CITYCITY OFOF GRANDGRAND FORKS,FORKS, NDND YEARYEAR 20402040 LANDLAND USEUSE PLANPLAN
Approved by:
The Grand Forks Planning Commission December 7, 2011
Prepared by:
Grand Forks Planning Department Grand Forks—East Grand Forks Metropolitan Planning Organiza on
Adopted by:
The Grand Forks City Council December 19, 2011
GRAND FORKS, NORTH DAKOTA 2040 LAND USE PLAN
The preparation of this document was partially financed by FHWA/FTA Planning Funds through the North Dakota Department of Transportation and Minnesota of Transportation. The opinion, findings, and conclusions expressed in this publication are those of the authors and not necessarily those of the NDDOT, Mn/DOT, or the FHWA/FTA. GRAND FORKS, NORTH DAKOTA 2040 LAND USE PLAN TABLE OF CONTENTS
Page CHAPTER 1 THE EXISTING COMMUNITY ...... 1-1 Introduction ...... 1-1 Population ...... 1-5 Housing ...... 1-10 Economy ...... 1-11
CHAPTER 2 EXISTING LAND USE ...... 2-1 Introduction ...... 2-1 Existing Residential Land Use ...... 2-1 Existing Commercial Land Use ...... 2-11 Existing Industrial Land Use...... 2-23 Existing Public/Semi-Public Land Use ...... 2-26 Existing Recreation/Open Space Land Use ...... 2-31 Existing Agricultural Land Use ...... 2-41 Existing Transportation Network ...... 2-45 Existing Extraterritorial Land Use ...... 2-57
CHAPTER 3 GOALS, OBJECTIVES, AND POLICIES ...... 3-1 Introduction—Year 2040 Land Use Plan ...... 3-1 Land Use Goals and Policies ...... 3-1 Goal One: Growth Management ...... 3-3 Goal Two: Residential Development ...... 3-16 Goal Three: Commercial Development ...... 3-18 Goal Four: Industrial Development ...... 3-20 Goal Five: Urban Design and Land Use Planning ...... 3-22 Goal Six: Parks and Open Space...... 3-27 Goal Seven: Transportation ...... 3-30 Goal Eight: Natural Resources ...... 3-33 Goal Nine: Sustainable Development ...... 3-37 Goal Ten: Planning Process ...... 3-38
CHAPTER 4 FUTURE LAND USE ...... 4-1 Population and Employment Projections ...... 4-1 Future Land Use Map ...... 4-6 The Land Use Map ...... 4-12 Residential ...... 4-15 Commercial ...... 4-17 Mixed Uses ...... 4-19 Industrial ...... 4-20 Parks and Open Space ...... 4-22 Public/Semi-Public...... 4-23 Agriculture ...... 4-25 Transportation Corridor Overlay Districts ...... 4-25
TABLE OF CONTENTS continued Page CHAPTER 5 IMPLEMENTATION PROGRAM ...... 5-1 Adoption of the Plan ...... 5-1 Implementing the Policies ...... 5-2 Implementation Tools ...... 5-3 Growth Management Policies ...... 5-8 City Staff Resources and Processes ...... 5-11 Citizen Participation ...... 5-13 Summary of Implementation Directions ...... 5-15
APPENDICES
Appendix A – Utilities Analysis Water Service Provision ...... A-1 Sanitary Sewer Service ...... A-5 Soils ...... A-9 Stormwater and Drainage ...... A-10 Flood Protection ...... A-12
Appendix B – Summary of Grand Forks Implementation Tools ...... B-1 Grand Forks Land Development Code ...... B-1 Capital Improvement Plan ...... B-15 Annexation ...... B-16
Appendix C – Gateway Drive (U.S. 2) Plant List ...... C-1
Appendix D – Urban Design and Land Use Design Guidelines ...... D-2 Commercial and Industrial Design Guidelines ...... D-6 Residential Design Guidelines ...... D-12 Pilot Area Plans ...... D-16 Pilot Area 1 ...... D-21 Pilot Area 2 ...... D-28 Pilot Area 3 ...... D-33
LIST OF TABLES
Table No. Page CHAPTER 1: THE EXISTING COMMUNITY 1.1 Number of Residents, Grand Forks, ND, 1890-2000 ...... 1-6 1.2 Population Change of ND Cities with 25,000 Populations or More, 2000-2010 ...... 1-7 1.3 Natural Increase, Grand Forks, ND, 1990-2008 ...... 1-9 1.4 Net Migration, Grand Forks, ND, 1990-2008 ...... 1-9 1.5 Population Projections, Grand Forks, ND, 2000-2040 ...... 1-9 1.6 Housing Characteristics, Grand Forks, ND, 2000-2009 ...... 1-11 1.7 Population of Economic Trade Area, 2000-2010 ...... 1-12 1.8 Employment, Grand Forks, ND, 1960-2040 ...... 1-13 1.9 Historical Employment, Grand Forks, ND, 2000-2009 ...... 1-14 1.10 Historical Commercial Permits, Grand Forks, ND, 1991-2010 ...... 1-15 1.12 Grand Forks’ Tax Revenue 1995-2010 ...... 1-15
CHAPTER 2: EXISTING LAND USE 2.1 Residential Development, Grand Forks, ND ...... 2-3 2.2 Housing Units North Dakota ...... 2-3 2.3 Single Family Housing Units North Dakota ...... 2-4 2.4 Single-Family and Duplex Average Building Permit Value ...... 2-6 2.5 Multiple Family Housing Units, ND ...... 2-7 2.6 Housing Characteristics, Grand Forks, ND ...... 2-8 2.7 Mobile Home Information, ND ...... 2-9 2.8 Park/Open Space Overview ...... 2-35 2.9 Parks and Open Space for Grand Forks ...... 2-36 2.10 Interstate Criteria ...... 2-47 2.12 Principal Arterial Criteria ...... 2-48 2.13 Minor Arterial Criteria ...... 2-48 2.14 Urban Collector Criteria ...... 2-49 2.14 4-Mile Extraterritorial Area Land Use Inventory ...... 2-57 2.15 Rural Residential Subdivisions ...... 2-59 2.16 Road Networks ...... 2-72
CHAPTER 3: GOALS, OBJECTIVES, AND POLICIES 3.1 Land Use and Transportation Facilities ...... 3-24
CHAPTER 4: FUTURE LAND USE 4.1 Grand Forks Population Projections, 2020-2050 ...... 4-2 4.2 Land Use Acreage by Growth Tier ...... 4-3 4.3 Policy Requirements by Growth Management Tier ...... 4-12
CHAPTER 5: IMPLEMENTATION PROGRAM 5.1 Zoning Recommendations ...... 5-4 5.2 Subdivision Regulations ...... 5-6 5.3 Growth Management/Fiscal Management ...... 5-9 5.4 City Staff Resources and Processes ...... 5-12 5.5 Citizen Participation and Intergovernmental Coordination ...... 5-14
LIST OF TABLES continued
Table No. Page APPENDIX A: UTILTIES ANALYSIS No Tables in Appendix A
APPENDIX B: SUMMARY OF GRAND FORKS IMPLEMENTATION TOOLS (ADAPTED FROM 2015 LAND USE PLAN) B.1 Right-of-Way Dedication Widths ...... B-13 B.2 Total Annexations, Grand Forks, 1985-2004 ...... B-17 B.3 Annexation Point Rating System ...... B-20
APPENDIX C: GATEWAY DRIVE (U.S. 2) PLANT LIST No Tables in Appendix C
APPENDIX D – URBAN DESIGN AND LAND USE No Tables in Appendix D
LIST OF MAPS AND FIGURES
Map/Figure No. Page CHAPTER 1: THE EXISTING COMMUNITY Map 1.1 Grand Forks, North Dakota – Regional Setting ...... 1-2 Map 1.2 Grand Forks Planning Area ...... 1-4 Map 1.3 Grand Forks Economic Trade Area ...... 1-12 Figure 1.1 Population Pyramids by Gender ...... 1-7 Figure 1.2 UND and GFAFB Population Projections, Influences on GF Population ...... 1-10
CHAPTER 2: EXISTING LAND USE Map 2.1 Generalized Existing Land Use ...... 2-2 Map 2.2 Residential Land Use ...... 2-5 Map 2.3 Existing Commercial Land Use...... 2-10 Map 2.4 Central Business District Land Use ...... 2-12 Map 2.5 The River Forks Downtown Plan Update ...... 2-13 Map 2.6 Renaissance Zone ...... 2-16 Map 2.7 South Washington Street Land Use ...... 2-17 Map 2.8 North Washington Street Land Use ...... 2-18 Map 2.9 Gateway Drive Land Use ...... 2-20 Map 2.10 South Columbia Street Land Use ...... 2-21 nd Map 2.11 32 Avenue South Land Use ...... 2-23 Map 2.12 Industrial Land Use ...... 2-24 Map 2.13 Public Facilities ...... 2-28 Map 2.14 Grand Forks School District Number 1 ...... 2-30 Map 2.15 Parks, Open Space and Recreational Facilities ...... 2-32 Map 2.16 Core Park Service Areas ...... 2-40 Map 2.17 Prime Agricultural Lands ...... 2-43 Map 2.18 Transportation System Functional Classification ...... 2-46 Map 2.19 Existing and Planned Bikeway System ...... 2-51 Map 2.20 Existing Bus Routes ...... 2-53 Map 2.21 UND Campus Bus Routes ...... 2-54 Map 2.22 Railroad Information ...... 2-56 Map 2.23 Extraterritorial Land Use ...... 2-57 Map 2.24 U.S. Highway 81 Corridor Land Use ...... 2-62 Map 2.25 U.S. Highway 2 & DeMers Ave. Corridor Land Use ...... 2-63 nd Map 2.26 32 Avenue South Corridor Land Use ...... 2-66 Map 2.27 South Columbia Road Corridor Land Use ...... 2-69 th Map 2.28 South Washington Street/12 Avenue Northeast Corridor Land Use ...... 2-70 Map 2.29 Access Control Road Classification ...... 2-73
CHAPTER 3: GOALS, OBJECTIVES, AND POLICIES Map 3.1 Tier Map ...... 3-7
LIST OF MAPS AND FIGURES continued
Map/Figure No. Page CHAPTER 4: FUTURE LAND USE Map 4.1 Future Land Use ...... 4-14 Map 4.2 Airport Compatibility Zones ...... 4-27 Figure 4.1 Medium Speed Urbanizing Roadways ...... 4-28 Figure 4.2 High Speed Urbanizing Roadways...... 4-29 Figure 4.3 High Speed Rural Roadways ...... 4-30
CHAPTER 5: IMPLEMENTATION PROGRAM No Maps or Figures in Chapter 5
APPENDIX A: UTILITIES ANALYSIS Figure A.1 Typical Trunk Water Main ...... A-3 Figure A.2 Typical Trunk Sanitary Sewer ...... A-5 Figure 1 Water Distribution System ...... A-9 Figure 2 Sanitary Sewer System ...... A-10 Figure 3 Flood Protection System ...... A-11
APPENDIX B: SUMMARY OF GRAND FORKS IMPLEMENTATION TOOLS (ADAPTED FROM 2015 LAND USE PLAN) Figure B.1 Zoning Amendment Approval Process ...... B-5 Figure B.2 PUD Concept Development Plan Approval Process ...... B-6 Figure B.3 PUD Detailed Development Plan Approval Process ...... B-7 Figure B.4 Detail Development Plan Public Participation Sign ...... B-8 Figure B.5 Typical Bufferyard Diagram ...... B-9 Figure B.6 Subdivision Approval Process ...... B-11 Figure B.7 Functionally Classified Street Schematic ...... B-13 Figure B.8 Right-of-Way and Easement Vacation Process ...... B-14
APPENDIX C: GATEWAY DRIVE (U.S. 2) PLANT LIST No Maps or Figures Appendix C
APPENDIX D: URBAN DESIGN AND LAND USE Map D.1 Tiered Growth Concept and Pilot Sites ...... D-17 Figure D.1 Design Considerations ...... D-3 Figure D.2 Alternative Storm Water Management Approaches ...... D-5 Figure D.3 Alternative Residential Configurations ...... D-18 Figure D.4 Alternative Land Uses Adjacent to High Volume Roadways ...... D-20 Figure D.5 Pilot Area 1 Concept Plan ...... D-22 Figure D.6 Residential Front Yard Cross Section ...... D-25 Figure D.7 Levee as Greenway Concept ...... D-27 Figure D.8 Pilot Area 2 Concept Plan ...... D-29 Figure D.9 Pilot Area 3 Concept Plan ...... D-34 Figure D.10 Frontage Road Concept (Axonometric View ...... D-37 Figure D.11 Representative Automobile Dealership Concept ...... D-39 Figure D.12 Representative Automobile Dealership Cross Section ...... D-40 Figure D.13 Representative Automobile Dealership Axonometric View ...... D-41
LIST OF MAPS AND FIGURES continued
Map/Figure No. Page Figure D.14 Representative Shipping Center Concept ...... D-43 Figure D.15 Representative Shipping Center Cross Section ...... D-44 Figure D.16 Representative Shipping Center Axonometric View ...... D-45 Figure D.18 Bible Baptist Church Cross Section ...... D-48 Figure D.19 Bible Baptist Church Axonometric View ...... D-49
1. EXISTING COMMUNITY
Chapter One: Existing Community
INTRODUCTION PAST AND PRESENT PLANS
In 1961, the city of Grand Forks took the first step in addressing the issue of future growth and began the process of developing a Master Plan. The purpose of that plan was to project the City’s population and economic growth into the future in order to define land use growth areas. Future growth areas were projected spatially and encompassed various land use patterns. In this manner, compatible land use relationships were established, detrimental impacts were reduced and a uniform pattern of growth was provided. The 1961 Master Plan was officially adopted by the City Council and was later updated in 1969. The 1969 Master Plan Update, however, was never adopted. It was not until 1980 that the official master plan was updated and adopted with passage of the Year 2000 Land Use Plan. Since then, the 2015 and 2035 Land Use Plans have been created. Following the adoption of the 2035 Land Use Plan the Grand Forks Planning Department has established a policy of updating the Land Use Plan every five years. Additionally the city has made an effort to link the land use goals and the transportation goals. Therefore the land use plan update is immediately followed by an update of the Long Range Transportation Plan.
The development of a land use plan is based on the projection of past and present trends into the future. Hence, it is necessary to re evaluate a community’s existing plans every five years to determine population, economic and development trends in the post plan period. Also, it is necessary to amend and update old plans, to reflect the variations in patterns of development which have occurred in the interim period between plans. This approach to plan updating should be a continuing process to assure a current and responsive land use plan.
Although the 2040 Land Use Plan is an update to a previous plan, new inventories were compiled for the “Existing Community” and “Existing Land Use” sections of this document. Specifically, current inventories in the “Existing Community” section include an analysis of population, housing, and economics, and the “Existing Land Use” section is an analysis of the 2010 land use inventory of Grand Forks. It is important that the community be analyzed in order to determine the past and present community wide and neighborhood problems and needs. This needs assessment is provided in the “Land Use Plan” and the “Implementation Plan” sections, and corrective recommendations are made in that section of this document to rectify identified deficiencies.
The plan addresses Grand Forks’ jurisdictional area in the form of specific land use goals and policies. The goals and policies provide the framework which can be utilized to guide the physical growth of Grand Forks through the next three decades. Also included in the plan is a map (Pg 4 13) which depicts the physical growth of the City by the land use types to the year 2040. The entire Year 2040 Land Use Plan will include six sections: The Existing Community, Existing Land Use, Goals, Objectives and Policies, Future Land Use, Urban Design and Land Use and the Implementation Program.
2040 Land Use Plan Update 1 1 1. EXISTING COMMUNITY
REGIONAL SETTING
Grand Forks is an attractive metropolitan service center which serves northeastern North Dakota, northwestern Minnesota, and a portion of southern Manitoba. The city of Grand Forks is situated 75 miles north of Fargo, North Dakota, and 150 miles south of Winnipeg, Canada (see Map 1.1).
Map 1.1
Source: EDC Grand Forks Note: Distance is approximate Driving miles from Google Maps
The City of Grand Forks is serviced by an excellent system of transportation facilities. Interstate 29 and U.S. Highway 2 both pass through the community. Interstate 29 provides a convenient route to points south, such as Fargo and Sioux Falls, connecting at the U.S. – Canada border with the route to Winnipeg. U.S. Highway 2 provides an east west highway connection between Duluth to the east and points west, such as Minot and Williston, North Dakota. Grand Forks is also served by the Burlington Northern Santa Fe Railway (BNSF), Amtrak, 20 motor freight carriers, intra city and inter city bus lines and the Grand Forks International Airport facility, which is currently used by two commercial airlines, Delta and Allegiant Air.
Grand Forks performs important regional economic functions which affect the trade area comprised of northeastern North Dakota, northwestern Minnesota, and portions of southern Manitoba. Some of these functions include: • A major metropolitan trade center; • Retail trade • Wholesale distribution center • An education center; • University of North Dakota • Environmental and Energy Research Center • Center for Innovation • Unmanned Aircraft System Center of Excellence • UND Research Foundation Center of Excellence in Life Science and Advanced Technologies • Northland Community and Technical College in East Grand Forks, Minnesota
2040 Land Use Plan Update 1 2 1. EXISTING COMMUNITY
• North Dakota State School for the Blind • A medical health Center; • Grand Forks Clinic • UND Medical Center Rehabilitation Hospital • Altru Heath Systems • Aurora Medical Park • Meritcare Heath Systems in East Grand Forks • A government center; • Grand Forks Air Force Base (15 miles west of Grand Forks) • Grand Forks County seat • National Guard Complex • State and Federal District Courts • State Department of Transportation District Office • U.S. Border Patrol Office • And a primary market, distribution, and processing center for agricultural commodities produced in the surrounding area. • American Crystal Sugar (East Grand Forks, Minnesota) • Philadelphia Macaroni Company • J R Simplot Company • North Dakota State Mill
THE PLANNING AREA
For purposes of this document, the planning area encompasses that area inside the corporate boundaries of Grand Forks, covering about 19 square miles, and an area extending out 4 miles from the corporate boundaries in three directions, excluding that area to the east in Minnesota and the Grand Forks International Airport. The total planning area is about 47 square miles in size and runs approximately 10 miles from north to south and 6 miles from east to west. See Map 1.2 for an illustration of the Grand Forks Planning Area.
PHYSICAL CHARACTERISTICS
The area in and around Grand Forks is a former lake bed that was covered by ancient glacial Lake Agassiz. This glacial lake extended as far south as the North Dakota South Dakota border and hundreds of miles north into Manitoba and Saskatchewan, Canada. As the continental glacier receded, it left behind a lake that covered the current Red River Valley. When the lake drained, it left behind numerous rivers, coulees, lakes, streams, and tributaries: also remaining were many underground aquifers that now furnish areas surrounding Grand Forks with their water supplies. However, Grand Forks and the surrounding areas receive the majority of their water supply from the Red and Red Lake Rivers. The water is purified and made potable by treatment plants in both Grand Forks and East Grand Forks.
Some of the richest agricultural farmland in the world lies along the Red River. The farmland is subject to frequent flooding, usually during the spring each year. The City of Grand Forks has built an extensive flood protection system including earth dikes and concrete flood walls. This system creates a dry side protecting the city development and a wet side, the Red River floodplain that creates a multi use area called “The Greenway”. Land along the English Coulee, which flows through the western sections of the city, can also experience flooding.
2040 Land Use Plan Update 1 3 1. EXISTING COMMUNITY
2040 Land Use Plan Update 1 4 1. EXISTING COMMUNITY
The mineral resources in the Grand Forks area consist primarily of sand and gravel deposits. These deposits are used in the building and maintenance of roads and general building construction. Although this area contains extensive sand and gravel deposits, they are only used locally. In the late 1970’s, seven exploratory oil wells were drilled in Grand Forks County, but results were negative.
The climate of Grand Forks is characterized by a wide variation in temperature, caused by a nearly continuous air movement, and light to moderate precipitation. Weather patterns in the winter are dominated by cold, dry, polar air mass and in the summer by warm, moist, subtropical air mass that moves quickly into the area, resulting in the characteristic temperature variations. Temperatures drop to 0 degrees Fahrenheit or below on an average of 60 days each year. Spring is the time of great changes in temperature and precipitation. April is when the most rapid warming occurs in the spring, with an average monthly temperature 18 degrees Fahrenheit higher than that of March. The average day of last frost is May 19, but freezing temperatures have been recorded as late as June.
Summer months are characterized by nearly continuous weather patterns that are dominated by weather systems from the arid southwest. The summers are warm but not hot; a maximum temperature of 90 degrees Fahrenheit or more occurs on an average of only 12 days a year. The highest temperature ever recorded in Grand Forks was 109°F (43°C) on July 6, 1936. (Source: NOAA’s National Weather Service)
The first fall frost usually occurs in mid to late September, signaling the end of the growing season and indicating that about two months remain until winter. Average frost depth is 4.5 feet, but the frost has been known to go as deep as seven feet.
The temperature changes accompanied with rapidly moving winter weather systems may, at times, become extreme and be accompanied by blizzard conditions. The lowest temperature ever recorded at the Grand Forks weather station was minus 43°F (−42°C) on January 30, 2004. The mean annual precipitation is 20 inches of water. Average rainfall is approximately 17 inches per year which includes snow or sleet (approximately 36 inches annually). The wettest month of the year is June and the driest is December. There is generally snow cover from the middle of November to the end of March, though this varies depending on the year. Also heavy snowfalls in late October and in April are not uncommon.
POPULATION
Land use planning is concerned with the human and social characteristics of the community’s composition as well as the physical characteristics of growth and development. A study of population for the city of Grand Forks takes into account the number of residents, the age and distribution of the population, natural increase (more births than deaths), and net migration. An analysis of the community’s past trends, current status and future projection of population serves as a guide in anticipating the City’s future land use, housing, transportation and community facility needs.
2040 Land Use Plan Update 1 5 1. EXISTING COMMUNITY
COMPOSITION AND CHANGE
The 2000 census shows the city of Grand Forks Table 1.1 Number of Residents 1890 2010 had a population of 49,321 (Table 1.1). This is a Year Population Net Change % Change decrease of 59 people or 0.12 percent from the 1890 4,979 1990 census population of 49,425. Historically, 1900 7,652 2,673 53.69% Grand Forks has seen an increase in annual 1910 12,478 4,826 63.07% growth rate, but the Flood of 1997 has created a 1920 14,010 1,532 12.28% slight drop in population. The 2010 census 1930 17,112 3,102 22.14% population is 52,838 which is an increase of 7% 1940 20,228 3,116 18.21% from the previous (2000) count. The MPO’s also 1950 26,836 6,608 32.67% has past estimates for population that have been 1960 34,451 7,615 28.38% relatively close to census population counts for 1970 39,008 4,557 13.23% the City of Grand Forks. 1980 43,765 4,757 12.19% 1990 49,425 5,660 12.93% Grand Forks Air Force Base (GFAFB) plays a 2000 49,366 59 0.12% central role in the nation's defense. The GFAFB 2010 52,838 3,472 7.03% guarantees global reach and engagement for the U.S. and its allies through robust air refueling and Source: Census of Population 1890 2010 airlift capabilities. In recent years the GFAFB has experienced a large decrease of population. The 1990 Census recorded 9,343 living on the base. The change in population from 1990 2000 went down by more then half to 4,832 from the removal of the missile and B1 Bomber functions. Another cut by half can be seen with the Census numbers for 2010 which are about 2,367. This recent downsizing has had detrimental affects on the local economy.
Between 2000 and 2010, the state of North Dakota gained 30,391 people. During the same decade the cities of Fargo, West Fargo and Bismarck all had significant increases in population. The city of Grand Forks is ranked as the third largest city in North Dakota according to the 2000 2010 Census information. Most of the growth of the larger cities in the state can be attributed to economic expansion opportunities. Agriculture has become increasingly efficient since the turn of the century, reducing the need for a large population base in the rural areas of the state. Many people from the surrounding rural areas have moved to urban areas seeking jobs.
AGE GENDER DISTRIBUTION
According to the U.S. Census Bureau, the average retirement age in America is 62, and the average length of retirement is 18 years. This is going to be one of the most interesting times in resent history, when the “Baby Boom” generation begins moving into retirement. Another variable that is going to affect Baby Boomers cohort ages (45 54, 55 64) is the pressure from the recession of the American Economy. This may cause the persons that are about to retire to have to work a few more years.
The Baby Boomers age cohort (45 54, 55 64) in 2008 can be seen (Table 1.2) with a loss of 1,542 from the age cohorts (35 44) and a gain of 2,087 in the age cohorts (55 64), indicating the aging of this segment of the population.
The GFAFB has a cohort has a skewed age distribution. The cohort (0 44) lacks people above the age of 44. This tends to make the population as a whole look younger. The college age cohort (20
2040 Land Use Plan Update 1 6 1. EXISTING COMMUNITY
24) increased by over 1,442 which can be attributed to the expansion of the University of North Dakota and the other Higher Educational Facilities in the area. The age cohort (5 9, 10 14, 15 19) has decreased by 827. If you were to look at the 1990 2000 Census Age Gender Distribution data you would see the first signs of this loss of children in age cohort (0 4, 5 9) of 1,307 children.
National trends show that the number of males born is higher then females but the number will even out over 20 years because male infants have higher rates of mortality from disease and accidents. Also, women have a significantly larger presence in the National total population due to women tending to live longer then men.
Table 1.2 Age – Gender Distribution Grand Forks, ND 2000 2010 2000 2000 2000 2010 2010 2010 Age Group Males Females Total Males Females Total Change Under 5 years 1,536 1,374 2,910 1,665 1,552 3,217 307 5 to 9 years 1,431 1,388 2,819 1,309 1,236 2,545 274 10 to 14 years 1,577 1,347 2,924 1,241 1,157 2,398 526 15 to 19 years 2,469 2,543 5,012 2,548 2,437 4,985 27 20 to 24 years 4,434 3,740 8,174 5,367 4,249 9,616 1,442 25 to 34years 3,793 3,188 6,981 4,453 3,698 8,151 1,170 35 to 44 years 3,269 3,388 6,657 2,654 2,461 5,115 1,542 45 to 54 years 2,993 2,874 5,867 3,054 3,193 6,247 380 55 to 64 years 1,520 1,621 3,141 2,600 2,628 5,228 2,087 65 to 74 years 1,016 1,301 2,317 1,193 1,436 2,629 312 75 years and over 866 1,653 2,519 973 1,734 2,707 188 Total 24,904 24,417 49,321 27,057 25,781 52,838 3,517 Source: Census of Population, 2000, 2010
Figure 1.1 Population Pyramids by Gender, Grand Forks, ND 2000-2010
80 plus years 70 to 79 years 60 to 69 years 50 to 59 years 40 to 49 years Age 30 to 39 years 20 to 29 years 10 to 19 years 0-9 years
2000 Females 1816141210 8 6 4 2 0 2 4 6 8 1012141618 2000 Males Percentage of Population
2040 Land Use Plan Update 1 7 1. EXISTING COMMUNITY
80 plus years 70 to 79 years 60 to 69 years 50 to 59 years 40 to 49 years Age 30 to 39 years 20 to 29 years 10 to 19 years 0 to 9 years
2010 Females 1816141210 8 6 4 2 0 2 4 6 8 1012141618 2010 Males Percentage of Population
NATURAL INCREASE
Another important aspect of population analysis is the community trend toward population increase, stability, or decrease. A natural increase occurs in a community when the number of births exceeds the number of resident deaths. Likewise, when resident deaths are greater than the number of resident births, a community could find itself experiencing a natural decrease. Statistics indicate that many counties in the State of North Dakota are experiencing a natural decrease. This natural decrease is due to several reasons including the aging rural population, the decreasing family size, and the migration of young people to urban areas. The City of Grand Forks, primarily because it is a metropolitan growth center, has experienced a consistent rate of natural increase over the last decade. From 2000 through 2008 Grand Forks’ average annual increase was 451 people per year (see Table 1.3), or approximately 1 percent of the population.
Resident births in Grand Forks remained relatively consistent with an average of 794 births annually from 2000 to 2008. The highest number of births in the last decade was in 2008, with 862 children born, and the lowest number of births was in 2001 with 692 children born (Table 1.3). The number of resident deaths in Grand Forks remained steady with an average 333 deaths from 1990 to 2008. The number of deaths per year range from a low of 298 deaths in 1998 to a high of 359 in 2002.
MIGRATION
Another aspect of a population analysis is the migration pattern and trend the community is experiencing. Trends in North Dakota indicate an out migration of the state’s population since 1950. During this 60 year period, rural areas and smaller communities in the state were most affected by this trend of out migration. The rural residents moved to larger urban centers, like Grand Forks, to find better employment and educational opportunities. During this same period the population of Grand Forks nearly doubled. Although the population of Grand Forks has nearly doubled since 1950, 2000 2008 has showed an outward migration of about 2,055 people (see table 1.4). For comparison purposes, the previous (2035) Land Use Plan had 3,997 net migration during the period from 1990 to 2000. The high out migration, occurring during the past 15 yearscan be largely attributed to the devastating flood that occurred in 1997. Many homes were destroyed and the ones closest to the river were never rebuilt. Prior to the flood, a 1.8 percent annual growth rate was
2040 Land Use Plan Update 1 8 1. EXISTING COMMUNITY
anticipated. This was scaled back to a 1.2% annual growth rate, and now further reduced to the currently anticipated 0.9% growth rate.
Table 1.3 Natural Increase Grand Forks, ND. 1990 2008 Table 1.4 Migration Residents Residents Natural Net Migration Year Births Deaths Increase 1) 2000 Population 49,321 1990 1107 312 795 2) Residents Births (2000 2008) 7,149 1991 1025 341 684 1992 1025 340 685 3) Population gains due to annexation 0 1993 1033 340 693 4) Residents Deaths (2000 2008) 3,087 1994 1026 304 722 5) Natural Increase (Lines 2 & 3 minus 4) 4,062 1995 984 344 640 6) Expected 2008 Population (Line 1 plus 5) 53,383 1996 1009 343 666 1997 900 311 589 7) ACS 2008 Population 51,328 1998 845 298 547 8) MPO Estimated 2008 Population 55,138 1999 746 302 444 9) Net Migration 2000 2008 (Line 6 minus 7) 2,055 2000 806 334 472 2001 692 353 339 Source: North Dakota State Health Department Division of 2002 764 359 405 Vital Records 2003 782 325 457 2004 790 342 448 2005 792 322 470 2006 847 357 490 2007 814 355 459 2008 862 340 522
Source: North Dakota State Health Department Division of Vital Records
POPULATION PROJECTIONS
Estimates of the most probable future growth for the City of Grand Forks are based primarily on growth patterns for a small metropolitan area. Population growth due to natural increase and the Table 1.5 Populations Projections expansion of employment opportunities are the Projection Low Mid High primary factors responsible for growth (see table 1.5). Year The city of Grand Forks is classified as a 6% 9% 1.2% metropolitan service center because the community 2010 Census 52,838 52,838 52,838 provides goods and services to an eighteen county 2020 56,008 57,593 59,179 region with a population of approximately 210,000 2030 59,369 62,777 66,280 people. Population forecasts are based on 2040 62,931 68,427 74,234 expectations that the local economy will continue to Projections by GF/EGF MPO expand, primarily due to the continuing growth of Grand Forks as metropolitan service and trade center. Recent developments reflecting this growth include improved and expanded medical facilities and expansion of major retail facilities.
2040 Land Use Plan Update 1 9 1. EXISTING COMMUNITY
The relationship between the economy and population growth is reciprocal in effect. Population growth will stimulate the economy and economic growth will attract more people. In Grand Forks, the expansion of the Industrial Park has helped the local economy. The federal government is currently in the process of reducing the size of the military, which includes military base closures around the world. The GFAFB has a strategic location along the US Canada board that will most likely keep it open. The base has focused more on education and will be connecting with UND’s Aerospace program for unmanned aircraft research.
The employment base at the University of North Dakota has remained stable, but with the increasing enrollment, the creation of more jobs is anticipated (Figure 1.1). Continuing economic growth and employment opportunities in Grand Forks will foster an expanding population. Grand Forks is expected to grow at an annual rate of .9 percent.
Figure 1.2 UND and GFAFB are Key Influences on Grand Forks Population
Source: Office of Urban Development
HOUSING
The city of Grand Forks has an extensive housing stock. The type of housing varies between single family detached homes to high rise condominium units. In 2000, there were about 19,674 housing units in Grand Forks, but eight years later in 2008, the number of housing units in Grand Forks had grown to about 22,842 (Table 1.6), an increase of 16.1 percent.
Single family housing is the predominant housing type in Grand Forks. From 2000 to 2008 there was an increase of 1,895 single family housing units in Grand Forks, which had an increase of 19.8 percent in the overall housing composition. Over 9,634 single family housing units are owner occupied with a median value of $120,700. The remaining 1,612 single family housing units are renter occupied with a median rent of $512 per month in 2008.
2040 Land Use Plan Update 1 10 1. EXISTING COMMUNITY
Table 1.6 Housing Characteristics Units in 2000 # of Units 2000 % of Units 2009 # of Units 2009 % of Units Structure *1 Unit 9,592 48.8% 10,812 46.9% 2 4 Units 1,934 9.8% 1,971 8.5% 5 9 Units 1,240 6.3% 1,289 5.6% 10 or more Units 5,985 30.4% 8,146 35.3% Mobile Homes 923 4.7% 843 3.7% Total 19,674 100.0% 23,061 100.0% Note : Single unit include attached and detached units Source: Census of Population 2000 estimated 2007 2009
Grand Forks multi family housing is a study of contrasts, from the converted basement of a former single family house to a new 98 unit apartment building. Multi unit housing is an important part of Grand Forks’ housing stock, because it fills the needs of highly mobile people, such as college students and military personnel. From 2000 to 2008 there was an increase of about 2,247 multi family units in Grand Forks.
ECONOMY
A thorough analysis concerning economic trends in Grand Forks would go well beyond the scope of this plan, as it is intended as a guide for land use planning. The effect of the economy on land use cannot be overlooked, however, as the general growth and development of a community depends in large part upon the economic opportunities available within the community and its surrounding area.
In Grand Forks, the economy depends upon the level of agricultural, industrial, commercial, business trade and service activity. In addition, the level of activity at the University of North Dakota, the Grand Forks Air Force Base, and other public institutions, also has a major impact on the local economy. Grand Forks is a trade center for a large area in northeast North Dakota, northwest Minnesota, and southern Manitoba. The local economy cannot be understood without considering its relationship to the surrounding regional area. Other indicators affecting the viability of the local economy are employment levels, the volume of wholesale and retail trade, and the amount of industrial activity present in the area. This section will discuss the Grand Forks Economic Trade Area, employment trends in Grand Forks, the local wholesale and retail trade sector, and the local industrial and manufacturing activity.
GRAND FORKS ECONOMIC TRADE AREA
The Grand Forks Economic Trade Area consists of seven counties in northwest Minnesota, eleven counties in North Dakota, and a portion of southern Manitoba (see Map 1.3). Three North Dakota counties have their population centers located in the northern part of the counties (Griggs, Steele, and Traill) and are closer to Grand Forks than Fargo and may reasonably be considered within the
2040 Land Use Plan Update 1 11 1. EXISTING COMMUNITY
Grand Forks Trade Area. Although it is not possible to determine the economic impact of Canadians on Grand Forks in terms of area served, it is assumed to include the area of southern Manitoba as far north as Winnipeg.
The Grand Forks Economic Trade Area is highly specialized in agriculture. It depends, to a significant degree, on agriculture as its basic industry. A variety of crops are grown including wheat, potatoes, flax, sugar beets, barley, sunflowers, and other small grains. While agriculture is the area’s most important industry, it must be noted that agricultural employment has been declining and income growth has been slow. The area’s dependence upon agriculture has been a principal cause Source: MPO of slow economic growth in the trade area. Map 1.3 Grand Forks Economic Trade Area Source: MPO As is typical of most economies that are dominated by agriculture, all but two of the counties in the Grand Forks Economic Trade Area have been declining in population. The total population of the trade area experienced a decline of about 7,158 people from 2000 to 2010. Table 1.7 reflects the county population changes that have occurred in the Grand Forks Economic Trade Area from 2000 to 2010, and also indicates the percentage of change. Major shifts in employment opportunities have resulted in varying growth rates in the areas city populations.
The cities of Grand Forks and East Grand Forks, which together comprise the core of the trade area, have almost doubled in population since 1950. Clearwater County, Minnesota, Pennington County, Minnesota, Polk County, Minnesota, and Table 1.7 Population of Economic Trade Area Grand Forks County, North County 2000 2010 Net Change % Change Dakota each experienced Benson, ND 6,964 6,660 304 4.37% growth within the last ten Cavalier, ND 4,831 3,993 838 17.35% years. Military employment, Clearwater, MN 8,423 8,695 272 3.23% especially the Air Force Grand Forks, ND 66,109 66,861 752 1.14% Base, is important to the Griggs, ND 2,754 2,420 334 12.13% area. Since the military’s Kittson , MN 5,285 4,552 733 13.87% transition from a Cold War Marshall, MN 10,155 9,439 716 7.05% to War on Terrorism stance, Nelson, ND 3,715 3,126 589 15.85% the role of the Grand Forks Pembina, ND 8,585 7,413 1,172 13.65% base has changed Pennington, MN 13,584 13,930 346 2.55% significantly. City officials Polk, MN 31,369 31,600 231 0.74% continue to lobby in support Ramsey, ND 12,066 11,451 615 5.10% of its value to the Red Lake, MN 4,299 4,089 210 4.88% community, state and Roseau, MN 16,338 15,629 709 4.34% country. Steele, ND 2,258 1,975 283 12.53% Towner, ND 2,876 2,246 630 21.91% Traill, ND 8,477 8,121 356 4.20% Walsh, ND 12,389 11,119 1,270 10.25% TOTAL 220,477 213,319 7,158 3.25% Source: Census Population, 2000 2010
2040 Land Use Plan Update 1 12 1. EXISTING COMMUNITY
Grand Forks, a regional hub, is served by highway, rail and air transportation. U.S. Highway 2 runs east and west through Grand Forks while Interstate 29 runs north and south past the west edge of Grand Forks. Rail facilities link Grand Forks to the Great Lakes ports of Duluth and Superior. There are also rail links to Minneapolis and St. Paul, Fargo, 1,400 miles west to the Pacific Coast and Seattle, via Spokane, and north to the Canadian border, extending to Winnipeg. The Grand Forks International Airport is served by Delta and Allegiant Airlines, and also acts as a collection node for Federal Express in this region. There is extensive general aviation traffic in the region due, in large part, to the University of North Dakota Flight Training Center. With the passage of the North American Free Trade Agreement (NAFTA), Grand Forks has continued to become a “crossroads” for international trade. Prior to the enactment of NAFTA (FY 1992 1993), the volume of inbound commercial vehicle traffic at the North Dakota/Canada border was increasing at an 8 percent rate. After NAFTA, the volume increased to a rate of 31 percent. Truck traffic at the Fargo office of the US Customs Service more than doubled between 1994 and 1997, a 29 percent increase according to the NDDOT.
