1993 Fort Missoula Plan
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1993 FORT MISSOULA PLAN -- A REVISION AND UPDATE OF TilE 1973 FORT MISSOULA GUIDELINES FOR DEVELOPMENT Unedited Version Adopted by the ' MISSOULA CITY COUNCIL January, 1994 For More Information about the Preparation of this Plan Document, Contact: Missoula Office of Community Development 435 Ryman Missoula, Montana 59802 (406) 523-4657 TABLE OF CONTENTS INTRODUCTION Page 4 PART 1: Planning area in historical perspective Page 7 A. Past ( up to 1973) 1. The distant past of the Fort Missoula area 2. 1973 B. Present (1993) 1. Current natural features and character of the plan area, together with changes which have taken place since 1973 2. Current man-made features and modifications, together with changes which have taken place since 1973 3. Degree to which changes since 1973 have followed and implemented the 1973 Plan 4. Current role of the Fort Missoula area PART II: Planning context and background Page 22 A. Existing communitywide plans 1. Population and housing 2. Economy and commercial/industrial land use 3. Environment 4. Recreation, passive and active 5. Community aesthetics, the historical 6. Fort Missoula as a district park 7. Community services and facilities 8. Revision of the Fort Missoula plan B. Current issues, concerns, opportunities 1. Growth of the community 2. The evolution of Fort Missoula 3. Opportunities PART III: General goals Page 32 A. The character of this updating and revision of the Fort Missoula Plan (1973) B. Distinctive character of the area C. General goals PART IV: Implementation Page 36 Specific means and methods for achieving the general goals History Education Ecology Open space Compatibility of uses, functions, and features Structures and infrastructure Acquisition and preservation of land Accessibility for people with disabilities Coordinating mechanism for implementation APPENDICES: Page 47 A. Fort Missoula Steering Committee B. Outline of Public Involvement Process C. Record of Public Input (not attached; available for review at the Office of Community Development). D. Working Calendar of: Target Dates, Tasks, Responsible Parties E. Relevance of Current Community Plans {not attached; available for review at OCD) F. Sources SCENARIOS SUPPlEMENT (Note: This Supplement is not an official part of the Plan document) INTRODUCTION Origins of This Plan During 1972-1973, the Fort Missoula Steering Committee of Fort area landowners worked with one another, with the City-County Planning Board and staff, and with the Missoula community to formulate a land use guide for the future of the Fort Missoula area. Now, twenty years later, a similar kind of process has occurred. This time, the Fort Missoula Steering Committee has consisted of citizen representatives of community groups, as well as most of the Fort area landowners. This time, the Committee's focus has been on updating an existing plan, rather than creating a plan from scratch. But, as in the previous case, the planning effort has involved the Planning Board, the planning staff, and the larger community of citizens. And as was also true twenty years ago, Fort Missoula's extraordinary value to Missoula City and County and western Montana has been a prime motivator of this collective effort to provide effective guidance about the directions and parameters for appropriate change at the Fort. Additional motivators have prompted the updating of the 1973 Fort Missoula Plan at this particular time. An important one is the very real possibility for major land use changes to occur at the Fort, as the result of recent shifts in land ownership and landowner goals. Another motivator is a recognition that a substantial portion of the rich historical and natural resource base of the Fort is seriously threatened by a lack of coordinated attention and adequate funding. Plan Update Process The Fort Missoula Steering Committee was assembled in August 1993 (Please refer to Appendix A). Ten Steering Committee meetings were held during the fall of 1993. The Steering Committee sponsored two community meetings to inform and involve more citizens in the public planning process. The public involvement process associated with this planning process is outlined in Appendix B. Appendix C contains the full record of public input received during the preparation of this draft Plan document. This input was essential to the Steering Committee's understanding of current issues, concerns, and opportunities associated with the Fort area and the larger Missoula community; it has also been helpful in the formulation and testing of the general goals being proposed in this Plan. Appendix C is not attached to this Plan document; it is, however, available for review at the Missoula Office of Community Development. The bulk of the Steering Committee's work was accomplished at the Subcommittee level. Five work groups, made up of Steering Committee members and additional interested citizens, tackled a range of tasks: Public Involvement, Plan Write-Up, Scenarios, Historic District Overlay Zone Review, and Divot Development