver through and around long cui-de-sacs and other barriers. Therefore, direct and fr equent paths should be built and maintained fo r pedestrians.

4. Sidewalks and paths should be built and maintained with consideration for wheelchairs, parents with strollers, and children on tricycles.

5. Install more crosswalks where pedestrian traffic warrants; for example, Rayburn at Pullman Highway, and Joseph at Mountain View.

6. Strengthen education about sidewalks and crosswalks, including pedestrian rights­ of-way over bicycles.

7. Strengthen enforcement of pedestrian-oriented laws.

8. Increase recreation and pedestrian opportunities through development of linear parks.

17 Draft 1/27/97

BUS SYSTEM

Currently, interstate bus service is available fr om downtown Moscow. Moscow is also served by an inter-community bus connecting Pullman and Moscow. As Moscow grows, an inter-city bus system is becoming more economically fe asible and more needed. The community commuter bus between Pullman and Moscow is becoming more heavily used during commute hours. A local bus connecting Moscow residential areas with the inter-community bus would serve both the commuters as well as locals traveling to Moscow's central areas such as downtown and UI. A limited public transportation system is currently available to all members of the public, including senior citizens and people with disabilities, on a "Call ahead" basis. Operations are supported with a mixture of local and federal funds; however, increased support is necessary if it is to expand to include a significant number of new riders.

Bus Policy

When economically fe asible, the City of Moscow should implement a city bus system which connects residential areas with core areas such as the west Highway 8 commercial area, UI, and downtown. It should also connect with the inter-community commuter bus.

18 Draft 1127/97

AIR AND RAIL SYSTEM

Efficient transportation connections within Moscow, with surrounding areas, and ultimately with the rest of the world, is crucial for the vitality of our community. Long distance travel between Moscow and other points is hampered by the lack of transportation alternatives. With distances between Moscow and the southern part of the state and other major urban centers being considerable, transportation other than the motor vehicle is often sought.

The limited air transportation fr om the Pullman-Moscow airport often fails to provide a workable transport option and has serious economic implications. For example, it limits Moscow's potential as a conference center and limits access to the university from other parts of the state and nation. Businesses that frequently use air transportation fo r their employees are discouraged from locating in Moscow because of the lack of direct air access to their suppliers as well as to the maj or marketing areas in the nation.

Freight transport to and from Moscow also encounters certain limitations. The railroads have considered dropping local railroad service while maintenance of the service is seen by merchants to be essential. Freight service at the Pullman-Moscow airport has improved, but is still limited.

Air and Rail Policies

1. The City of Moscow should continue to work for improved air travel in and out of this area.

2. Railroad service should be maintained fo r local business purposes as well as for agricultural shippers.

3. In the event of rail abandonment, the city should work for the preservation of rail corridors through rail banking agreements. compplan\sectlO\sr

19 v a 1 [,ey

; () ..i. !: 0/

/

(l u Draft 1118/97

SECTION 13

LAND USE

MOSCOW AREAOF CITYIMPACT

Under Idaho law, cities and counties can enter into "area of city impact agreements" to jointly administer planning and development activities in the area immediately outside the city limits. The city of Moscow and Latah County reached such an agreement in 1993, and designated the area indicated in the accompanying map as Moscow's area of impact. The area was drawn to include those areas around Moscow with potential fo r urban-type development in the next 20 years. Because land in the area of city impact is in the proximity of the City of Moscow, it is an area in which growth and development may be expected to occur. Thus the area of city impact is a transition area, including some areas that will be annexed into the growing city, other areas where scattered residential development will intensifY, and still other areas where agricultural uses will continue for some time.

Procedurally, changes to the comprehensive plan map land use designations for the area of city impact (which control what uses are allowed in various areas) must be jointly approved by the Moscow City Council and the Latah County Commission. The City of Moscow zoning ordinance applies in the impact area and is administered by the city.

City of Moscow zone designations can be applied within the area of impact if they are consistent with the land use designations shown on the comprehensive plan map. Since the usual agricultural activities are uses-of-right within the Agriculture/Forestry zone, provisions outlined in this section have little practical effect fo r most existing farm uses.

AREA OF CITY IMPACTGOALS

I. Ensure the orderly development of land near the city of Moscow.

2. Provide fo r a single comprehensive plan and one set of development regulations that apply to land in the area of city impact.

3. SimplifY planning and development by having a single jurisdiction (the city) be responsible fo r administering the development and approval process in the area of city impact.

4. Allow fo r the expansion of the city boundaries by assuring that development adjacent to the city is compatible with city standards.