EMPLOYMENT
The percentage of people employed is anticipated to increase, in part because the workforce is tending to work well into their sixties and seventies. However the percentage of people employed is projected to fall slightly over the next few years as people from the ‘Baby Boom’ generation continue to retire (see Table 1.8).
Employment in Grand Forks has increased from 26,715 jobs in 2000 to 29,307 jobs in 2009, an increase of 9.7 percent, in a nine year time span (see Table 1.9). All of the occupations listed in table 1.9 are nonmilitary, wage and salary, full and part time jobs. Employment is classified into six basic categories: management, professional and related occupations, service occupations, sales and office occupations, farming, fishing, and forestry occupations, construction, extraction, maintenance, and repair occupations, production, transportation, and material moving occupation.
Table 1.8 Employment Grand Forks 1960 2040 % Population Year Population Employment Employed 1960 34,451 11,610 34% 1970 39,008 16,344 42% 1980 43,765 22,933 52% 1990 49,425 25,881 54% 2000 49,321 26,715 54% 2010 52,838 34,081* 65% 2020* 57,593 36,687* 64% 2030* 62,777 42,437* 68% 2040* 68,427 46,188* 68% Source: Census of population 1960 2010 *GF/EGF MPO Population .9% and Employment Projection
2040 Land Use Plan Update 1 13 1. EXISTING COMMUNITY
Table 1.9 Historical Employment Grand Forks % of % change 2000 2005- 2006- 2007- Data Set: workforce 2000 to Census 2007* 2008* 2009* 2007-2009 2007-2009 Management, professional, and related 8,560 9,271 9,248 9,051 30.88% 5.74% occupations: Service occupations: 5,502 6,161 5,897 6,667 22.75% 21.17% Sales and office occupations: 6,933 7,461 7,987 8,130 27.74% 17.27% Farming, fishing, and forestry occupations 96 263 122 217 0.74% 126.04% Construction, extraction, maintenance, and 2,714 2,308 2,423 2,151 7.34% 20.74% repair occupations: Production, transportation, and material 2,910 3,166 3,113 3,091 10.55% 6.22% moving occupations: Total 26,715 9,271 28,790 29,307 100% 9.70% * American Community Survey 3-year Estimates Source: ACS Census
About 80% of the people employed in Grand Forks were employed in one of three sectors in 2009; Management/Professional (30.88%), Sales/Office (27.74%), and Service (22.75%) (See Table 1.9). Grand Forks is a regional trade center, which increases the amount of retail and service sector employment.
Government is the third largest employer due to the number of people employed at the University of North Dakota, the Grand Forks School District, and the Grand Forks Air Force Base. The University of North Dakota employed just over 5,000 (full and part time) faculty and support staff in August of 2002. The Grand Forks School Board employed 13,000 people in 2002. The Grand Forks Air Force Base employed over 1,200 full and part time civilians.
The remaining five categories of employment total just over 18 percent of total wage and salary employment: production and material transportation, 10.55%; construction, 7.34%; and farming, fishing and forestry, 0.74%.
COMMERCIAL ACTIVITY
Grand Forks is the dominant retail trade center for an eighteen county trade area that serves an estimated population of 210,269 people. While the population of the rural trade area has been decreasing, the Grand Forks population has remained steady, with the income level as well as regional buying power continuing to increase. The demand for rural goods and services has been limited by the decline in rural population, affecting the amount and type of goods and services provided to the surrounding area.
There has been a large influx of Canadian shoppers in recent years, especially on the weekends and during Canadian holidays. The American/Pembina border crossing is the fourth busiest crossing between the U.S. and Canada. A number of the people crossing the border are going to Grand Forks on business, vacation, or shopping trips. Much of the recent commercial expansion in Grand Forks, especially in the 32nd Avenue South area, can be attributed to the influence of Canadian
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Table 1.11 Historical Commercial Permits 1991 2010 shoppers. The increase in commercial # of activity can also be attributed to the # of Value Permits Value Year Permits recent construction of the Alerus Center (millions) (Repairs & (millions) (New) and Ralph Englestad Arena. Additions) 1991 15 4.9 177 10.8 Two indicators of economic growth 1992 18 8.5 137 8 include the value of building permits 1993 14 8.4 165 13.1 issued and taxable sales in Grand Forks. 1994 22 13.5 162 16 Construction has increased dramatically 1995 25 6.1 185 22.3 over the years ranging from 15.7 million 1996 17 17.7 176 12 dollars in 1991 to 45.6 million dollars in 1997 23 17.8 478 27.2 2010. The value of construction 1998 29 36.5 207 16 building permits includes both new 1999 22 20.9 239 27.2 construction and repairs/additions to 2000 15 80.4 175 14.4 existing businesses (see Table 1.10). 2001 21 9.6 287 18.6 2002 17 20.3 193 15.6 The second indicator of commercial 2003 18 7.2 191 17 activity and economic growth is taxable 2004 23 20.7 199 14.9 sales. Over the past 15 years the amount 2005 24 22.5 224 34.2 of collected sales taxes has steadily 2006 21 45 175 19.3 increased from 5.2 million dollars in 2007 21 30 208 14.5 1995 to over 16 million dollars in 2009 2008 16 19.5 190 15.7 (see table 1.11). In 1996, the citizens of 2009 9 9 194 17.2 Grand Forks approved an increase of 2010 14 22.8 229 12.8 .75 percent in City sales tax to fund Source: Grand Forks Building Inspections Office infrastructure improvements, and economic development activities. From 2008 to 2009, Grand Forks showed the first decrease in total sales and use tax since 1991. The 2010 rate increased beyond
Table 1.12 Grand Forks Tax Revenue 1995 2010 Sales Tax General Sales Total Sales & Use Year Alerus Center & Use Tax Tax Collected 1995 5,244,392 5,244,392 1996 2,143,427 5,512,440 7,655,867 1997 4,631,463 5,797,551 10,429,014 1998 4,574,770 5,915,206 10,489,976 1999 4,485,162 5,771,275 10,256,437 2000 4,608,248 5,858,277 10,734,890 2001 4,839,270 5,770,034 11,417,453 2002 4,970,527 6,321,859 12,143,581 2003 5,149,764 6,462,973 12,477,398 2004 5,657,286 6,638,453 13,183,413 2005 5,710,944 7,606,134 14,334,200 2006 6,152,636 7,644,519 14,813,634 2007 6,894,164 8,562,551 16,590,702 2008 6,882,054 8,547,512 16,582,855 2009 6,682,234 8,301,693 16,109,409 2010 6,909,116 8,583,561 16,652,184 Source: Grand Forks Finance and Administration Office
2040 Land Use Plan Update 1 15 1. EXISTING COMMUNITY
INDUSTRIAL AND MANUFACTURING
The dominance of agriculture upon the trade area economy, as well as the distance of Grand Forks from other major manufacturing areas, has greatly influenced the nature of industry in the area. Industrial activity in the Grand Forks area focuses on the processing and distribution of agricultural related products. The leading industrial activity is food processing, notably potato processing and sugar beet refining. Related industrial activities include seed production and grain milling, the processing of dairy products, soft drink bottling, and the production of chemicals and fertilizers.
Some smaller industrial activities include: concrete products, printing and publishing, farm equipment manufacturing, and other machinery and machine works. Sand and gravel are the only natural resources that are extracted in the area.
The future expansion of Grand Forks’ industrial and manufacturing businesses looks promising. An example of a thriving Grand Forks business includes LM Wind Power which is the world’s leading supplier of wind turbine blades. Additionally, Cirrus, another local business, builds small aircraft. Amazon.com is another example, with customer service and tech support branches located in Grand Fork. The creation of the University Technology Park is intended to attract high tech industries to Grand Forks.
The Energy and Environment Research Center’s (EERC) eleven Centers of Excellence are leading the world in developing advanced energy systems, the prevention and cleanup of air, water, and soil pollution. Each Center of Excellence has received national and/or international recognition as a leader in its respective area.
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Chapter Two: Existing Land Use
INTRODUCTION
The Land Use Inventory indicates the current use for each parcel. On the following page map 2.1 shows the result of the 2010 Land Use Inventory. Due to the scale and complex nature of land use, the detailed inventory was reduced to seven basic categories: residential, commercial, Central Business District CBD (mixed uses), industrial, parks and open spaces, public/semi-public, and agricultural/vacant. Mapping of this nature combines different land uses into homogenous areas. For example, a small convenience store surrounded by residential land uses would disappear on a map of this scale.
The adoption of the 2040 Land Use Plan in 2011 is a revision of the 2035 Land Use Plan in 2005, this revised document will help provide the Planning Commission and City Council with some better tools to control land uses. The previous land use plan introduced several growth management strategies which helped to minimize the potential for “urban sprawl.” The Land Development Code (Chapter 18 of the City Code) provides the principal means of controlling land use. If Map 2.1 is compared with the Existing Land Use Map from 2015 Land Use Plan, it is evident that city limits have grown in the last fifteen years. There has also been a substantial amount of “infill development” over the last decade. The goals and policies of the 2040 Land Use Plan will encourage a more compact urban community. The following sections explore the various land uses found in the City in more detail as well as the City’s transportation system.
EXISTING RESIDENTIAL LAND USE
Historically, residential development in Grand Forks has followed a concentric pattern of growth, moving outward from the CBD to the north, south, and west, with the Red River of the North acting as a natural barrier against any eastward growth. This growth pattern is reflected by the differences in age, loss of agricultural land, lot size, density, and street width as residential development progressed. As areas closer to the CBD become built up, new development expanded further out from the CBD. At present, the development is no longer concentric around the CBD; instead, new residential development is directed by limitations of physical constraints, the attraction of amenities, and proximity to desirable land uses.
Physical barriers affecting residential development include items such as arterial roads, rivers, and higher intensity uses such as commercial and industrial areas. Amenities such as rivers and coulees are considered highly desirable for residential development. The proximity to land uses such as parks, schools, and shopping also influence residential development.
2040 Land Use Plan Update 2-1 2. EXISTING LAND USE
2040 Land Use Plan Update 2-2 2. EXISTING LAND USE
Existing residential land use accounts for 3,064 acres or 30.7 percent of the land within the present city limits (see Table 2.1 and Map 2.2). About 68% of the residential land in Grand Forks is single- family detached housing. The next largest land area category is multiple-family, comprising over 14.1 percent, or 432 acres. The remaining 18 percent of residential land includes a combination of single-family-attached, other residential and mobile home uses.
Table 2.1 Residential Development – City of Grand Forks Percent of Housing Residential year 2008 Acres Residential Area Units Net Density Single-Family Detached 2,080.5 67.9 9,752 4.7 Single-Family Attached 162.4 5.3 1,735 10.7 Multiple-Family 432 14.1 10,459 24.2 Mobile Homes 193 6.3 896 4.6 * Other Residential 196.1 6.4 2,613 13.3 Total Residential 3,064 100 25,455 8.3 Source: MPO, Census 2006-2008 ACS Data Includes Dormitories and University Housing, Nursing Homes, and Sororities and Fraternities, etc.
Early residential development in Grand Forks was based on a grid system of 300-foot by 300-foot blocks separated by 80 feet of right-of-way. Many of these blocks were divided into 25-foot by 140- foot lots, with a 20-foot wide alley. These narrow lots created a very dense residential area with as little as two feet between houses. Today this is considered undesirable for housing due to the lack of privacy, light, and air movement, not to mention the ease with which fire can spread from house to house. The Grand Forks Land Development Code now requires a minimum lot width of 45 feet for single-family lots. On occasion the city has allowed for development on narrower lots in areas of redevelopment. Table 2.2 Housing Units North Dakota, 2000-2010 Housing Percent Total Total Units Increase in Cities Housing Housing added Housing 2010 10,000+ Units Units between Units Percent Population 2000 2010 2000-2010 2000-2010 Vacant Bismarck 24,217 28,648 4,431 18.30% 4.8% Dickinson 7,033 7,865 832 11.83% 4.4% Fargo 41,200 49,956 8,756 21.25% 6.3% Grand Forks 20,838 23,449 2,611 12.53% 5.1% Jamestown 6,970 6,983 13 0.19% 6.0% Mandan 6,958 7,950 992 14.26% 4.0% Minot 16,475 18,744 2,269 13.77% 4.7% West Fargo 5,968 10,760 4,792 80.29% 3.8% Source: Census 2000, 2010
SINGLE-FAMILY HOUSING
Single-family housing is the most desirable type of housing. The vast majority of single-family housing is owner-occupied but there are also single-family rentals. Grand Forks has a wide range of
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single-family housing including large turn-of-the-century Victorian houses, ranch houses, townhouses, and duplexes.
SINGLE-FAMILY DETACHED
Single-family detached housing makes up for 67.9% of the Grand Forks residential land use acreage (Table 2.1). From the 2000 Census Data to 2009 Census American Community Survey (ACS) Information, there was an increase of 1,576 single-family housing units in Grand Forks, including both attached and detached units. Single-family detached and attached, when grouped together, allow single-family housing to be more prevalent (11,487 homes) than multi-family (10,459 units); however, during this time period, multi-family housing replaced single-family detached housing as the most common housing type. Single-family housing consists of just under half of all housing units in Grand Forks. The remainder of housing can be found in a variety of different housing types, including duplexes, townhouses, multiple-family complexes, and mobile homes.
Table 2.3 Single Family Housing Units North Dakota, 2009 (Attached and Detached) Cities 20,000+ Population Total SF Total SF SF Housing Units % Change in Single- with 3 Year Housing Housing added between Family Housing Units Data Units 2000 Units 2009 2000-2009 2000-2009 Bismarck 12,852 14,535 1,683 13.10% Fargo 18,357 20,650 2,293 12.49% Grand Forks 9,911 11,487 1,576 15.90% Minot 10,021 10,285 264 2.63% West Fargo 3,652 6,295 2,643 72.37% Source: 2000 Census and Census ACS data 2007-2009 (Table B25024)
Cities 10,000+ Population Total SF Total SF SF Housing Units % Change in Single- with 5 Year Housing Housing added between Family Housing Units Data Units 2000 Units 2009 2000-2009 2000-2009 Dickinson 4,668 4,968 300 6.43% Jamestown 4,270 4,172 -98 -2.30% Mandan 4,134 4,956 822 19.88% Source: 2000 Census and Census ACS data 2005-2009 (Table B25024)
2040 Land Use Plan Update 2-4 2. EXISTING LAND USE
2040 Land Use Plan Update 2-5 2. EXISTING LAND USE
Between 2000 and 2010, the average value of new single-family homes and duplexes (see Table 2.4) increased by almost 30 percent, an average increase of about 65,000 dollars per home. This usually reflects a trend toward larger single-family houses. The increase in the size and cost of single-family housing may be explained, in part, by factors including an increased demand for housing, the increase in raw land cost, the trend of building more lucrative custom homes rather than less costly tract houses, the higher cost associated with improving the land, and an increase in the cost of building materials.
Table 2.4 Single-Family & Duplex Average Building Permit Value, Grand Forks, 1990-2010 Single-Family & Net Change % Increase or Duplex Average from Previous Decrease from Year Building Permit Value Year Previous Year 1990 92,732 NA NA 1991 92,246 -486 -0.5% 1992 88,982 -3,264 -3.7% 1993 92,462 3,480 3.8% 1994 71,511 -20,951 -29.3% 1995 87,770 16,259 18.5% 1996 74,753 -13,017 -17.4% 1997 72,730 -2,023 -2.8% 1998 81,690 8,960 11.0% 1999 129,549 47,859 36.9% 2000 152,793 23,244 15.2% 2001 184,164 31,371 17.0% 2002 154,871 -29,293 -18.9% 2003 142,402 -12,469 -8.8% 2004 133,248 -9,154 -6.9% 2005 144,229 10,981 7.6% 2006 167,439 23,210 13.9% 2007 192,649 25,210 13.1% 2008 220,394 27,745 12.6% 2009 217,686 -2,708 -1.2% 2010 217,726 60 0.02% Source: Grand Forks Building Inspections Office
The city has also experienced a lasting impact from the flood. The Flood of 1997 had a dramatic effect on the supply of entry-level housing within the city. The flood devastated areas like the Lincoln Park area and the Riverside Drive area. These areas provided the city with many of the entry-level single-family detached homes and affordable housing. After the flood, the city worked to replace this housing with new homes in the Congressional neighborhood subdivisions northwest side of town. However, it was found that many homeowners were not able to afford the cost of the new homes. This concern is still causing issues today as it relates to the cost of housing, due to the low supply of affordable housing.
2040 Land Use Plan Update 2-6 2. EXISTING LAND USE
SINGLE-FAMILY ATTACHED
Single-family attached housing provides a wide variety of home-buying options, including: duplexes, twin homes, and townhouses. Most single-family attached housing units have separate exterior entrances and have a shared “common wall” with another living unit.
The popularity of single-family attached housing has been steadily increasing in Grand Forks. Single-family attached housing appeals to several different segments of the housing market: young families with small children looking to enter the housing market, young urban professionals, and older couples with no children at home. A large part of the appeal of owning a townhouse or condominium is the ability to build or maintain financial equity in the property, while leaving exterior building and grounds maintenance to a condominium or townhouse association.
MULTIPLE-FAMILY HOUSING
The multiple-family housing sector is very important to Grand Forks because of the high number of college students and Air Force personnel who live in the City. Over 48 percent of Grand Forks housing units are multi-family, which has the second highest percentage of multi-family housing among the major cities over 10,000 in the state of North Dakota (see Table 2.5).
Table 2.5 Multiple Family Housing Units North Dakota Total Multi Cities 20,000+ Housing Family % of Units Population with 3 Units Housing Multiple Family Multi-Family Year Data (2010) Units (2000) Housing Units (2009) (2009/10 Data) Bismarck 28,648 8,750 9,877 34.48% Fargo 49,956 21,704 24,696 49.44% Grand Forks 23,449 9,970 11,406 48.64% Minot 18,744 4,900 6,011 32.07% West Fargo 10,760 1,787 3,107 28.88% Source: 2000, 2010 Census and Census ACS data 2007-2009 (Table B25024)
Total Multi Cities 10,000+ Housing Family % of Units Population with 5 Units Housing Multiple Family Multi-Family Year Data (2010) Units (2000) Housing Units (2009) (2009/10 Data) Dickinson 28,648 2,123 9,877 34.48% Jamestown 6,983 2,137 2,514 36.00% Mandan 7,950 1,501 1,993 25.07% Source: 2000, 2010 Census and Census ACS data 2005-2009 (Table B25024)
2040 Land Use Plan Update 2-7 2. EXISTING LAND USE
There was a net increase of 1,436 multiple-family housing units between 2000 and 2009 in Grand Forks, largely in structures with 10 or more residential units (see Table 2.6). This increase could be attributed to the increase in the UND student population and lack of affordable housing.
Multi-family housing can be divided into two basic categories: designed multi-family and converted single-family houses. Most of the multi-family units in Grand Forks are rentals, but there are some condominiums (Columbia Towers, Chateau Condominiums, etc.) that qualify as multiple-family housing units with each unit having a different owner. Some traditional apartment buildings also have been converted into condominiums.
Table 2.6 Housing Characteristics, Grand Forks 2000 # 2000 % 2009# 2009 % of of of of Units in Structure Units Units Units Units *1 Unit 9,911 42.98% 10,812 47.33% 2-4 Units 2,082 9.03% 1,971 8.63% 5-9 Units 956 4.15% 1,289 5.64% 10 or more Units 6,932 30.06% 8,146 35.66% Mobile Homes 949 4.12% 843 3.69% Total 23,061 100.00% 22,842 100.00% Source: Census Housing 2000, ACS 2007-2009 Estimates Notes: Single unit include attached and detached units. Other residential not included in chart.
Single-family conversions are typically located in the City’s older neighborhoods. The conversion from a single-family house to a multiple-family building is accomplished by building walls, and creating separate bath and kitchen facilities. The units may have separate or common entrances. Some older single-family homes have been converted into as many as eight housing units. Conversion of single-family homes to multiple-family housing units can create neighborhood problems. One of the more obvious problems is the lack of parking, which often impacts City streets. Instead of a single-family house with two to three cars, it is possible to have eight or more housing units with two cars per housing unit, resulting in backyards being paved, as well as on-street parking. Some less obvious problems include heavier demand on City services such as water, sewer, police, fire protection, and lack of open space.
In the last few years, the city has enacted ordinances designed to limit the negative effects of these conversions. Rental licenses are now required in the city, as well as minimum off-street parking requirements for rental homes in single-family neighborhoods.
MOBILE HOMES
The development of mobile homes grew out of the post-World War II demand for inexpensive housing. Currently, there are five areas zoned for mobile homes. The current regulations for the development of any new mobile home park require a minimum of an eight-acre tract with a
2040 Land Use Plan Update 2-8 2. EXISTING LAND USE
maximum of eight units per acre. All of the infrastructure improvements in a mobile home park are installed and maintained by the mobile home park’s developer, but the City engineering construction specifications still must be met. The development of mobile home parks also raises some safety questions. A house with a block or poured concrete foundation system is not as vulnerable to damage from high winds and tornadoes as a mobile home with tie downs. In an effort to reduce some of the safety concerns, the Grand Forks Land Development Code regulates the tie downs on mobile homes; it also requires an area equal to 20 square feet per mobile home be provided for emergency underground storm shelter.
As the city of Grand Forks developed, some small mobile home parks sprang up in residential areas throughout the City. The problem with these small mobile home parks intermixed with single- family homes is the increased demand placed on City services and parking. In the early 1980s, the city of Grand Forks tried to eliminate all non-conforming mobile home parks. Currently, all mobile home parks are conforming, with one exception located at the northwest corner of the 13th Avenue South and South 14th Street intersection, which contains only five mobile homes.
Table 2.7 Mobile Homes Information North Dakota, 2009 Cities 20,000+ Population with 3 Total Housing Mobile Homes % of Year Data Units (2010) (2009) Mobile Homes Bismarck 28,648 2,486 8.68% Fargo 49,956 897 1.80% Grand Forks 23,449 896 3.82% Minot 18,744 1,403 7.49% West Fargo 10,760 663 6.16% Source: 2000, 2010 Census and Census ACS data 2007-2009 (Table B25024)
Cities 10,000+ Population with 5 Total Housing Mobile Homes % of Mobile Year Data Units (2010) (2009) Homes Dickinson 28,648 269 0.94% Jamestown 6,983 396 5.67% Mandan 7,950 1,160 14.59% Source: 2000, 2010 Census and Census ACS data 2005-2009 (Table B25024)
Each city above 10,000 in North Dakota has its preferences regarding mobile homes as a housing choice. Although mobile homes can be a quick answer to creating housing, if not planned carefully they can become unaesthetic very easily. Table 2.7 gives a snapshot of the mobile home units in North Dakota. One can start to see a trend, as a city grows larger and becomes more stable, mobile home parks are a less desirable form of residential growth.
Although mobile homes received a slight revival in Grand Forks after the flood due to ability to quickly provide housing, the subsequent years have reduced the numbers below 1992 levels. At the same time the total acreage has increased, likely due to the desire of some mobile home owners preferring larger lots.
2040 Land Use Plan Update 2-9 2. EXISTING LAND USE
2040 Land Use Plan Update 2-10 2. EXISTING LAND USE
EXISTING COMMERCIAL LAND USE
There are presently five concentrations of commercial development within the city of Grand Forks: the Central Business District (CBD); South and North Washington Street; Gateway Drive; South Columbia Road, and 32nd Avenue South. Grand Forks also has scattered commercial development on some other minor arterial and collector streets such as DeMers Avenue and 42nd Street.
Currently, there are 996 acres of commercially developed land within the city, or 10 percent of all developed land. The area zoned for commercial development inside the city limits totals 1,299 acres. Streets rights-of-way and undeveloped property make up the difference between the developed property and the zoned property. There is also some developed commercial land outside the city limits along Gateway Drive and North Washington Street.
CENTRAL BUSINESS DISTRICT
A great deal of change has occurred in the CBD since the completion of the land use plan in 1980. The CBD was once the retail and economic hub of the City, but the downtown has lost a substantial portion of its retail activity over the last 30 years. Many businesses have been replaced by professional services and entertainment uses, while other storefronts remain vacant. Many retail businesses moved from the downtown to the large regional shopping mall in southwest Grand Forks. The flood of 1997 had left a lasting impact on the CBD with the closing and removal of the City Center Mall. Over the years the type of retail business in the CBD changed from large department stores to smaller specialty shops, although the retail vacancy remains high. Today, the land use in the CBD is a mixture of government and professional offices, retail stores, and housing. These land uses, combined with the dense development, creates a unique urban character that can only be found in the downtown and can be a very good example of Mixed Use development (see Map 2.4)
The CBD has retained a hub of professional businesses and office uses for the City and the surrounding region. In the CBD there are banks, financial consultants (e.g., stockbrokers, financial planners), insurance offices, and law offices. This shift from retail business has increased the demand for longer-term parking. Fewer people are coming downtown to shop for a couple hours during various times of the day. Instead people work in an office setting and need to park their cars for eight to ten hours.
Government institutions have been located in the downtown since the founding of the City. The federal, state, county, and city governments all have their administrative offices downtown. Public uses in the downtown include Central High School, and the Federal and County court houses. The City operates various parking lots and parking ramps throughout the CBD, totaling 2,747 spaces in the downtown according to the Downtown Parking Study from 2006. These ramps are paid for through parking assessments on the downtown businesses.
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The downtown also affects the surrounding residential neighborhood (see Map 2.4). Residential uses in the downtown fringe are a mixture of both single-family homes and multiple-family apartments, with some commercial and public uses. Many of the multiple-family apartments were originally built as large single-family homes and later converted into apartments. Numerous structures in the fringe area are in poor condition due to age and lack of maintenance.
Map 2.4
Access to the CBD is provided by a grid street network that parallels the Red River. Traffic from Gateway Drive (U.S. Highway 2) to the north is carried to the CBD by North Fifth Street and North Fourth Street. Belmont Road and Cherry Street connect the CBD with the major residential area to the south between South Washington Street and the Red River of the North. DeMers Avenue and University Avenue provide access to the downtown from the west. DeMers Avenue also provides direct access from I-29 to the CBD and eliminates some of the auto-rail conflict caused by the Burlington Northern railroad tracks running through the southern portion of the CBD. These tracks run along Kittson Avenue and cut across South Third, Fourth, and Fifth Streets, bisecting the CBD and creating an auto-rail conflict on these streets. These same intersections have been a part of the Downtown Grand Forks Quiet Zone Study that are being fully implemented, including upgrades to ten railroad crossings, during 2011. The Quiet Zone increases the level of safety at specific intersections no longer requiring trains to blow their horns for safety.
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RIVER FORKS DOWNTOWN PLAN UPDATE
A revitalization plan, Downtown Grand Forks, North Dakota, a Plan for the Future, was adopted by the City’s Planning and Zoning Commission and City Council in 1982 as an element of the Grand Forks Master Plan. In 1994, the Cities of Grand Forks and East Grand Forks approved the River Forks Plan - a Vision of the Future as an update to the 1982 Plan. Since then The River Forks Downtown Plan Update was adopted in 2009 which identifies five major principles:
• Specialized retail remains in the downtown, while traditional retail functions have moved to the suburban areas; • Despite the retail losses, downtown provides a substantial employment base and residential element; • Coordination and cooperation between Grand Forks/East Grand Forks is important for downtown redevelopment; • Special events and festivals in the downtown area to bring people back to the community’s traditional gathering place; • Improving the riverfront area and creates a cultural and recreational resource for the enjoyment of both communities;
Through intergovernmental cooperation and planning, the River Forks Downtown Plan outlines development strategies for both downtowns as one entity, rather than two separate downtown areas. This study focuses on the transportation, land use, urban design, and organization of the downtown areas (Map 2.5). It was found that the downtown area has issues related to a lack of supportive retail establishments, residential options, bike/pedestrian mobility, parking, and a lack of a unique downtown character.
Map 2.5 River Forks Downtown Plan Update
Source: River Forks Downtown Plan Update
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The River Forks Downtown Plan Update outlined five specific recommendations for the cities of East Grand Forks and Grand Forks: • Focus on filling vacant spaces in the Core Downtown area (beginning with DeMers Avenue); recommend that remaining vacant spaces in the Riverwalk Centre in East Grand Forks be daylighted. • Develop an ongoing promotional campaign that targets the Downtown area. • Solicit ongoing input from Downtown businesses • Identify and Target Specific Users for Available Spaces • Identify key locations/ areas for future development.
Other observations and recommendations throughout the River Forks Downtown Plan Update include:
Transportation • While there was found to be a surplus of parking in East Grand Forks, parking management practices were recommended. Some of these recommendations include signage indicating were parking is available, the encouragement of employers to provide prime parking areas to customers rather than employees, future construction of parking ramps rather than surface lots, and parking restrictions/enforcement. • The use of a downtown circulator bus, with rides given between the downtowns and various parking locations, was also an option given for parking and transportation issues. • Also, multi-use paths could be installed with the renovations of either the Kennedy or Sorlie Bridges in order to connect the bikeway network at a downtown location.
Land Use • A mix of office, retail, and residential use should be used in the downtown area. • Efforts should be made to fill vacant spaces before new construction of buildings takes place. There was found to be more than enough office space for the next ten years downtown. • There should also be enough vacant space for retail, although a grocery/pharmacy complex would not fit well because of the parking needs involved. • There was found to be a likely demand for more residential options in the downtown area in the near future.
The River Forks Downtown Plan addresses all of the Land Use Plan’s Goals and Policies: 1. Develop a cohesive citywide land use pattern that ensures compatibility and functional relationships among activities and between jurisdictions. 2. Advocate land use development that is accompanied by a sufficient level of supportive services and facilities (roads, storm water management systems, parking, access, sidewalks, etc.). 3. Maintain and, where necessary, upgrade the aesthetics within all land use areas, especially along the city’s Gateway Corridors, as identified in Chapter 4 of the Grand Forks Urban Design Plan.
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4. Maintain, protect and, where necessary, upgrade the character of individual neighborhoods, which includes elimination of non-conforming and incompatible uses. 5. Promote the continued development where municipal services exist, of high quality, high value industries that enhance the economy through an improved tax base and expanded employment base for city residents.
To ensure that future development downtown complemented and was compatible with the post- flood projects they helped oversee, the DDC worked closely with consultants to develop downtown design standards. In August 1999, an ordinance was passed establishing the Downtown Design Review Board (DDRB) and giving the DDRB the authority to adopt design guidelines. While this does not constitute a downtown plan, it provides guidance to those undertaking new construction or renovating existing structures within downtown Grand Forks. The guidelines adopted by the DDRB identify six major principals:
• Exterior renovation and new construction within the Grand Forks downtown area shall comply with these Guidelines. Any exterior renovation of structures within the Grand Forks downtown area over 50 years old shall also comply with the Secretary of the Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings, published by the U.S. Department of the Interior. • Any new construction or exterior renovation of an existing structure within the Grand Forks downtown area shall reflect the historic context of the downtown scale, bulk, massing, material, color, texture, line and pattern. Contemporary designs shall respect the historic character of their context, and shall maintain the street building line established by their neighbors. • Historic elements, distinguishing features, and examples of craftsmanship shall not be removed or covered during alterations of existing structures within the Grand Forks downtown area. Where repair of such elements or features are not feasible, like replacements shall be considered. • Signage, awnings and lighting shall not cover architectural façade elements, and shall be in scale with the façade and immediate context. These elements shall reflect historic prototypes in scale and placement but subject to design review. • New off-street parking facilities to be provided in conjunction with renovations or new construction shall be screened from view from the street, and be located either behind, within, underneath or between structures. In no case shall off-street parking occur in front of a new building within the Grand Forks downtown area. • All new construction and renovations shall be in compliance with the Americans with Disabilities Act of 1990 (ADA).
RENISSANCE ZONE
The North Dakota Renaissance Zone act authorizes cities within North Dakota to apply to the state for designation of part of the city as a “renaissance zone.” State and local tax incentives are available to approved projects within a “Ren” Zone. In June 2000, the City of Grand Forks approved the Renaissance Zone Development Plan designating a twenty-two block area in downtown Grand Forks (see Map 2.6); this was subsequently approved by the North Dakota Division of Community Services in February 2001. The following goals are listed in the Grand Forks’ Development Plan:
• Create mix-used commercial/residential opportunities in the traditional downtown area. • Create mixed-use single-family/multi-family residential areas adjacent to the downtown area. • Create entertainment linkages between the Renaissance Zone and the Greenway. • Create linkages between the Renaissance Zone and the University of North Dakota.
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• Maximize future investments and protect past investment. • Strengthen the post Renaissance Zone tax base. • Restore historic properties through viable economic use.
The 2011 Renaissance Zone modifies the original 22-block (2001-2010) Renaissance Zone area. Five blocks were removed due to either the completion of approved Renaissance Zone projects or a lack of privately owned land with redevelopment potential. Five blocks were added to the Renaissance Zone on the southeast (along Fifth Street) and six blocks were added to the west (along University Avenue). A legislative and population changes also played a role in the map changes. A new Renaissance Zone “island” was created, located on South Washington Street, including the Grand Cities Mall, the Town & Country Mall, and the Public Library. It was selected because of the high number of vacant commercial spaces and potential for reinvestment. The 2011 Ren Zone plan creates four distinct but interrelated “subzones”: the Heart of Downtown; the University Avenue corridor; the Central Park Neighborhood transition area; and the South Forks district.
Map 2.6 Renaissance Zone
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SOUTH WASHINGTON STREET
The South Washington Street Corridor begins at the intersection with DeMers Avenue and runs south to 62nd Avenue South. South Washington Street is a five-lane undivided street Map 2.7 from DeMers Avenue to Hammerling Avenue; from Hammerling Avenue to 32nd Avenue South the street becomes a four-lane divided street with right and left turn lanes. The southern end of this corridor handles approximately 3,100 vehicle trips per day; the middle of the corridor, near 32nd Avenue indicates an average of 10,000 vehicle trips per day; and northern end near DeMers Avenue has an average of 30,000 vehicles per day.
The South Washington Street corridor is dominated by commercial land use (see Map 2.7). These commercial land uses can be divided into three different categories: vehicle-oriented, retail, and service based businesses.
Vehicle-oriented businesses are attracted to South Washington Street in large part due to the vehicle counts and capacity of this principal arterial street. All vehicle-oriented businesses place a premium on exposure to the traveling public and ease of access. Some examples of vehicle-oriented businesses include service stations, restaurants, motels, and automobile sales. South Washington Street also has a substantial number of retail businesses located throughout the corridor. Grand Cities Mall is the largest retail facility located along
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South Washington Street. It is considered a community shopping center, because it attracts mostly local residents. Grand Cities Mall has two anchor stores: Big Kmart and Ace Hardware. Most of the remaining shops in the mall are small, locally-owned businesses. The remaining retail stores along South Washington Street can be found in strip malls, or single-occupancy, free-standing buildings. The third type of commercial activity found along South Washington Street is service- based businesses such as hair salons, banks, and professional services. Most of these businesses are relatively small in size compared to both vehicle-oriented and retail businesses.
The section of South Washington Street from DeMers Avenue to Hammerling Map 2.8 Avenue has many driveways and poorly marked entrances. The commercial structures in this area are located close to the right-of-ways, preventing the development of frontage roads. A combination of frequent turning movements and large traffic volumes generated by the commercial strip causes traffic congestion and numerous accidents. Despite these less-than-optimum circumstances, this area of South Washington Street is not expected to change due to the excessive cost of closing accesses and moving businesses.
Frontage roads exist on South Washington Street south of Hammerling Avenue, providing adequate separation between the commercial establishment and the street. The frontage roads have helped alleviate some of the traffic safety and congestion problems caused by direct access on South Washington Street north of Hammerling Avenue. A problem with these frontage roads, however, is the lack of stacking room at the intersections with east/west streets. In 1998, South Washington Street was reconstructed. The reconstruction eliminated the drained ditches along both sides of the road, and made some improvements to the frontage roads.
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The Grand Cities Mall, located in the southwest quadrant of the intersection of 17th Avenue South and South Washington Street exhibits many of the features desired for commercial shopping areas. While vehicle access from the service road to the shopping center complex could be more effectively controlled, the shopping center does provide convenient off-street parking. The clustering of numerous business enterprises into a single shopping center provides good commercial exposure and accessibility for the general public. There are also additional shopping facilities located on the east side of Washington Street in proximity to the Grand Cities Mall.
NORTH WASHINGTON STREET
This corridor, beginning at the Washington/DeMers intersection and proceeding north to the city limits, is characterized by its progression from commercial to industrial land use (see Map 2.8). Traffic counts from DeMers/Washington intersection show that over 25,000 vehicle trips are made on this route during an average day. Like its South Washington counterpart, North Washington Street between DeMers and 8th Avenue North is a five-lane street, dominated by vehicle-oriented businesses – used car dealers, service stations and convenience stores. Residential neighborhoods on both sides of North Washington are just behind most of the commercial development. There are locations along North Washington Street where the side yards of several single-family homes border the street.
Beginning at 8th Avenue North, Washington Street splits into a four lane divided roadway. Industrial land uses begin to appear on the east side of the street (see the North-side description in the Industrial Section for additional information). Commercial development continues along North Washington Street past Gateway Drive. The land use changes from commercial to industrial at approximately 18th Avenue North and continues beyond the city limit.
GATEWAY DRIVE
Much of the previous discussion concerning commercial development along South Washington Street is also applicable to commercial development along Gateway Drive (U.S. Highway 2), which runs east and west through northern Grand Forks. Both sides of the road have a mixture of commercial, public, and industrial land uses (see Map 2.9).
Most of the commercial development along Gateway Drive is vehicle oriented commercial. There are new and used car dealerships, truck stops, hotels/motels, eating establishments, and service/convenience stores. There is also a significant amount of public land along Gateway Drive. The “Bronson Property,” located in the southwestern quadrant of Gateway Drive and North Columbia Road, is approximately 140 acres owned by the University of North Dakota which houses many facilities such as: the Ralph Engelstad Arena, UND Wellness Center, a gas station and luxury houses. Other public land uses include: three cemeteries near the Gateway Drive and North Columbia Road Intersection, and the Grand Forks County Fair Grounds, located just one block north.
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Map 2.9
Gateway Drive has a substantial amount of industrial development throughout the corridor with a heavy concentration located on the north side of Gateway Drive between North Columbia Road and Interstate 29. Some of the uses include warehousing, petroleum distribution, contractor offices, asphalt production, concrete manufacturing, potato processing, and auto salvage. The industrial land uses along Gateway Drive are more extensively addressed in the Industrial section of this chapter.