Proposal Review (These latter two 4 subcommittees focussed their efforts on reviewing two specific proposals and offering suggestions for brjnging the proposals more closely in line with the goals and direction of this Plan, as it evolved). Through the steps outlined in Appendix D, the Steering Committee prepared and forwarded a draft 1993 Fort Missoula Plan onto the Missoula Consolidated Planning Board, Missoula City Council, Board of Missoula County Commissioners, and entire Missoula community, as a proposed amendment to the Missoula Urban Comprehensive Plan. This Plan document, in its draft form, is presented below. The document has been developed, and is now being reviewed, in accordance with the state statutory authority and requirements for community master planning (MCA 76-l-Part 6). Map A depicts the Fort Missoula planning area considered in the 1993 plan update process. This is generally the same area that received attention in the 1973 Plan, although the 1993 effort has focussed upon the lands which lie south of South Avenue. Presentation of The Plan The Plan first offers a historical perspective on the Fort Missoula area, recalling the distant _past, describing the Fort in 1973, and then outlining present-day activities and conditions. The document then outlines the communitywide context in which this Plan update is offered, referencing existing adopted community plans and policies which relate to the Fort Missoula area. The Plan goes on to characterize the Fort area's distinctiveness -- why it warrants special planning attention. Then, the Plan outlines a set of general goals and specific means for accomplishing these goals. Implementation strategies are discussed, and pertinent resources are appended. A Scenarios Supplement can be found immediately following the Appendices. This section is not an official part of the Plan document, but it offers a set of scenarios illustrating a variety of ways that the Fort's future might be envisioned. The purpose of the scenarios is to help the Missoula community visualize and consider how different changes across the Fort landscape might -- or might not -- further the goals for the area, as stated in this Plan. The scenarios are not intended to represent specific development plans. Nor are they meant to exhaust the possible configurations of land uses. They do, instead, suggest possibilities. Any such possibility must be considered in light of its particular context and timing, but with the general goals and specific means of this Plan given foremost attention. 5 t) 1994 FORT MISSOULA ...,., .. " -· REVISED PLANNING AREA !,I"IIIIIIIIIIIItJ .• .• . Denotes • • • • Planning • • • • Area • • • • ,iunnnntnur NOTE: Planning Area is larger than the area covered by the 1973 Fort Missoula Plan. 6a PART I PLANNING AREA IN HISTORICAL PERSPECTIVE A. Past (up to 1973): 1. The distant past of the Fort Missoula area Prior to non-native settlement, the Salish, commonly called the Flathead by non-natives, used the area in which Fort Missoula is located. The bitterroot plant grew abundantly in the Bitterroot and Missoula Valleys and served as an important source of food for them, as did the buffalo they hunted cast of the mountains. Early in the 19th century, non-natives came to the region in noticeable numbers, including Lewis and Clark's expedition, English and French fur traders and explorers, and missionaries. Permanent settlement by non-natives began in the 1850's. By 1871, settlement in the Missoula and the Bitterroot Valleys created pressure for more lands, and President Ulysses S. Grant ordered all Salish moved to the Jocko Valley. Many of the Salish refused to leave and argued the legality of the treaties involved. At the same time, settlers resented the intrusion of Nez Perce hunting parties on their lands. The widespread conflicts between Native Americans and non-natives in the West during the 1860's and 1870's fueled settlers' concerns about adequate protection; at the same time, Missoula was growing as a community, and its leaders realized the economic value of a military installation in the area. Their efforts were instrumental in securing a location of a fort near Missoula. Two companies of infantrymen began construction in June of 1877. Like most forts built in the West after 1870, the new post was not fortified. Instead, it featured a design of exposed buildings, suited to a patrolling force as opposed to a defensive posture. Within a month troops were ordered into action against the Nez Perce, interrupting construction. The soldiers pursued the Nez Perce, who were trying to escape into Canada from Idaho, and participated in the August 9 battle at the Big Hole River. Then they returned to Missoula and continued construction on the fort, officially named Fort Missoula on November 8 of that year. Troops battled a small band of Nez Perce in the summer of 1878; that was the last significant action against local Native Americans. Of the buildings constructed during this period, only a carriage house, a stone powder magazine and a non-commissioned officers' quarters have survived.