1 Draft 12/20/95

5. Provide fo r the cost-effective and well planned delivery of city services (water, sewer, streets, etc.) within these expanding boundaries.

6. Preserve and enhance the function of state and federal highways and county roads in the area of city impact as safe and efficient transportation corridors fo r various modes of transportation.

7. Protect the interim viabilityof agriculture in areas more distant fr om the city and not yet ready for urban development by minimizing conflict with scattered development.

8. Minimize potential water, sewer, and access problems common to scattered rural residential developments, and assure that the layout of any such developments will be compatible with urban standards when eventually annexed.

9. IdentifY, protect, and where possible acquire lands in the area of city impact that will in the future be appropriate fo r parkland, including possible linear parks along the railroad corridors and Paradise Creek.

AREA OF CITY IMPACT IMPLEMENTATION POLICIES

1. As urban-type development occurs, it should be encouraged to locate contiguous with present city limits. Such contiguous development should be annexed so that city services (water, sewer, streets) can be provided.

2. Moscow city sewer and water services will not be extended beyond the city limits, except in cases where the failure of existing systems have caused a public health and safety hazard, and where users so served agree to fully bear all costs of such service and not to oppose fu ture annexation.

3. Development ofmulti-user sewer systems in the area ofcity impact is discouraged. Where individual private systems are proposed in new subdivisions, assure that functional sewage systems can be developed for all parcels without undue off-site impact.

4. Require subdividers to show that any residential development which occurs is compatible with the street layout and service access requirements of later higher density urban development, and is amenable to later re-development using city size lots.

5. Discourage both residential and commercial strip development with multiple accesses off county roads which are, or may become, arterial streets.

2 Draft 12/20/95

6. Require that roads and intersections be designed to restrict and control vehicular access along state and federal highways in the area of city impact to preserve the primary transportation function of these highway corridors. Buffer requirements should be considered in industrial and commercial areas to preserve visual amenities in these maj or entrances to the city.

7. Some rural non-retail businesses beyond those ordinarily permitted m the Agriculture/Forestry zone are allowed as conditional uses in that zone.

8. Within the area of city impact, parkland dedication (or fee in lieu of dedication) may be deferred until the parcel is rezoned to a higher density than the Agriculture/Forestry zone unless the proposed subdivision includes land previously identified as a preferred location for parkland.

9. Because land policies in the county beyond the area of city impact significantly impact development pressures closer to the city of Moscow, it is the policy of the city to consider Latah County development regulations in setting regulations for the area of city impact.

l 0. The area of eity impact should be regularly re-evaluated by the city and county to identifY areas which should be added because there is a reasonable chance they might experience significant residential development or be annexed in the subsequent 20 years, and areas which have little chance of such development in 20 years and might better be administered solely by the county.

II. Moscow recognizes that private mechanisms such as land trusts or restnct!Ve covenants can enhance development planning and preserve environmental amenities in the area of city impact. The city is willing to work with landowners and developers in planning such agreements.

APPLICABILITY OF ZONES WITHIN THE AREA OF CITY IMPACT

I. Within the area of city impact, land initially zoned Agriculture/Forestry can he rezoned to any of the city of Moscow residential zones subject to the following. a. Land where city type development/annexation is imminent (say within five years and within 1/4 mile of the city limits):

- if being rezoned for residential purposes, such parcels will ordinarily be assigned a zone of Suburban/Residential or greater density.

- shall meet the goals and policies established for the area of city impact.

3 Draft !2/20/95

b. Land more distant from the city may be developed for rural residential purposes as a stage of transition toward more dense urban development through the Planned Unit Development (PUD) process or.by rezoning to Farm/Ranch.

- The PUD process, in this case, is intended to facilitate development which: - clusters homesites, - preserves environmentally sensitive areas and viewshcds as open space, and - preserves open spaces in contiguous farmable tracts.

- To accomplish this, residential densities in the AF zone could be increased through the PUD process, where the actual lots created are relatively small, and are clustered on less agriculturally productive land.

- Areas to be rezoned from AF to Farm/Ranch shall ordinarily total at least 40 contiguous acres. However, smaller tracts may be considered for Farm/Ranch zoning where the developer can show that the land is unsuited for agricultural use for reasons such as soil, topography, or parcel configuration, and that the rezone meets the other goals and policies established for the area of city impact.

- While rezoning to residential densities greater than Farm/Ranch is possible, such development is naturally limited by the avai lability of sewer and water, and by the City of Moscow policy to only provide such services outside the city limits in exceptional cases.