The portion of Gateway Drive from Columbia Road to the Kennedy Bridge has numerous driveways and poorly marked entrances to commercial properties, creating traffic conflicts. Some commercial buildings adjacent to Gateway Drive are located close to the right-of-way, making it difficult to install a parallel frontage road. The portion of Gateway Drive from Columbia Road to the western edge of the city limits makes extensive use of frontage roads.
SOUTH COLUMBIA ROAD
The South Columbia Road Corridor begins at the intersection with DeMers Avenue and runs south to 62nd Avenue South. South Columbia Road is a five-lane undivided street from DeMers Avenue to 32nd Avenue South; from 32nd Avenue South to 62nd Avenue South the street becomes a two- lane undivided street. South Columbia Road is functionally classified as a principal arterial and provides Grand Forks with a major north-south connection over the Burlington Northern rail yard and right-of-way. South Columbia Road is an arterial street which was given a high-level of access control consideration. Special care was given regarding the location and number of intersecting streets and to the elimination of access from adjacent properties. Vehicular access is controlled by both the City and the North Dakota Department of Transportation (NDDOT). Due to access
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control most commercial properties along South Columbia Road use rear service roads or access driveways on the streets that are perpendicular to it.
According to 2000 traffic count information collected by the North Dakota Department of Transportation (NDDOT), the road segment just south of the Map 2.10 Columbia Road Overpass handled an average of 22,060 vehicles trips per day in 2010, while the road segment between 28th Avenue South and 32nd Avenue South averaged 15,525 vehicle trips per day during the same time period. There has been substantial commercial development around the southern portion of South Columbia Road since 2000 (Buffalo Wild Wings, Pier 1 Imports, American Federal Bank, Dairy Queen, etc.), which helps understand the increased traffic on South Columbia Road.
Although South Columbia Road is considered a commercial corridor, it is actually a mixed-use area with commercial, residential, park/open-space uses, and public land uses (see Map 2.10). Most of the land uses paralleling this corridor were developed through the City’s Planned Unit Development ordinance. This ordinance, developed and used extensively since 1974, encourages the integration of new urban design concepts (e.g., signage, landscaping, limited access, architecturally designed building types). South Columbia Road has residential development in three locations. The side yards of several single-family homes are located along South Columbia Road between 9th and 11th Avenue South. Along a small portion of South Columbia Road, just south of the medical park, are several townhouses that are adjacent to the street. A 300-unit mobile home park is located on the east side of South Columbia Road between 20th Avenue South and 24th Avenue South, with one access to South Columbia Road at approximately 21st Avenue South.
There are two substantial public land uses along South Columbia Road: a regional medical complex
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and a power sub-station. The Altru Medical Complex, classified as a public land use, is located between DeMers Avenue and 14th Avenue South. The complex is approximately 60 acres in size, and provides regional health care services to Grand Forks and the surrounding region. The power sub-station is located at Columbia Road and Knight Drive.
Apollo and Ulland Parks are the only park/open space uses located along South Columbia Road. Apollo Park is located in the southeast quadrant of 17th Avenue South and South Columbia Road (see Map 2.10). Ulland Park is located in the southeastern corner of South Columbia Road and 47th Avenue South.
The Medical Park Mall is located across from the Altru Hospital, on the east side of South Columbia Road. This is a neighborhood shopping center with a grocery store, sporting goods store, restaurant and a variety of small retail stores in the same complex. From this area, commercial development continues south along South Columbia Road and south of 17th Avenue South, and extends past 32nd Avenue South.
Columbia Mall, a regional shopping center located at the intersection of Columbia Road and 32nd Avenue South, is the largest retail center in the Greater Grand Forks trade area. Columbia Mall contains three ‘anchor stores’ and approximately 80 smaller retail stores located perpendicular to the interconnecting pedestrian walkways that link the anchor stores. Columbia Mall has acted as a magnet, attracting additional commercial development to the surrounding area. Most of the fringe lots surrounding the mall have been developed, primarily into retail commercial or office uses. A significant financial district has sprung up between the mall ring road and South Columbia Road, which serves the developing commercial area.
32ND AVENUE SOUTH
The residential portion of 32nd Avenue South begins at the Red River and extends almost as far as South Washington Street. The portion of 32nd Avenue South between South Washington Street and South 42nd Street was constructed in 1978 and is the newest commercial corridor in Grand Forks. The road itself is a four lane divided street with right and left turn lanes. It is designed to carry significant traffic between South Washington Street and Interstate 29. In 2004, the City expanded the intersection of 32nd Avenue South and South Columbia Road.
100 percent of the frontage on the north side and approximately 81 percent of the frontage on the south side of 32nd Avenue South is developed (see Map 2.11). The commercial development along 32nd Avenue South benefits from its proximity to Columbia Mall, its easy access to the 32nd Avenue Interstate 29 interchange, and high traffic volumes at the intersection of Columbia Road and South Washington Street.
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Map 2.11
EXISTING INDUSTRIAL LAND USE
The Land Use Inventory identified 1,036 acres (or 10 percent of the City) zoned for industrial land use within the City limits (see Map 2.12). There are approximately 742 acres zoned industrial outside the City limits, but within the City’s two-mile extra-territorial zoning jurisdiction. Only a small percentage of industrial land outside the City is developed. Within the City there are six definable industrial areas: Mill Road and North Washington Street, DeMers Avenue, North 55th Street, Grand Forks Industrial Park, Gateway Drive/North 42nd Street, and the Neche Yard area.
MILL ROAD AND NORTH WASHINGTON STREET
This industrial area includes the property paralleling North Washington Street (U.S. Highway 81) and Mill Road. Principal industries in this area include agricultural processing, wholesale warehouses, and an electrical utility company. Much of the industry is agricultural related, such as the North Dakota State Mill, potato processing, fertilizer plant, bulk seed plants, and agricultural equipment sales. Many of city’s wholesale and distribution facilities are located along Mill Road. There is also an industrial area along U.S. Highway 81 near Interstate 29 interchange which house several businesses. There are several tracts of land in this area offering ample industrial development opportunities.
The area is generally not attractive to other land uses due to its industrial nature; further, there has been only minimal landscaping to improve the appearance of existing developments. Compounding this lack of aesthetic quality has been the dumping of concrete rubble and building materials along the banks of the English Coulee in the area between U.S. Highway 81 and the Mill Road. Future development should be landscaped and development intensity decreased. Industrial development on the north side of Grand Forks has been the largest factor preventing the expansion of residential development in this part of the City.
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Map 2.12
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DEMERS AVENUE
The Burlington Northern Santa Fe switching yard dominates the industrial area located north of DeMers Avenue and south of Dyke Avenue between Washington Street and 34th Street. This area along DeMers Avenue incudes land uses such as a beverage distributor, a bulk concrete plant, and several warehouses. The frontage between Columbia Road and South 34th Street is railroad property that houses commercial uses. Along Dyke Avenue there is a wide variety of industrial land uses on the south side of the street.
NORTH 55th STREET
A cluster of industrial land located between DeMers Avenue and University Avenue west of North 55th Street is currently zoned I-2 for heavy industrial uses; this area is not as extensively developed as other industrial areas in Grand Forks. Currently, several contractors’ offices and a couple of freight terminals are located in the vicinity. Although there is existing single-family housing on the east side of North 55th Street, the existence of this industrial development may inhibit the future expansion of residential land uses to the west side of North 55th Street.
INDUSTRIAL PARK
The Grand Forks Industrial Park was developed in the early 1970’s with the intention of attracting more primary sector jobs to Grand Forks. It is located south of DeMers Avenue, north of 17th Avenue South Extended, west of Interstate 29, and east of the Burlington Northern Santa Fe Railroad right-of-way, or south 55th Street extension. Early industrial uses found in the industrial park include warehousing, beverage distribution, heavy equipment sales and service, a concrete plant, the City Bus Garage, and the National Guard Armory & Training Center. Since the flood of 1997, the industrial park has expanded and added some larger tenants, including LM Wind Power, an Amazon.com Call Center, Cirrus, PS Doors, and Hood Packaging.
The infrastructure in the industrial park was designed differently than most other places in the City. Streets were installed without curbs and gutters because the typical underground storm water collection system was replaced with shallow ditches and small-diameter pipes that dump water into the Interstate 29 ditch. Sidewalks were eliminated in the industrial park for two reasons: it would be difficult to install sidewalks in the bottom of the ditches and the pedestrian traffic in an industrial district was anticipated to be low or non-existent.
The City of Grand Forks is extending South 48th Street from 17th Avenue South to 32nd Avenue South, which expands the Industrial Park to the south. The access requirements for the existing Industrial Park and potential new developments rely heavily on the extension of South 48th Street. The South 48th Street extension will be a minor arterial, which will be designed as a 3-lane roadway with right turn lanes to accommodate future development within the Industrial Park.
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UNIVERSITY TECH PARK
The University Tech Park (UTP) consists of 55 acres in a campus atmosphere to ensure a high quality and attractive setting for technology companies. It is located on the west edge of the UND campus, along Interstate 29. The UTP can hold 15 high-tech buildings with the potential to employ up to 4,000 employees. Eight buildings have been completed since the UND Tech Park was launched in 1990, including BioLife Plasma, National Weather Service, Meridian Environmental (located adjacent to the Tech Park), Aerospace Foundation, The Skalicky Tech Incubator, The Ina Mae Rude Entrepreneur Center, a multi tenant office building, Hilton Garden Inn, and the Research Enterprise and Commercialization (REAC) building.
GATEWAY DRIVE AND NORTH 42ND STREET
There are a variety of industrial activities located on the north side of Gateway Drive between North 42nd Street and North Columbia Road. A potato processing facility, a petroleum storage/distribution company, a pasta production facility, and concrete ready-mix plants are located here.
The industrial land uses along North 42nd Street tend to be smaller in size than those along Gateway Drive. They include a concrete manufacturer, a trucking terminal, contractor yards, a small manufacturing operation, a spice processing plant, and two small petroleum tank farms at the intersection of North 42nd Street and 27th Avenue North. A small non-conforming residential community remains, consisting of single-family homes, located in the industrially zoned area. City records indicate that houses were built from 1915 to 1975. When they were built, the area was located in the county and the City at the time did not have extra-territorial zoning and subdivision control.
NECHE YARD AREA
A small industrial area is located on the east side of North Washington Street between Gateway Drive and 8th Avenue North. The site parallels the railroad tracks on the east include some old warehouses, a contractor’s office, an auto body shop, and a machine shop. These limited industrial uses are adjacent to some commercial and residential uses. Due to the proximity of the commercial and residential uses, future industrial expansion in this area is not anticipated.
EXISTING PUBLIC/SEMI-PUBLIC LAND USE
Government buildings, schools, lift stations, churches, hospitals, and cemeteries are all classified as a public or semi-public land use (see Map 2.13). Land which was either dedicated for streets and utilities or purchased as right-of-way is excluded from this category. There are 1,089 acres of land (11% of the total developed land within the city limits, not including the Airport Authority land) devoted to public and semi-public purposes.
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The University of North Dakota is one of the major public land users in Grand Forks with its campus occupying around 300 acres. In some ways, UND functions as a separate community within the City. The Grand Forks Planning Department estimates the following land use acreage for the UND Campus (the parking lots and open space were added into the surrounding land uses):
• Academia Buildings and Laboratories - 80 acres; • the Bronson Property - 140 acres; • University Housing (dormitories and apartments) - 95 acres; • Administrative and Operations (Plant Services) - 30 acres; • Public Facilities (Chester Fritz Auditorium, Memorial Stadium, the old Ralph Engelstad Arena) - 45 acres; • University Affiliated Entities (US Department of Agriculture Nutrition Laboratory and Energy & Environment Research Center) - 12 acres.
UND and some of its foundations also have substantial land holding elsewhere in the City. Some of the other University land includes:
• Numerous single-family homes in the residential neighborhood north of University Avenue; • UND Rehabilitation Hospital; • Ray Richards Golf Course; • Development at the Grand Forks Airport; • UND Technology Park (High-Tech Industrial Development); other land around the City donated to UND.
The State Mill and Elevator, although a state-owned facility, is classified as industrial rather than a public/semi-public land use for the purposes of this Plan. Most parks and recreation facilities are publicly owned and maintained, but because of their large number and unique nature, a separate category exists for them. Churches, temples, synagogues, and other places of worship are considered to be quasi-public uses, because they are nonprofit organizations. Like other public and quasi-public land uses, places of worship are exempted from paying property tax. The land use inventory counted 59 places of worship utilizing 64.3 acres of land in Grand Forks. Places of worship are generally scattered throughout the City, primarily located in residential areas. The four cemeteries in Grand Forks total 71.5 acres and are considered to be public land uses. Three of the cemeteries are located at the intersection of Gateway Drive and Columbia Road; the fourth is at the intersection of 32nd Avenue South and South Washington Street.
Places of government (federal, state, county, city, special purpose districts) are considered to be public land uses. These public and semi-public land uses are also spread throughout the City, with a majority of the government offices situated in the Central Business District. Some of these sites include the County Courthouse, Federal Building, City Hall, Police Department building, County Sheriff’s Office, Social Security Building and various municipal parking lots/ramps.
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Map 2.13
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Health care facilities such as hospitals and multi-purpose clinics are usually classified as public land uses. Independent health care operators such as dentists, optometrists, and psychiatrists are usually classified as commercial office businesses. Grand Forks provides health care for northeast North Dakota, northwest Minnesota, and even a portion of southern Manitoba. The Altru Hospital medical complex is one of the health care providers for the region, utilizing approximately 60 acres of land. They have been buying additional land west of South 30th Street for expansion purposes, including homes in the Prairie Gardens Subdivision. The Aurora Hospital is an additional hospital that was recently constructed in the 4400 block of South Washington Street. This hospital is co- located with additional medical facilities.
Land occupied by a school is classified as public use. According to the Land Use Inventory, there are approximately 115 acres being used for schools, not including UND. The public school system is operated by the Grand Forks School District, which is a special purpose entity with boundaries that extend well beyond the corporate boundaries of the City. The boundaries of Grand Forks School District Number One can be seen on Map 2.14.
The school board has an “open enrollment” policy that allows children to attend any school of their choice. Even with the open enrollment policy, the School Board maintains 12 attendance districts, one for every elementary school. These attendance districts allow the School Board to better anticipate staffing levels and monitor enrollments throughout the district.
ADDITIONAL PUBLIC/SEMI-PUBLIC LAND USES
• Grand Forks International Airport; • City Bus Garage and Public Works Buildings; • Grand Forks Landfill; • Fire Stations; • Water Reclamation Plant and Storage Facility; • Waste Water Treatment Plant and Lagoon; • Grand Forks County Maintenance Facilities; • NDDOT – District Office and Operations Center; • State School for the Blind; • Public Safety Center; • Job Service of North Dakota.
Map 2.13 displays some of these locations.
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Map 2.14
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EXISTING RECREATION/OPEN SPACE LAND USE
There are approximately 984.6 acres of park, open space and public recreation land in Grand Forks, or 11.6 percent of the total land within the existing city limits. There is no significant amount of land designated park, open space and public recreation outside the city limits. These locations are shown on Map 2.15.
The development and maintenance of parks and recreation facilities is handled by the Grand Forks Park District. There are 47 parks, open spaces, and/or recreational facilities under the Park District’s jurisdiction. The Park District owns and operates a number of recreational facilities in Grand Forks such as the Lincoln Golf Course, King’s Walk Golf Course, Center Court Fitness Club (racquetball, tennis, aerobics, weight lifting), Red River Gymnastics Center, Eagles Arena (hockey rink), Blue Line Club Arena (hockey rink), Fido Purpur Arena (hockey arena), and the Gambucci Arena (hockey rink). In addition, many of the parks and open spaces have facilities such as swimming pools, outdoor ice skating rinks, outdoor tennis courts, baseball/softball diamonds, and playground equipment. Some park land has not been fully developed, and remains agricultural land until enough capital funds can be raised to develop the park. The Park District also has an agreement with the City for the planting and maintenance of the trees on the berms.
After the flood of 1997, the Greenway was created to protect the residents of the Greater Grand Forks area against future flooding. The Greenway consists of 2,200 acres located between the flood protection system and the banks of the Red and Red Lake Rivers. This area is owned by both Grand Forks and East Grand Forks, and maintained by both Cities, the Grand Forks Park District and the Minnesota Department of Natural Resources.
The Greenway offers many recreational features that consist of over twenty miles of trails, two pedestrian bridges, eleven restroom facilities, picnic shelters/tables, and campgrounds. The Greenway provides a unique opportunity for year-round outdoor recreational activities in an urban setting.
Only a few residential developments in Grand Forks have tried to provide parks or open spaces to their residents through privately owned and maintained land and facilities. Often the Park District does not have enough capital to develop public parks in new neighborhoods in a manner desired by the neighborhood or as quickly as desired. In these instances there is the potential for community goals to be accomplished through private ownership of parks and recreational facilities. Neighborhood control of the facilities, equipment, or other amenities is a benefit of private parks. Also, development of the space can occur as homes are being built. Additionally, the residents may provide more direct maintenance and improvement of the land.
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Map 2.15
2040 Land Use Plan Update 2-32 2. EXISTING LAND USE
Mobile home parks provide a great example of private park use. The Grand Forks Land Development Code requires these types of residential developments to provide this service. The residents benefit from having a play area and open space in very close proximity. The law requires a minimum amount of area per mobile home and that space must be provided within the mobile home park. The residents support the maintenance and improvements of the land and equipment through a portion of their lot rental payment. The concept of developing private parks/open spaces for public use could be extended to other types of residential developments.
Another important provider of open spaces and recreational facilities is the Grand Forks School District. Because of health education and extracurricular activities, the School District provides many different types of open spaces and recreational facilities. Although these uses are primarily designated for use by pupils, after-hours use allows many neighborhood residents to enjoy the facilities as well. Further, co-location provides more spaces and facilities than otherwise would be possible if each existed on it own. For the purposes of this analysis, however, school-provided open space and recreational facilities are not included in the inventory of parks, open space and recreational facilities. It should be noted that the Park District and the School District have an agreement for joint use of park and school sites.
Private entities provide needed recreational facilities in or near Grand Forks. Examples include the YMCA, health clubs, and the Grand Forks Country Club. The YMCA provides an indoor swimming pool, basketball and racquetball counts, indoor running track, and weights. Health clubs, in general provide mini-gyms for aerobics and weight rooms; some provide racquetball as well. These health clubs have become very popular in Grand Forks.
These private facilities, while providing an important resource, are not included in the inventory of parks/open spaces/recreational facilities. Therefore, they are not included in the further analysis of the existing and future parks/open space of the City. In addition, the parks and recreation facilities at UND are excluded, as are any University of North Dakota properties used for their athletic programs (Hyslop Athletic Center, Betty Engelstad Sport Complex, and Ralph Engelstad Arena).
Standard characteristics used in determining the location of a park include the size of the area considered, the anticipated park uses, and the distance for residential areas. For the purposes of this document parks are classified into two categories: core parks/open space and special use areas. The parks/open spaces system should balance the needs of residents for core and special uses. The system in Grand Forks provides approximately an equal amount of acreage for each category. Table 2.9 lists the Grand Forks parks/open space facilities along with their location, acreage and service area.
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PARK / OPEN SPACE CLASSIFICATION
A core park (as identified in this document) includes those park lands and/or open spaces that serve a general purpose, predominately serving a neighborhood. The types of facilities contained within a park include, but are not limited to playground equipment, basketball courts, ball fields, open spaces, picnic areas/shelters, and skating rinks. The specific facilities found in each core park/open space are determined by the needs of the service area that particular location serves. The size of a core park/open space varies, ranging from as little as two-tenth of an acre to over 30 acres. The size depends upon the service area and the facilities to be provided. In an ideal setting, a core park/open space should not be less than five acres in size; further, unless co-located with a school, the maximum size should be about 15 acres. The exact size of each park is determined by many factors including adjacent land uses, street pattern, natural features, etc. Areas less than five acres in size would be good candidates for consideration as privately owned and maintained parks/open space.
Special use areas are defined as those locations where an individual specific use is served by the park. Examples are golf courses, sports complexes, tennis courts, walking/bike trails and swimming pools. Although other recreational activities may take place within a special use area, its primary purpose is for the enjoyment of one particular use or activity. In locations where delineation between areas within one location could be made, this document has distinguished the core park/open spaces from the special use acres. The size of the park is typically determined by the type of facility or activity that utilizes the space. A golf course will require more area (over 70 acres) than an indoor tennis center (about 5 acres).
Park/Open Space classification serves the following purposes: • Recognizes that different parks serve different functions. • Serves as an analytical tool to measure each park according to the purpose it should serve. • Guides the type of uses activities within specific existing or proposed parks. • Guides the location or park needs in the future.
PARK / OPEN SPACE STANDARD
Table 2.9 shows the acreage of these two classifications of parks, open spaces, and recreation facilities. All parks, open spaces, and recreation facilities (except those on private, school, or UND land) are included regardless of their location inside or outside of the City limits. As noted, there is a good ratio of core parks to special use areas.
It is essential in planning documents such as this that realistic and justifiable standards for core parks/open spaces be prepared and used as essential tools in projecting future needs and evaluating the results of implementation strategies.
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The factors used to determine current and future needs include:
• needs of the people; • realistic and attainable measures; • development of current and relevant data; • and sound analysis of the available information.
For this document, the population ratio standard (acres of core space per 1,000) provides the most applicable and defensible standard. In comparison with standards published by the National Recreation and Park Association, Grand Forks is higher than the recommended amounts (6.25 to 10.5 acres per 1,000) of space for core parks/open spaces. As shown in the chart below, in Grand Forks, the amount of core park land provided is 9.9 acres per 1,000 assuming the population is 52,838. This standard is the minimum amount of core space acceptable to Grand Forks. Acceptable in this sense means that the standard has been applied and the public is satisfied with this criterion. This standard is of a magnitude to provide sufficient land or space for the full range of facilities and activities needed for Grand Forks.
Table 2.8 Park/Open Space Overview Grand Forks Data: Park/Open Space Calculations: Total Park Acres 1,253.4 Acres Total Acres per 1,000 people= 23.72 Total Acres Total Core Areas 522.7 Acres 1253.4/52.84= per 1,000 people Population 2010: 52,838 Core Acres per 1,000 people= 9.89 Core Acres (52.84 thousand) 522.7/52.84= per 1,000 people
In order for Grand Forks to maintain this standard, new development that adds additional people must provide ways to meet the need for additional land for core parks/open spaces. The City requires eight percent of the development of residential housing to be dedicated for parks.
No one general standard exists for special use areas. Instead, each special use has minimum space requirements that must be met in order for that special use to be built. For example, in order to construct a golf course, a minimum number of acres must be available. This minimum acreage that becomes the standard amount of space needed for that special use. Accordingly, the space required to construct an indoor hockey rink, becomes the standard for that use. Consequently, one standard cannot be developed. However, a general rule of thumb suggests equal amount of land devoted to special use and core parks/open space.
Table 2.9 lists the City’s park and recreation areas, as well as the special use areas. Included in the listing is an identification of the park hierarchy each park has been classified as, the size and typical facilities provided.
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Table 2.9 Parks & Open Space for Grand Forks Mile City Park Name Park Hierarchy Location Size Typical Facilities Radius Tennis/racquetball/basketball Abbott Special Use N/A 1120 7th Ave. S. 2.6 courts 2511 17th Ave. S. & Special Use N/A 24.8 Playground and ball fields Apollo/Kraft Columbia Rd. Arbor Special Use N/A 48 S. 4th St. 0.2 Walking trail and benches Playground, soccer fields, ball Neighborhood ½ 2121 Westward Dr. 9.5 Ben Franklin fields and skating Playground, basketball, soccer Sub-community 1 2205 24th Ave. S. 18 Bringewatt fields and volleyball courts Center Court Special Use N/A 1600 32nd Ave. S. 5.3 Recreational Facility Snowmobile, bike and hiking Sub-neighborhood ¼ 190 DeMers Ave. 4.5 Community Green trails Playground, soccer fields, ball Cox Neighborhood ½ 1010 24th Ave. S. 7.8 fields and skating Eagles & Blue Line Special Use N/A 1900 S. 25th St. 2.4 Hockey Arena and playground Arena Playground, swimming pool, ball Elks Neighborhood ½ 926 13th Ave. S. 10 fields soccer/football field, and skating English Coulee Sub-neighborhood ¼ Gateway Dr. & 6th Ave. N 12.5 Walking/biking trail Playground, basketball, soccer Neighborhood ½ 3702 6th Ave. N. 7.4 Exchange Club field, ball fields and skating Fido Purpur/ Gambucci, First Hockey Arenas, family center, Season community Special Use N/A 1122 7th Ave. S. 4.4 Playground and Curling center and Curling Club Gateway Triangle Special Use N/A 1202 N. 5th St. 0.3 Floral Gardens In Floodplain along Red State Recreational N/A 381.9 Full Facilities Greenway River Greenway Natural In Floodplain along Red State Recreational N/A Nature Trails Habitat River 11th Ave S. & Westward Neighborhood ½ 9.7 Bike/Walking Trails Haake Dr. Cottonwood St & 3rd Ave. Half Circle Sub-neighborhood 0.6 Playground S. Independence Special Use N/A 1000 5th Ave. S. 1 Floral Gardens Playground, ball fields, Jaycees Neighborhood ½ 4798 Technology Cir. 8.9 basketball courts and skating Playground and bike/hiking Sub-community 1 Elm Ave. & S. 4th St. 1.5 Kanawaski trails Playground, ball fields and Sub-neighborhood ¼ 904 32nd Ave. S. 2.5 Kelly skating King’s Walk Golf Special Use N/A 5301 S. Columbia Rd. 215.9 Golf Course Course Rummele Rd and South Kiwanis NEW N/A 40 Undeveloped 34th St.
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Mile City Park Name Park Hierarchy Location Size Typical Facilities Radius Playground, bike/ hiking trails, disc Lincoln Drive and golf, skiing, skating, sledding, dog Community 1 120 Euclid Ave 115.7 Disc Golf park, horseshoe courts, volleyball, boat lunch & floral gardens Lincoln Golf Golf Course, Playground, tennis Special Use N/A 250 Elks Dr. 60.2 Course/Club House and floral gardens Bike trails, skating, tennis, ball Sub-neighborhood 1 3211 17th Ave. S. 35.7 Lion’s fields and soccer fields Loon Special Use N/A 24 S. 3rd St. 0.2 Walking trail and benches Playground and basketball Midtown Sub-neighborhood ¼ 402 N. 6th St. 0.3 courts Old Dutch Special Use N/A 2474 Bacon Rd. 15.8 Nursery Playground, ball fields, soccer field, Neighborhood ½ 4600 Cherry St. 18.6 Optimist skating and basketball courts Pillsbury Special use N/A 316 Kittson Ave. 0.3 Walking trail and benches Prime Steel Neighborhood ½ 14th Ave. S. & S. 40th St. 7 Playground and basketball court Reeves Triangle Special Use N/A 4th Ave. S. & 6th St. 0.2 Floral Gardens Playground, skating, soccer fields, Neighborhood ½ 4700 6th Ave. N. 6.9 Richards West basketball courts and ball fields Playground, bike trail, skating, ball fields, volleyball, Frisbee golf, Sub-community 1 100 Park Ave. 24 Riverside horseshoe courts, sledding, tennis & swimming pool Rotary Sub-neighborhood ¼ 178 DeMers Ave. 2.1 Walking trail and benches
Royce LaGrange Special Use N/A 1st Ave S. and Walnut St. 1.4 Skate Park S. 47th Ave. & Columbia Ryan Special Use N/A 53.5 Ball fields and lake Rd. S. Playground, bike/hiking trail, Sertoma Sub-community 1 3300 11th Ave. S. 22.4 Japanese Gardens and Landscape Arboretum Southern Estates Special Use N/A 47th Ave. S. & S. 20th St. 17.3 Soccer fields Symington Special Use N/A 1801 24th Ave. S. 3.3 Tennis courts Plaza with stage, Playground and Town Square Sub-neighborhood ¼ DeMers Ave. and S. 3rd St. 0.7 benches S. 47th Ave. & Columbia Playground, ball fields, football Ulland Special Use N/A 67.2 Rd. S. fields and soccer fields Playground, bike/hiking trail , N.25th St.& University skating, floral gardens, ball fields, University Neighborhood ½ 17.5 Ave. horseshoes courts, tennis and volleyball Williamson Sub-neighborhood ½ 1020 7th Ave. S. 7.8 Playground and ball fields Playground, horseshoe courts, Sub-neighborhood ¼ 904 S. 16th St. 3.6 Wilmer basketball courts and ball fields Source: MPO Total Acres 1253.4 Core Park Acres 522.7
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SERVICE AREA
The geographic boundaries of core parks/open space service areas need to be defined for various reasons. First, defining the service area helps establish where existing surpluses or deficiencies exist. Second, definition is needed to help locate future park land. Third, new development can be assured of adequate facilities. Again, new development will be required to provide the necessary means to ensure that standard acreage of core parks/open spaces is maintained.
The service areas of core parks have been broken down into three typical radii: ¼ mile for core parks less than 5 acres; ½ mile for core parks between 5 and 20 acres; and 1 mile for core parks larger than 20 acres. The basis for the breakdown is that the smaller-sized areas provide space for a lesser number of people and subsequently less opportunity for many to utilize the space. Larger areas can accommodate more people.
Applying these service standards to the existing core parks in Grand Forks, as shown on Map 2.16, reveals that almost all major residential areas of the City are within a reasonable distance for a park/open space except in two areas of the City. The two exceptions are labeled on the Map 2.16 in purple numbers. Area number 1 is located just west of the Greenway at 32nd Ave S and Elmwood Drive. It is an area that is not located near any core parks though its proximity to the Greenway and the Elmwood Access to the trail system makes for a nice connection to other facilities in the Greenway. Area number 2 is located in new residential development off 47th Ave S near South Middle School. Even though on a map it appears that the residents would be serviced by a lot of green space, the reality is the green space is only special use park land that does not qualify as core park space. Most of these parks are still being developed and have many potential future options available. The Park District will have to decide which areas to add features to best accommodate the most residents.
The service areas shown reveal that some parks serve predominately vacant land. This is because the park land was obtained through the eight percent open space dedication ordinance. These areas typically are larger tracts of land being developed in phases. The eight percent is exacted for the total tract; yet, development only occurs on a part of the land. As these other phases are built, the impact upon the park system of these vacant lands has already been taken into account. Therefore, this new building does not create an additional need for park/open space.
The Park District is a separate, autonomous political entity with its own powers to levy taxes and set policy for parks, open space, and recreational facilities development. With two autonomous political subdivisions trying to ensure that all of the parks, open spaces, and recreational needs of its shared citizens are met, close cooperation is needed. There is long history of close cooperation between the City and the Park District.
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In February of 1975, the city of Grand Forks adopted an ordinance which required the developers of new industrial, commercial, and residential land in the City to dedicate eight percent of the land, the cash equivalent of eight percent of the land, or a combination of land and cash, for the development of parks and open spaces. In April of 2003 the requirement for industrial and commercial development to dedicate eight percent of the land was removed from the ordinance. The parks and open space dedication is earmarked for the acquisition of land for neighborhood parks. As of November of 2004, the Grand Forks Park District had received over 279 acres of land plus $788,121 through this ordinance.
The School District also is a separate, autonomous political entity with its own powers to levy taxes and set policy for facility development. Fortunately, close cooperation exists between the School District and the Park District. Many parks are co-located with schools. This co-location allows a combination of park land and school land to be utilized to jointly meet the needs of the citizens in the area served. This cooperation has been formalized into an agreement which allows each District to use the other’s facilities. The agreement allows one District to make capital improvements upon the other’s property as well. The formal agreement has been in place since 1987 and continues to function well.
The City and Park District are currently in discussion to determine ways in which the two entities can work cooperatively in using park space to satisfy some of the new stormwater storage regulations being mandated by the federal government. The city may need to utilize a portion of the 8% land requirement for this storage requirement including retention “wet pond” and detention “dry pond” ponds.
PARKS AND OPEN SPACE SUMMARY
Overall, the city of Grand Forks is served adequately by the existing parks, open space and recreation system, with only one residential area of the City deficient in parks and open space. That exception is the residential area known as “Oscarville.” The residential uses are nonconforming. The Oscarville subdivision is a relatively small subdivision located generally north of Gateway Drive and east of Interstate 29. More specifically, it is located between 24th and 26th Avenue North and between 42nd and 43rd Street
In order to maintain the quality of service as each new development is built in the City, methods need to be in place to require new developments to provide the necessary core parks/open space created by increasing the population in an area. The current eight percent ordinance has provided the City with efficient core parks/open spaces. The standards (core parks/open space per 1,000 and service area) allow new developments to be measured by the impact that they will have on the park system.
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Map 2.16
2040 Land Use Plan Update 2-40 2. EXISTING LAND USE
The Greenway located along the Red and Red Lake Rivers has become an important asset to the core parks/open space. It has set aside large amounts of land adjacent to the Red River that serves many purposes. The main purpose of the Greenway is flood protection but along with that is the almost year round service it provides for recreation. However, for the Greenway to remain a success, cooperation with the City, Park District, and the School Board needs to exist. This cooperation will provide efficient and effective service to all of the residents of the City.
Lastly, consideration should be given to requiring more privately owned and operated parks, open space, and recreational facilities. As evidenced by mobile home parks, this method of service delivery provides a park area close to the people it serves. It allows for a particular neighborhood to determine facilities that are provided and then govern the use of those facilities.
EXISTING AGRICULTURAL LAND USE
Grand Forks is surrounded by some of the richest farmland in the world. The U.S. Soil Conservation Service (SCS) prepared a map indicating the important farmland in Grand Forks County. Grand Forks County is roughly 930,000 acres in size; the SCS map indicated that there are 699,444 acres of farmland, or 75.2 percent of land in Grand Forks County. The SCS map divided the land into six different categories: prime farmland, additional farmland of statewide importance, additional farmland of local importance, other land, water areas, and approximate limits of urban growth. For the purposes of this plan, these categories were modified into the following: prime farmland, poor farmland, and developed/urban. The information from the SCS map was incorporated into a map showing Grand Forks with the revised categories (see Map 2.17). See Appendix A for SCS technical criteria relating to the soil qualities located in the two-mile area.
Map 2.17 shows the City limits from 2010 combined with the SCS map from 1981. Prime farmland near the City is located to the south, southwest, and north paralleling the Red River. The City has been developing mostly towards the south, consuming prime agricultural land. Development in this area has for the most part been contiguous to existing urban development. Prime agricultural land, for the purposes of this plan, is any land suitable for raising crops and having both a high yield possibility per acre of harvested cropland and high crop production value in relation to production costs. The impact of the loss to urban growth is difficult to estimate, but it has become a matter of local, state, and national concern.
Although not shown on Map 2.17, most of the farmland falling in the “good” category is located in the western part of the county; the only “good” farmland near the City can be found where the English Coulee is located. A large area of the “adequate” category of farmland is located west and northwest of the City. Most of this farmland is currently used for some sort of farming activity.
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The “poor” category of farmland is located north northwest of the City, in the area between the current city limits and the Grand Forks International Airport. Though the land is not usable for most types of farming, the land is being used for a variety of purposes including the regional landfill, city sewage lagoons, and two auto salvage yards. Some other areas of “poor” farmland are located in areas susceptible to flooding, near the Red River and coulees.
All land within Grand Forks’ extra-territorial jurisdiction is zoned; this can be seen on a current zoning map. Grand Forks has two different types of agricultural zones: A-1 and A-2 districts. The areas that are located immediately adjacent to the existing city limits are typically zoned as A-2 districts as a means of limiting large rural subdivisions from developing next to the City.
There are approximately 19,600 acres, or 30.6 square miles, of land zoned as A-2 agricultural reserve within the Grand Forks two-mile extra-territorial zoning jurisdiction. The balance of the acreage in the City’s zoning jurisdiction totals an estimated 13,800 acres, or 21.6 square miles.
Although Grand Forks area farmers are making many adjustments to meet the changing trends in agriculture, urban growth in the Grand Forks area has put tremendous pressure on the farmland adjacent to the City, creating a very complicated situation. The current property taxation system allows preferential taxation of agricultural lands, but this technique has fallen short in achieving any preservation objectives. Preserving land for agricultural purposes should be accomplished by proper land use controls and policies. The loss of land suitable for crop production influences the viability of local agricultural processing and marketing facilities. The removal of lands from agriculture uses also affects the local economy through its influence on employment patterns and income levels. If agriculture productivity drops below a certain level, or if an agricultural area becomes interspersed with too many non-farm activities, agriculture in that area will decline.
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Map 2.17
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A land use plan should consist of policies that not only reduce the immediate impact of urban development on prime agricultural land, but that also consider the long-term implication of such development. From a planning standpoint, the preservation of prime agricultural land can be used to guide urban growth. If urban expansion is allowed to occur haphazardly and at different densities, the costs of providing municipal services such as water, sewer, transportation and schools will be greatly increased. These service costs are not only borne by those directly benefiting but also those not benefiting from the provisions of those services. Such costs may be lowered by withholding some land from development until it is more economically efficient to urbanize such land. In addition to the protection of regional agricultural productive capacity and local economy, the preservation of prime agricultural lands from development is helpful in the maintenance of air and water quality which contributes greatly to the overall high quality of life in Grand Forks. Preservation of prime farmland is an important national and state goal as well for the following reasons: • To maintain the economic diversity of the region; • To support employment in both rural and urban areas that is based on the processing of agricultural products; • To provide open space around cities and to maintain the distinction between rural and urban; • To provide large open areas for maintaining and enhancing air quality; • To maintain one of the few remaining opportunities for independent business enterprise; • To meet future food needs, both national and world-wide; • To protect other natural resources from future pressures. If productive agricultural lands become developed, it may become necessary to encroach upon other resources (i.e.; cut woodlands and drain wetlands) to produce adequate food supply.
These considerations should be taken into account in any rezoning of land outside the corporate limits for residential, commercial, industrial, or other public purpose.
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EXISTING TRANSPORTATION NETWORK
The transportation network plays a pivotal role in the land use plan – it provides the backbone around which land use development takes place. The transportation network can be divided into several different elements: the street system, bike paths, public transit, truck routes and the railroad system.
STREET SYSTEM
The 2008 Transportation Plan Update (Street and Highway Element) estimated that an average of 772,000 vehicle miles per day were driven in 2005 on Grand Forks’ functionally classified streets. The City has about 255 miles of paved streets (2011). When the number of multiple lanes is factored in, lane miles increase to over 600 miles.
The functional classification system plays a major role in shaping the community’s land use (see Map 2.18). Roads designed as arterial and collector streets often develop into the City’s major commercial corridors, while multi-family housing typically develops near collector streets, and single-family housing and townhouses develop around the local street network. The functional classification system also determines the formulas used to calculate who pays for the construction or reconstruction of a street project. Many of the arterial and collector streets qualify for state and federal funding. Additional information and policy discussion on the funding of functionally classified streets is available in the current Transportation Plan.
There is a direct correlation between the type of land use and the desired street design. Land use encourages certain types of street design and street design encourages certain types of land use. It is doubtful that a businessperson would want to put a commercial development in a cul-de-sac in a residential neighborhood. Likewise, not many people would be willing to build a house on a busy commercial street.
Street type also affects the desirable level of access and access control for a given road. The Access Control Map is included in this document as Map 2.28.
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Map 2.18
2040 Land Use Plan Update 2-46 2. EXISTING LAND USE
The original Grand Forks town site survey placed the original streets in Grand Forks in a grid pattern with 300-foot-long blocks separated by 80 feet of right-of-way and a 20-foot-wide alley dividing the block. Current urban design uses topography and natural features, curved streets, and cul-de-sacs, especially in residential areas. Allowing a curvilinear street network enables the Planning Commission to preserve natural features (such as coulees and trees) and provide some variation in design. The newer street designs limit access to residential neighborhoods, keeping non-local traffic from using the streets for shortcuts. The use of cul-de-sacs is no longer a favorable street design for new development due to the lack of permeability for vehicles and lack of direct access for pedestrians.
INTERSTATE HIGHWAY
Interstate highways are designed to carry Table 2.10 Interstate Criteria large volumes of traffic throughout the State and the US. These regional Speed Limit 65 to 75 roadways restrict access from the Parking Prohibited adjacent land use unless accessed by an Highest Traffic overpass with on and off ramps. The Mobility mobility interstate system prohibits parking, and Access No direct land access North & South permit speeds between 55 and 75 miles Interstate 29 per hour (Table 2.10). The system of Link (Note: includes interstate highway that travels through Regional Serve as regional Interstate on and off Roadway roadways Grand Forks is a section of I-29 that goes ramps) Approximate as far south as Kansas City extends north Daily 10,000+ to the Canadian border. In this region, Vehicles the interstate highway carries heavy freight to, through and from Grand Forks.
PRINCIPAL ARTERIALS
Principal arterial streets are designed to carry large volumes of traffic throughout the community. These regional roadways typically restrict access from the adjacent land use, prohibit parking, and permit speeds between 30 and 55 miles per hour (Table 2.11). Signal lights are also limited to intersections with other functionally classified streets. The system of principal arterials includes Gateway Drive, DeMers Ave, 32nd Avenue South, Washington Street, and Columbia Road in Grand Forks.
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In this region, principal arterials carry some Table 2.11 Principal Arterial Criteria of the highest traffic loads. The principal Speed Limit 30 to 60 North & South arterial system is intended to provide Parking Prohibited Columbia Rd relatively high mobility and low accessibility. Mobility is Washington St As such, they are the “backbone” of the Mobility emphasized system and are spaced roughly 1-2 miles Access Limited land access East & West apart. The City’s system suggests a grid Gateway Dr structure, with Columbia Road and Link DeMers Ave Washington Street as north-south Regional Yes often serve as 32nd Ave S components and Gateway Drive, DeMers Roadway regional roadways Note: includes on Approximate and off ramps for Avenue and 32nd Avenue South as east- Daily 15,000 to 30,000+ Columbia Rd and west components. Vehicles DeMers Ave
MINOR ARTERIALS
The minor arterial system serves to span the Table 2.12 Minor Arterials Criteria function gap between principal arterial and North & South collector streets. As such, these roads often Speed Limit 30 to 45 42nd St serve a very mixed set of uses, from Generally Parking prohibited S 38th St relatively short, multi-purpose trips, to N 55th St Medium Traffic portions of longer, more directed trips, such Washington St Mobility mobility as work trips. They are very important in Belmont Rd Medium land their function of relieving the traffic load S 48th St, Access access from collector streets, while efficiently N 3rd St funneling traffic to principal arterials. Link N 4th St Access and mobility are roughly balanced on Regional Sometimes N 5th St minor arterials. The criteria for minor Roadway East & West arterials are shown in Table 2.12. North- University Ave south minor arterials include: 42nd Street, 17th Ave S South 38th Street, North 55th street, South 32nd Ave S 48th Street, Washington Street (north of Approximate 47th Ave S Gateway Drive), Belmont Road, and the Daily 5,000 to 10,000+ 62nd Ave S downtown portions of North 3rd, 4th and Vehicles 27th Ave N 5th streets between Demers Avenue and 4th Ave S & Gateway Drive. East-west minor arterials Minnesota Ave include most of University Avenue, 17th Avenue South, 47th Avenue South, 62nd Avenue South, 27th Avenue North and 4th Avenue S & Minnesota Avenue. Portions of 32nd Avenue are also a minor arterial, including the portions east of Washington Street and west of Interstate 29. There are over 37 miles of minor arterial streets in and around Grand Forks.
2040 Land Use Plan Update 2-48 2. EXISTING LAND USE
COLLECTOR STREETS
Collector streets serve to organize traffic flow to minor and principal arterials. They Table 2.13 Urban Collector Criteria are more numerous and less continuous Speed Limit 30 North & South S than minor or principal arterials and 34th St N 20th St S therefore typically serve only short portions Parking Limited 20th St of trips at the start or end of a journey. Cherry St Collector street features are listed in Table Limited Traffic Mobility Stanford Rd mobility 2.13. The collector streets include: Mill N 51st St Road, North 20th Street, South 20th Street, Access High land access Mill Rd North 6th Street, South 3rd Street, South Link Regional 34th Street, South 4th Street, Cherry Street, Rarely East & West Stanford Road, South 30th Street, North Roadway 6th Ave N 51st Street, North 8th Street, Bruce Ave, 8th Ave S Approximate 13th Ave S 8th Avenue North, 6th Avenue North, 1st 1,000 to 8,000 Avenue North, 11th Avenue South, 40th Daily Vehicles 24th Ave S Avenue South, 13th Avenue South, 24th 40th Ave S Avenue South and 14th Avenue South. There are approximately 37 miles of collector streets in Grand Forks.
LOCAL STREETS
Local streets provide residential access. They combine to contribute the most lineal lane mileage in the system, and are used at relatively low speeds, and for only the very beginning and/or end of most trips. The local street systems in the region exhibit a grid character in older sections, and show more curvilinear design (cul-de-sacs, loops, etc.) in newer development. The alignment should not intersect directly with freeways or mirror arterial facilities. There are approximately 150 miles of local streets in Grand Forks.
PEDESTRIAN AND BIKEWAY SYSTEM
Walking is the most fundamental means of transportation. At the beginning and end of all daily trips we are pedestrians. For this reason, sidewalk and paths need to be provided throughout the city. These facilities must provide Americans with Disabilities Act (ADA) accessibility to comply with civil rights law. Walking and biking are two forms of transportation that fit together and are directly related. In most cases they share the same surface for traveling.
The adoption of the Americans with Disabilities Act (ADA) by the United States Congress has had a significant impact on communities throughout the nation. ADA requires cities to install curb ramps
2040 Land Use Plan Update 2-49 2. EXISTING LAND USE
at all intersections that have sidewalks. Parking lots must designate handicapped accessible parking stalls, and all public buildings must be made accessible to the handicapped. In the past, many of these elements were either ignored or forgotten. Now they must be considered and included during the development process.
The development of an integrated bikeway system provides transportation alternatives. In 2005, the Grand Forks/East Grand Forks Metropolitan Planning Organization completed the Grand Forks – East Grand Forks Alternative Transportation Modes Plan (Pedestrian/Bicycle Section), which is a component of Grand Forks-EGF MPO Transportation Plan.
A bikeway system is made up of three basic components: shared-use paths, bike lanes, and bike routes. The differences among the three components are as follows:
• Shared-use paths - a path physically separated from motorized vehicular traffic by an open space or barrier, located either within the highway right-of-way, or within an independent right-of-way or easement; this path is designated for all non-motorized pedestrian use which may include: walking, jogging, running, inline skating and skateboarding. • Bike lane - a portion of a roadway which has been designated by striping, signing, and pavement markings for the preferential or exclusive use of bicyclists; • Bike route - a system of bikeway designated by the jurisdiction having authority with appropriate directional and informational route markers, with or without specific bicycle route numbers.
Shared-use paths are similar to most sidewalks or pedestrian walkways in that they are separated from the road. One difference between a shared-use path and sidewalks is that the shared-use path is wider. Most residential sidewalks in town are five feet wide, while the Federal Highways Administration design standard for a shared-use path is 10 feet wide. Paths can be found paralleling an arterial street such as DeMers Avenue, Gateway Drive, or 32nd Avenue South, or next to the Red River in the Greenway. Bike lanes are usually a striped area along the side of a street. Two examples of bike lanes are located on North 42nd Street between Gateway Drive and 6th Avenue North, and along University Avenue from North 42nd Street to Columbia Road. Bike Routes are signed routes that bicyclists are advised to follow.
Upgrades to bicycle amenities are needed to match demand, especially in light of current high gas prices and green initiatives. The bikeway system plan proposes 54 additional bikeway miles in the next 20 years. See Map 2.19 for the existing and planned bikeways.
2040 Land Use Plan Update 2-50 2. EXISTING LAND USE
Map 2.19
2040 Land Use Plan Update 2-51 2. EXISTING LAND USE
PUBLIC TRANSIT
The cities of Grand Forks and East Grand Forks run a combined transit system. There are three basic elements to the transit system. The first element is the fixed-route system; the second element is Paratransit program, and the third element being the Senior Rider program. The Grand Forks- East Grand Forks Transportation Plan Update (2004-2008 Transit Element) identified some major changes to the existing transit system, including a fare increase from $1.25 to $1.50 and restructuring the bus routes into a more efficient system (see Map 2.20). A more efficient bus route is needed, because sections of the City are not being serviced. There has been growth south of 32nd Avenue South and west of Interstate 29, but there is still no fixed bus route connecting these areas of the City. The Transit Development Plan will revisit transit fares, route efficiency, route structure and serving new growth areas. This plan is projected to be done at the end of 2011.
Cities Area Transit (CAT) has taken the first step in going green by purchasing energy efficient and cost effective Hybrid Buses that hit the streets of Grand Forks on Wednesday, August 18, 2010. These buses were paid for from funds from the Recovery and Reinvestment Act. Grand Forks is the first community in the state to have hybrid buses. Out of the fleet of busses about 70% to 80% are ADA accessible with low floors and ramps that fold out mechanically within seconds to expedite passenger arrival and departure.
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Map 2.20
2040 Land Use Plan Update 2-53 2. EXISTING LAND USE
Map 2.21 UND Bus Routes
The University of North Dakota operates its own campus shuttle bus system free of charge for university students, faculty and staff. The UND shuttle bus system has three daytime routes (see Map 2.21) and one night route. The University also runs a free shuttle bus for students and instructors between the campus and UND Flight Operations Center at the Grand Forks International Airport.
FREIGHT SYSTEM (Railroad, truck & airplane)
A large portion of the City’s growth, especially around the turn of the century, was directly related to the railroad. The growth of Grand Forks as the center of agricultural and commerce in the region, is directly related to its central role as the transportation hub for railroads. The railroad still has significant impacts on the economic and physical development of the City. The Burlington Northern/Santa Fe Railroad still operates a major switching yard in Grand Forks, located north of DeMers Avenue between Washington Street and 34th Street (see Map 2.22).
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Railroad crossings pose safety problems for pedestrians, bicycles, and vehicular traffic. Currently, there are three locations in Grand Forks that provide above-grade separation (overpasses) or below- grade separation (underpasses) from the train tracks: DeMers Avenue, Washington Street, and Columbia Road. A fourth underpass, to be located at the intersection of DeMers Avenue and 42nd Street, is identified as a need for the future development and connectivity of the 42nd Street corridor. The City has purchased the land for the underpass in the southwest quadrant of the DeMers and 42nd intersection with money from a revolving loan fund sponsored by the Federal Highway Administration (FHWA).
In recent years, more shippers have been utilizing semi-trucks to move freight and grain, which in turn has decreased the need for many rail lines. Little-used rail lines have been abandoned throughout the upper Midwest, including one railroad right-of-way in Grand Forks. The abandoned rights-of-way can be sold to the adjacent land owners or the public sector may purchase it for a shared-use path, snowmobiling trail, pedestrian walkway, or similar use. This abandoned segment in Grand Forks begins at the Red River at the old Northern Pacific bridge where it turns northwest paralleling North Third Street; it crosses Gateway Drive and turns west until it intersects with North Columbia Road. A portion of this abandoned right-of-way has been turned into a shared-use path.
Grand Forks and East Grand Forks are in the process of getting the rail lines that run through the community to turn into quiet zones. To achieve a quiet zone, specific upgrades must be made to traffic crossings or even closure to crossings. Rail crossing upgrades in downtown Grand Forks are a high priority.
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Map 2.22
2040 Land Use Plan Update 2-56 2. EXISTING LAND USE
EXISTING EXTRATERRITORIAL LAND USE
INTRODUCTION
It is important that the City develop a coordinated Table 2.14 4-Mile Extraterritorial Area and comprehensive Extraterritorial Land Use Plan to Land Use Inventory guide development for the next 20 years. However, Land Use Acreage Percentage recent changes to state law in 2009 limited the city’s Commercial 166 0.3% ability to plan beyond the 2-mile boundary around Industrial 826 1.7% the city. In the summer of 2009 the city and county Institutional 2,705 5.6% entered into a Zoning and Subdivision Agreement Parks/Open space 200 0.4% that limits the city’s land use decisions to within the Residential 2,079 4.3% 2-mile boundary. Beyond this boundary the city Agriculture/Vacant 42,346 87.6% provides comment to the county for any pending Total 48,322 100.0% approvals. Source: MPO Although the City has an agreement with the County to plan within a 2-mile boundary around the City, a 4-mile extraterritorial area is shown on some maps, such as Map 2.23, to provide context. The growth within the 4-mile extraterritorial area shows very limited development as shown in Map 2.22. There are some pockets of development throughout the area, but in a very limited capacity. Map 2.23 and table 2.14 show the results of the 2010 Land Use Inventory. Due to the scale and complex nature of land use, the detailed inventory was reduced to six basic categories: residential, commercial, industrial, parks and open spaces, public/semi-public, and agriculture/vacant. Mapping of this nature combines different land uses that are shown as homogenous areas.
Although the City is not the approval body for the area outside of the 2-mile boundary, a community of interest does exist for the city beyond this area. For this document we will continue to discuss the 4-mile area for planning purposes.
EXISTING RESIDENTIAL LAND USE
The residential development located outside the city limits shows a very limited amount of growth with small clusters of subdivisions existing in the 2-mile Extraterritorial Area (see Table 2.15). The residential land use only accounts for 2,079 acres or 4.3 percent of the extraterritorial landscape. Residential lots located within the subdivisions in the 2-Mile Extraterritorial area are around 2.5 acres in size, which are approximately 5 times larger than the average lot size within city limits. There are also many farm residents in the area.
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Map 2.23
2040 Land Use Plan Update 2-58 2. EXISTING LAND USE
Table 2.15 analyzes pre-flood (of 1997) and post-flood subdivisions with vacant lots (see Table 2.15). The subdivisions located within the 2-mile exterritorial area have changed dramatically since the flood of 1997. The houses lost during the flood have likely increased the demand for lots in the rural section of Grand Forks. The building of housing has not been intense, but by having more subdivisions it allows residents to live outside the city.
The subdivisions located within the 4-mile exterritorial area have also changed since the flood. There tends to be more subdivisions in the 4-mile area, because the taxes are lower in that area than taxes in the City of Grand Forks, and there were fewer restrictions to locating outside the extraterritorial jurisdiction of the city of Grand Forks.
Table 2.15 Rural Residential Subdivisions 2-Mile/4-Mile Residential subdivisions/ Total Vacant Year Pre- 98- 07- 2 4 Townships Resubdivision/Additions Lots Lots Recorded 1997 06 10 mile mile Allendale Cariveau Estates 25 25 2006 X X Brenna Agassiz Estates 22 0 X X Brenna Akridge Acres 4 0 1998 X X Brenna Alexis Acres 22 6 2004 X X Brenna Berg's 1st Resubdivision 8 8 2003 X X Brenna Brenna Subdivision 3 1 2004 X X Brenna Country West Subdivision 48 42 2006 X X Brenna Harley Buckholz Survey 4 1 1999 Brenna Hussey’s First Subdivision 10 0 2000 X X Brenna Kjono’s Subdivision 1st 11 1 1989 X X Brenna Kjono’s Subdivision 2nd 3 1 1990 X X Brenna Knipes Subdivision 9 2006 X X Brenna Pederson's 1st Addition 4 1 1978 X X Brenna Trent Olson Subdivision 1st 4 0 2005 X X Falconer Stadstad’s First Sub/Resub 4 1 2003 X X Falconer Dennis Lamoine Housing Tract 20 0 1958 X X Falconer Fox Farm subdivision 18 5 X X Grand Forks Countryside Acres 5 4 1988 X X Grand Forks Edgewood Estates Addition 21 6 2002 X X Grand Forks Heitman Weg Addition 10 5 2002 X X Grand Forks Heritage Park Place Addition 4 3 1983 X X Grand Forks Ridgeview Subdivision 16 12 2006 X X Grand Forks Shadyridge Estates 1st Addition 12 3 1994 X X Grand Forks Shadyridge Estates 2nd Addition 7 2 Grand Forks Shadyridge Estates 2nd Resubd. 2 1
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Residential subdivisions/ Total Vacant Year Pre- 98- 07- 2 4 Townships Resubdivision/Additions Lots Lots Recorded 1997 06 10 mile mile Grand Forks Shadyridge Estates 4th Resubd. 3 0 1996 X X Grand Forks Shadyridge Estates 8th Resubd. 55 52 2008 Grand Forks Useldinger First Addition 5 2 2000 X X Grand Forks Wheatland Acres Second Addn. 10 7 2003 X X Rye Wille Meagher Subdivision 6 1 1999 X X Walle Shelby Subdivision 2000 X Walle Steve Adams Subdivision 1st 3 0 X Walle Steve Adams Subdivision 2nd 23 8 1989 X Walle Steve Adams Subdivision 3rd 8 2 1990 X Walle Steve Adams Subdivision 4th 21 14 1996 X
Source: MPO
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EXISTING CORRIDORS STUDY
There are presently eight corridors within the exterritorial study area: U.S. Highway 81, U.S.
Highway 2, DeMers Avenue, County Road 5, 32nd Avenue South, Merrifield Road, Columbia Road South, and South Washington Road. Within the extraterritorial area, the corridors consist of industrial, residential, agriculture/vacant and very limited commercial land uses.
U.S. HIGHWAY 81 CORRIDOR
The U.S. Highway 81 corridor begins at the intersection with 27th Avenue North near the city limits and runs north to 23rd Avenue Northeast. U.S. Highway 81 is a two-lane minor arterial undivided rural street. In the year 2010, the southern end of this corridor handled approximately 4,000 two- way vehicle trips per day; near the I-29 interchange, traffic counts to the north showed approximately 830 two-way trips, while south of the interchange there are around 2,830 two-way vehicle trips per day on U.S. Highway 81.
The U.S. Highway 81 corridor is dominated by industrial and agriculture/vacant land use (see Map 2.24), while the area outside the 2-mile consists of mainly agriculture/vacant and some residential land use. There are some very limited commercial land uses.
2-Mile Extraterritorial Area of the US Highway 81 Corridor Land use development in the U. S. Highway 81 corridor can be described as heavy commercial to industrial. History shows that most businesses located along the corridor were attracted to the area due to the availability of inexpensive land, exposure to rural traffic visiting Grand Forks and East Grand Forks, and good access for large vehicles. Proximity to the railroad no doubt attracted several of the large manufacturers or processors. Another factor, especially critical to land uses requiring large expanses of land, was that most of the corridor was outside the city limits thus reducing property taxes. Vehicle-oriented businesses continue to be attracted to U.S. Highway 81 in large part due to fact its moderately high traffic volumes. One of the major industrial businesses located here is CF Industries Inc. There is some commercial activity located just outside the city limits north of
27th Ave N. A few residential properties exist with a total of three residences. The only public/semi- public land use found along U.S. Highway 81 is a church and the Humane Society. This corridor has several large undeveloped tracts of land, which offer future industrial development opportunities. The area is generally not attractive to other land uses due to its industrial development and further heavy industrial zoning by the City of Grand Forks which prohibits commercial and residential land uses.
4-Mile Extraterritorial Area of the US Highway 81 Corridor The area north of the 2-mile boundary consists of agriculture/vacant and residential land use. A major residential subdivision is located just within the 4-mile boundary on U.S. Highway 81. This
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subdivision consists of over 50 residential units. Residential land use is predominant in the area because of the limited industrial land use. The land located here is relatively inexpensive, and could have the potential for future residential expansion.
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U.S. HIGHWAY 2 CORRIDOR
The U.S. Highway 2 corridor begins at the intersection with N 55th Street and runs west to County Road 5 (Airport Road). U.S. Highway 2 is a four-lane divided rural street throughout the corridor. In the year 2010 the eastern end of this corridor handled approximately 12,590 two-way vehicle trips per day; near the County Road 5 intersection, traffic counts indicate an average of 9,875 two-way vehicle trips per day on U.S. Highway 2.
The U.S. Highway 2 corridor has a mixture of commercial, industrial, and agriculture/vacant land use (see Map 2.25). The 4-mile extraterritorial portion of the corridor consists of mostly agriculture/vacant land use, with few industrial and residential occupants. The reason for the agriculture/vacant land use is because the soil is alkaline and poor for development. A second reason for less development is due to impacts from the Grand Forks International Airport. Map 2.25
2-Mile Extraterritorial Area of the Highway 2 Corridor Land use development in the U.S. Highway 2 corridor can be described as heavy commercial to industrial. The other land use consists of agriculture/vacant and public/semi-public. U.S. Highway 2 is dominated by vehicle-oriented commercial and industrial business due to the vehicle counts and
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accessibility of this principal arterial street. The major industrial businesses located here are Weekly’s and Swangler’s. These salvage yards have caused major problems for the city because of visual blight. There are other commercial activities located along the corridor, such as Westgate Marine and the Gun Club. The only public/semi-public land use found along the corridor is a church. The U.S. Highway 2 corridor has several small tracts of land, which could lead to heavy commercial and light industrial development opportunities. Future development should be should be landscaped and vehicle-oriented.
4-Mile Extraterritorial Area of the Highway 2 Corridor The area west of the 2-mile boundary consists almost entirely of agriculture/vacant land use. There are a few parcels of industrial and residential land uses that exist. The reasons for the limited amount of development are because of the Grand Forks International Airport and poor soils. Future development in the 4-mile corridor will be very limited, and under strict control.
DEMERS AVENUE CORRIDOR
The DeMers Avenue (County Road 4) corridor begins at the intersection with North 55th Street and extends west to 17th Street Northeast (Grand Forks County address). The current two-mile limit extends to a quarter-mile west of North 83rd Street. DeMers Avenue is a two-lane undivided rural street. In the Year 2010, the eastern end of this corridor handled approximately 3,670 two-way vehicle trips per day; near the County Road 5 intersection in 2010 traffic counts indicate an average of 2,720 two-way vehicle trips per day on DeMers Avenue. The development along this corridor is limited to south of DeMers Avenue due to the existence of the BNSF right-of-way immediately adjacent to the north side of the roadway.
2-Mile Extraterritorial Area of the DeMers Avenue Corridor Land use within the DeMers Avenue 2-mile corridor consists primarily of agriculture/vacant land use with three residences and one industrial property (see Map 2.25). The only industrial land use belongs to Construction Engineers LTD, a building construction company. In the past, the growth along this corridor has not been intense, but the land is reasonably priced, has good access, and could prove to have potential for additional industrial development. Residential development may increase, but poor soils and proximity to the railroad indicate that future residential development may not be desirable.
4-Mile Extraterritorial Area of the DeMers Avenue Corridor The area west of the 2-mile boundary in the 4-mile corridor consists mainly of agriculture/vacant and residential land uses with two industrial properties. Residential land use is more developed than in the 2-mile corridor with subdivisions located south of the intersection of County Road 5. These developments have existed for some time and contain few vacant lots. Industrial land uses are very limited-there is only one subdivision - the Bison Industrial Subdivision, located north of the rail line
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on County Road 5. With the exception of the CHS Agri-Valley Company (agricultural products, fertilizer, seed retail sales), the subdivision is primarily vacant with 12 of 13 parcels unoccupied. The other major business located west of County Road 5 is the Siouxland Buffalo Farm, a buffalo production and processing facility. There is a possibility of some limited future residential growth in the corridor, but similar to the two mile corridor, poor soils and the presence of the railroad right- of-way make the land adjacent to DeMers Avenue a relatively poor choice for residential development. In addition to the Bison Industrial Subdivision lots being developed, future industrial activity may occur in the area due to the availability of land and good access.
COUNTY ROAD 5 CORRIDOR
The County Road 5 corridor begins at the intersection with U.S. Highway 2 and runs south to 12th Avenue Northeast (Merrifield Rd/GF County Road 6). The County Road 5 corridor is located entirely within the 4-mile boundary. County Road 5 is a two-lane undivided rural street. In the year 2010 the north end of this corridor handled approximately 3,210 two-way vehicle trips per day; near the Merrifield Road intersection, traffic counts indicate an average of 765 two-way vehicle trips per day on County Road 5.
The corridor is primarily occupied by residential and agriculture/vacant land uses. With so much vacant land, farming continues to be the principal land use. There are only three non-residential properties in the corridor. A storage garage is the only commercial property; the industrial land use is the Bison Industrial Subdivision with its one agricultural products storage facility; and the only other non-residential land use is a public/semi-public property that consists of a church and cemetery. In contrast, residential land uses along the corridor are more extensive although most subdivisions are over twenty years old. Several subdivisions are located near the intersection of DeMers Avenue and County Road 5. The corridor’s newest subdivision, Alexis Acres platted in 2004, is located adjacent
to the intersection of 32nd Avenue South.
Attributes of the County Road 5 corridor consist of a vast amount of vacant/agriculture land and the accessibility of this major collector street, especially critical for commercial and industrial development. Future development along this corridor may be limited, however, due to a lack of proximity to Grand Forks, poor soil conditions, and especially for additional residential development because of its location south of the Grand Forks International Airport. Also, residential development south of DeMers Avenue may be deterred by the existence of the BNSF railroad right-of-way.
2040 Land Use Plan Update 2-65 2. EXISTING LAND USE
Map 2.26
32ND AVENUE SOUTH CORRIDOR
The 32nd Avenue South (County Road 32) corridor begins at the intersection with I-29 and extends west to 17th Street Northeast (Grand Forks County address). The current 2-mile extraterritorial portion of the corridor ends east of South 83rd Street. 32nd Avenue South is a two-lane undivided rural street. In 2010, the eastern end of the corridor near South 48th Street handled approximately 3,215 two-way vehicle trips per day; near the County Road 5 intersection traffic counts indicate an average of 2,400 two-way vehicle trips per day on 32nd Avenue South. 32nd Avenue South is a major collector west of I-29. It is considered one of the most heavily traveled streets inside the city limits during the last 30 years. With the expansion of this avenue, the development along this corridor is beginning to grow with the increase of residential land uses in the extraterritorial area (see Map 2.26).
2-Mile Extraterritorial Area of the 32nd Avenue South Corridor
Land uses within the 32nd Avenue South 2-mile extraterritorial area consist primarily of residential and agriculture/vacant land use. There are also a limited number of industrial and commercial properties. The industrial properties consist of NOR-AGRA, INC. and storage compartments for
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the J.R. Simplot Company. The only commercial property belongs to the Kindness Animal Shelter. The residential land use will continue to grow along this corridor, with currently two subdivisions within the area. The most recent subdivision (Berg’s) was platted in 2003. The city of Grand Forks
has purchased land along 32nd Avenue South near the city limits, which will help promote the industrial land use growth along the corridor.
4-mile Extraterritorial Area of the 32nd Avenue South Corridor The area west of the 2-mile boundary in the 4-mile corridor consists primarily of agriculture/vacant with some residential land use. There are two subdivisions that exist in the corridor: Alexis (22 lots) and Harley Bucholz (4 lots). The possibility of residential growth will depend upon the city of Grand Forks, and the future growth policies put in the Land Use Plan. Farming is still the primary land use, but could change as the city grows.
SOUTH COLUMBIA ROAD CORRIDOR
The South Columbia Road (County Road 17) corridor begins at the intersection with 40th Avenue
South and extends south to 9th Avenue Northeast (Grand Forks County address). The current 2- mile corridor ends north of 11th Avenue Northeast (Grand Forks County address). South Columbia
Road is two-lane undivided rural street. In 2010, the north end of the corridor near 62nd Avenue South handled approximately 2,815 two-way vehicle trips per day. South Columbia Road is a principal arterial street from south of 40th Avenue South to 62nd Avenue South, and from 62nd
Avenue South to 9th Avenue Northeast it is a local street. As one of Grand Forks’ principal growth areas, development along this corridor is anticipated to increase at a rapid pace, most likely with growth inside Southern Estates Addition and to the south and west of King’s Walk Golf Course.
2-Mile Extraterritorial Area of the South Columbia Road Corridor Land uses within the South Columbia Road corridor consist of only residential and agriculture/vacant land use (see Map 2.27). Currently two subdivisions exist in the corridor; they are Countryside and Wheatland Acres. Between the two subdivisions there are four vacant lots. The west side of the corridor from 40th Avenue South to 62nd Avenue South is expected to be a Planned Unit Development (PUD) with a mix of commercial and residential land use. The city of Grand Forks continues to grow south and major development is expected along this corridor.
4-Mile Extraterritorial Area of the South Columbia Road Corridor The area south of the 2-mile boundary in the 4-mile corridor consists primarily of agriculture/vacant land with some residential land use. There are currently 22 residential lots that exist with no subdivisions. Eventually more residential land use is expected here, but the city of Grand Forks would like to see development closer and within the city limits. The land located along this corridor is considered prime farmland. Existing land use policies and no doubt future policies of Grand
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Forks will encourage development within the city limits and discourage development beyond the city limits, especially in prime agricultural areas.
SOUTH WASHINGTON STREET / US 81 CORRIDOR
The South Washington Street (County Road 81) corridor begins at the intersection near 40th Avenue
South and extends south to 9th Avenue Northeast (Grand Forks County address). The current corridor within the 2-mile extraterritorial area ends north of 11th Avenue Northeast (Grand Forks County address). South Washington Street is a two-lane undivided rural street. In the year 2000, the north end of the corridor near 47th Avenue South handled approximately 3,315 two-way vehicle trips per day. South Washington Street is a principal arterial street from south of 40th Avenue South to 62nd Avenue South; from 62nd Avenue South to 12th Avenue South(Merrifield Road) is a future principal arterial; and from 12th Avenue South to 9th Avenue Northeast is classified as a major collector. This corridor is expected to grow at a rapid pace especially north of 47th Avenue South, which will soon become annexed into the city of Grand Forks due to proximity to King’s Walk Golf Course.
2-Mile Extraterritorial Area of the South Washington Street/County Road 81 Corridor Land uses within the South Washington Street corridor consist almost entirely of agriculture/vacant land use, with some residential, commercial and public/semi-public properties (see Map 2.27). The commercial properties that exist in the corridor are All Seasons Garden Center & Floral and an RV Park. The public/semi-public property belongs to Minnkota Power Cooperative Inc. Residential land use is very minimal with only four properties. The development of this corridor is expected to
be commercial, especially along the east side of the corridor form 47th Avenue South to 62nd Avenue South. Travel speeds along South Washington Street and anticipated traffic volumes will make the area undesirable for most residential development.
4-Mile Extraterritorial Area of the South Washington Street/County Road 81 Corridor The area south of the 2-mile boundary in the 4-mile corridor consists primarily of agriculture/vacant land with a few residential and commercial land uses. The only commercial properties in the corridor are two firework stores. The residential land uses consist of only three properties. Similar to the 2- mile corridor, residential development along this corridor is very unlikely because of traffic and high speeds along U.S. Highway 81. The opportunity for commercial development is possible, but not until the city of Grand Forks expands farther south.
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Map 2.27
2040 Land Use Plan Update 2-69 2. EXISTING LAND USE
MERRIFIELD ROAD/COUNTY ROAD 6
The Merrifield Road (County Road 6)/12th Avenue Northeast corridor begins at the intersection with the Red River and extends west to South 83rd Street. The current 2-mile corridor ends just east of Merrifield Village. Merrifield Road is a two-lane undivided rural street. In 1996, the east end of the corridor near Belmont Road/9th Street Northeast (Grand Forks County address) handled approximately 625 two-way vehicle trips per day; near the South 83rd Street intersection traffic counts indicate an average of 340 two-way vehicle trips per day on Merrifield Road. Merrifield Road is designated to be a future principal arterial from the Red River to I-29 and from I-29 to South 83rd Street as a major collector. Residential land uses along this corridor have been increasing during the past 20 years, with most of the development located near the intersection of South Columbia Road.
Map 2.28
2-Mile Extraterritorial Area of the Merrifield Road Corridor Land uses along the Merrifield Road corridor are mixed with examples of all the land use categories, but at a very limited basis (sees Map 2.28). The agriculture/vacant land is the most dominant land use. The two industrial properties are Telpro Inc., a manufacturing plant and Agsco, an agricultural chemical manufacturer. The only commercial property is Leighton Broadcasting. There are two
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public/semi-public parcels, with one being a power substation. The only park/open space land use throughout all the corridors exists here along the Merrifield Road, the Grand Forks Country Club. Residential land use is quite extensive throughout the corridor. There are currently four subdivisions, encompassing 33 lots with 15 being vacant. Residential growth along this corridor is expected to increase in the next 20 years, especially between South Columbia Road and South Washington Street. Agriculture/vacant land uses are still expected to dominate in the future, but as the city grows it could turn into a mixture of commercial and residential land use. Land use growth along the corridor could be affected by the construction of the interchange on I-29 with Merrifield Road and construction of a bypass route into Minnesota.
4-Mile Extraterritorial Area of the Merrifield Road Corridor The area west of the 2-mile boundary in the 4-mile area of the corridor consists mainly of agriculture/vacant land with a few residential properties. There are 10 residential properties with five located in the Merrifield Village. This corridor is located on prime agricultural land and is anticipated to be farmed for many years to come. There could be some additional residential growth along Merrifield, but it is unlikely in the near future.
EXISTING ROAD JURISDICTION AND BY TYPE
The road network is a critical element of the land use plan – it provides the backbone around which land use development takes place. For planning purposes, the road network is broken down into several types known as functional classifications: principal arterial, county, township and private. These categories are further divided into paved or gravel (Table 2.16).
Principal Arterial streets are designed to carry large volumes of traffic. The Principal Arterial roadways are State Highways 2 and 81, which constitute only 7 percent of the extraterritorial road network. Designated county roads account for 25 percent of the road network, while the many township roads that are not designated as state, county or private are located on section and quarter- section lines. Township roads comprise 60 percent of the road jurisdiction with all being gravel. The one mile paved road owned and maintained by Grand Forks leads to the city’s landfill and wastewater treatment plant. The private road network is located entirely in rural subdivisions. The residents that live along these private roads maintain the roads and receive minimal help from the county and/or township. The private road network consists of 13 miles with 11 of them being gravel.
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Table 2.16 Road Networks Road Jurisdiction Type Miles Percentage Principal Arterial Paved 11 6.7 County Paved 35 21.2 County Gravel 6 3.6 City Paved 1 0.6 Township Gravel 99 60 Private Paved 2 1.2 Private Gravel 11 6.7 Total 165 100 Source: MPO
Access Control Street classification plays a role in the available access on each street, including whether individual driveways and left turn movements are appropriate. The level of access on each street is determined by considering and balancing the needs for access combined with safety standards. Map 2.29 shows the Access Control Road Classification.
2040 Land Use Plan Update 2-72 2. EXISTING LAND USE
Map 2.29
2040 Land Use Plan Update 2-73 3. GOALS, OBJECTIVIES, & POLICIES
Chapter Three: Goals, Objectives, and Policies
INTRODUCTION
In developing this land use plan for the City of Grand Forks and its Growth Management Area, staff has solicited comments and discussion from elected and appointed officials and residents. Existing policies have been incorporated where they remain valid, and new policies developed where needed. It is important to remember that a plan is a framework for decision-making; it is not intended to provide all the answers, but it should establish a direction to guide investors, residents and decision makers in planning the future.
City officials have recognized that Grand Forks has recovered from the 1997 flood and is poised to enter a new era of growth. The process of updating a land use plan calls for revisiting existing approaches and examining whether new systems for planning and new implementation mechanisms are needed to accommodate the type of development and change that is now confronting City decision makers and residents.
City leaders have recognized the importance of planning for not only the established urban area, but have taken a proactive role in planning for the Growth Management Area where future development will occur. The intent of this plan is to craft policies that the City will implement— policies that may require hard decisions by City officials and staff. This plan will provide the goals, objectives and policies that guide decision making. However, the most significant implementation will occur not with the adoption of this document, but in how consistently City officials, City staff, residents and investors support and carry out decisions that reflect these policies. LAND USE GOALS AND POLICIES
The land use goals and policies are at the heart of the 2040 Land Use Plan and give the plan a direction to follow, while remaining flexible enough to endure over time.
This section of the Land Use Plan incorporates and builds on development policies adopted by the Grand Forks Planning and Zoning Commission and City Council over the past 35 years. Certainly, this is not an all-inclusive list, but it does represent a majority of those policies utilized by the staff and Commission in guiding the growth and development of Grand Forks, North Dakota.
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This chapter is divided into ten broad goals that address the various aspects that make up the land use plan. Each goal is followed by objectives and policies that provide more detail on how the city will carry out the goals through the land use plan or through other city regulatory mechanisms. The ten goals include:
Goal 1- Growth Management Goal 2- Residential Development Goal 3- Commercial Development Goal 4- Industrial Development Goal 5- Urban Design Goal 6- Parks and Open Space Goal 7- Transportation Goal 8- Natural Resources Goal 9- Sustainable Development Goal 10- Planning Process
Some of the goals provide more specificity than others. The transportation goal, for example, is abridged from the city’s overall transportation plan, where those issues are discussed in more detail. The transportation goals and policies are provided here to ensure that land use planning recognizes the connections between the plans.
The growth management goal is very detailed due to the fact that this plan is the primary document in which growth management is established and carried out. The growth management goal includes a number of policies that were previously separated into various disparate goals such as land development, public services, agricultural land and annexation. The growth management approach that is central to this land use plan encourages the city to think holistically in incorporating these goals, rather than viewing them separately.
There are also goals that focus more specifically on individual land uses, including residential, commercial and industrial development. These goals provide a framework for addressing specific issues related to these uses; they should be viewed within the overall concept of growth management as a basis for land use planning.