2. In rezoning land for industrial or commercial uses, first consideration will be given to land currently designated as industrial or commercial on the comprehensive plan map. In considering any additional proposals to change the comprehensive plan map and rezone land to Industrial the Commission shall:

- encourage such development adjacent to present and likely future industrial or commercial areas.

- discourage such development amongst or adj acent to present and likely future residential areas.

- require the use of buffe r strips and other applicable methods to screen industrial uses from highways and from other sensitive adjacent uses.

- require road, driveway, and intersection designs that control access as needed to preserve traffic flow and safety.

- consider the effect of such development on traffic patterns, and 01,1 city water and sewer system capabilities.

4 1127/97

SECTION 14

CITIZEN PARTICIPATION

The quality of the comprehensive plan hinges on the commitment of Moscow's citizens to address the various needs of a growing community. While it is unrealistic to expect every member of the community to participate in the process, it is incumbent upon the Planning and Zoning Commission to seek to remove barriers to participation. This section of the plan addresses strategies to enable a greater number of people opportunities fo r involvement in the long range planning process.

Inventory

Previous Comprehensive Plans were prepared fo r Moscow in 1956, 1965, 1979 and !985. The first two plans were developed by consulting firms, while the 1979 and 1985 plans were the result of extensive work by the Planning and Zoning Commission with the assistance of City staff

Traditionally, the process fo r creating and updating the comprehensive plan has entailed a process which calls fo r the Planning and Zoning Commission to review and rewrite necessary parts of the plan, making additions as the Commission has felt were necessary or as mandated by Idaho law. This document is then fo rwarded to City Council for approvaL Changes and adjustments are made fo llowing this step and the document then goes to the citizens of Moscow for a public hearing. Any changes and adjustments from this point would be considered by the Planning and Zoning Commission and would then be voted upon fo r adoption. If adopted, the document would go fo rward to the City Council for final adoption.

Citizen participation in this traditional model has been solicited in several ways as the comprehensive plan is developed. First, members of the Planning and Zoning Commission are Moscow citizens and must meet certain residency requirements prior to being qualified to serve on this commission. They sit on the board, meeting regularly with the public in hearings, and learn about the concerns of various neighbors in the course of their service on this commission. Individuals who have expressed their desires about land use issues in the public hearing process are in this manner contributing to the overall consideration of the comprehensive plan. Finally, as the comprehensive plan is being assessed, individual issues may come to the attention of the commission fo r further research. Public opinion polls are sometimes conducted to get additional citizen input into development of the plan.

Provide all citizens within Moscow's jurisdiction the opportunity to participate in the local land use planning process. 1/27/97

Objectives

1. To enhance the planning process and the quality of the comprehensive plan by increasing the access to the information in the plan prior to the public hearing on the complete document.

2. Promote public understanding of the planning process through educational programs on elements of the plan.

3. To utilize previous editions ofthe comprehensive plan as the basis fo r future plans, recognizing the validity of the citizen participation that occurred in the past and providing stability from this framework fo r future planning.

4. To provide forums fo r public participation in the plan and mechanisms fo r this participation to be included in the completed document.

Strategy:

This version of the comprehensive plan is written by the Planning and Zoning Commission. As elements of the plan are completed, they will be fo rwarded to the City Council fo r its comments and suggestions. The Planning and Zoning Commission will incorporate changes as needed, and then will publicize and conduct an open meeting on those individual elements of the plan that could be enhanced by the public participation process. Certain elements, such as those that are created by outside agencies (such as the Parks and Recreation Commission) will undergo whatever process as that body has established.

The individual element of the plan will be presented to the public by members of the Planning and Zoning Commission in an informal open meeting. People will be encouraged to ask questions, give opinions, record any thoughts fo r consideration. Simultaneously, the written parts of the plan will be posted fo r email interaction and response. A two or three week period for electronic discussion of the plan will be conducted. The comments of this will be collected and given to the members of the Planning and Zoning Commission fo r inclusion into the refinement process.

These meetings will be advertised using a variety of methods such as:

• Notice of the meetings provided through the newspapers and electronic media, indicating where the plan can be obtained.

• Establish a City of Moscow Home Page and provide approved discussion drafts on the page.

2 1/27/97

• People who do not have personal computers to access this will be directed to the Latah County Free LibraryDistrict where machines will be available for the public.

• Notices displayed in locations such as the Palouse Mall, Eastside Market Place, local businesses that frontFriendship Square, and the Farmers' Market.