A new goal regarding sustainable development has been added in this chapter, reflecting Green Grand Forks Action Plan Objectives, showing how the city is doing their part to become more sustainable. These objectives include elements related to increased sustainability and livability, such as working to make communities more pedestrian oriented, encouraging a variety of transportation methods, encouraging a community-level sense of identity and inspiring collaboration within and outside the community to enhance revitalization efforts.
A hierarchy of terms is used to outline and define planning issues: goals, objectives, and policies.
• Goals: Broad long-range statements related to various aspects of a community and indicate a desired state or condition to be obtained over a period of time. o Example: A long-term goal for a city might be to establish a sound economic base.
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• Objectives: In order to measure progress towards goals, short-term, measurable objectives are often set. Objectives are written in specific terms and are anticipated for completion over a time span of one to five years. Objectives are often re-written as old ones are completed. o Example: In the short term, an objective might be to upgrade the Central Business District by the summer of 2015.
• Policies: Guidelines for action that help meet objectives and thus get closer to goals. o Example: A way to help the City achieve that objective, and thus get closer to its economic goal, might be for the City Council to adopt a policy of mandatory replacement of all deteriorating sidewalks or a policy of working with the Central Business District Association to improve rundown storefronts.
Plans provide only a snapshot view of the city at one point in time; however, goals, objectives and policies provide the common threads to guide decision makers as elements of the plan become outdated.
GOAL 1 – GROWTH MANAGEMENT – Plan and manage growth to ensure that the City of Grand Forks continues to balance new growth and development through collaboration with all stakeholders to promote preservation and enhancement of the city.
A city is successful if both its oldest and newest areas offer attractive places to live, work, shop, and enjoy leisure time. A strong city will attract new growth that can enhance the overall metropolitan area. As Grand Forks plans for its Growth Management Area (the land outside the city limits extending to the two-mile planning jurisdiction), it is important to recognize that the city and new growth areas must support each other’s best assets. In an age when a global economy and world politics can exert a strong influence on a local community’s economic health, it is important to ensure that the city as a whole is fiscally strong, well-planned and attractive.
A Growth Management Vision for Grand Forks Discussions with officials, residents and the public have articulated a vision for the city’s future. The vision that has emerged for Grand Forks urges the City to be proactive in managing growth and development by: • Ensuring the health, safety and welfare of citizens in its jurisdiction; • Planning growth and programming needed infrastructure through regulatory processes and capital budgeting; • Continuing to grow and expand the City and its tax base through annexation.
The City of Grand Forks and all other local units of government must work together to ensure that the Greater Grand Forks Area is a strong, viable economic entity offering a high level quality of life that will encourage people to locate in the area. Key to the strength of the region is a strong city -
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strong in the employment opportunities it offers, strong in the services provided, and strong because of continued expansion and population growth.
Residents in the Growth Management Area will prosper along with the City of Grand Forks. If the city’s growth stagnates or cannot maintain an adequate tax base to support needed services, the area as a whole will suffer, stifling investment and failing to attract people who can create a strong city able to compete in a global marketplace. Cities provide services not only to their residents, but to those who come from the surrounding area to patronize shopping malls, entertainment venues, health services, and financial and other services available in the city. City streets are available for everyone, not just residents. In Grand Forks, the flood protection system protects both city residents and others who are outside the city limits.
Like most regions with a major city, there has been some historical distrust regarding city annexation. Rural residents may view the city’s expansion into a zoning jurisdiction as a “land grab.” Alternatively, City residents may feel that residents outside the city limits do not pay their fair share for city services from which they may benefit. Despite any historical distrust, it should be clear to all that it is the overarching goal of any city government to provide for the needs of its residents and to manage the resources available to it, both now and into the future.
The City of Grand Forks, Grand Forks County, and other local government units must work cooperatively to provide the best quality of life that the region can offer. In a global economy, the Grand Forks region must compete with cities across the nation to maintain a vibrant, growing community. The recent effort made to continue operations at the Grand Forks Air Base shows the importance of a unified approach to ensuring the strength of the region.
This growth management plan is aimed at making Grand Forks a strong city that can continue to grow. To do that, the City must manage and direct growth and development, and build a sound fiscal foundation for the future.
For the purposes of this plan, information is provided for a four-mile area around the City, extending two miles beyond the two-mile extraterritorial jurisdiction area around the city. This allows the plan to stay up-to-date with new annexations and expansions to the two-mile jurisdiction. It also provides everyone with an understanding of the long-term goals for the city’s growth area beyond the two-mile area.
1.1 THE GROWTH MANAGEMENT AREA
Under state law, a city the size of Grand Forks (over 25,000 population) is empowered to extend its zoning regulations up to two miles from the city limits and adjust that boundary in accordance with annexations. This extension was reduced from four to two-miles in 2009 when an agreement was made between Grand Forks County and City of Grand Forks. The City can still influence decisions that are made outside the two-mile ring.
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A two-mile jurisdiction provides a continuity of regulations for the Growth Management Area. The two-mile limit enables the City to use the tier system to monitor growth and support preservation of agricultural uses in areas not adjacent to the city limits.
The two-mile limit incorporates the city’s various transportation corridors (Columbia Road, Washington/Highway 81, Merrifield Road, Gateway Drive, Demers, 32nd Avenue) into the city’s review process and ensures that right-of-way preservation and land uses will complement long-range transportation plans.
OBJECTIVE 1.1 – Growth Management Area – Establish Grand Forks’ Growth Management Area to include the land extending two miles from the city boundaries and adjust the boundary in accordance with annexations.
1.1.1 Establish and use a growth management evaluation system to ensure that the Growth Management Area offers an adequate balance of land for agricultural and development activity.
1.1.2 Enforce City regulations, including zoning, platting, building permits, and code enforcement throughout the two-mile area.
1.1.3 Build an ongoing educational program to notify property owners within the Growth Management Area that they are within the City’s zoning and regulatory jurisdiction.
1.1.4 Convene a transition meeting as required by the North Dakota Century Code when expanding the Growth Management Area to ensure that appropriate communication occurs between City and other local government units on jurisdictional change and to guard the health, safety and welfare of affected residents.
1.1.5 Collaborate and work with adjacent governmental bodies.
1.2 GROWTH MANAGEMENT MONITORING
OBJECTIVE 1.2 – Growth Management Monitoring System – Develop a growth management monitoring system to guide the City in making changes to its zoning and planning jurisdiction boundaries and/or to time and sequence development within the growth management area.
1.2.1 Develop a system that recognizes the growth rates identified in this plan and responds to land development rates to determine whether there is sufficient land available for development.
1.2.2 Conduct an annual evaluation of building permits, platting and land development activity to ensure that there is an adequate supply of platted lots available to meet anticipated residential building needs.
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1.2.3 Use annual evaluations to determine whether the tier boundaries should be adjusted to allow additional land for residential, commercial or industrial development.
1.2.4 Monitor streets and traffic levels to determine changes needed in light of development demands.
1.3 BALANCED GROWTH THROUGH GROWTH TIERS
The primary objective of the balanced growth concept is to accommodate future populations’ land needs responsibly. The typical impacts of rapid physical growth include premature, costly development, an insufficient transportation network, inadequate water and sewage facilities and inadequate police and fire protection. Directing urban development to areas contiguous to the city will allow efficient provision of municipal services in a cost-effective manner for the city as a whole.
OBJECTIVE 1.3 – Balanced Growth and Growth Tiers – Create a balanced growth approach in the Growth Management Area by dividing it into growth tiers that will establish the timing and sequencing for future development and infrastructure provision.
1.3.1 Continue to use growth tier system to guide new development and better plan for timing and sequencing of infrastructure (See Map 3.1).
Tier 1: Tier 1 is the zone of present development, where development will be directed and can be readily served with utilities. This area is anticipated to meet growth needs until 2040.
Tier 2: Tier 2 is an urban reserve area, envisioned to remain largely undeveloped land for future growth. If growth occurs, it will be required to develop at urban standards in order to be compatible with future City services. Potential residential, commercial and industrial locations should be identified to prevent future incompatible development.
Tier 3: Tier 3 will be maintained as agricultural land, limited to development that supports the preservation of active agricultural uses.
1.3.2 The amount of land necessary for development in each growth tier will be initially established in this plan; growth tier boundaries should be adjusted when the annual growth management evaluation identifies a need for modifications.
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Map 3.1
2040 Land Use Plan Update 3-7 3. GOALS, OBJECTIVIES, & POLICIES
1.4 COMPACT DEVELOPMENT—TIER 1
A primary goal of this land use plan is to encourage compact development that is contiguous to the existing corporate boundaries and has access to City services. The Tier 1 area is adjacent to the city limits and is intended to develop over the next 30 years. Compact development will provide for provision of municipal services in an efficient, fiscally responsible manner, preserve premature development of prime agricultural land, and encourage shorter travel times for vehicles and pedestrians for goods and services.
OBJECTIVE 1.4 – Compact Development – Promote a compact system of urban development by limiting growth to Tier 1 where urban services may be provided in a cost-efficient manner with an emphasis on targeting existing neighborhoods to spur revitalization and promote infill opportunities, reduce urban sprawl and protect rural landscapes.
Tier 1 Policies
1.4.1 Development Characteristic: Compact development. Encourage new development to locate in Tier 1 where it is contiguous to the existing city limits.
1.4.2 Lot Sizes: Use zoning to encourage development at urban densities at a minimum of 3-4 single family units per acre in Tier 1; higher densities are also appropriate for other residential types.
1.4.3 Land Uses: Evaluate land use decisions to ensure that the City will have adequate residential, commercial and industrial land available for growth.
1.4.4. Transportation Corridors: Require new development to ensure adequate right-of-way along major arterials according to the transportation corridor principles established in this plan.
1.4.5 Transportation: Ensure that all new roadways meet City standards.
1.4.6 Access: Access spacing on major arterials shall be one-quarter-mile or one-half-mile, depending on the type of roadway as identified on the Access Control Map.
1.4.7 Parks and Recreation: Work with the Park District to ensure that there is adequate park, recreation, open space and trail land to serve development in Tier 1.
1.4.8 Parks and Recreation: Work with the Park District to identify potential park sites and trails that should be integrated into new development in the Tier 1 area.
1.4.9 Parks and Recreation: Continue to evaluate a percent land dedication or an impact fee in lieu of land with new development, in order to meet the City’s park and recreation needs.
1.4.10 Utilities: Sanitary Sewer and Water. Require new development to connect to City infrastructure, including sanitary sewer and water systems.
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1.4.11 Utilities: Storm Water Systems. Require development to follow the City’s Stormwater Master Plan.
1.4.12 Funding of Utilities and Services: Use the Six-Year Capital Improvements Program (CIP) to program extensions of general obligation infrastructure for service to the Tier 1 area (see Objective 1.8).
1.4.13 Funding: Require up-front developer financing of infrastructure if required in advance of the CIP schedule.
1.4.14 Funding: Utilize special assessments as necessary to fund infrastructure and services internal to a new development.
1.4.15 Annexation: Plan for annexation of new development in Tier 1 in conjunction with rezoning and/or subdivision plat approval.
1.4.16 Development Process: Finalize new development infrastructure funding requirements in a development agreement between the City and the developer for acceptance by the City Council at the time of final plat approval.
1.5 URBAN RESERVE—TIER 2
The urban reserve area is intended to remain undeveloped and is being reserved for future growth. Should any development occur, it will be at urban standards in order to be compatible with future City service provision. This issue is critical to Grand Forks’ future growth and ensuring cost- effective development.
Rural residential development occurs around cities as some residents seek to avoid city issues or taxes, or simply want a larger amount of land than is available on a city lot. Such parcels may be anywhere from 2.5 acres (large enough to accommodate an individual waste treatment system) to 20- acre or 40-acre parcels. From the perspective of an expanding city, rural residential development can impair efficient growth, and can also lead to inefficient and costly provision of services. As the city grows out to rural residential parcels, there is a need for urban services, including utilities and provision of health and safety services. When sewer and/or water lines are extended out to such areas, the special assessments (based on a front-footage cost) are too large for property owners with large lots, creating expensive service provision problems.
Larger lots are also costly in terms of land use. Although the system of “ghost-platting” (in which parcels are planned for later conversion to smaller lots) has sometimes been used, it is typically found that buildings are sited so that the lots are not easily subdivided later at urban densities when city growth reaches the area. From a conservation standpoint, large lots consume land that might be preserved for agricultural uses. A consistent pattern of 2.5-acre lots along a roadway will limit the potential for the area to be served by city utilities due to costs. Such a development pattern also results in an excessive number of access points.
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If the City of Grand Forks finds itself surrounded by large lot developments that it cannot afford to annex because provision of services is prohibitive, it will be hemmed in and unable to grow. The City must either restrict development in the Tier 2 area, or if development is allowed, require it to provide needed urban services to allow efficient conversion in the future.
OBJECTIVE 1.5 – Urban Reserve – Limit development in the Tier 2 area to preserve for future urban growth. If development occurs, it will be required to develop to urban standards or to be designed to readily convert to urban standards.
The City does not anticipate a need for development in Tier 2. The following policies are in place, however, in the event that development occurs.
Tier 2 Policies
1.5.1 Development Characteristic: Urban Reserve. Development is discouraged until a future time when Tier 1 land and infill opportunities are nearing exhaustion and infrastructure is available making the land ready to be converted to Tier 1.
1.5.2 Land Uses: Land uses should be primarily existing residential and agricultural, except to accommodate pre-existing uses and large city infrastructure.
1.5.3 Land Uses: Identify locations for commercial and industrial uses to prevent incompatible development in those areas; however, these uses require city infrastructure and should not be prematurely developed in the urban reserve.
1.5.4 Airport Planning: Use the mapped airport influence zones and the land use guidelines identified in the Airport Master Plan to ensure that land uses decisions within the area are compatible with airport growth and meet safety requirements within reason.
1.5.5 Transportation Corridors: Use the transportation principles established in this document to plan for uses and preserve adequate right-of-way for the defined transportation corridors.
1.5.6 Roads: Ensure all new roadways meet, or are easily converted to City standards.
1.5.7 Access: Rural subdivisions shall include internal and/or local roads rather than individual accesses to the roadway.
1.5.8 Access: Access spacing on major arterials shall be ¼-mile or ½-mile, depending on the type of roadway as identified in Access Control Map.
1.5.9 Parks and Recreation: Continue to require a percent land dedication or an impact fee in lieu of land with new development, in order to meet the City’s park and recreation needs. Work with the Park District to determine what contribution would be most appropriate in the Tier 2 area.
1.5.10 Utilities: Sanitary Sewer and Water Systems. Potable water may be provided by a rural water district, or by the city if development is within ½-mile of city services. Package sewage
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treatment systems will be required if feasible, otherwise the development must connect to the city system.
1.5.11 Utilities: Storm Water System. Developments will be required to treat storm water on site or to connect to an existing drainage system. Further drainage requirements will be established by the City in its Storm Water Master Plan.
1.5.12 Funding of Infrastructure: All infrastructure costs will be paid by the landowner/ developer of the subdivision or parcel.
1.5.13 Development Process: Finalize new development infrastructure and funding requirements in a development agreement between the City and the developer for acceptance by the City Council at the time of final plat approval.
1.6 PRESERVE AGRICULTURAL LAND—TIER 3
Agriculture remains a significant segment of North Dakota’s economy and the basis for much of Grand Forks’ economic activity. The land use plan’s primary growth management focus is the urbanization of land necessary for development purposes over the next 30 years. The City’s intent for Tier 3 is to preserve agriculture by ensuring that no incompatible development occurs. Urban land uses should not place undue pressure on agricultural operations that want to remain in business. Preventing urban sprawl from encroaching into the countryside will minimize conflicts between active farming operations and residential uses not associated with agriculture. Rural subdivisions relate poorly to agricultural-related uses, eat up more land and increase the public’s financial burden as the needed infrastructure is not in place to support the demands. Policies to preserve agricultural land are in the best interests of city residents as well as the rural farm community.
OBJECTIVE 1.6 – Preserve Agricultural Land – Identify agricultural land uses within the city’s Growth Management Area and protect active farming operations from urban encroachment.
Tier 3 Policies
1.6.1 Development Characteristic: Active agricultural land. Preserve agricultural land uses and the active farming operations in the Growth Management Area.
1.6.2 Lot Size/Density: Support active farming operations by limiting residential development to one unit per 40 acres.
1.6.3 Land Use: Land uses should be primarily agricultural, associated residential, and uses related to agricultural uses, except to accommodate city infrastructure. Expansion or change of existing uses should be considered by the Planning Department staff and Planning Commission on a case-by-case basis, to determine whether changes would have an adverse effect on the other goals and objectives of this plan.
1.6.4 Cooperative Policies: Work with the county and other local government units to ensure the preservation of active agriculture, prevent scattered urban development on the city/county
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jurisdiction boundary. Work to also prevent land uses that may encourage the accumulation of unaesthetic and unsightly materials that may negatively affect surrounding property owners.
1.6.5 Airport Planning: Use the mapped airport influence zones and land use guidelines as identified in the Airport Master Plan to ensure that land use decisions within the area are compatible with airport growth and meet safety requirements within reason.
1.6.6 Transportation Corridors: Use the transportation principles established in this document to plan for uses and preserve adequate right-of-way for the defined transportation corridors.
1.6.7 Access: Access spacing along major arterials shall be ¼ mile or ½ mile, depending on the type of roadway as identified in the transportation corridor standards on the Access Control Map.
1.6.8 Parks and Recreation: No parks and recreation needs are identified in Tier 3 within the planning period of this document however land for a park should be dedicated if a plat occurs.
1.6.9 Utilities: No urban utilities and services are expected to be extended to this area within the planning period of this document.
1.6.10 Utilities: Sanitary sewer service shall be provided through individual sewage treatment systems.
1.6.11 Utilities: Water service will continue to be provided by rural water systems.
1.6.12 Utilities: Drainage requirements, where needed, will be established by the City in its forthcoming Storm Water Master Plan.
1.6.13 Infrastructure Funding: No City funds are anticipated for infrastructure in Tier 3. Residents will likely contribute to maintenance of rural-level roads that will continue to be maintained by the township.
1.6.14 Development Process: No development agreements are anticipated in Tier 3 because City infrastructure is not needed to serve low density development.
1.7 FISCALLY RESPONSIBLE GROWTH
When possible, new development should be located where it can utilize existing City services in order to avoid costly and unnecessary extensions of infrastructure. The City also recognizes the need for the extension of municipal services in a staged, cost effective manner.
OBJECTIVE 1.7 – Fiscally Responsible Growth – Direct growth toward areas where full public services may be provided cost effectively by timing and staging of infrastructure extensions.
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1.7.1 Encourage new development to locate contiguous to areas currently served and avoid costly “leapfrog” extensions of utilities over large undeveloped tracts of land.
1.7.2 Utilize existing capacity in public utility systems before extending services in order to maximize the City’s investment in existing infrastructure.
1.7.3 Maintain and use the Six-Year Capital Improvements Program to effectively plan, program and finance infrastructure improvements, and to ensure that maintenance and redevelopment needs are balanced with extension of services to new areas.
1.7.4 Utilize a variety of methods to finance urban services, including but not limited to impact fees, special assessment districts, and direct investment by developers as tools for encouraging compact, fiscally prudent development.
1.7.5 Encourage the application for and participation in the numerous federal and state grant programs available for the construction of quality public utilities. (There are numerous federal and state programs that provide funds for participation in construction of lift stations, water treatment facilities, lagoons, industrial water facilities, dikes, dams and transportation facilities. Federal and state participation may be either a grant or a long-term, low interest loan).
1.7.6 Encourage new structures be constructed in areas which are protected by the flood protection system or not likely to be negatively affected by flooding.
1.8 EQUITABLE FUNDING OF INFRASTRUCTURE
OBJECTIVE 1.8 – Equitable Funding of Infrastructure – Follow current City policy on funding infrastructure for new and existing development by identifying where and when costs should be borne by the City as a general obligation and when costs should be special assessed against benefiting property owners.
1.8.1 In addition to the Six-Year Capital Improvement Program (CIP), use the tier boundaries to determine whether utility and infrastructure extensions should be financed by the City or by affected property owners.
1.8.2 Require property owner and/or developer financing for any utility or infrastructure extensions that are built out of sequence of the CIP.
1.8.3 Use the special assessment district mechanism for funding when appropriate, and ensure that districts include all areas that will benefit from improvements. This includes properties on both sides of a road when the roadway is specially assessed.
1.9 ANNEXATION AS A TOOL FOR EQUITY
Since 1972, Grand Forks’ annexation policy has required urban development to locate contiguous to the city where services can be efficiently and economically provided. In general, these areas should be annexed when City utilities and services are extended to them. However, the policy has not
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always worked as intended. Annexation has not always been systematic, and some surrounded areas have not been brought into the city.
It is important to maintain the city’s tax base and for Grand Forks to take a proactive approach to annexation. The city needs to grow and incorporate the residents and development on its fringe in order to remain strong and maintain its role as the economic center of the region
OBJECTIVE 1.9 – Annexation as a Tool for Equity – Use annexation as a tool to incorporate urban development and provide a system where all residents and landowners share in the benefits and costs of municipal services.
1.9.1 Develop a strong City policy to initiate annexation of land surrounded by urban development that benefits from municipal services.
1.9.2 Staff will annually review the existing annexation points system and add elements that better reflect costs and benefits to the city as a whole in making annexation decisions.
1.10 ANNEX URBAN DEVELOPMENT IN THE GROWTH MANAGEMENT AREA
OBJECTIVE 1.10 – Annex Urban Development in the Growth Management Area – Annex all urban land uses and developments contiguous to the city in the Growth Management Area.
As Grand Forks expands, the existing urban development contiguous to the community should be annexed. Annexation is an initial component of the conversion of agricultural land on the fringe of a community into urban land uses. City policies concerning the timing and location of capital improvements and the provision of municipal services can be very influential in determining the location of future annexations and urban development. Occasionally, an area larger than the proposed development is annexed. This is usually done in order to more evenly distribute the cost of infrastructure improvements to the benefiting properties. Development beyond the City’s urban service area is strongly discouraged, and the City has denied requests for development based on its adopted growth management goals and policies. In some instances, however, development has been allowed contingent upon the property owners signing and recording a document agreeing to be annexed at a future date.
1.10.1 Establish a systematic annexation program that accompanies the extension of infrastructure and provision of municipal services to new development or existing development and include annexation of dedicated or statutory right-of-way with an additional 140-foot-wide strip on both sides of the dedicated ROW or 157-foot-wide strip for statutory ROW. Use the mediation process and/or administrative hearings, as provided by the North Dakota Century Code, to resolve disagreements regarding annexation.
1.10.2 Incorporate annexation programming into the approval of development agreements.
1.10.3 Utilize the North Dakota Century Code guidelines when determining the feasibility of annexation for an area.
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1.11 DEVELOPMENT REVIEW PROCESS
This plan was undertaken because the City recognized a need to ensure its ability to effectively respond to the level of development that is occurring. The City has taken the first steps toward proactive planning for the Growth Management Area in order to continue to grow in an appropriate manner.
This growth management goal has identified some new processes and other new approaches that will be undertaken to implement these policies. It is important to recognize that although the changes will require City officials and decision makers to consider development in a new framework, these changes will also have a very real impact on how City staff will review and process planning and zoning actions.
OBJECTIVE 1.11 – Development Review Process – Ensure that the City implements and maintains an efficient development review process that is based on the policies established by this plan.
1.11.1 Review existing regulations for the Growth Management Area and determine where enforcement may need to be enhanced or more clearly defined.
1.11.2 Ensure that the City has adequate staffing to provide efficient review and thorough evaluation of development activities and to provide related City services to the public.
1.11.3 Work with, and establish agreements with the County, townships and special districts to ensure that regulatory inspections and processes are in place and will guard the health, safety and welfare of residents within the City’s Growth Management Area.
1.11.4 Enforce regulations that require the City to accept only complete submissions for any zoning or subdivision submittal; ensure that the submittal deadlines are adhered to and allow adequate time for City reviews and recommendations.
1.11.5 At a minimum, the City will require applicants for new subdivisions or major developments to meet the following elements (as identified in the City’s subdivision regulations):
• Consistency with the Land Use Plan; • Appropriate external and internal access to serve the development; • Adequate ROW along major arterials; • Sanitary sewer and water services; • Storm water drainage or storm water treatment facilities, either within the development site or downstream; • Meets required standards such as park dedication or impact fees; • Financing of all services, including special assessments, is established through development agreement; • Connection to City utilities; • Annexation agreements.
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1.11.6 Institute a formalized development review process for subdivisions or other major developments; the process should include a regularly scheduled meeting that includes all City staff responsible for reviews to ensure that the City can present a unified recommendation and that critical issues can be identified and resolved prior to public hearings.
GOAL 2 - RESIDENTIAL DEVELOPMENT – Support stable, long-term residency with a mix of well-maintained housing types to target the full spectrum of ages, incomes, family types and household sizes of existing and potential residents.
The average person spends between 20 to 25 percent of his or her monthly income on housing regardless of whether it is rent to a landlord or a mortgage payment to a bank. The City, Park District, School District, and County all rely heavily on the property taxes generated by residential property throughout the City. The City has a significant interest in protecting the quality of residential development to ensure a continuing high quality of life for all of its residents.
Residential land use occupies a large portion of the urban landscape. Approximately 33 percent of the overall land in Grand Forks is residential. Although Grand Forks has achieved a high degree of success in the area of residential development there are still some housing issues to address.
2.1 LOCATION OF RESIDENTIAL DEVELOPMENT
OBJECTIVE 2.1 – Location of Residential Development – Continue to encourage residential development in existing Grand Forks neighborhoods to spur revitalization in areas that are attractive to first-time buyers, accessible to services, and can be efficiently served with utilities and infrastructure.
2.1.1 Use the Future Land Use Map (see Chapter 4) to guide decisions on future residential development.
2.1.2 Recognize that the future land use map groups medium density with single family residential; both single family and medium density uses should be accommodated in these areas.
2.1.3 Use the urban design policies (Objective 5) and the transportation and land use guidelines in Table 3.1 for further direction on land use decision making.
2.2 QUALITY HOUSING STOCK
The housing problems in Grand Forks include a deteriorating and aging stock of housing, shortage of affordable housing (rental and owner-occupied, single family and multiple-family), and loss of affordable housing stock in the 1997 flood. The deterioration of housing in Grand Forks is due to a number of factors including minimal enforcement of building standards, poor construction materials, and neglect.
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Beginning in the late 1980s, local developers and builders began to concentrate more heavily on building custom single family homes, which decreased the availability of affordable housing in Grand Forks. The effect on the local housing market has been an increasing demand for moderate- cost single family houses under $80,000. The recession of the early 1990s, combined with the rising cost of land, and fear over the possible closing of the Grand Forks Air Force Base has reduced the number of multiple-family dwellings built. The number of multi-family dwelling units built varies greatly from year to year based on local trends. Fear of the Grand Forks Air Force Base closing will cause multi-family building permit numbers to decline one year, while record enrollments at the University of North Dakota will cause them to skyrocket the next. Since 1990 the trends of increased enrollment at the University, the centralization of the rural populations, and the need for affordable housing lost in the flood have reinforced the fact that Grand Forks needs to maintain quality multiple-family housing. Overall the market for multi-family dwellings has been favorable; consequently the average number of multi-family dwellings built has consistently risen since the late 1990s; 539 multi-family units were permitted in 2003 and 2004.
OBJECTIVE 2.2 – Quality Housing – Maintain, protect, and upgrade the City’s housing stock to provide safe housing that meets the needs of Grand Forks families in established neighborhoods to spur revitalization and utilize existing infrastructure.
2.2.1 The Planning and Urban Development departments should work together to continue existing programs and add programs that will support the replacement or rehabilitation of sub-standard housing stock in Grand Forks.
2.2.2 The Planning and Urban Development departments should develop programs and secure funding that support adaptive and innovative reuse/renovation of deteriorating property and dilapidated buildings.
2.2.3 The city should develop policies and incentives that can help encourage the free market system to build its “fair share” of low and moderate income family housing units.
2.2.4 Consider developing zoning regulations which advocate the inclusion of affordable housing in residential developments.
2.2.5 Encourage well planned and designed manufactured housing developments that can help provide safe, moderate cost housing.
2.2.6 Promote stronger property maintenance within the city via programs such as a City- sponsored Homeowners’ Night (one-stop shop for home improvement tips and resources, permit applications, and zoning/ inspections questions and answers).
2.2.7 Promote the concept of community land trusts throughout the city.
2.2.8 The city should approve residential areas only if they have a well-planned street system, nearby recreational areas and are within a reasonable distance of a commercial area.
2.2.9 Consider establishing periodic concentrated code enforcement sweeps to address various code problems in order to improve the quality of property in the city.
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2.2.10 Use development and redevelopment opportunities to reduce the number of non- conforming and incompatible uses within residential districts.
2.3 SPECIAL NEEDS HOUSING
OBJECTIVE 2.3 – Provision for Special Needs Housing – Assist in the development and redevelopment of housing stock for citizens with special needs, in areas that are walkable and located close to transit.
2.3.1 The City should work with the Urban Development Department and various non-profit entities to construct safe, attractive housing for the elderly, persons with disabilities and other special needs. GOAL 3 – COMMERCIAL DEVELOPMENT - Support stable and economically viable commercial development that will continue to enhance Grand Forks’ role as a regional shopping center.
3.0 COMMERCIAL DEVELOPMENT
Commercial development is a major factor in driving Grand Forks’ economic growth. Where commercial property is developed and how the site is designed are two primary concerns from a land use planning perspective.
3.1 LOCATION OF COMMERCIAL DEVELOPMENT
Commercial developers often follow the three basic rules of commercial development: location; location; and location. The location of commercial development is driven by a wide variety of factors including traffic patterns and volumes, accessibility, visibility, surrounding land uses, and demographic information.
Downtown is becoming the region’s center for specialty-retail and service-based businesses such as banking and legal services. In 2009, the cities of Grand Forks and East Grand Forks, in cooperation with the Grand Forks/East Grand Forks Metropolitan Planning Organization (MPO) approved the River Forks Downtown Plan Update, which is an update of the Grand Forks 1982 and 1994 Downtown Plan. The River Forks Downtown Plan Update emphasized the importance of the river front area as a natural gathering place for people.
Grand Forks has also seen the development of auto-oriented commercial strips and suburban shopping malls. South Washington Street and South Columbia Road are two primary commercial arteries. The Columbia Mall, off Columbia Road, is a traditional suburban mall, while 32nd Avenue South has developed into a “big box” commercial corridor with each business in its own building instead of an enclosed mall. Most of Grand Forks’ new commercial development has occurred in the vicinity of the Columbia Mall and 32nd Avenue South over the last decade.
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OBJECTIVE 3.1 – Location of Commercial Development – To spur revitalization ensure that commercial uses are located near and convenient to existing neighborhoods in appropriate areas from land use and zoning, service delivery, and transportation perspectives.
3.1.1 Use the Future Land Use Map (see Chapter 4) to identify appropriate locations for commercial development.
3.1.2 Focus commercial development efforts on commercial nodes to prevent the proliferation of strip commercial areas along streets and highways and the development of commercial areas that do not relate well to surrounding land uses.
3.1.3 Locate commercial uses within commercially-zoned areas where urban services are available. No commercial uses shall be approved without resolution of all traffic, infrastructure, storm water management, and compatibility issues.
3.1.4 Use appropriate zoning districts to ensure that a variety of commercial/business uses may be planned at interchanges, including highway commercial, mixed use, or office park.
OBJECTIVE 3.2 – Establish New Zoning Districts – Establish and utilize new zoning districts that better reflect uses and allow greater specificity in guiding commercial, office and mixed use development.
3.2.1 Continue to evaluate the zoning code to establish better differentiation of the commercial districts into Neighborhood Commercial, Community Commercial, and Highway Commercial.
3.2.2 Monitor and maintain the zoning code to establish Transportation Corridor overlays where standards will be used to guide decision making on development along these major roadways.
3.2.3 Evaluate the possibility of establishing a Mixed Use district to provide for a combination of complementary uses within close proximity. The Mixed Use district is envisioned as a district that provides a transition between more intense uses such as a major arterial or industrial uses, and a less intense use, such as a residential neighborhood.
OBJECTIVE 3.3 – Enhance the Role of Downtown – Recognizing its importance in the City’s continued growth, create and regularly update a Downtown Master Plan that coordinates a vision, goals, objectives, and policies for development specific to the downtown.
3.3.1 Promote the viability of the Central Business District (CBD)—with an emphasis on commercial services, facilities, and employment opportunities which enhance the downtown environment—through the updating of the various plans for the downtown.
3.3.2 Foster and encourage a coordinated and cooperative approach between the City and East Grand Forks to further enhance and strengthen the development and/or redevelopment of the downtown.
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3.3.3 Use available resources to retain housing units that will keep people and services to the downtown.
3.3.4 Continue to implement the Downtown Design Review Board design criteria, with periodic review to ensure guidelines are kept up-to-date.
3.3.5 Continue to develop, manage and market events downtown to increase the cultural, recreational and economic vitality of downtown.
3.3.6 Encourage the growth of the Renaissance Zone to ensure continued investment and reinvestment of downtown properties.
3.3.7 Continue and strengthen the integration of the Greenway and the downtown. GOAL 4 – INDUSTRIAL DEVELOPMENT – Support economically viable industrial development that will help Grand Forks retain jobs and provide a stable economic base for the future.
Development in the industrial sector is often overlooked as a community grows, because many people associate growth with expansion in the residential and commercial sectors. A comprehensive approach toward industrial development is necessary in order to balance employment in the local economy and provide a strong foundation to build and expand the city’s economic base.
4.1 INDUSTRIAL DEVELOPMENT AND DESIGN
Industrial users must follow federal, state and local regulations governing air quality, water quality, solid waste disposal and programs to help reduce the impact potential on other surrounding land uses. Local governments have become more active over the past 20 years in assisting industrial businesses, especially with the financial means of establishing a business. The Grand Forks Land Development Code broadly defines industrial land use as a wide variety of uses including warehousing, mining, wholesaling, manufacturing, and processing. Grand Forks has approximately 930 acres zoned for industrial uses within the City limits and approximately 1,070acres of land either in industrial use. The zoned area is smaller than the land existing land use because some of the industrial exist in the Planned Unit Development (PUD) zone.
The design standards used in industrial development are different than those for commercial and residential areas. First, industrial developments are more concerned with a site that has good access for trucks, rail, and in some cases air service. Some industries need air cargo service but not necessarily good exposure. Since the needs of industrial users tend to be similar, they have preferred to locate in areas where City infrastructure can be sized to accommodate these needs and where objections to their operations can be minimized. Industrial parks fulfill those needs, as they are subdivided into large blocks of land. Some examples of industrial developments’ unique
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infrastructure needs include thicker street paving to handle the large volumes of truck traffic and oversized water and sewer lines for large industrial water uses.
OBJECTIVE 4.1 – Location of Industrial Development – Ensure that industrial uses are located in areas that are appropriate from a land use and zoning, service delivery, and transportation perspective.
4.1.1 Locate industrial uses in available industrial areas inside the City limits and in Tier 1 as identified on the Future Land Use Map (see Chapter 4). These areas are the only locations where City infrastructure, including transportation lines, water service, storm and sanitary sewers and public safety services can appropriately serve industrial-level service and safety requirements.
4.1.2 Encourage the redevelopment of underutilized and “brown field” industrial sites inside the city limits. Such areas are already served with city services and infrastructure and can contribute to the City’s tax base.
4.1.3 Improve the design and efficiency of industrial development by encouraging platting of industrial parks that include multiple lots/acreages, rather than approving individual sites on a piecemeal basis.
4.1.4 Reevaluate the I-1 and I-2 zoning districts to determine whether these zones should be reduced in scope and additional zones created, or whether additional design guidelines or other overlays should be used to provide better guidance in industrial construction and development.
OBJECTIVE 4.2 – Provision of Industrial Land – Ensure the provision of adequate levels of industrial land to meet future development needs.
4.2.1 Ensure an adequate supply of industrial land so that there is room for expansion to meet future needs, and to ensure adequate land to attract new investors to the community.
4.2.2 Continue to work cooperatively with the Economic Development Corporation (EDC) to identify land availability, services, utilities and other incentives to attract investors to Grand Forks.
OBJECTIVE 4.3 – University of North Dakota Tech Park – Assist UND in the promotion and development of the University Tech Park.
4.3.1 Work with the University of North Dakota to designate an area of the community to ensure a high quality and attractive setting for technology companies.
4.3.2 Work with the University of North Dakota to attract and grow technology-related ventures and to facilitate strategic relationships between technology-based companies and the University of North Dakota.
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4.3.3 Continue and strengthen the designation of this area as a HUBZone (Historically Underutilized Business Zone) and its associated Empowerment Contracting Program to stimulate economic development and to create jobs in this area of the community by providing federal contracting preferences to small businesses.
4.3.4 Assist the University of North Dakota in identifying additional areas of the community to which the Tech Park concept (a campus-like setting for the commercialization of research innovations via the state’s Center of Excellence Program and Red River Valley Research Corridor) can be extended.
GOAL 5 – URBAN DESIGN AND LAND USE PLANNING – Implement design standards to create attractive streetscapes, public spaces and architecture and to foster creation of strong neighborhoods and attractive commercial and industrial areas.
5.1 DIVERSE DEVELOPMENT PATTERN Traditional zoning is often perceived as being either too rigid or having too many loopholes to be an effective means of land use control. In order to encourage a diverse development pattern, zoning should be flexible enough to evaluate the proposed land use on a case-by-case basis, yet rigid enough to withstand potential legal challenge. New approaches to zoning, such as overlay zones, as well as a mixed-use approach, allow flexibility and creativity for the city to use in working with developers.
OBJECTIVE 5.1 – Diverse Development Pattern – Support mixed use industrial, commercial and business development to encourage proximity and clustering of complementary uses, create new employment and business centers, and offer opportunities for pedestrian and transit travel to reduce vehicle travel.
5.1.1 Encourage development of areas designed with a centrally located neighborhood center consisting of neighborhood shopping space, office and work space, an educational facility, and recreational uses in an integrated multi-functional approach.
5.1.2 Change the City’s use of the Planned Unit Development (PUD) mechanism and use it as an overlay district rather than a zoning district. The PUD overlay approach will provide clarity and give the city and developers the flexibility needed to creatively design and provide a high-quality mix of land uses. Encourage the creation of a set of design standards to help guide PUD’s.
5.1.3 Amend the zoning code to establish a mixed-use district that allows a combination of complementary uses including residential, commercial and office uses within close proximity.
5.1.4 Encourage mixed-use development along high traffic corridors to provide a variety of land use opportunities and prevent over-reliance on strip commercial uses in these areas.
5.1.5 Use design guidelines to provide appropriate transitions between different types of land uses in order to avoid adverse impacts on adjoining properties.
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5.1.6 Incorporate transit-oriented design into mixed-use developments at key nodes and ensure provision of sufficient amenities for pedestrians and bicyclists (for example, bike racks, lighting, sidewalks).
5.1.7 Use the transportation and land use guidelines in Table 3.1 for decision making on compatibility of land uses and relating uses to appropriate transportation facilities.
5.1.8 Consider the establishment of a mixed-use district to incorporate areas around the downtown core.
5.2 COMPREHENSIVE RESIDENTIAL DESIGN
Comprehensive residential design includes a great deal of coordination between many different interested parties including the developer, City Departments (i.e., Planning, Engineering/Public Works, Fire, and Streets/Sanitation), others (e.g., Post Office, NSP, Cable TV, Qwest), and the Planning Commission. The review process relies heavily in the expertise of others to ensure that all design elements are high quality. The first element of residential design is the determination of appropriate uses, the density of development, and the compatibility with the surrounding land uses. This element is controlled through the zoning portion of the Grand Forks Land Development Code. The next element is a review of the proposed lot layout and the proposed street, bikeway, and walkway network. During this review process the city must determine if it has adequate rights-of- way and easements for the installation of the necessary streets and utilities. The City’s enforcement power of this element is located in the Grand Forks Land Development Code and is considered during the platting of the property. The final element is the evaluation of site-specific details. There are two different ways of evaluating individual sites, determined by whether the site is conventionally zoned or in a PUD. If the area is conventionally zoned, a site plan is reviewed administratively for townhouses, multiple-family, commercial, and industrial development. Site plans are not required for single family and duplex homes. If the site is located in a PUD a Detailed Development Plan (DDP) is required. Site plans or DDPs gives the City the ability to check the following for compliance with the code: landscaping; lighting; street addressing; location of mail boxes; service line connections to utilities; off-street parking; and other additional amenities that may be required.
OBJECTIVE 5.2 – Comprehensive Residential Design – Implement design standards that provide opportunities for mixed residential uses particularly locations close to transit, through the use of high-quality building materials, and incorporate public spaces and appropriate transitions with adjacent uses.
5.2.1 Use the design guidelines in Chapter 5 as a beginning for evaluating new residential development. 5.2.2 Strive to build new neighborhoods that foster social interaction and community building by encouraging integration of residential, recreational, and commercial uses.
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Table 3.1 Land Use and Transportation Facilities Existing Freight & Roadway Facility Transit Pedestrian & Bicycle Land Use Type Adjacent Land Use Zoning Commercial Type Service Facilities Districts Transit Residential or R-4 or Planned Typically on High Density: >20 Major arterial, minor Neighborhood Ctr, Unit major units/acre arterial, collector Employment or Shopping Development arterial Sidewalks, bike lanes Clusters (PUD) Ideally no truck and local streets routes or rail right- Medium Density: Local, collector, Neighborhood Ctr, Other accommodate local R-3, R-4, PUD Collector of-way 6-20 units/acre minor arterial Residential bike traffic. Low Density: <6 Local, cul-de-sac, Med. Residential, R-1, R-2, PUD Collector Residential units/acre loop Convenience Commercial Service on Extensive bike & periphery pedestrian facilities in Local, collector and Medium to high density no trucks allowed, Park and Open Space Park and serving interior of park, non- special use facilities residential or active rail lines park motorized connections entrance to other areas Interstates, freeway, High density-multiple- Planned Unit Regional regional public family residential & Development Transit service to transit regional commercial (PUD) Truck delivery on Urban pedestrian CBD. and off-street and &bicycle amenities, Commercial Major arterial routes, Medium or high density B-1, B-2, B-3 or Shelter and Community via arterial and typically oriented to urban public transit multiple-family residential PUD schedules collector streets retail establishments often Local, collectors, neighborhood Neighborhood scale uses B-4 PUD provided walkway, bikeway Light Industrial Planned Unit Residential and appropriate within Arterial and freeway Development scale Residential (PUD) Typically no transit Truck routes Light Industrial Arterial, rail, public Commercial, med. To high service Minimal pedestrian and Industrial I-1 or PUD provided with wide isolated transit density residential required, bike facilities turning radii provided if Interstate, arterials, Ag., Transportation related necessary Heavy Industrial rail, airport, and Industrial, and Extensive I-2 or PUD public transit Commercial Ag. Truck hauling No transit through routes required, Minimal pedestrian and Agricultural/Rural Freeway and arterial Ag, Industrial, Residential A-1, A-2 serving area farms paratransit bike facilities and processing if demand plants
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5.2.3 Through the development review process, the City shall encourage the creation of interconnected street patterns so that one subdivision will connect to another. 5.2.4 Through the development review process, the City shall encourage a network of sidewalks and bicycle paths that provide interior circulation, as well as connections to nearby schools, stores, or other activity centers. 5.2.5 Review the landscaping guidelines in the code to develop a more clear direction that can be more easily implemented than the current system. 5.2.6 Require that landscaping is included with all site plans, and ensure that the plans are carried out as approved.
5.2.7 Utilize the zoning code (using the recommended mixed use, or neighborhood commercial districts) to ensure that regulations allow a variety of housing types, various residential densities, and where appropriate, neighborhood-oriented office, service and retail land uses.
5.2.8 Encourage the development of neighborhood associations to provide local input to and coordination with the Planning and Zoning Commission and other agencies and departments (such as the Department of Urban Development).
5.2.9 Promote the creation of land use patterns that will increase the accessibility of public and private facilities (regional shopping center, medical park complex, libraries, schools, etc.) from all residential areas, with particular attention given to people who are transit-dependent or have other restrictions on travel, such as disabilities.
OBJECTIVE 5.3 – Traditional Neighborhood Character – Maintain traditional neighborhood character in existing neighborhoods and ensure that infill and redevelopment are guided by design standards that reflect their character.
5.3.1 Assist the Urban Development Department in guiding infill development in existing neighborhoods to ensure that new and renovated buildings respect the established characteristics of the surrounding neighborhood in terms of scale, massing, materials, and orientation to the street.
5.3.2 Use the Downtown Design Guidelines as a basis for developing more specific guidelines for infill design and for areas with specific architectural requirements.
5.3.3 Use the recommended new zoning districts, including mixed use and neighborhood commercial, to create lively development that is walkable and promotes activity in neighborhoods.
5.3.4 The City should require that new or reconstructed streets in older neighborhoods maintain the traditional grid street pattern with sidewalks and street trees, and on-street parking.
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OBJECTIVE 5.4 – Strengthen Grand Forks’ Identity – Strengthen the identity and sense of place of Grand Forks, including its variety of neighborhood characteristics and encouraging a mix of residential and neighborhood commercial development in new development areas.
5.4.1 Work with the Grand Forks Historic Preservation Commission to update the official inventory of historic resources.
5.4.2 Establish a comprehensive historic preservation program which establishes design review for any changes or alterations to properties in locally designated historic districts.
5.4.3 Establish special entry or gateway features at key entrances to the city to create a sense of arrival and identity. Such features have been installed in Downtown and are planned for Gateway Drive, and a similar approach should be used to develop a consistent theme for other primary entrances. 5.5 COMMERCIAL AND INDUSTRIAL DESIGN STANDARDS
Most commercial and industrial property developed in Grand Forks goes through a process similar to the residential review process. The plans are reviewed by the same city departments and are approved by the Planning Department Staff.
The first component of commercial design is the determination of appropriate uses and compatibility with surrounding land uses. Like the residential development process this component is controlled through the zoning portion of the Grand Forks Land Development Code.
The next component of commercial development design is a review of the proposed lot layout and the proposed street, bikeway, and pedestrian network. During this portion of the review process, the city must determine if it has adequate right-of-way and easements for the installation of the streets and utilities. The City’s enforcement power of this component is located in the subdivision regulations of the Grand Forks Land Development Code and is considered during the platting of the property.
The final element of the review process is the evaluation of the Detailed Development Plan (DDP) or the Site Plan. The review of the DDP or site plan allows the staff to check a multitude of requirements including building setbacks, landscaping, off-street parking, lighting, street addressing, service line connections to utilities, site drainage, architectural style, and many other items. The review process allows both the developer and the City to solve problems prior to the start of construction. The current review process requires both parties to iron out their differences through a series of meetings with the Planning Commission and City Council. The ultimate goal is to achieve a balance between public and private interests. Plan reviews are required for all commercial areas within PUDs and conventionally zoned commercial districts (B-1, B-2, B-3, and B-4 under the existing code).
OBJECTIVE 5.5 – Commercial and Industrial Development Design Standards – Implement, maintain and update the design standards created to achieve attractive commercial and industrial districts including transportation corridors with cohesive architectural treatment, landscaping, and appropriate transitions to adjacent uses.
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5.5.1 Implement the commercial and industrial design standards as identified in Appendix D of this plan.
5.5.2 Partner with business associations in maintaining the corridor overlay standards.
5.5.4 Explore means of reducing the number of billboard signs within City limits, including buyouts or other arrangements.
5.5.5 Ensure that property owners are aware of maintenance responsibilities in commercial areas, including responsibility for buffer strips and rights-of-way.
5.5.6 Utilize performance standards in reviewing industrial development proposals and operations. Approved uses will be required to meet standards governing landscape, architectural style, noise, odor, glare, exterior lighting, vibration, smoke, dust, fumes or gases, storage of material, hazards, water supply and waste as dictated by I-1 & I-2 zoning district.
GOAL 6 – PARKS AND OPEN SPACE – Promote and maintain adequate parks, open space and recreational facilities for the City of Grand Forks.
6.0 PARKS/RECREATION AND OPEN SPACE
Parks, open space and provision of recreational opportunities are the responsibility of the Grand Forks Park District, although other governments including the city, county, and state are also involved with the development of the parks and open space system. The creation of recreational land and open space is an important component in the overall development of a city.
6.1 DEVELOPMENT OF PARKS/RECREATION AND OPEN SPACE SYSTEM
The development of recreation and open space areas encompasses both passive and active park lands and facilities. The park system can include a broad range of passive open spaces such as picnic areas, flower gardens, or the greenway along the Red River. It must also include active recreational space such as scenic bike paths, ice skating rinks, golf courses, tennis courts, basketball courts, playgrounds and recreational centers.
OBJECTIVE 6.1 – Development of Parks / Recreation and Open Space System – Continue to develop a sound park and open space system that will provide a variety of recreational opportunities for all citizens.
6.1.1 Incorporate the Greenway and flood protection system into the city’s parks and open space system, and encourage development and/or redevelopment of the riverfront consistent with the Greenway plan.
6.1.2 Enforce the city’s regulations to ensure that new infill projects which create higher densities within the established city contribute land or a fee to meet the parks and open space land requirement.
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6.1.3 Coordinate with the Park District to cooperatively identify sites needed for active and passive recreation as new areas develop.
6.1.4 Coordinate planning with the Park District to ensure development of core parks in proximity to residential areas and in areas with high recreation potential (for example, elementary schools).
6.1.5 Coordinate planning with the Park District to identify areas not adequately served by existing recreational facilities and to ensure that facilities are programmed.
6.1.6 Provide public recreation programs that meet community desires and periodically review and evaluate programs to meet changing needs and interests.
6.1.7 Encourage community residents to participate in the planning process so that their needs and desires can be expressed in the development of Grand Forks parks and open space system.
6.1.8 Include provisions in the subdivision regulations to allow development of private parks in developments and to require that they are maintained by neighborhood/homeowners associations.
6.1.9 Enforce the existing park and open space requirements regarding common open space within developments.
6.1.10 Encourage a cost effective park and open space system.
6.1.11 The Planning Department and Grand Forks Park District should evaluate whether adequate progress is being made toward park and greenway plans. At a minimum, such evaluation should occur every five years.
6.1.12 Develop with the Planning Department a long range Park & Open Space Plan for the future.
6.2 PARKS AND OPEN SPACE DEDICATION AND MAINTENANCE
The City participates in the development of the park and open space system through a park exaction provision in the Grand Forks Land Development Code on newly developed or redeveloped residential land. During the development review process a developer is required to dedicate property for additional core park and/or open space needed to maintain the City’s standards.
OBJECTIVE 6.2 – Park and Open Space Dedication and Maintenance – Preserve and value the open character of the community, whether urban, suburban, or rural, through maintenance of open spaces to ensure the provision of valuable natural and scenic resources for present and future generations.
6.2.1 Ensure that developing and redeveloping land in Tiers 1 and 2 include sufficient open space and recreational facilities by either strictly enforcing the eight percent park dedication
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requirement of land (or fees in lieu of land) or creating an impact fee system as part of the development review process to ensure that all developments contribute to the park system as required.
6.2.2 Enforce the development review process to ensure that space that is set aside by developers for parks and recreation is suitable for the intended purpose. The dedicated areas shall not be merely the “leftovers” that remain after other development has been located, but appropriately located to provide access and to meet park purposes.
6.2.3 Conduct a city-wide inventory of potential open space and prioritize for preservation of those areas adjacent to high-quality amenities for recreational use, including but not limited to areas with topographic variation, waterways, natural prairie, or woodlands.
6.2.4 Amend the zoning code to prohibit the conversion of park and open space to other uses.
6.2.5 Encourage the Park District to accept and maintain stormwater retention features and coulees accepted as park, open spaces and/or conservation areas that have been deeded and dedicated to it.
6.2.6 Encourage the Park District to acquire open spaces and bike path easements around coulees and the riverbank to maximize the availability of recreational space in the city.
6.2.7 Amend the zoning code to require the provision of parks and trails as part of developments within the Tier I and Tier II areas.
6.2.8 Encourage the Park District to consider storm water management areas as contributing to the eight percent park dedication requirement when these areas are accessible, safe and made appropriate for park or recreational purposes.
6.3 RECREATION / OPEN SPACE COOPERATION
Currently, the Grand Forks Park District is responsible for the vast majority of park development and recreational facilities in Grand Forks. The Grand Forks School and Park Districts have developed and maintain numerous playgrounds and recreational facilities on School District property. The City also is involved in new park facilities like the Greenway, dag parks and Riverside pool.
OBJECTIVE 6.3 – Recreation / Open Space Cooperation – Promote cooperation among the City, School District, Park District, County, and other government entities in the development of core parks, recreational facilities, and open spaces.
6.3.1 Coordinate regular meetings between the Park District and other City departments (such as the Planning Department, Department of Urban Development, Department of Public Works) and non-City entities (such as the Metropolitan Planning Organization) to provide efficient park and open space planning and ensure that all entities are aware of future plans.
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6.3.2 Coordinate with the School District to encourage the availability of schools’ recreational facilities to neighborhood residents when appropriate.
6.3.3 Include representatives from the Park District and School District in the Planning Department’s development review process to ensure that park and recreational planning is incorporated into the process.
6.3.4 Encourage the Park District to accept the maintenance responsibility of all parks and open spaces dedicated to the public and deeded to the Park District.
6.3.5 Include funds for the maintenance of bike/pedestrian paths and public safety services located on public lands and rights-of-way in the CIP process.
GOAL 7 – TRANSPORTATION – Ensure compatibility between future land uses and the transportation system.
7.0 TRANSPORTATION
The City of Grand Forks has adopted the Grand Forks – East Grand Forks Transportation Plan as part of the City’s Comprehensive Plan.
The Transportation Plan addresses the recent, current and future state of all modes of transportation in the region. The purpose of the plan is to use a comprehensive, objective approach to examine the transportation needs of the region and to recommend a course of action which will maintain the high level of service now provided by the transportation system.
The 2040 Grand Forks Land Use Plan recognizes the Grand Forks – East Grand Forks Transportation Plan as a separate document but shall consider the goals, objectives and policies within it as part of the Land Use Plan. The goals, objectives and policies within the Transportation Plan shall be applied to all land use decisions, which will provide sound transportation planning for future growth. The goals of the Transportation Plan include:
1. Provide a safe transportation system 2. Provide an efficient transportation system 3. Provide mobility and accessibility to users of the transportation system 4. Provide compatible transportation and land use systems 5. Minimize adverse impacts from transportation 6. Finance the transportation system 7. Promote a balanced, compact land use growth pattern
Land use and transportation are inter-dependent and affect each other. For example, most commercial land uses want to be adjacent to high traffic arterial streets. In order for land use to function properly the transportation system should be designed to adequately support the land use. Elements that affect the transportation system and the land use pattern include the speed limit, off-
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street parking, mobility, access, link with the regional roadway, and the approximate number of vehicles using the system each day.
The following goals, objectives and policies relating to the transportation system are from the Transportation Plan. This duplication of these two documents is meant to reinforce the direct relationship between land use and transportation. A few land use plan specific policies are added and others have been modified to reflect an emphasis on the land use perspective.
OBJECTIVE 7.1 – Compatibility of Land Use and Transportation – Develop transportation/land use compatibility guidelines to make land use decisions that are compatible with anticipated transportation facilities and gives people access to jobs, education and services as well as giving business access to markets.
Streets and Highways
7.1.1 Assign correct facility type according to use and location.
7.1.2 Design roadways to new land use using appropriate facility types.
7.1.3 Commit to a positive evaluation of the street and highway network with reference to standard guidelines for local, collector, arterial, and freeway characteristics.
7.1.4 Use the roadway/land use compatibility guidelines in Table 3.1 to guide decision making regarding the street and highway network.
7.1.5 The zoning code to establish Transportation Corridor overlay districts which address transportation-related standards that should be used to guide decision making on development along these major roadways.
Public Transit
7.1.6 Incorporate transit planning practices and design standards as appropriate into the development review process.
7.1.7 Incorporate transit-oriented design into mixed-use developments at key nodes.
7.1.8 Encourage developers to incorporate transit-friendly designs and provide them with information that will assist their project planning.
Bikeway/Pedestrian
7.1.9 Review and amend the zoning code where necessary to ensure consistency with the bike and pedestrian plan, including requiring new development and redevelopment to provide bike and pedestrian facilities.
7.1.10 Prioritize trail development in areas experiencing residential growth or designated for future residential growth by the Land Use Plans.
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7.1.11 Continue corridor preservation and right-of-way acquisition procedures where appropriate to anticipate future growth trends.
OBJECTIVE 7.2 – Balanced, Compact Land Use Growth Patterns – Use a well-planned transportation network to establish compact development patterns, which provide more transportation choices.
All Modes
7.2.1 Utilize the growth management monitoring system to adjust growth tier boundaries as needed. This will help the City’s transportation planning address growth needs in a timely fashion.
7.2.2 Appropriately balance transportation capacity and land use by using the guidelines in Table 3.1 for decision making regarding the street and highway network.
7.2.3 A positive evaluation with respect to the standards in Table 3.1, and to monitor locations of congestion.
Streets and Highways
7.2.4 Discourage expansion of the street and highway system that would promote noncontiguous development.
7.2.5 Utilize the subdivision regulations to ensure there is sufficient right-of-way according to the transportation corridor guidelines established in this plan.
7.2.6 Discourage through traffic on local streets and in environmentally sensitive areas.
7.2.7 Route external-to-external truck traffic to use higher level facilities (principal and minor arterials) as opposed to local streets.
7.2.8 Minimize the displacement of residences, historic properties, commercial uses and public land for new transportation facilities.
Public Transit
7.2.9 Utilize public transit and transit facilities to reinforce compact land use patterns.
7.2.10 Incorporate the evaluation of existing or potential transit service into the development review process.
7.2.11 Monitor land development patterns and identify compact development which may be supported by transit.
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Bikeway/Pedestrian
7.2.12 Place bicycle facilities at major destination points.
7.2.13 Encourage governmental agencies to take a leadership role by providing facilities (e.g., bike racks, lockers, showers, employee incentive programs) that will promote biking to work.
7.2.14 Amend the zoning code to further reduce off-street parking requirements for new development and redevelopment that provides bicycle parking facilities.
7.2.15 Amend the zoning code to require all commercial and business establishments to provide appropriate bicycle parking facilities.
7.2.16 Review the Grand Forks Land Development Code for consistency with this plan. GOAL 8 – NATURAL RESOURCES – Ensure preservation and enhancement of the city’s natural resources through appropriate land use planning and development practices.
8.0 NATURAL RESOURCES
Sustainable Climate Change GHG
In recent years the American public has begun to realize that the Earth has a finite amount of natural resources. The three basic strategies of natural resource conservation are reduce, reuse, and recycle. The first strategy is to reduce the amount of raw material needed in the production of consumer goods and energy. The second strategy is to reuse products and materials that have already been produced. The final strategy of natural resource conservation is to recycle materials into new products.
Land use planning provides an opportunity to implement these strategies and to prevent pollution from occurring in a given location instead of trying to clean up the pollution at great expense in the future. Effective environmental protection can be achieved by wholly implementing a comprehensive land use plan, zoning, subdivision regulations, annexation, and capital improvements programs (CIP).
8.1 BALANCE BETWEEN HUMANS AND THE ENVIRONMENT
A balance between humans and the environment can be created and maintained through a comprehensive planning process. The development of an environmentally sensitive area might be protected if high standards of planning, engineering, urban design, and construction are used. Conversely, protection of the environment may in itself justify prohibiting development in environmentally sensitive areas even if development can be done in an economical manner.
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OBJECTIVE 8.1 – Balance between Humans and the Environment – Identify and preserve environmentally sensitive rural landscapes and protect the balance between humans and the environment.
8.1.1 Ensure the protection of natural resources by developing and implementing environmental review standards as part of the development review process, including erosion/sedimentation controls, preservation of existing vegetation, and surface runoff handling.
8.1.2 Conduct workshops for developers and City staff regarding “best environmental practices” for planning, engineering, design and construction.
8.1.3 Explore the economic feasibility of jointly operating a regional solid waste disposal system that would include a resource recovery system with other governmental entities.
8.1.4 Conduct and utilize an area-wide soil survey so that development may be focused in areas with suitable soils.
8.1.5 Adopt this plan’s land use recommendations that promote compact urban development, in an attempt to minimize the emission of air pollutants within the region.
8.1.6 Review proposed development in consideration of the natural resources of the city, preserving prime agricultural land and conserving valuable land and water resources.
8.1.7 Investigate and pursue federal funding for enhancing the riverfront by removing weeds, scrub trees, and debris so that it can be utilized consistent with the vision put forth by the Greenway Plan.
8.1.8 Encourage cooperation with other governmental entities to maintain the riverfront.
8.1.9 Strictly enforce the zoning code’s prohibition of filling and dumping within floodplains.
8.2 ENERGY CONSERVATION
The conservation of energy can be encouraged by implementing land use policies that foster compact urban development. A compact urban area permits shorter travel distances for motor vehicles and can encourage biking or walking instead of driving. Transportation goals and policies reinforce the goals of the land use plan by encouraging the use of public transit, which uses less energy and creates less pollution.
OBJECTIVE 8.2 – Energy Conservation – Incorporate energy conservation into land development practices to ensure the City continues to grow in an energy efficient manner by encouraging energy-efficient housing choices for people of all ages, incomes, races and ethnicities.
8.2.1 Adopt the State’s Energy Code.
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8.2.2 Amend the zoning code to incorporate incentives for provision of alternative and renewable energy systems within developments.
8.2.3 Through the development review process, encourage landscaping that is energy conserving (e.g., drought-tolerant species, native plants).
8.2.4 Provide information and assistance on winterization and other energy conservation programs.
8.2.5 Use the development review process to encourage site-orientated buildings which maximize energy efficiency.
8.2.6 Provide more convenient locations for recycling centers in the City so that residents are encouraged to use them. Review regulations to ensure that centers are allowed in appropriate and accessible locations.
8.2.7 Consider developments’ energy use impacts in the development review process. Encourage use of alternative energy sources such as wind or solar power.
8.2.8 Adopt this plan’s land use recommendations that encourage high density housing and smaller lot sizes.
8.2.9 Encourage new retail business and office buildings to locate in areas that are served by transit and bicycle/pedestrian facilities.
8.3 WATER QUALITY AND DRAINAGE
In the past, allowing rural development that does not utilize municipal services resulted in major impacts on natural resources, particularly ground water quality and surface water drainage.
The regulation of Individual Sewage Treatment Systems (ISTS) protects ground water quality, which also may serve as a water supply to rural residents. The Grand Forks Public Health Department’s designated staff or agent is responsible for the implementation of the ISTS program.
The second major impact of rural development is increased runoff and alteration of surface water drainage patterns. To protect neighboring property owners from these impacts and the city from costly litigation, this plan recommends managing rural storm 2040 Land Use Plan 3-40water systems based on pre-development runoff rates and volumes. This encourages the preservation of the natural drainage system in recognition of the absence of expensive engineered alternatives.
Currently, public resources are not available to maintain the deteriorating natural conveyance system. Constructing new storm water management systems to accommodate development in the rural areas of the city is cost prohibitive. Relying on existing natural storm water conveyance systems is the most cost effective method of managing storm water. This may be a temporary measure to allow for reasonable use of the land until public infrastructure is built to accommodate planned urbanization. In combination with the use of pre-development storm water runoff rates and volumes, this will
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prevent negative impacts on the natural storm water conveyance system. These standards will also prevent further stream erosion and wetland degradation resulting from siltation.
OBJECTIVE 8.3 – Water Quality and Drainage – Develop a city-wide stormwater management/drainage master plan to identify existing needs, comprehensively plan, and fund stormwater management in future developments.
8.3.1 Create and implement a city-wide stormwater master plan.
8.3.2 Adopt the recommendations presented in this plan that minimize adverse impacts to ground- and surface water quality, including location and design decisions.
8.3.3 Require the incorporation of natural drainage patterns in developments. Alterations that would inhibit the role of drainage ways in the hydraulic system shall not be permitted.
8.3.4 Encourage cooperation with the Grand Forks County Water Resource District on all projects relating to water conservation, flood control, watershed improvement and drainage of surface water.
8.3.5 Enforce the design review process to minimize erosion and sedimentation by prohibiting the unnecessary removal of vegetative cover in urban areas and requiring its replacement in a timely manner.
8.3.6 Encourage the use of stormwater pond areas in developments.
8.3.7 Require an external and internal drainage plan of any new construction and where changes are proposed to the existing drainage system, and require dedication of land or create an impact fee system for providing stormwater facilities as part of the city-wide system. For residential development, work with the Park District and the parkland dedication requirement to use these two dedication requirements together.
8.3.8 Coordinate with other governmental entities to establish Red River Basin-wide water resource planning/implementation.
8.3.9 Conduct a city-wide inventory of all natural wetlands, existing artificial drainage systems, ponding areas, and drainage ways.
8.3.10 Determine base stormwater management rate and volumes based upon pre-established, pre- development curve numbers.
8.3.11 Require that post-development runoff volumes shall not exceed pre-development volumes unless it can be demonstrated that there will be no adverse material impact upon receiving water bodies or areas.
8.3.12 Developments will be permitted only when there is assurance of compliance with wetland regulatory programs such as Army Corp of Engineers section 404 and the Wetland Conservation Act.
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8.3.13 Restrict the development of wetlands, floodplains, natural conveyance systems, and other natural features that perform environmental functions.
8.3.14 Amend the zoning code to restrict development that adversely affects stormwater conveyance systems.
8.3.15 Promote groundwater recharge of adequately treated storm water runoff (rather than discharging immediately to major bodies of surface water), for instance by incorporating rainwater gardens or natural stormwater ponds.
8.3.16 Identify alternative wastewater treatment systems instead of ISTS.
8.3.17 Regulate storm water management systems and enforce erosion control practices to protect groundwater from contamination.
8.3.18 Inspect all new wastewater treatment systems.
GOAL 9 – SUSTAINABLE DEVELOPMENT – Energy and environmental issues have been an increasing concern for many years and will be for years to come. Cities around the country have taken the position that they will work in partnership with the federal and state government on addressing these concerns but also have the ability to assume a leadership role at the local level.
The actions available at the local level, while perhaps not singularly a significant impact on the global condition, do provide tangible and attainable energy solutions that save money for local residents, reduce greenhouse emissions of the city/community, increase energy efficiency, and promote a “can-do” collaborative effort that unites individuals, families, communities.
This sustainable development goal is a new addition to the 2040 Grand Forks Land Use Plan. This new goal reflects the Green Grand Forks Action Plan Objectives, showing how the city is doing their part in becoming more sustainable. The sustainability goal and its associated objectives and policies are in alignment with the new livability principles identified by the Federal Government which encourages enhanced sustainability. Examples of these objectives include providing additional transportation choices, enhanced economic competitiveness, increased collaboration between federal, state and local governmental levels, valuing the unique qualities of each city, providing additional access to affordable housing and using federal funds to spur community revitalization and protect rural landscapes to improve livability and community investment.
OBJECTIVES 9.1 – Preserve and Conserve Resources – Protect resources; water, air and land through recycling and waste reduction.
9.1.1 Increase the use of clean, alternative energy by utilizing renewable power such as Wind, Methane and Biomass for municipal and other public facilities whenever feasible.
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9.1.2 Evaluate opportunities to increase overall efficiency in water and wastewater systems; recover wastewater treatment methane for energy production.
9.1.3 Maintain healthy urban forests; promote tree planting to increase shading and absorb carbon dioxide.
OBJECTIVES 9.2 – Green Buildings – Increase efficiency of new and existing buildings with the use of green building technologies.
9.2.1 Practice and promote sustainable building practices using the U.S. Green Building Council’s LEED Program, support the integration of energy efficiency through building code improvements.
OBJECTIVES 9.3 – Dense Urban Fabric – Provide incentives to encourage infill and compact development to increased mobility of people through all modes.
9.3.1 Promote transportation options such as bicycle trails, commute trip reduction programs, incentives for car pooling and public transit.
9.3.2 Adopt and enforce land-use policies that reduce sprawl, preserve open space, and create compact, walkable urban communities.
OBJECTIVES 9.4 – Funding and Investing – Focus on reinvesting in the community through local, state and federal policies, funding and job creation.
9.4.1 Continue the support the Grand Forks Green 3 Initiative and North Dakota State Energy Task Force on Energy Efficiency to focus on reinvesting in the community through local, state and federal policies and funding.
9.4.2 Work to promote collaboration between federal, state, county and local levels of government, whenever possible to provide additional access to affordable housing, to spur community revitalization (using primarily federal funds), to protect rural landscapes and to improve livability and community investment.
GOAL 10 – PLANNING PROCESS – Ensure a planning process that includes the participation of individuals and agencies, and with which the City’s Land Use Plan will be regularly updated and maintained.
10.1 GOVERNMENTAL COOPERATION
There are many levels of government that influence planning activities in Grand Forks including federal, state, county, township, city, school district, park district, and water resource district. In the past, some decisions were made during the planning process which affected other governmental
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entities without any notification or input on the decision. Increased cooperation between governments during the planning process can help identify potential conflicts between governmental agencies.
OBJECTIVE 10.1 – Governmental Cooperation – Annually convene a meeting with all governmental entities to encourage and promote cooperation to ensure compatible and effective planning throughout the region that both meets the needs of current and future residents and businesses, and incorporates historical development patterns.
10.1.1. Under the leadership of the City’s Planning Commission, coordinate and encourage participation in planning activities among all governmental entities to develop cooperative efforts for guiding urban growth.
10.1.2 The Planning Department and Planning Commission should take leadership in encouraging governmental entities to identify appropriate or needed locations for public facilities such as schools, parks, landfills, etc. for the next 30 years, so that this information can be available to inform other planning decisions.
10.1.3 The Planning Department should work with other governmental entities to establish a process whereby these entities can coordinate acquisition of land for public facilities such as schools, parks, housing initiatives, or other public needs. This system could be incorporated into the CIP for City facilities, but should be coordinated with school district facility planning as well, to ensure the most efficient use of tax dollars by both the City and School District.
10.2 CITIZEN PARTICIPATION
A major component of the planning process is providing an opportunity for people to express their opinions in a public forum. Citizen participation on most planning issues can typically be divided into two categories: strong opposition or no opposition. Often citizen comments that would have been helpful during the planning process are expressed after construction of a project has begun.
Citizen participation can be hampered by a lack of knowledge among the general public about the planning process. In 1983, the Planning Department prepared the Land Development Procedural Manual to help clarify the development process. The manual has been periodically updated to reflect the changes in the Grand Forks Land Development Code.
The City of Grand Forks meets, and in most cases exceeds, State regulations on public notification. There is still room for improvement, however. Some planning and zoning items require a public hearing notice to be published in the newspaper of record and a letter of notification to all surrounding property owners within 400 feet prior to the meeting. Often, the published notice is overlooked by the public and the surrounding owners are unaware.
There are several innovative public participation techniques that could be tried, while continuing the required notification procedures. One method to promote more public participation is to publish an
2040 Land Use Plan Update 3-39 3. GOALS, OBJECTIVIES, & POLICIES itemized map along with summary of the next planning and zoning agenda in the local paper. People might see the map and check why there is a number symbol near their property. Another method is to have the developer hold neighborhood meetings at which all concerned property owners are invited and can have any questions answered. Some communities notify residents by placing a temporary sign on the development site being considered for rezoning by the Planning and Zoning Commission.
OBJECTIVE 10.2 – Citizen Participation – Encourage and promote citizen participation by providing adequate opportunity for public input throughout the planning process.
10.2.1 Ensure adequate public notification of all planning-related public meetings and hearings through required publication and mailings, and by consideration of new innovative notification techniques.
10.2.2 Encourage developers to hold neighborhood meetings prior to submitting proposals in order to build community support in the development review process.
10.2.3 Consider developing a brochure or guide that will help educate the public about the planning process and how they may participate.
10.2.4 Make simplified forms available to the public.
10.2.5 Broadcast Planning Commission meetings on the local public access television station to provide an additional method for citizens to learn about the planning process, and to encourage them to participate in a meeting.
10.2.6 Maintain a web page containing information on plans being reviewed or projects under construction.
OBJECTIVE 10.3 – Plan Maintenance – Ensure an active, responsive plan by updating Grand Forks’ Land Use Plan every five years.
10.3.1 At a minimum of five year intervals, the Planning Department shall convene a workshop for appropriate City, Park District and Metropolitan Planning Organization staff, as well as members of the Planning and Zoning Commission and City Council to review, propose and carry out amendments to the Land Use Plan so that it reflects current development policies and practices.
OBJECTIVE 10.4 – Code Review – Ensure regular review of and updates every 5 years—to coincide with the land use plan updates to Grand Forks’ Land Development Code (Chapter 18 of the City Code).
10.4.1 Establish an annual workshop at which the Planning Department and Planning and Zoning Commission review the Land Development Code and identify needed updates.
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Modifications should be considered in an annual update so that the Code is not allowed to become out-of-date and cumbersome to use and understand.
OBJECTIVE 10.5 – Private/Public Utility and Resource Management Agencies Coordination – Annually convene a meeting with all appropriate entities to encourage and promote cooperation to ensure compatible and effective planning throughout the region that both meets the needs of current and future residents, businesses, and incorporates historical development patterns.
2040 Land Use Plan Update 3-41 4. FUTURE LAND USE
Chapter Four: Land Use Inventory
INTRODUCTION
A critical requirement of this future land use plan is to identify orderly land uses, as stated in North Dakota State Law (Chapter 40-48-08): The planning commission shall make and adopt a master plan for the physical development of the municipality and of any land outside its boundaries which, in the commission’s judgment, bears a relation to the planning of the municipality. Such plan, with the accompanying maps, plats, charts, and descriptive matter, shall show the commission’s recommendations for the development of the territory.
The goals, objectives and policies identified in Chapter 3 are the framework for the directions identified in this plan. This 2040 Land Use Plan differs from previous plans completed in Grand Forks in its emphasis on implementation and its proactive approach to managing growth both in the City and in its Growth Management Area (the land outside the city limits to approximately two miles).
The Growth Management Goal (see Chapter 3) identifies the need to “Plan and manage growth to ensure that the City of Grand Forks continues to balance new growth and development through collaboration with all stake holders to promote preservation and enhancement of the city.” This chapter provides the direction for managing future land uses within Grand Forks as well as for the Growth Management Areas outside the city limits in order to achieve balance and contiguous growth.
This chapter begins by examining population and employment projections to help determine the relative levels of land needed to accommodate residential and job-related growth in Grand Forks. This information is compared to the future land use map to ensure that the projections and recommended land uses are compatible. Such analyses are only preliminary steps in overall land use planning; long-range projections can change, and land use maps can be amended to accommodate a major change. For these reasons, it is important to build in implementation measures that encourage the Planning Commission, city staff, and citizens to regularly review the Future Land Use Plan (see Chapter 5).
After discussing population and employment projections, Chapter 4 studies this plan’s future land use map in detail. It continues with a discussion of the transportation corridor overlay approach. POPULATION AND EMPLOYMENT PROJECTIONS
Based on recent historical trends, the MPO has adopted a 0.9 percent population growth rate to project future population. This is a decrease from the 2035 plan when a 1.2 percent population growth rate was anticipated. The 0.9 percent rate has proven to be more accurate for projection purposes, and is the rate employed by this plan. The more accurate the City’s grasp of how many
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people are anticipated to live in it, the better its ability to plan appropriate amounts of land and infrastructure to serve those residents. It is important to recognize that projections are not guarantees of future population numbers, and that actual outcomes depend on a number of uncontrollable factors. Table 4.1 presents population projections for the city through the year 2050, based on the 0.9 percent annual increase rate.
Table 4.1. Grand Forks Population Projections, 2020-2050 Projection Low Mid High Year 6% 9% 1.2% 2010 Census 52,838 52,838 52,838 2020 56,008 57,593 59,179 2030 59,369 62,777 66,280 2040 62,931 68,427 74,234 2050 66,707 74,585 83,142 Projections by GF/EGF MPO
During mid-decade Land Use Plan updates, to check the accuracy of the 0.9 percent growth rate, the MPO also makes projections based on the following: the number of demolitions for the year is subtracted from the number of new building permits; vacancy rates are factored in; and the product is multiplied by the typical number of people per household. This method of calculating projections is the most accurate for tracking the city’s population. Although the Census figures are fairly recent, Table 4.2 shows that population figures calculated in this way (“annual estimate of population”) providing data since the last Census, comparing it to projections made using the 0.9 percent growth rate.
Figure 4.2 Grand Forks Population Estimates
Growth Since 2010 Census
53,400 53,200
53,000 9% Rate 52,800 Permits 52,600 52,400
0 0 1 1 -1 - -10 -11 -1 p-10 pr-10 ay-10 Jul-10 e ov ec an-11 pr-11 ay A M Jun-10 Aug-10S Oct N D J Feb Mar-11A M Population
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While population projections do not predict future land uses, they can indicate the scale at which various land uses may be needed in the future. Projections can generally be partnered with household size information to forecast an anticipated number of housing units needed; this information can be combined with residential density information to provide a general sense of the area of land required to accommodate the growth.
The city, using the 0.9 percent growth rate, projects a 2040 population of 68,427 people. After subtracting the number of people expected to be living in dorms, nursing homes, and other group quarters, 64,918 of those people are expected to live in households. Using an average household size of 2.2 people, results in 29,508 total households, 15,432 of which will be single family and 14,075 of which will be multi-family households when carrying forward the current housing proportion 52.3 percent single family, 47.7 percent multi-family.