• Radio public service announcements.

• Provide notices to interested non-governmental organizations.

By using this variety of methods, we will be communicating with the public via the written word, visual communications, and oral communications, thus allowing those individuals who are unable to attend meetings an opportunity to voice their opinions about Moscow's future.

Following this public input process, the Planning and Zoning Commission will make considerations and adjustments to the Comprehensive Plan and then begin the fo rmal public hearing process required by the Local Planning Act.

The formal public hearing process will include at least one public hearing in which interested parties will have yet another opportunity to be heard. The Commission will advertise the public hearing in the newspaper of general circulation of the community at least fifteen days prior to the hearing date. The Commission will also make available a notice to other local papers, radio, and television stations as a public service announcement. Notice of intent to adopt, repeal or amend the Comprehensive Plan will be sent to all political subdivisions providing services within the planning jurisdiction, including those within the Area of City Impact, at least fifteen days prior to the hearing date. If, fo llowing the public hearing, the Commission proposes material changes to the Comprehensive Plan, further notice and hearing will be provided before the Commission fo rwards a recommendation to the City Council for final approval. A record of the hearings, findings made, and actions taken shall be documented and maintained as a matter of public record. This formal public hearing process will be repeated by the City Council before the Comprehensive Plan can be legally adopted.

compplanlsection1 4/sr

3 1/27/97

SECTION 15

PRIVATE PROPERTY RIGHTS

Introduction

Both the Federal Constitution and the constitution of the State of Idaho provide that private property may not be taken fo r public use without just compensation as prescribed by law. Idaho Code Sections 67-6508(a), 67-8001, 67-8002, and 67-8003 establish a review process which the City uses to evaluate whether proposed regulatory or administrative actions result in a taking of private property without due process of law. However, Section 67-8001 states that it is not the purpose of the Chapter to expand or reduce the scope of private property protections provided in the State and Federal Constitutions. Section 67-8003(2) states that nothing in the section grants a person the right to seek judicial relief requiring compliance with the provisions of the Chapter.

Any laws or regulations governing private property should heavily depend upon the government's authority and responsibility to protect public health, safety and welfare. Based upon this premise, courts have supported the limitation of the use of private property through land use planning regulations such as Comprehensive Plans, Zoning Ordinances, Subdivision Ordinances and Environmental Quality Acts.

Ensure that Moscow City land use policies, restrictions, conditions and fe es do not violate private property rights and to establish a predetermined orderly, consistent review process fo r the City of Moscow to evaluate whether proposed regulatory or administrative actions may result in a taking ofprivate property without due process of law.

Objectives

1. Ensure that City land use actions, decisions and regulations will not cause an unconstitutional physical occupation of private property.

2. Ensure that City land use actions, decisions and regulations do not cause an unconstitutional physical invasion of private property.

3. Ensure that City land use actions, decisions and regulations do not effectively eliminate all economic value of the private property.

4. Ensure that City land use actions, decisions and regulations depend upon the City's responsibility to protect public health, safety and welfare. 1/27/97

5. Ensure that City land use actions, decisions and regulations do not prevent a private property owner from taking advantage of a fundamental property right or impose a substantial and significant limitation on the use of the property.

Implementation Policy

It shall be the policy of the City of Moscow that City staff shall consider the following questions in reviewing the potential impact of a regulatory or administrative action ou specific property.

While these questions provide a fr amework for evaluating the impact proposed regulations may have generally, takings questions normally arise in the context of specific affected property. The public review process used fo r evaluating proposed regulations is another tool that the City should use aggressively to safeguard rights of private property owners. If property is subject to regulatory jurisdiction of multiple government agencies, each agency should be sensitive to the cumulative impacts of the various regulatory restrictions.

Although a question may be answered affirmatively, it does not mean that there has been a "taking". Rather, it means there could be a constitutional issue and that City staff should carefully review the proposed action with legal counsel.

1. Does the Regulation or Action Result iu a Permanent or Temporary Physical Occupation of Private Property?

Regulation or action resulting in a permanent or temporary physical occupation of all or a portion of private property will generally constitute a "taking". For example, a regulation that required landlords to allow the installation of cable television boxes in their apartments was fo und to constitute a "taking". See Loretto v. Teleprompter Manhattan CATV Corp., 458 U.S. 419 (1982).

2. Does the Regulation or Action Require a Property Owner to Dedicate a Portion of Property or to Grant an Easement?

Carefully review all regulations requiring the dedication of property or grant of an easement The dedication of property must be reasonably and specifically designed to prevent or compensate for adverse impacts of the proposed development. Likewise, the magnitude of the burden placed on the proposed development should be reasonably related to the adverse impacts created by the development. A court also will consider whether the action in question substantially advances a legitimate state interest.

For example, the United States Supreme Court determined in Nollan v. California Coastal Comm'm, 483 U.S. 825 (1987), that compelling an owner of waterfront property to a public easement across his property that does not substantially 1127/97

advance the public's interest in beach access, constitutes a "taking". Likewise, the United States Supreme Court held that compelling a property owner to leave a public green way, as opposed to a private one, did not substantially advance protection of a floodplain, and was a "taking". Dolan v. City of Tigard. 114 US. 2309 (June 24, 1994).

3. Does the Regulation Deprive the Owner of all Economically Viable Uses of the Property?

If a regulation prohibits all economically viable or beneficialuses of the land, it will likely constitute a "taking". In this situation, the agency can avoid liability fo r just compensation only if it can demonstrate that the proposed uses are prohibited by the laws of nuisance or other pre-existing limitations on the use of the property. See Lucas v. South Carolina Coastal Coun., 112 S. Ct. 2886 (1992).

Unlike 1. and 2. above, it is important to analyze the regulation's impact on the property as a whole, and not just the impact on a portion of the property. It is also important to assess whether there is any profitable use of the remaining prop. available. See Florida Rock Industries, Inc. v. United States, 18 F.3d 1560 (Fed. Cir. 1994). The remaining use does not necessarily have to be the owner's planned use, a prior use or the highest and best use of the property. One factor in this assessment is the degree to which the regulatory action interferes with a property owner's reasonable investment-backed development expectations.

Carefully review regulations requiring that all of a particular parcel of land be left substantially in its natural state. A prohibition of all economically viable uses of the property is vulnerable to a takings challenge. In some situations, however, there may be pre-existing limitations on the use of property that could insulate the government from takings liability.

4. Does the Regulation Have a Significant Impact on the Landowner's Economic Interest?

Carefully review regulations that have a significant impact on the owner's econorruc mterest Courts will often compare the value of property before and after the impact of the challenged regulation. Although a reduction in property value alone may not be a "taking", a severe reduction in property value often indicates a reduction or elimination of reasonably profitable uses. Another economic fa ctor courts will consider is the degree to which the challenged regulation impacts any development rights of the owner. As with 3. above, these economic fa ctors are normally applied to the propertyas a whole.

5. Does the Regulation Deny a Fundamental Attribute of Ownership? l/27/97

Regulations that deny the landowner a fundamental attribute of ownership - including the right to possess, exclude others and dispose of all or a portion of the property -- are potential takings.

The United States Supreme Court recently held that requiring a public easement for recreational purposes where the harm to be prevented was to the flood plain was a "taking". In finding this to be a "taking", the Court stated:

The City never demonstrated why a public green way, as opposed to a private one, was required in the interest of flood control. The difference to the petitioner, of course, if the loss of her ability to exclude others. [T]his right to exclude others is "one of the most essential sticks in the bundle of rights that are commonly characterized as property."

Dolan v. City of Tigard, 114 U.S 2309 (June 24, 1994). The United States Supreme Court has also held that barring the inheritance (an essential attribute of ownership) of certain interests in land held by individual members of an Indian tribe constituted a "taking". Hodel v. Irving, 481 U.S 704 (1987).

6. Does the Regulation Serve the Same Purpose that Would be Served by Directly Prohibiting the Use or Action: and Does the Condition Imposed Substantially Advance that Purpose?

A regulation may go too far and may result in a takings claim where it does not substantially advance a legitimate governmental purpose. Nollan v. California Coastal Commission. 107 S.Ct. 3141 (1987); Dolan v. City of Tigard. 114 U.S 2309 (June 24, 1994).

In Nollan, the United States Supreme Court held that it was an unconstitutional "taking" to condition the issuance of a permit to land owners on the grant of an easement to the public to use their beach. The Court found that since there was no indication that the Nollans' house plans interfered in any way with the public's ability to walk up and down the beach, there was no "nexus" between any public interest that might be harmed by the construction of the house, and the permit condition. Lacking this connection, the required easement was just as unconstitutional as it would be if imposed outside the permit context.

Likewise, regulatory actions that closely resemble, or have the effects of a physical invasion or occupation of property, are more likely to be found to·be takings. The greater the deprivation of use, the greater the likelihood that a "taking" will be fo und.

Compplan!sectionl5/sr