Table 4.2. Land Use Acreage by Growth Tier FUTURE LAND USE in acres (2011) Tier 1 Tier 2 Tier 3 Total Agricultural 166 1,822 29,433 31,421 Residential, Outside City Limits 1,329 3,636 337 5,302 Residential, In City Limits 249 0 0 249 Existing Residential 187 745 1,064 1,996 Commercial 819 232 124 1,175 Office Park 0 0 0 0 Mixed Use 273 828 0 1,101 Industrial 1,690 1,224 44 2,958 Public - Semi Public 3,548 183 252 3,983 Openspace 142 154 442 738 TOTAL 8,403 8,824 31,696 48,923
EXISTING LAND USE in acres (2011) Tier 1 Tier 2 Tier 3 Total Agricultural 3,680 7,348 29,651 40,679 Residential 175 737 1,177 2,089 Commercial 97 36 30 163 Office Park 0 0 0 0 Mixed Use 0 0 0 0 Industrial 410 354 62 826 Public - Semi Public 3,346 184 254 3,784 Openspace 0 0 200 200 Vacant Residential 160 166 373 699 TOTAL 7,868 8,825 31,747 48,440 Source: City of Grand Forks / GF-EGF MPO
The portions of the City that are largely already developed are not reflected in Table 4.3 and are shown in a lighter shading on the Future Land Use Map (Map 4.1) and Existing Land Use Map (Map 2.23) The acreage information in Table 4.3 do not come out equal between the Future and
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Existing charts exactly due to some land, especially undeveloped land within City Limits, not shown on the Existing Land Use map, but shown as its future designation on the Future Land Use Map. Additionally, in some instances the discrepancies can be attributed to roads or public features being mapped or categorized on one map but not the other.
Much of Grand Forks’ new development will occur in the Growth Management Area. As noted in Chapter 2, the Growth Management Area is divided into three tiers that correspond with type and density of development. Table 4.3 indicates both existing and future land use within those tiers. Tier 1 is an area of approximately 8,400 acres; Tier 2 has approximately 8,800 acres; and Tier 3 contains approximately 31,700 acres (Table 4.3).
This plan recommends housing density of at least three units per acre for Tiers 1 and 2. The proposed Future Land Use map allots approximately 1,329 acres within Tier 1 to future residential uses. Assume that 51 percent of the residential acres (678 acres) are for single family housing and 49 percent (651 acres) are for multi-family housing. Because Tier 1 policies call for minimum residential density of 3-4 units per acre, it can be forecast that Tier 1 will have an additional 2,034 single family residential units (678 acres x 3 units per acre) and 10,416 multi-family residential units (651 acres x 16 units per acre), or an estimated total of 12,450 residential units in Tier 1—and 27,390 total people in those households. Further, assume that 40 percent of the mixed use land in Tier 1 will be devoted to multi-family residential. If that is the case, Tier 1’s mixed use developments will provide approximately 1,744 multi-family units (109 acres x 16 units per acre) for a total of 3,837 people. Based on these density assumptions and land uses, Tier 1 land is projected to provide housing for 31,227 people.
Because this plan additionally calls for infill development in currently vacant areas of the city, such land also should be accounted for. There are currently about 1,212 vacant acres within the city. Carrying forward existing land use proportions, about 400 of those acres (33 percent of the total vacant acreage) can be assigned to residential development. Fifty-six percent of these (224 acres) can be assumed to be used for single family residential for a total of 672 units housing approximately 1,478 people. Likewise, 44 percent of the vacant “residential” acres (176 acres) can be assumed for multi-family residential for a total of 3,168 units housing about 6,970 residents. So, if the currently vacant acres within the city were to be developed at existing proportions for residential uses, it would result in housing for approximately 8,448 additional people.
Grand Forks’ anticipated 2040 population (68,427) represents an overall increase of 15,589 people from its 2010 population (52,838). According to the above calculations, land identified as appropriate for residential development in Tier 1—the tier expected to handle most of the city’s growth between now and 2040—as well as a proportion of currently vacant land within the city, is capable of providing housing for a total of approximately 43,910 people. With an existing population of 55,290 as of 2010, and a future 2040 estimated population of 68,427, there needs to be sufficient land in Tier 1 to accommodate the anticipated 23,213 additional people. In other words, the city appears to be on-track for providing adequate land area for its residential growth between now and 2040.
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In a similar manner, a ratio of employment to population can help the city make reasonable employment forecasts, which can be combined with employment density information to give a general sense of the land area required to provide future jobs. Assuming that recent employment trends will continue through 2040, 68 percent of the city’s population is expected to be in the workforce—or, there will be 43,569 people in the workforce in 2040 (78,503 x 0.68). This represents 18,490 additional people from the 2000 employment number of 33,964.
This plan allots 819 acres for commercial development in Tier 1. If it is assumed that commercial areas will continue to average 7.93 non-retail commercial workers per acre and 10.36 retail commercial workers per acre, these 819 acres will provide 6,495 non-retail commercial jobs (819 acres x 7.93 non-retail workers per acre) and 8,485 retail commercial jobs (819 acres x 10.36 retail workers per acre). Likewise, the plan sets aside about 1,690 acres for industrial uses within Tier 1. If it is assumed that industrial development will continue to provide approximately 6.62 non-retail industrial jobs per acre and 1.10 retail industrial jobs per acre, this land can be projected to provide 11,188 non-retail industrial jobs (1,690 acres x 6.62 non-retail workers per acre) and 1,859 retail industrial jobs (1,690 acres x 1.10 retail workers per acre). Tier 1, then, can reasonably be expected to provide a total of approximately 28,027 jobs from “pure” commercial and industrial developments.
The current plan has 273 acres of Mixed Use land identified for Tier 1. We will assume that 1/3 of this land (90 acres) will be future retail (the remaining 2/3 has been previously allocated as residential). With these 90 acres, the assumption is that there will be an employment density of 10.36 retail workers per acre, providing 2,828 jobs. As Office Park was removed from the 2040 Land Use Plan, no jobs are designated from this use.
As was done for residential projections, it is important to factor infill development opportunities provided by currently vacant land in the city. If 13.9 percent of the city’s 1,212 currently vacant acres can be assumed to go toward commercial development, those 168 acres can provide an additional 1,336 non-retail commercial jobs (168 acres x 7.93 non-retail workers per acre) and 1,740 retail commercial jobs (168 acres x 10.36 retail workers per acre). If nine percent of the city’s vacant land will go toward industrial development, those 109 acres will provide 722 non-retail industrial jobs (109 acres x 6.62 non-retail workers per acre) and 120 retail industrial jobs (109 acres x 1.10 retail workers per acre). By encouraging infill development within the city, a total of 3,918 additional job opportunities can be created. When the above employment projections are added together, it is anticipated that the creation of 21,500 new job opportunities is possible through commercial, industrial, and mixed use development within city limits and Tier 1—a “surplus” of about 3,010 jobs above the 18,490 people expected to be participating in the workforce in 2040.
For both the residential and employment projections discussed above, it is important to reiterate that these figures are estimates only—both residential densities and employment densities can be modified, as can average household sizes. However, these projections allow a preliminary conclusion that the land use suggestions made in this plan appear to include an adequate mix of land to meet
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the city’s future population and employment needs. Likewise, the boundary assigned to Tier 1 appears to provide ample land for the city’s needs through 2040.
All projections should be monitored against actual population and employment figures as they become available, and any necessary adjustments to projections, land allotments, and growth tier boundaries should be made accordingly. Refer to Chapter 5 for specific implementation recommendations for such monitoring. FUTURE LAND USE MAP
INTRODUCTION
The future land use map and the goals, objectives and policies in this plan are a guide for decision making by staff and officials. The land use map provides direction for zoning decisions that will be carried out as development is proposed. The land use map also looks to the future and is particularly important for decision making in the extraterritorial area where development has largely not yet occurred.
The future land use map is focused on the city’s Growth Management Area—the area outside the city limits, but within the two-mile zoning jurisdiction and four-mile planning area. The Growth Management goal (Goal 1) and the policies in Chapter 3 identified a tier system for managing timing and sequencing of growth for Grand Forks. Future land uses have been identified for all three tiers of the city’s Growth Management Area. Specific uses and locations have been identified for Tier 1, where more immediate growth is anticipated, and Tier 2, which is not anticipated for development for another 25 years. Tier 3 is identified broadly as an agricultural zone, an area where no urban development is expected within the planning period.
Tier 2 future land uses have been identified to provide a broad-brush perspective for the city and its residents. Although Tier 2 is not anticipated for immediate development, it is important for the community to establish a vision for this area’s future land uses and their most appropriate location. Should there be a need to expand Tier 1 to accommodate increased development, the map provides a land use guide in determining where expansion might be appropriate for particular land uses.
LAND USE DISTRICTS
In Chapter 2, the Existing Land Use Map (Map 2.1) includes the following land use districts: residential, park/open space, commercial, industrial, public/semi-public, and agricultural. These current land use designations are broad, often grouping together a wide variety of uses with distinctly different characteristics. Broad categories do not convey the complexity of mixed uses, or identify where transitional uses may be appropriate in planning for the future.
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The future land use map has been developed to provide more guidance than the broad districts on the existing land use map. The discussion below identifies some districts that are subsets of the larger land use districts of residential, commercial and industrial. In general, these suggested uses could be accommodated within the existing zoning code. The City will likely, however, undertake zoning code amendments that would incorporate these new districts and make implementation more straightforward, and allow the City to provide appropriate transitions and buffers between more and less intense uses.
It should also be noted that future land uses are shown in some areas where there is existing development, such as along Gateway Drive. Although the future land use map identifies the area as commercial, Gateway currently has both industrial and commercial uses. The intent of the map is not to force out existing uses, but to ultimately transition Gateway Drive to more commercial uses and potentially new land use categories in the future. While this map indicates the City’s vision for land uses, actual land use decisions will be made by the Planning Commission and City Council when reviewing development and rezoning applications.
DESCRIPTION OF LAND USE DISTRICTS
The following districts are used on the future land use map for the Growth Management Areas.
Residential
Residential land use provides areas for:
(R-1) Single family residential
(R-2) Single family attached
(R-3) Multiple-family residential, medium density (3 stories, 3+ units; density no greater than 16 units per acre)
(R-4) Multiple-family residence, high density (up to 4+ stories, density of 16-50 units per acre)
To allow for flexibility in residential development planning, low density single family and medium density multiple-family districts are grouped together as residential uses on the map.
Commercial
Commercial districts in the existing Grand Forks zoning code currently include:
(B-1) Limited Business (office or services, no retail)
(B-2) Shopping Center District (land in single ownership or unified control for a planned business center)
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(B-3) General Business District (area in close proximity to arterials or collectors in order to provide highway service types of uses, and a wide range of retail services and goods)
(B-4) Central Business District (centralized area of businesses providing retail, service, office, and public uses to a broad service area)
Mixed Use
The mixed use designation provides areas in which a combination of complementary uses is provided within close proximity. Typical mixed uses could include high-density residential, business/office uses, and commercial. This district will provide a transition and buffer between more intense uses (e.g., commercial) and less intense adjacent uses. This would be an appropriate district to be located along I-29 and other major arterials providing an alternative to lining major arterials with commercial uses. Mixed uses will typically be processed as a PUD and reviewed on a case-by-case basis.
Neighborhood Commercial (potential new land use category)
The City discussed creation of a commercial district such as a Neighborhood Commercial district that would be limited in size and scale, and would complement nearby residential areas. The current zoning code groups all commercial uses together, rather than differentiating them based on size or operating characteristics, and allows for a wide variation in uses and intensities. A neighborhood commercial district would allow commercial/retail uses, but would identify size and use intensity limits, provide assurances to people in adjacent residential areas on the size and scale of businesses near them, or be developed in conjunction with residential development.
If there is a desire to create a neighborhood commercial district, it could be created as a new zoning district type. Alternatively, the existing B-1-Limited Business district could be reclassified as Neighborhood Commercial. If this was to occur, the office uses currently allowed in B-1 would need to be scaled back when appropriate to reflect the lower-intensity uses and limited operating effects appropriate for a neighborhood commercial district. Six-story buildings that might be appropriate in a Limited Business district are not appropriate uses within a Neighborhood Commercial district. This district concept could be included as an altogether new, separate zoning district, or incorporated into the city’s existing B-1 Limited Business district.
Office Park (potential new land use category)
The City has previously discussed creating an Office Park district that would accommodate office uses that are currently in (B-1) Limited Business, as well as some uses currently grouped in the I- 1district. If B-1 becomes a neighborhood commercial, low-intensity zone, the Office Park district should accommodate all office/business uses with higher intensity impacts that are currently grouped in B-1.
Industrial
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Industrial land uses on the map include:
(I-1) Light Industrial District; development that is compatible with surrounding or abutting land uses; limited to administrative, wholesaling and related uses with open space, landscaping and appearance standards.
(I-2) Heavy Industrial District; larger industrial operations with outside storage; may be incompatible with other uses.
Parks and Open Space
Parks and open space includes the properties and recreational facilities developed and maintained by the Grand Forks Park District. As noted in Chapter 2, the Park District maintains approximately 1,253.4 acres of park and open space, or approximately 11.6 percent of total land within the existing city limits. Because the location of park and recreational facilities is closely tied to school development, service radii and new residential development, the Future Land Use Map has not identified park locations, but anticipates that locations will be determined as part of the development review process. The Future Land Use Map does identify locations outside the city limits with topography, or nature features that may encourage development of larger parks. The Park District and City would need to consider acquisition of such areas in advance of residential or other development to ensure that areas are set aside for park purposes. In addition, policies in this plan suggest investigating the feasibility of utilizing storm water management areas to meet open space requirements when possible. These opportunities should also be considered as development occurs.
Public/Semi-Public
Public/Semi-Public includes areas that are owned by public or semi-public entities and are expected to remain under such ownership in the foreseeable future. This includes government facilities, utility buildings (such as pumping stations and other facilities), and schools and facilities (such as UND).
Agriculture
Areas designated as agriculture outside the city limits are intended to remain in agricultural uses for an indefinite period. All of the vacant and/or undeveloped land in Tier 3 is indicated as agriculture. Existing uses in Tier 3, including residential, public/semi-public and several small commercial and industrial sites are also identified and would remain; expansion or change of uses in this tier should be considered by the Planning Department staff and Planning Commission on a case-by-case basis.
It should be noted that some small pockets of land (often surrounded by the city and other urban uses) are also identified as existing agriculture, but are not intended for long-term agricultural use. The city has previously used this designation to indicate vacant land that has not been platted nor annexed. Under this practice, such land remains zoned as agriculture until it is developed and/or annexed. In contrast, areas within Tier 3 are intended to remain in agricultural uses indefinitely.
Overlay Districts
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Overlay districts are used in combination with base districts to modify or expand base district regulations or to adapt to special needs or areas in the city. They provide development flexibility and encourage innovative design through comprehensively planned projects. In Grand Forks’ current zoning code, Floodway (F-1) and Floodplain (F-2) are overlay districts. Another overlay district involves the Downtown Design Review Board (DDRB), which applies design guidelines to base zoning in a defined geographical area. A similar approach is under consideration for the Gateway Drive corridor from the Airport east to I-29. Typical overlay districts in many communities also include Planned Unit Developments (PUDs); neighborhood commercial or other specialized neighborhood districts; heritage preservation districts or specific design review districts. Overlay districts can allow particular areas to implement more specific regulation (such as more stringent design review) than is appropriate for the city as a whole.
Planned Unit Development (PUD)
The Planned Unit Development overlay allows a planned and coordinated mix of land uses which are compatible and harmonious, but are not permitted under conventional zoning procedures. PUDs were developed to encourage more creative and efficient utilization of land, concentration of open space, preservation of natural resources, and greater flexibility and creativity in environmental and development design.
The future land use map envisions the use of the PUD not as a zoning district (as it has been used in Grand Forks), but as an overlay district over other base districts. For example, a PUD could be placed over a base zoning district of commercial, or mixed use, or industrial, thus allowing more creative approaches to a development within these categories. The zoning map would show underlying zoning categories that are more understandable to the public, rather than a PUD with numerous coded uses. Clear zoning helps establish clear development expectations for the public, city officials, and developers alike.
Transportation Corridors (TC)
The land use map also identifies Transportation Corridor overlay districts. The transportation corridors have been identified to provide stronger controls over major roadways within the jurisdiction, to ensure that any development that occurs is in keeping with the City’s future plans for these important routes. The roadway concepts address transportation-related standards that should be used to guide decision making on development along these major roadways. (See further discussion of transportation corridors in this chapter).
Roadway concepts have been developed to reflect the future anticipated uses along these roads at three levels:
• High Speed Urbanizing Roadways (Gateway Drive) • Medium Speed Urbanizing Roadways (Columbia Road, Washington Street)
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• High Speed Rural Roadways (32nd Avenue west of I-29; Merrifield Road west of I-29; County Road 5 between Gateway Drive and Merrifield; Columbia Road south of Merrifield Road, Washington Street south of Merrifield Road, North Washington Street [U.S. Highway 81], DeMers Avenue) THE FUTURE LAND USE MAP
Generalized existing land uses inside the city limits and the extraterritorial area are identified on Maps 2.1 and 2.24, respectively, and discussed in Chapter 2. Future land uses in the City’s Growth Management Area (Tiers 1, 2 and 3) have been identified based on the city’s recent growth rates, trends in land use locations, efficient provision of infrastructure and urban services, and the overall costs of development (see Map 4.1). Tier 1 is where development will occur in the foreseeable future. Tier 2 and Tier 3 are not expected to develop within this plan’s planning period; uses have been identified in Tier 2 to enable the city to anticipate growth in a more orderly fashion, and in the event that the Tier 1 boundary should be expanded.
The goals, objectives and policies in Chapter 3 were used to develop these land use recommendations. Although all the goals apply to land use decision making, the most pertinent goals for each land use type are noted here for cross-reference. Table 4.4 summarizes the overall growth management policies for each tier. Following the Future Land Use Map is a more detailed discussion of land uses in the Growth Management Area.
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Table 4.3. Policy Requirements by Growth Management Tier Issues Tier 1 Tier 2 Tier 3 Urban Reserve; any development that Development Compact urban development, occurs is planned for conversion to urban Rural, agricultural uses. Characteristic contiguous to city. development.
Agricultural and residential Residential, commercial, industrial, Residential and agricultural; except to Land Uses associated with farms; except for public/semi-public. accommodate existing uses. existing uses.
Suggested Review and determine appropriate Review and determine appropriate See Table 3.1 and Land Use Map. Zoning agricultural districts (A-1 and A-2). agricultural districts (A-1 and A-2).
Require minimum urban residential density Development Encourage minimum residential 1 unit per 40 acres (evaluate with of 3-4 units per acre when development is Density density of 3-4 units per acre. agricultural districts). permitted.
Tier 1 largely outside zones; Use Use airport influence zones and Airport influence zones and land use Tier 2 largely outside zones; Use Airport Airport land use guidelines to ensure guidelines to ensure compatibility in influence zones and land use guidelines to Planning compatibility (Residential: 1 unit in all new development/ ensure compatibility. 40 acres). redevelopment.
Park sites not anticipated; identify Parks and Require 8% park land or cash in lieu Identify potential park sites and trail significant environmental features Recreation of land. locations for potential acquisition. for potential conservation.
Use CIP to program major Use CIP to program extensions when No urban utilities extended to this Utilities extensions. needed. area.
Require community-level sewage systems Individual on-site treatment Sanitary Sewer Connect to City system. or connections to City system. systems.
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Issues Tier 1 Tier 2 Tier 3 Require community water supply/rural Water Service Connect to City system. water systems or connections to City Rural water systems. system.
Already specially assessed. Handle on-site or connect to existing Storm Water Need to be determined in Storm Contribution to storm water drainage system. Contribution to storm Management Water Management Plan. management fund or plan. water management fund or plan.
All streets built to City standards. All streets planned for conversion to City Preserve adequate ROW on Streets Preserve adequate ROW on standards. Preserve adequate ROW on arterials (see corridor guidelines). arterials (see City standards). arterials (see corridor guidelines).
Access See transportation corridor See City standards. See transportation corridor guidelines. Requirements guidelines.
Programmed in CIP for general obligation; special assessments for Infrastructure Developer/landowner finances all Paid by property owner and/or internal needs; developer pays Funding subdivision costs. township. upfront if improvements precede CIP schedule.
Planned in conjunction with Annexation not anticipated during Annexation subdivision platting and extension Future annexation when City expands. this planning period. of utilities.
Use development agreement to Use development agreement to guarantee Development guarantee funding and funding and infrastructure; approved by Not Applicable. Process infrastructure; approved by Council Council with rezoning/plat. with rezoning/plat.
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Map 4.1
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RESIDENTIAL
References: Existing Commercial Land Use (Chapter 2—Map 2.3) Goals, Objectives and Policies Reference (in Chapter 3): • Goal 2—Residential Development • Goal 5—Urban Design and Land Use Planning
Inside City Limits - Chapter 2 describes residential land use in the city by housing type: single family detached, single-family attached, multiple-family housing and mobile homes. Approximately two-thirds of residential land is devoted to single family detached housing, with multiple-family housing making up about 14 percent of residential land. It is anticipated that new residential development will continue to be predominantly single-family detached, although this plan encourages Grand Forks to provide a mix of residential types including higher density and attached housing options. The housing policies in Chapter 3 also support redevelopment and rehabilitation of existing housing stock.
The Future Land Use Map (Map 4.1) identifies that most of the vacant parcels surrounded by urban development within the city limits are anticipated for residential use. There are a number of parcels between Columbia Road and Washington Street, from 32nd Avenue South to 47th Avenue South, identified primarily for residential uses, with some commercial along adjacent arterials.
There are still several undeveloped parcels along 42nd Street South, near the Alerus Center. This corridor is anticipated to have a mix of residential and commercial activities. Two larger residential parcels are identified east of 42nd Street South, and may provide options for higher density residential as a transition from the commercial activities along 42nd Street South and nearby I-29 to the single family residential farther east.
Tier 1 - The Future Land Use Map shows the strongest residential trend for anticipated growth over the next 30 years is to the south, extending along the Columbia Road and Washington Street corridors. This section of the city has been a popular residential location in recent years, with schools, churches and other amenities such as the King’s Walk Golf Course locating in this corridor. The continued development of commercial and service activities along 32nd Avenue South and other nearby arterials has also encouraged residential development. Residential development is planned in the area southwest of 40th Avenue South and Columbia Road, in conjunction with a city park planned for that site.
It is anticipated that most of the area of the city south of the existing city limits and east of I-29 will be predominantly residential in character, with mixed uses along the I-29 corridor and commercial services located in nodes at major intersections.
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Tier 2 - Although development is not anticipated for Tier 2, land uses have been identified to enable the city and individuals to better plan for the future. In addition, should the city determine that there is a need to adjust the Tier 1 boundary to accommodate more rapid development, the future land use map will provide guidance in making an adjustment.
Like Tier 1, the most concentrated residential development in Tier 2 is expected in the area south of the city, running from the river west and across I-29 west to 55th Street. Tier 2 also includes a residential area west of 69th Street, from 40th Avenue South extending north to DeMers Avenue. The diversion channel along 69th Street serves as a buffer from the industrial and mixed use areas to the east. Extending west to 83rd Street, this area has some existing residential development.
In Tier 2 north of the city on either side of North Washington Street, there are several smaller pockets of existing residential development that are identified. No new residential areas have been identified in this area.
Tier 3 - Residential uses identified in Tier 3 reflect existing, rather than future, residential pockets. Vacant, legally created platted lots within developments may be built upon. Other new residential development will be limited to one unit per 40 acres, in order to reinforce the preservation of agriculture in Tier 3.
Utilities - (see full discussion in Appendix A) Both the Tier 1 and Tier 2 areas at the south end of the city are served by the Grand Forks City Water District. Both areas also have existing sanitary lift stations, or are in areas where lift stations are planned. Storm water treatment is more typically determined with each development, although the City plans to complete a master plan for storm water drainage in the Growth Management Area. There are several ponds along 62nd Avenue South within or adjacent to Tier 1 that can accommodate storm water runoff. All of Tier 1 (except a tract east of Belmont Road north of 62nd Avenue South) is protected by the flood control system. In Tier 2, areas east of Belmont Road are on the “wet” side of the levee and do not have flood protection. The areas in Tier 2 west of Belmont Road are protected by the levee.
Design - Pilot Area 1 and Pilot Area 2 (see Appendix D) both show prototype residential developments that could be built in Tier 1 and Tier 2. These are not existing developments, but illustrate various subdivision considerations that could be utilized in Grand Forks. Pilot Area 1 (in Tier 1 and Tier 2) shows a plat with a variety of residential types and neighborhood commercial, incorporation of sanitary treatment and stormwater management elements, flood protection systems, and areas with and without City infrastructure. Pilot Area 2 identifies a development in Tier 2 built at urban development densities and incorporating existing large-lot residential. Pilot Area 2 suggests methods of incorporating sanitary and stormwater treatment into open space areas.
Design guidelines for residential areas were developed with the Residential Guidelines as part of the 2035 Land Use Plan (see Appendix D). These guidelines are intended to be general site design guidelines; more specific guidelines, including architectural guidelines, may be developed in the future with individual developments, projects, or areas of the city.
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COMMERCIAL
References: Existing Commercial Land Use (Chapter 2—Maps 2.3 to 2.11) Goals, Objectives and Policies Reference (in Chapter 3): • Goal 3—Commercial Development • Goal 5—Urban Design and Land Use Planning
Inside City Limits - Chapter 2 describes five concentrated areas of commercial development: the Central Business District (CBD); South and North Washington Street (U.S. Highway 81); Gateway Drive; South Columbia Road; and 32nd Avenue South. Among the issues identified in these areas are traffic congestion caused by numerous driveways and lack of stacking room at intersections on South Washington, and numerous driveways and entrances along Gateway Drive. Access along South Columbia Road and 32nd Avenue South and adjacent land uses were developed using the City’s Planned Unit Development ordinance, which encourages limited access to businesses. South Columbia Road has mixed uses, thus limiting the “commercial strip” approach. The transportation corridor concept identified in this plan is aimed at preventing the access and planning problems that have evolved along some commercial corridors.
While most of the vacant parcels surrounded by urban development within the city limits are anticipated for residential uses, there are locations along 32nd Avenue South and smaller areas along South Columbia Road and South Washington Street identified for commercial uses. These areas correspond to planned commercial development inside the city along Washington Street, and future commercial nodes identified in Tier 1 along both South Columbia Road and South Washington Street.
The 42nd Street South corridor near the Alerus Center has been identified for a mix of residential and commercial. Two larger residential parcels are identified east of 42nd Street South, while smaller commercial tracts are noted on either side of 42nd Street South until 17th Avenue. An additional commercial area has been identified on the east side of 42nd Street South immediately east of 17th Avenue.
Tier 1 - Both South Columbia Road and South Washington Street are recommended as part of the transportation overlay district, with the criteria and standards established to ensure that these roadways are planned to better mesh with adjacent development. Although there has been a tendency in the city to line these roadways with commercial uses, the direction of this plan is to focus commercial uses in more discrete areas rather than lining entire corridors. Commercial nodes in Tier 1 have been identified south of 40th Avenue South, west of Columbia Road, and on 62nd Avenue South at its intersections with South Columbia Road and South Washington Street. As noted above, some of these nodes correspond to existing commercial uses inside the adjacent city limits; others are identified to serve new residential development.
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An additional Tier 1 commercial development is identified northwest of the I-29/32nd Avenue South interchange. Also near this area, land generally located south of 17th Avenue S., east of South 55th St. and west of South 42nd St. and north of 32nd Avenue South was previously largely proposed to be Office Park. With the removal of the office park designation from the 2040 Land Use Plan, this land is now generally guided as commercial. The southeast corner of 32nd Ave. S. and South 55th St. also was converted from office park to commercial
Tier 2 - The primary neighborhood commercial node locations in Tier 2 are near Belmont Road and 62nd Avenue South, and on South Washington Street at Merrifield Road. A larger highway commercial area is identified northeast of the proposed I-29/Merrifield Road interchange. This commercial area is intended to buffer proposed residential uses from I-29 and provide needed services at this proposed interchange area. Other commercial uses in Tier 2 include some existing commercial along Gateway Drive west of 55th Street, and proposed highway commercial at the I-29 and North Washington Street (U.S. Highway 81) interchange north of the city.
Tier 3 - In Tier 3, Gateway Drive is the only location where commercial uses are proposed on the Future Land Use Map. As the corridor to the airport, Gateway is a natural location for certain types of commercial and light industrial uses that serve needs of airport users and others. These uses along Gateway Drive have been suggested in conjunction with the airport master planning process to ensure that they meet safety requirements and are compatible with airport activities.
Utilities - Commercial land uses are planned for areas where they can be served by City utilities and infrastructure. The service requirements, including water, sanitary sewer, and surface water drainage issues, require the capacity provided by the City, rather than a reliance on individual systems. Under the recommendations in this plan, annexation will be required at the time of approval for new developments that require City services.
Design - Commercial uses have been identified on both Pilot Area 1 and Pilot Area 3 (see Chapter 5). Pilot Area 1 illustrates a neighborhood-scale commercial area integrated into a residential neighborhood. Pilot Area 3 includes Gateway Drive and shows highway commercial uses as well as office park uses in multi-building developments.
Design guidelines for commercial areas were developed with the Commercial and Industrial Guidelines as part of the 2035 Land Use Plan (included in this document as Appendix D). These guidelines are intended to be general site design guidelines; more specific guidelines, including architectural guidelines, may be developed in the future with individual developments or multi- building projects.
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MIXED USES
Goals, Objectives and Policies Reference (in Chapter 3): • Goal 3—Commercial Development • Goal 5—Urban Design and Land Use Planning
Tier 1 - Rather than lining roadways with commercial uses, this plan has proposed new zoning districts that provide more specificity of use than the current zoning code. Tier 1 includes an area recommended for mixed use along the eastern frontage of I-29. This proposed new zoning category is aimed at allowing a flexibility of uses along major roadways and encourages high density development. As discussed above, mixed use may include high density residential, business/office uses, and convenience commercial. It is a transitional land use and should incorporate a higher standard of site and building design, including implementation of design guidelines. The mixed use district will act as a buffer between the residential area to the east and I-29.
Tier 2 - A section of land in Tier 2, lying between 55th Street and 69th Street, north of 32nd Avenue South, has been identified for mixed uses. Mixed use is identified here as more complementary to the commercial and office uses to the east along 32nd Avenue South, and to provide an appropriate transition to the residential uses to the west in Tier 2. While 32nd Avenue South is likely to expand in the future and become a busy corridor, this plan envisions that the segment west of I-29 will have a mix of uses, including some commercial, office park, and mixed uses rather than lined with pure commercial uses as is the case east of I-29. This corridor has been recommended as part of the transportation overlay district, with criteria and standards established to ensure that it is planned to better mesh with adjacent development.
Tier 3 - No mixed uses should be permitted in Tier 3.
Utilities - Mixed uses are planned for areas where these uses can be served by City utilities and infrastructure. The service requirements, including water, sanitary sewer, and surface water drainage issues, require the capacity provided by the City, rather than a reliance on individual systems. Under the recommendations in this plan, annexation will be required at the time of approval for new developments that require City services.
Design - As discussed here, mixed uses are best represented by the examples shown on Pilot Area 3 (included in this document as Appendix D), where office park and multi-building developments are illustrated. These uses would be appropriate in a Mixed Use zoning category.
Design guidelines for mixed use and multi-building development areas were developed with the Commercial and Industrial Guidelines as part of the 2035 Land Use Plan (included in this document as Appendix D). These guidelines are intended to be general site design guidelines; more specific guidelines, including architectural guidelines, should be developed in the future with individual developments or multi-building mixed use projects.
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INDUSTRIAL
References: Existing Industrial Land Use (see Chapter 2—Map 2.12) Goals, Objectives and Policies Reference (in Chapter 3): • Goal 4—Industrial Development • Goal 5—Urban Design and Land Use Planning
Inside City Limits - Chapter 2 identifies six industrial areas: Mill Road and North Washington Street (U.S. Highway 81), DeMers Avenue, North 55th Street, Grand Forks Industrial Park, Gateway Drive/North 42nd Street, and the Neche Yard area. Because of primary travel corridors, some of Grand Forks’ most visible industrial use appears in the area along the BNSF main line railroad adjacent to DeMers Avenue, and north along North Washington Street (U.S. Highway 81) where a number of major industrial users are located. The city’s industrial areas are anticipated to continue in the same corridors, and this future land use plan reinforces that direction in the Growth Management Area.
Tier 1 - The Grand Forks Industrial Park is located south of DeMers Avenue to 17th Avenue South between I-29 and South 55th Street (extended). In keeping with past trends, this area is anticipated to remain a primary industrial location in the city. Existing infrastructure in the industrial park was planned without curbs and gutters, with storm water collected in ditches and pumped to the I-29 ditch.
The City has identified plans to extend South 48th Street from 17th Avenue South to 32nd Avenue South as a minor arterial. This location has been previously identified as industrial and then re- designated as office park, but in this future land use plan is identified as commercial. The city’s plan to create a minor arterial should remain valid despite the recommended change in land use.
The industrial area described in this plan as North 55th Street includes an area between DeMers Avenue and University Avenue. This area is recommended for industrial development, with an industrial band extending north past Gateway Drive. This area has had other land use designations in the past, and lies adjacent to newer residential uses to the east. However, under the recent airport master planning process, this area falls within suggested airport compatibility zones. The anticipated growth of airport training activity (with numerous take-offs and landings) suggests that any development farther west be limited in height and population density. The airport compatibility issues result in the elimination of residential uses and limiting any commercial or business/office uses where large numbers of people are concentrated. Industrial uses with low population density are most appropriate in these locations.
This industrial area abuts residential and other uses east of 55th Street. It is imperative that a strong buffer be created to provide a transition between existing uses and industrial development. Because of proximity to other uses, the city should consider focusing light industrial, rather than heavy
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industrial uses in this area. Light industrial uses with few external operating characteristics that could exert negative effects are much more compatible with other non-industrial uses nearby.
Within Tier 1, there is a large industrial area east of North 42nd Street and south of 27th Avenue North that has also been identified for industrial uses. Although not heavily developed, this area is located west of North Washington Street (U.S. Highway 81) and Mill Road, an area with long- standing industrial uses. Many heavy industrial activities are located in this section of Grand Forks; it is anticipated that heavy industrial will likely continue to be located here.
Tier 2 - Industrial uses in Tier 2 are identified in areas adjacent to existing and proposed industrial development. A large industrial tract is identified west of South 62nd Street, and south of University Avenue, where it would add on to the existing Grand Forks Industrial Park. This area extends west to the 69th Street diversion channel, which is anticipated for enhancement to provide a greenway and help to buffer industrial uses from residential development to the west.
The other primary industrial area in Tier 2 reflects the existing industrial uses along North Washington Street (U.S. Highway 81), where such uses are anticipated to continue. Existing industrial uses at Merrifield Road and I-29 south of the city are also recognized in Tier 2.
Tier 3 - In Tier 3, Gateway Drive is the only location where industrial uses are proposed on the Future Land Use Map. As the corridor to the airport, Gateway is a natural location for certain types of commercial and light industrial uses that serve needs of airport users and others. Uses along Gateway Drive have been suggested in conjunction with the airport master planning process, to ensure that proposed uses meet safety requirements and are compatible with airport activities.
Utilities - Future industrial uses are planned for areas where these uses can be served by City utilities and infrastructure. The service requirements, including water, sanitary sewer, and surface water drainage issues, require the capacity provided by the City rather than a reliance on individual systems. Under the recommendations in this plan, annexation will be required at the time of approval for new developments that require City services.
Design - Industrial uses are shown in the examples for Pilot Area 3 (see Appendix D), where individual and multi-building developments are illustrated. These uses could represent industrial buildings, as well as highway commercial or multi-building developments.
Design guidelines were developed with the Commercial and Industrial Guidelines as part of the 2035 Land Use Plan (see Appendix D). These guidelines are intended to be general site design guidelines; more specific guidelines, including architectural guidelines, should be developed in the future with individual developments or multi-building mixed use projects.
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PARKS AND OPEN SPACE
References: Existing Parks, Recreation and Open Space (see Chapter 2—Maps 2.16, 2.17) Goals, Objectives and Policies Reference (in Chapter 3): • Goal 6—Parks and Open Space
Chapter 2 provides a complete discussion on existing park, open space and public recreation land in the city, and the standards used to calculate the need for new parks in order to serve the population. In Grand Forks, the amount of core park land provided is 9.9 acres per 1,000 population. Grand Forks also follows a standard for service radii for core parks, including a radii of ¼ mile for parks less than five acres; ½ mile for parks between five and 20 acres; and one mile for parks larger than 20 acres. This system has worked well, and provides parks for the entire city except for one small residential area.
The City has also been progressive in planning for new parks, in that it requires developers of new residential land to dedicate eight percent of the land, the cash equivalent of eight percent of the land, or a combination of land and cash for the development of parks and open spaces. In the past several years site runoff has become more critical in that new developments are required to retain runoff on site for a specific amount of time. The city of Grand Forks is trying to devise a way in which parks and storm-water features can be incorporated into the land dedication.
There may be some benefits to linking parks and stormwater retention/detention areas on development sites. Creating these linkages provides maximum benefits for both needs. Many communities have stormwater retention/detention areas dedicated near parkland, helping meet runoff control needs and also benefiting adjacent open spaces. Efforts to better link these uses should be explored.
In Grand Forks, the Park District is a separate, autonomous political entity with its own powers to levy taxes and set policy for parks, open space and recreational facilities developments. The City works closely with the Park District to plan cooperatively for park and recreational facilities. Both entities also work closely with the School District to co-locate parks with schools. As discussed previously, innovative approaches which combine storm water system elements with open space amenities are encouraged when appropriate.
Because the location of park and recreational facilities is closely tied to school development, service radii and new residential development, this future land use plan has not identified park locations. The system in place, with the eight percent dedication or cash in lieu of dedication, provides the Park District, working with the City, with the tools to best plan parks and open space to respond to development pressures.
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This Future Land Use Plan has identified several locations where the topography or other natural features suggest potential park uses. The Park District and City would need to consider acquisition of such areas using dedication fees or other funding sources.
Tier 1 - The only area identified as a potential park location in Tier 1 is the land along English Coulee along Columbia Road north of Gateway Drive. This area is adjacent to the Grand Forks Fairgrounds and Speedway site. The Coulee has created a natural greenway through the city that may be suitable for additional park locations adjacent to it.
Tier 2 - Just as the English Coulee provides a natural greenway, the 69th Street Diversion Channel offers an opportunity for a trail or to provide a green connection around the city. Because 69th Street has been identified as a break between mixed and industrial uses on the east and the residential uses to the west, it encourages the use of the 2040 Land Use Plan 4-24
Diversion Channel as a buffer and connecting route for bike trails or paths as development occurs in the Growth Management Area.
Chapter 2 discusses the creation of the Greenway along the Red River in the years since the 1997 flood. This plan suggests a potential continuation of the Greenway in the area along the River just north of the existing city limits, an area where English Coulee flows into the Red River.
Tier 3 - Two areas in Tier 3 are identified for potential park or open space areas. The first is located south of Merrifield Road east of Belmont Road. This area is a drainage way from 12th Avenue Northeast, after it exits the Grand Forks County Club. A second area is identified south of 47th Avenue South and is the drainage that flows into the 69th Street Diversion Channel.
PUBLIC/SEMI-PUBLIC
References: Existing Public/Semi-Public Uses (Chapter 2—Maps 2.13 to 2.15) Goals, Objectives and Policies Reference (in Chapter 3): • Goal 7—Transportation • Goal 8—Natural Resources
Public and semi-public uses include government buildings, schools, lift stations, churches, hospitals, and cemeteries. The primary public and semi-public uses that are located in the Growth Management Area include the City’s water treatment facilities, the sewage treatment lagoons and the landfill. The Grand Forks Airport is a major public/semi-public facility that has recently completed a master plan.
As part of the airport master planning process, “compatibility zones” were developed for the area around the airport; these are determined by factors such as noise and safety. The plan added a fourth
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runway to handle increasing air traffic and training needs. The addition of this fourth runway has resulted in a larger airport impact area that Grand Forks’ land use planning is taking into account.
This 2040 Land Use Plan’s assignment of land use categories and tier boundaries was informed by the Airport Compatibility Zones (see Map 4.2). Most of Airport Compatibility Zones A and B and approximately half of Zones C and D currently fall within the jurisdiction of Grand Forks’ 4-mile Growth Management Area. Portions of the city’s Growth Management Area that correspond to Airport Compatibility Zone C east and south of the airport are identified as Tier 3, which includes the rural residential density limit of one unit per 40 acres and low-density commercial and industrial uses that are appropriate in areas close to the airport.
The portions of land farther east and south of the airport that fall into Airport Compatibility Zone D have fewer restrictions; however, building heights, uses that may attract wildlife, and uses that interfere with aircraft navigation must be managed within this area.
It should be noted that any future annexations by the City in the area near the airport will automatically bring additional land covered by the Airport Compatibility Zones into the city’s jurisdiction. Tier boundaries and land uses should be carefully considered in these areas to define the types and density of future development to minimize impacts to residents from airport activities and operations.
Further coordination with the airport should occur as its planning process continues. It is likely that the airport will have an increased impact on Gateway Drive, depending on the location of a proposed fourth runway. Grand Forks should continue to be involved in the airport planning process to ensure a balance between the goals of both the city and the airport.
Tier 1 - The two primary public/semi-public facilities located in Tier 1 are an electric power substation and a water treatment facility, located between 55th Street and 62nd Street, south of DeMers Avenue in the Grand Forks Industrial Park.
Tier 3 - The Airport, city sewage lagoons and landfill are all located in the area north of Gateway Drive, west of the city.
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AGRICULTURE
References: Existing Agricultural Land Use: (Chapter 2—Map 2.16) Goals, Objectives and Policies Reference (in Chapter 3): • Goal 1—Growth Management Objective 1.6—Preserve Agricultural Land
Inside City Limits - Some small pockets of land (often surrounded by the city and other urban uses) are identified as agriculture, although not intended for long-term agricultural use. The City has used this designation to indicate vacant land that has not been platted and has not been annexed. It remains zoned as agriculture until it is developed and/or annexed. It is anticipated that these areas will be developed and the agricultural zoning inside the city limits will cease.
Tier 3 - Areas designated as agriculture outside the city limits are intended to remain in agricultural uses for an indefinite period. All of the vacant and/or undeveloped land in Tier 3 is indicated as agriculture. Existing uses in Tier 3, including residential, public/semi-public and several small commercial and industrial sites are also identified and would remain, although no expansion or new areas would be allowed in that tier.
TRANSPORTATION CORRIDOR OVERLAY DISTRICTS
References: Existing Transportation Network (Chapter 2—Maps 2.19 to 2.23) Goals, Objectives and Policies Reference (in Chapter 3): • Goal 3—Commercial Development • Goal 5—Urban Design and Land Use Planning • Goal 7—Transportation
Grand Forks has identified a series of important roadway connections into the city for particular attention in this plan. These critical roads should be carefully planned from two perspectives: adequate preparation for future transportation needs and enforcing a stronger planning approach to land use decisions and design controls along these roadways.
These roadways are important both inside the city limits, where they include major commercial and industrial corridors, and outside the city limits, where they are important entries into the city and potentially, major growth corridors. Under the tier system for managing timing and sequencing of development, the various corridors are located both inside the city, and in all three tiers out to the four-mile limit.
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The following sections address the various aspects of the Transportation Corridor overlay districts. These include roadway concepts to address transportation-related needs along these corridors and planning for future growth to ensure compatibility between the corridors and land uses. Table 3.1 related roadway types to various land uses, other transportation needs, and design guidelines for the adjacent land use. This discussion offers greater specificity in planning for three types of roadways. Roadway concepts have been developed to reflect the future anticipated uses along these roads at three levels:
• High Speed Urbanizing Roadways (Gateway Drive)
• Medium Speed Urbanizing Roadways (Columbia Road, Washington Street)
• High Speed Rural Roadways (32nd Avenue west of I-29; Merrifield Road west of I-29; County Road 5 between Gateway Drive and Merrifield; Columbia Road south of Merrifield Road, Washington Street south of Merrifield Road, North Washington Street [U.S. Highway 81], DeMers Avenue)
The roadway concepts address transportation-related standards that should be used to guide decision making on development along these major roadways (see Tables, pages 4-27 to 4-29). These standards should be incorporated into the City’s planning process and the Land Development Code to ensure their implementation. The standards should be used in conjunction with the design guidelines presented in Appendix D. These guidelines are intended to be general site design guidelines; more specific guidelines, including architectural guidelines, should be developed in the future with individual developments or multi-building projects.
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Chapter Five: Implementation Program
INTRODUCTION
The 2040 Land Use Plan is the framework for planning and guiding the growth of the city of Grand Forks and the extraterritorial jurisdiction (the Growth Management Area). First and foremost, a land use plan should provide direction for decisions about locating and determining the type and density of new development. The 2035 Land Use Plan focused on growth management. The 2040 Land Use Plan emphasizes new livability and sustainability principles in order to both strengthen the existing city and guide city decision makers’ infrastructure investments. Previously established growth management goals are also embodied in the 2040 Plan. The 2040 Grand Forks Land Use Plan additionally continues to work toward enhancing urban design, with suggested design review guidelines and pilot area concept plans included as Appendix D to illustrate a variety of options for new subdivision and commercial/industrial growth.
The most critical effort in Grand Forks’ planning, is yet to come. Grand Forks’ elected and appointed officials and City staff must adopt and then consistently and regularly implement this plan to guide decisions. Although it is not uncommon for communities to spend significant time and energy developing beautifully illustrated and attractive documents that are rarely consulted after adoption, the City of Grand Forks has conducted a thorough and inclusive plan update in order to produce a living plan that will be used. The planning process used to develop this plan has concentrated on creating a plan that is easily understood, with policies that can be clearly identified and implemented. The 2040 Land Use Plan has been crafted so that the city can better manage growth that is cost effective and ensures that all citizens equally benefit from and share in the costs of new growth.
To reiterate, this plan will only be effective if Grand Forks’ elected and appointed officials and City staff consistently apply the policies in this plan. The real implementation of this plan will be the extent to which City officials and staff refer to the policies in this document when reviewing and making decisions about land use, zoning, and subdivision proposals.
ADOPTION OF THE PLAN
The first step in implementing the Land Use Plan is the adoption of this document. Implementation is not confined to this chapter, but requires following the guidance provided throughout this document as shown in the various chapters:
Chapter 1—Background Chapter 2—Existing Land Use Chapter 3—Goals, Objectives and Policies Chapter 4—Future Land Use
The adoption of this document requires that the City Council and City staff support and follow the guidance of this plan.
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IMPLEMENTING THE POLICIES
The heart of this plan is Chapter 3, which outlines the Goals, Objectives and Policies. Following the traditional pattern of Grand Forks’ previous land use plans, policies in Chapter 3 are grouped under ten goals related to land use planning. Those policies, however, are relevant to different implementation areas that may be applied to a number of goals. These implementation areas are:
Implementation Tools: The bulk of this plan’s land use policies are related to implementation through the zoning and subdivision ordinances.
Growth Management/Fiscal Management: The emphasis on growth management in this plan requires clear city policies on financing of infrastructure and annexation.
City Staff Resources and Processes: A number of the plan’s policies establish processes with which City staff can carry out.
Citizen Participation and Intergovernmental Coordination: Citizen involvement is critical to building the community support necessary to establish and consistently implement plans. The City of Grand Forks must continue to build bridges with other local jurisdictions and agencies, including townships, the County, Airport Authority, and University of North Dakota.
Rather than restating all the policies presented in Chapter 3, this chapter identifies the policies according to the above implementation areas. Policies are briefly described and the primary agencies responsible for carrying them out are identified. Where appropriate, recommendations are included. This chapter concludes with a summary of implementation directions—the next steps for the city to take in carrying out the plan.
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IMPLEMENTATION TOOLS
The process of implementing a Land Use Plan relies on a variety of tools available to the City Council and City staff. The City derives its powers to carry out these tools through its Home Rule Charter, as stated in Article III:
The City shall have all powers granted to municipal corporations by the constitution and laws of this state and by this charter, together with all the implied powers necessary to carry into execution all powers granted. Among its enumerated powers, which may be implemented by ordinance subject to the limitations specified in this charter, shall be the following:
k. To provide for zoning, planning and subdivision of public or private property within the city limits; to provide for such zoning, planning, and subdivision of public or private property outside the city limits as may be permitted by state law.
While Grand Forks derives its zoning and planning authority through its Home Rule Charter, these powers are built on the regulations for land use controls as provided in the North Dakota Century Code. These include:
• Zoning (including extraterritorial zoning) Chapter 40-47 • Master Plans, Subdivisions, Planning Commissions Chapter 40-48 • Parks and Park Districts Chapter 40-49 • Annexation and Exclusion of Territory Chapter 40-51.2
Based on its authority in the Home Rule Charter, Grand Forks has created The Land Development Code, which includes Grand Forks’ Zoning Code and Grand Forks’ Subdivision Regulations (Chapter 18). Many of the policies in this plan are to be carried out through the zoning and subdivision regulations.
The zoning and subdivision powers are supplemented by other important implementation tools, including the City’s ability to annex, and the Capital Improvement Program for planning and programming infrastructure improvements. The City should adopt development management policies that provide further direction on fiscal management and other policy functions.
More information about zoning and subdivision regulations, the basic building blocks of planning, is included in Appendix B, or by referring to the 2005 North Dakota Planning Handbook.
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ZONING
Zoning is a primary tool for cities to carry out the goals and policies established in a land use plan. Whereas the land use plan identifies future land uses throughout the city and extraterritorial jurisdiction, the zoning ordinance takes the next step of providing the city with the legal authority to regulate the uses in accordance with the Future Land Use Map. (See Appendix B or the 2005 North Dakota Planning Handbook for additional discussion on zoning).
Future land use is discussed in Chapter 4 along with zoning recommendations for implementing the uses identified in the Future Land Use Map (Map 4.1). The recommendations are summarized here for reference.
TABLE 5.1--ZONING RECOMMENDATIONS GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES Goal 3 3.2 Establish New Continue to evaluate potential for new Revise Zoning Code to include new districts or Planning Department Commercial Zoning Districts commercial districts: Neighborhood, refine existing districts. Planning & Zoning Commission Development Community and Highway Commercial. City Council Continue to evaluate potential for Revise Zoning Code to include new or refine Planning Department transportation corridor overlay districts existing districts. Planning & Zoning Commission with specific widths. City Council Evaluate the possibility of establishing a Revise Zoning Code to include new districts or Planning Department new Mixed Use district with specific refine existing districts. Planning & Zoning Commission criteria for uses, design and density. City Council Goal 4 Industrial 4.1 Location of Re-evaluate I-1 and I-2 to determine Revise Zoning Code to include new districts or Planning Department Development Industrial appropriate uses and need for design refine existing districts. Planning & Zoning Commission Development guidelines. City Council
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SUBDIVISION REGULATIONS
Subdivision regulations determine the physical layout of new development and provide the best mechanism for ensuring proper design of neighborhoods. As articulated in the 2005 North Dakota Planning Handbook, subdivision regulations are intended to address the following concerns:
• Subdivision location and layout consistent with city plans • Street locations and continuity • Drainage and utility easements or rights-of-way • Dedication/reservation of land for public use • Hazard mitigation • Standards for public improvements (streets, curb and gutters, water and sewage facilities) • Ensure provision of public improvements • Provision for recreation, light, air, avoidance of congestion
As with zoning, a city has territorial jurisdiction over the subdivision or platting of land within the corporate limits of the city and the area outside its municipal boundaries over which it has extended its subdivision regulations.
Many of the policies established in Chapter 3 of this plan will be enforced through the subdivision regulations. The subdivision regulations will require a comprehensive update to conform to the policies in this land use plan. Policy areas that should be incorporated into the subdivision regulations are noted below in summary fashion.
TABLE 5.2—SUBDIVISION REGULATIONS GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES Goal 1 1.4 Compact Policies related to transportation, access, Planning Department Growth Development parks and recreation dedication, sanitary Public Works Department Management 1.5 Urban Reserve and water utilities, storm water utilities, Finance Department 1.6 Preserve financing of utilities, annexation and Planning & Zoning Commission Agricultural Land development process. City Council (1.4, 1.5, and 1.6 reflect the three development tiers).
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GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES 1.8 Equitable Policies related to extension and funding of Planning Department Funding of infrastructure. Public Works Department Infrastructure Finance Department Planning & Zoning Commission City Council 1.10 Annexation in Policies related to annexation of new Planning Department Growth development. Public Works Department Management Area Finance Department Planning & Zoning Commission City Council 1.11 Development Policies related to development review Planning Department Review Process submissions, and development review Public Works Department process. Finance Department Goal 3 3.1 Location of Policies relating commercial development The City should encourage commercial development Planning Department Commercial Commercial location to urban services. efforts in commercial nodes rather than strip Development Development commercial areas along streets and highways. Goal 4 4.1 Location of Policies relating industrial development Planning Department Industrial Industrial location to urban services. Development Development Goal 5 5.1 Diverse Policies related to transit-oriented Planning Department Urban Design Development development, mixed use neighborhoods, and Land Use Pattern transportation and land use guidelines, use Planning of design guidelines. Goal 5 5.2 Comprehensive Policies related to design guidelines, The City should work with neighborhood and Planning Department Urban Design Residential Design neighborhood concepts, street and business associations and others to develop more Public Works Department and Land Use pedestrian circulation, landscaping detailed design guidelines. Neighborhood and Business Planning regulations. Associations 5.3 Traditional Policies related to creation of traditional Planning Department Neighborhood neighborhood character inside city and in Character Growth Management Area. 5.5 Commercial Policies on standards, signage, performance Planning Department /Industrial Design standards. Standards Goal 6 6.1—Development Policies on dedication fees, to ensure The Parks District should develop a comprehensive Parks District Parks and Open of Parks and Open provision of parks, development of private Parks and Open Space Plan to fully address Planning Department Space Space parks, open space requirements. issues. Finance Department
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GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES 6.2 Park Open Policies on dedication, park locations, The Parks District and the City should collaborate Parks District Space Dedication/ acceptance of open space. to develop a plan for both stormwater management Planning Department Maintenance and park land dedication that is mutually beneficial to the City, Park District and developers. Goal 7 7.1 Compatibility of See all policies; see Table 3.1. Planning Department Transportation Land Use and (Transportation policies are detailed in the Grand Forks-East Grand Forks Transportation regional transportation plan). Metropolitan Planning Organization (MPO) 7.2 Balanced, All policies. Planning Department Compact Land Use Public Works Department Growth Patterns Finance Department Planning & Zoning Commission City Council Goal 8 8.1 Balance between Policies requiring environmental review Planning Department Natural Humans/Environm standards, floodplain regulations. Public Works Department Resources ent 8.2 Energy Policies encouraging landscaping, site Planning Department Conservation planning for energy efficiency. 8.3 Water Quality All policies as appropriate. The Parks District and the City should collaborate Planning Department to develop a plan for both stormwater management Public Works Department and park land dedication that is mutually beneficial to the City, Park District and developers.
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GROWTH MANAGEMENT POLICIES
In addition to zoning and subdivision regulations, this plan has identified growth management policies to encourage new development in areas contiguous to the city and discourage leapfrog development into agricultural areas. Contiguous development can be efficiently served by city services and be annexed to the city as development occurs. A number of the fiscal policies included in Table 5.3 are also listed in Table 5.2, Subdivision Regulations. These fiscal policies relate to both areas—they should be established as city policies, but should be carried out with the subdivision regulations and in the crafting of development agreements that ensure the provision of infrastructure to new subdivisions.
In conjunction with development agreements, this plan recommends that the City use annexation to incorporate new urban development as infrastructure is planned to these areas. Once the City has made a financial commitment to a development it means that the City as a whole has agreed to take on some of the debt of that development, by providing major infrastructure and/or services to these areas. If these areas are promptly annexed, the landowner and those who build in the new areas contribute their share of taxes to the City that will help pay the overall infrastructure and service debt. If annexation is delayed, the landowner can defer those costs for a time while the City as a whole assumes the debt of providing services to a new development.
Under the Growth Management Goal of this plan, two objectives establish policies that aim to encourage equitable sharing of the costs of service provision between city residents and those who will receive city services in newly developing areas. The two objectives that pertain to equity sharing include Objective 1.9-Annexation as a tool for equity, and Objective 1.10-Annex urban development in the Growth Management Area.
A cost-benefit analysis of a proposed annexation should examine the costs of providing service to an area (water service, sanitary sewer, storm water management, new or upgraded roadways, police and fire service, park and recreational service delivery, and any others) against the potential tax revenue from the proposed area at full development. The idea of a cost-benefit analysis is to ensure that the costs of providing service to the area will be balanced by the tax revenue brought to the City from the development. In addition, the cost benefit analysis should ensure that the city is not forced to make the expensive “up-front” investments of major sewer or water lines, or other facilities, without the new areas contributing their fair share.
With a cost-benefit analysis, the city must be able to anticipate what types of uses and densities will occur in a new development. This information should be included in the annexation point rating system. Rather than the current rating that examines the percent of existing urban development, this plan encourages the city to annex for future development when there is an approved development agreement and/or subdivision. For the city to best manage its infrastructure and service investments, it should not wait until development has occurred, but should be able to recoup costs when infrastructure and services are being provided.
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TABLE 5.3—GROWTH MANAGEMENT/FISCAL MANAGEMENT GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES Goal 1 1.1 Growth Policies related to establishing tier system, Planning Department Growth Management Area regulations, education of property owners. Public Works Department Management Finance Department Planning & Zoning Commission City Council 1.2 Growth Policies related to development of growth Development of this system should be a high Planning Department Management monitoring system. priority for the city; growth monitoring is needed to Monitoring System determine when/if tier adjustments are needed. 1.3 Balanced Policies establishing the growth tiers and Planning Department Growth and annual evaluation. Public Works Department Growth Tiers Finance Department Planning & Zoning Commission City Council 1.4 Compact Policies related to development type, uses, Planning Department Development funding, annexation, development process. Public Works Department Finance Department Planning & Zoning Commission City Council 1.5 Urban Reserve Policies related to development type, uses, Planning Department development process. Public Works Department Finance Department Planning & Zoning Commission City Council 1.6 Agricultural Policies related to development type, uses Planning Department Land Public Works Department Finance Department Planning & Zoning Commission City Council 1.7 Fiscally All policies related to growth management. The City should consider developing a “Growth Planning Department Responsible Management Policy” document that states all Public Works Department Growth growth management policies in one package rather Finance Department than throughout the Land Use Plan. Planning & Zoning Commission City Council 1.8 Equitable All related policies. (Include in “Growth Management Policy” Planning Department
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GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES Funding of document). Public Works Department Infrastructure Finance Department Planning & Zoning Commission City Council 1.9 Annexation as a All related policies. (Include in “Growth Management Policy” Planning Department Tool for Equity document). Public Works Department Finance Department Planning & Zoning Commission City Council 1.10 Annexation in All related policies. (Include in “Growth Management Policy” Planning Department the Growth document). Public Works Department Management Area Finance Department Planning & Zoning Commission City Council 1.11 Development Policies relating to existing regulations, Planning Department Review Process enforcement of regulation. Public Works Department Finance Department Planning & Zoning Commission City Council
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CITY STAFF RESOURCES AND PROCESSES
A number of the policies and tasks in this plan require a high level of staff coordination and management to be carried out effectively. These policies will require additional staff to provide the level of service that residents in Grand Forks need and deserve. In addition, the policies in this plan demand a greater degree of coordination between city departments and agencies to effectively plan for growth management. The Development Review process, as identified in the plan, requires a high level of coordination and ensures that city staff presents a more unified approach to developers and others who will use the City’s regulatory process. Also noted below in Table 5.4 are areas in which the Planning Department and other city departments can cooperate to provide enhanced planning in areas such as housing, downtown planning, economic development activities, park planning and heritage preservation.
TABLE 5.4—CITY STAFF RESOURCES AND PROCESSES GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES Goal 1 1.4 Compact Policies related to crafting development Planning Department Growth Development; agreements. Public Works Department Management 1.5 Urban Reserve Finance Department Planning & Zoning Commission City Council 1.11 Development Policies related to provision of adequate Planning Department Review Process staffing; processing development Public Works Department applications; formalized development Finance Department review process, briefings. Planning & Zoning Commission City Council Goal 2 2.2 Quality Housing Policies related to housing programs, Planning Department Residential special housing incentives, code Urban Development Department Development enforcement and redevelopment Inspections opportunities. 2.3 Provision for Policies to work with Urban Development Planning Department Special Needs Department and others to secure housing. Urban Development Department Housing Local non-profit agencies Goal 3 3.3 Enhance the Policies related to plan updates, new Planning Department Commercial Role of Downtown housing, investments, design Urban Development Department Development enhancements. Goal 4 4.1 Location of Policies related to redevelopment of Planning Department Industrial Industrial “brownfields.” Urban Development Department Development Development
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GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES 4.2 Provision of Policy on updating the Economic Planning Department Industrial Land Development package. Urban Development Department Goal 5 5.3 Traditional Policy on infill development and design Planning Department Urban Design Neighborhood guidelines. Urban Development Department and Land Use Character Planning 5.4 Strengthen Policies on working with the Heritage Planning Department Grand Forks’ Preservation Commission and establishing Urban Development Department Identity gateways. Heritage Preservation Commiss. Goal 6 6.1 Development of Policies related to coordination of planning Planning Department Parks and Open Park System with Park District. Park District Space Goal 8 8.1 Balance between Policy to conduct workshop on best Planning Department Natural Humans and the environmental practices for City staff. Park District Resources Environment Public Works Department Goal 9 9.3 Plan Policy on updating Land Use Plan. Planning Department Planning Process Maintenance 9.4 Code Review Policy on updating Grand Forks Land Planning Department Development Code.
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CITIZEN PARTICIPATION
Citizen participation should provide opportunities for community members to participate in local government on a regular basis, not just when they are in opposition to a particular “hot topic.” Ongoing participation builds trust between citizens and their elected and appointed representatives. The City needs to recognize and include citizens in the planning process so that the community as a whole can develop a better sense of what is involved in planning the community’s future.
Likewise, the City of Grand Forks must increasingly work with a variety of other governmental agencies, whether it is Grand Forks County, nearby townships, water districts, school districts, or entities such as the Airport Authority, the University of North Dakota, or the US Army Corps of Engineers. The city must make proactive efforts to encourage ongoing, regular coordination with other governmental groups and entities, rather than limiting contact to reactive occasions when there are difficult issues to resolve. Table 5.5 identifies policies to encourage greater communication as a means to more informed planning.
TABLE 5.5—CITIZEN PARTICIPATION AND INTERGOVERNMENTAL COORDINATION GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES Goal 1 Growth 1.6 Preserve Policies related to working with county and Planning Department Management Agricultural Land other local government units. Planning & Zoning Commission City Council Goal 3 3.3 Enhance the Policies related to cooperation with East Planning Department Commercial Role of Downtown Grand Forks. Planning & Zoning Commission Development City Council Goal 4 Industrial 4.3 University of Policies to assist UND in attracting and Planning Department Development North Dakota Tech providing location for technology Urban Development Department Park companies. City Council Goal 5 Urban 5.2 Comprehensive Policy to encourage development of Planning Department Design and Land Residential Design neighborhood associations. Urban Development Department Use Planning 5.5 Commercial and Policy related to partnering with business Planning Department Industrial associations on design, sign issues, Urban Development Department Development maintenance. Design Standards Goal 6 Parks 6.1 Development of Policy encouraging citizen participation in Planning Department and Open Space Park System park planning. Park District
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GOAL OBJECTIVE POLICY DESCRIPTION RECOMMENDATION COMMENTS RESPONSIBLE AGENCIES 6.3 Recreation/ Policies encouraging Park District Park District Open Space cooperation with other government Cooperation entities/agencies. Goal 8 Natural 8.3 Water Quality Policy to cooperate with Grand Forks Planning Department Resources and Drainage County Water Resource District; other Public Works Department entities for water resources planning. Goal 9 Planning 9.1 Governmental Policies related to coordination with other Planning Department Process Cooperation governmental entities for planning. Planning & Zoning Commission City Council 9.2 Citizen Policies related to notifications, Planning Department Participation neighborhood meetings, guidance and forms.
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SUMMARY OF IMPLEMENTATION DIRECTIONS
This 2040 Land Use Plan is primarily a policy plan—a framework plan that sets the direction for future land use in the city and the Growth Management Area.
Grand Forks has generally relied on its Land Use Plan almost as a Comprehensive Plan document, including goals and policies not only for land use but policies on parks and open space, transportation, natural resources, energy conservation, and public participation. While all these topics relate to and affect land use decisions, they cannot be fully addressed in a document that must concentrate on land use. This plan has attempted to provide direction on these topics, as well as provide focus and direction for growth management through the tier system.
Grand Forks will continue to grow and require more precise planning tools than it has relied on in the past. This plan is a first step to building a more comprehensive “tool box,” but it cannot provide all the answers nor ensure implementation of all the policy directions established here. There is a complex range of ideas and concepts that should be incorporated into the city’s planning process.
The recommendations here briefly re-state the major steps that the City must take in order to fully implement this 2040 Land Use Plan.
1. Adopt the 2040 Land Use Plan. Adopting this 2040 Land Use Plan means that the City will carry out the policies in the plan through both staff decisions and policies, and decisions and policies by the City’s elected and appointed officials. 2. Use the Future Land Use Map (Map 4.1). Recognize the Future Land Use Map as the guide for decision making on land use and development proposals. The map illustrates specific land uses and the types of zoning that will be appropriate in those areas. 3. Revise the zoning code. The zoning code should be updated to incorporate the new zoning districts reflected on the Future Land Use Map. Establishing the new zones will be an important first step in not only recognizing the guidance illustrated by the Future Land Use Map, but also in being able to establish the recommended new districts (listed in Table 5.1). 4. Revise the subdivision regulations. The subdivision regulations must be revised and/or strengthened to incorporate the development policies established in this plan. Table 5.2 identifies many of the development policies that should be carried out through the updated subdivision regulations. 5. Complete a comprehensive policy review in City Hall. Department heads of critical departments involved in development-related policies, including, at a minimum, the Planning, Public Works and Finance departments should undertake a comprehensive review of the Growth Management/Fiscal Management policies. Throughout this planning process, there has been support for the directions in the plan, but there is a need to continue to develop a united approach among the departments. Some of the policies, identified in Table 5.3, likely will be implemented through the subdivision regulations, but may be based on specific City policies. The
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City may want to consider developing a Growth Management Policy document that addresses these issues (including development agreements, annexation, apportioning costs for funding infrastructure, etc.) more specifically as the policies become more established. 6. Urban Design Guidelines. The Urban Design guidelines in Appendix D of this document are broad-based and intended to be implemented by City staff along with the subdivision review process. Developing more detailed design guidelines is a time-intensive process that should be carried out with the groups (such as neighborhood or business associations) that have a specific stake in them. This effort should be undertaken in the future, as City staff, residents and the business community become more familiar with this plan and are ready to move toward more specific design guidelines. 7. Develop additional planning documents. The City should invest effort in developing additional planning documents that can better analyze specific topics such as natural resources, storm water management, or environmental infrastructure planning. The City and Park District may also choose to work together to develop a separate park and open space planning document. Each of these areas is important and deserves more consideration than can be paid them in this 2040 Land Use Plan. 8. Staff support and citizen participation. The City administration and all City departments should make ongoing efforts to implement the policies related to city staff, resources, and processes (Table 5.4) and to promote citizen participation and intergovernmental coordination (Table 5.5). Solving difficult problems and governing effectively requires participation by all parties, including elected and appointed officials, citizens, members of the business community, and other governmental entities.
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APPENDIX A
UTILITY ANALYSIS
Completed by Advanced Engineering and Environmental Services (AE2S) Grand Forks, North Dakota
Grand Forks Extraterritorial Plan Utilities Analysis
No prudent land use plan is complete without serious consideration given to how the municipality will serve new areas with infrastructure. This section examines the current state of water, sanitary sewer, soils, and drainage as well as the issues that affect the expansion of each. Information was derived from existing reports, computer models, and the Grand Forks Geographical Information System (GIS). In addition, meetings were held with engineering, public works, and planning staff as well as with consultants that have played significant roles in the planning and construction of Grand Forks infrastructure.
In concert with this Land Use Plan, the City is currently in the process of evaluating its long-range infrastructure plan. This plan specifically includes a strategic infrastructure needs capital plan and associated financial analysis with an eye towards appropriately serving the land use tiers identified in this Land Use Plan. The Infrastructure Master Plan’s goal is to meet the strategic infrastructure principal of sustainability which includes an examination and impact of regulatory changes, growth impacts, and aging infrastructure.
Water Service
Elements of the System The City of Grand Forks provides water service to over 14,000 customers in the city proper and the Grand Forks Air Force Base. The City maintains a surface water intake and water treatment plant, approximately 230 miles of distribution piping, two 7 million gallon (mg) clearwells, and six 500,000 gallon water tower storage facilities.
The current water treatment plant (WTP) is located near the Red River in the east-central part of the city and has a capacity of 16.5 million gallons per day (mgd). Because the current facility is nearing the end of its useful service life it is in need of significant upgrades to meet current operational and regulatory requirements. In 2008, the City invested in minor WTP capital improvements in order to extend the life of the facility, however, a new water treatment facility is under consideration for construction in the central-western part of the city in the coming decade. A 25 mgd raw water intake system was completed in 2005 to serve the existing and proposed future water treatment facilities. In preparation for potentially relocating the WTP to the central-western part of the city, two large transmission pipeline projects, a 7 million gallon clearwell, and a 25
2040 Land Use Plan Update A-1 FINAL DRAFT October 7, 2011 mgd high service pump station were completed between 2002 to 2005. The 7 mg clearwell and associated pump station was constructed on property acquired by the City in the vicinity of the Industrial Park (5650 11th Avenue South). This 40-acre land parcel was purchased as the preferred site for a new WTP when the City decides to proceed with replacing the existing WTP. In 2002, dual 30-inch transmission pipelines were installed from the existing WTP to the new 7 mg clearwell and pump station. These pipelines will serve as finished water transmission lines until a new WTP is constructed, at that time they would be converted to raw water transmission lines. In 2003, a series of large diameter pipelines were installed from the new 7 mg clearwell and pump station. These pipelines were installed to tie the pump station into the City’s existing distribution system. Components of the water system are shown on Exhibit 1.
The City is bounded by two rural water service districts; Agassiz Water District on the north and west and Grand Forks-Traill Water District on the south and west. The associated district boundaries extend into proposed Tiers 2 and 3 and are shown in Exhibit 1. Agreements between the City and the two adjacent rural water districts have been put in place defining protocol for the transfer of service when the City annexes property that is served by the rural water districts. Municipal system design standards exist within proposed Tiers 1 and 2 for water system compatibility with growth and include larger pipes for fire protection, fire hydrants, and more valves than rural specifications require. However, the City generally does not exercise this control in the two-mile extraterritorial jurisdiction (proposed Tier 2) due to various technical concerns such as the potential for stale water in areas of low flow. For this reason, the rural systems may continue providing water service to these areas after they come under the City’s planning and zoning jurisdiction and before City water service is feasible.
While considering future growth for Grand Forks to the south and west, calibration of the water distribution system computer model and other water service master planning efforts are currently underway. Additionally, arterial mains and water towers have been proactively constructed in anticipation of new development.
Issues/Needs Corridors for arterial watermains and site preservation for water infrastructure can sometimes require larger land areas or wider right-of-way corridors than needed for a typical thoroughfare. Not allocating adequate land area during initial planning stages can result in expensive right-of-way or easement acquisition if done as an afterthought. Developers and the general public may envision plans for developments without thought given to infrastructure, resulting in less than desirable layouts.
Arterial watermains, storage, treatment, and pumping facilities are typically installed by the City and financed through water utility rates. Site specific watermains and services; and sometimes a portion of the arterial mains, are typically financed by the developer and paid for through special assessments levied on the individual lots. The Development community has expressed in the past that the City could benefit development and spur growth by proactively placing major infrastructure.
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Recommendations Water service within proposed Tiers 1 and 2 is not a significant challenge, with the exception of the Pilot Project 2 area west of 62nd Street. Serving this area would likely entail extending a large diameter watermain from 55th Street and would require several miles of 16-inch main to loop the large main back into the system. This arterial main should be included in the City’s capital improvement plan when the City wants to encourage development in that corridor.
The City should continue to promote growth with proactive planning and major infrastructure development that includes designated infrastructure rights-of-way and easements. Continuing to update the computer distribution model with systematic field calibrations is important to enable accurate projections and capital improvements planning.
Corridors for arterial watermains and site preservation for water infrastructure should be identified through master planning. Signage indicating the location of future infrastructure helps keep the upcoming improvements in the public eye. The corridors and sites should be incorporated into platting, detailed development plans submitted by developers, and other planning documents.
Figure A-1 Typical Trunk Watermain
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Sanitary Sewer Service
Elements of the System The City of Grand Forks maintains approximately 160 miles of gravity sanitary sewer collection piping, 50 miles of force main, 42 lift stations, 1,420 acres of waste stabilization ponds, and a 10 mgd mechanical wastewater treatment plant (WWTP) that was put into service in 2003. Subordinate lift stations pump to master (booster) stations.
Exhibit 2 depicts lift station service areas for Grand Forks, with the lift stations placed near the center of each section displayed. Lift stations designated with letters on the map are currently in the planning stages.
Residences outside of the Grand Forks service area typically rely upon on-site sewage treatment consisting of a concrete septic tank with an effluent drain field. These systems must be pumped periodically and are subject to problems associated with non-dissolving waste. Additionally, for these residences outside of the City, ordinances were recently adopted for infrastructure and engineering standards that make extraterritorial development more acceptable to the City for future annexation.
Issues/Needs Growth has been encouraged in areas where new lift stations have been constructed near the center of each section. This has occurred primarily on the south end of the City and includes lift station numbers 33, 37, 38, 39, 40, and 42. As south end development continues, a new master station will be needed to avoid hydraulic issues for existing master stations. Sanitary sewer service related challenges exist related to north end growth where the presence of large industry north of Gateway Drive consumes lift station capacity within this area of the City.
Recently, the City has been in conversations with the City of East Grand Forks in regards to providing a system interconnect to treat East Grand Forks’ wastewater at the WWTP. This interconnect would require the construction of forcemain piping that would tie-in near one of the City’s existing master pump stations. It is expected that this additional flow would consume master pump station capacity, existing trunk forcemain capacity, and WWTP capacity.
Force mains and lift stations are typically installed by the City and financed through utility rates. Site specific collector mains and services are typically financed by the developer and paid for through special assessments levied on the individual lots.
Grand Forks County requires 2½ acre lots to accommodate site sanitary drain field systems. The City of Grand Forks also requires a minimum 2½ acre lot in its extraterritorial areas with A-2 zoning. The cost of utility assessments for these large lots is an issue once the City annexes. However, restricting lot sizes in the extraterritorial area could encourage some development to skip outside the proposed Tier 2 boundary.
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Recommendations Because of the past proactive construction of lift stations and force mains in proposed Tiers 1 and 2, sanitary sewer service does not present a significant challenge especially if developments are constructed with lift station efficiency in mind. Even with the contemplation of interconnecting with East Grand Forks, the the WWTP is expected to maintain adequate capacity for many years of City expansion beyond the timeframe considered with this Land Use Plan.
As described, continued south end development will require at some point a new master station and redundant forcemain expansion to avoid hydraulic issues for existing master stations. This accommodation for south end growth will be further justified if East Grand Forks flows are incorporated into the north end of the system as planned. To ensure no adverse impact from growth and the interconnect, the City should continue to monitor system flows and maintain the system hydraulic model to understand when is the most appropriate time to make these capital expenditures.
Figure A-2 Typical Trunk Sanitary Sewer
Soils The soils within the current Grand Forks city limits and extending into proposed Tiers 2 and 3 are consistently composed of organic lean clay in the top 12-24 inches, underlain by 8-10 feet of fat clay. Glacial deposits occur from about 10 feet to 100-150 feet deep,
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which corresponds to the ultimate depth generally required for bearing piles to support large, heavy structures. One variation is the presence of highly alkaline soils along the northwestern portion of the city, along Gateway Drive, and extending to the Grand Forks International Airport.
Due to the relative low porosity and limited permeability of area soils, on-site sewage system effluent drain fields must be sized large enough to handle the flow. As a result, Grand Forks County Planning and Zoning, as well as the City of Grand Forks A-2 zoning district in the extraterritorial area require a minimum lot size of 2½ acres to allow for a residence and drain field.
The highly alkaline soil inhibits residential growth to a degree due to the difficulty a homeowner experiences growing lawn grass and ornamental bushes and trees. Commercial and industrial growth appears to be less affected by alkaline soils.
Stormwater, Drainage, and Flood Protection
The City of Grand Forks relies upon gravity storm sewer collection piping, storm sewer lift stations, containment ponds, and open channels for stormwater management. Stormwater runoff within the City limits is collected via the storm sewer system and is routed to the Red River and to coulees that ultimately drain to the Red River. Due to the relatively flat terrain of the area, gravity sewers have limited reach before they achieve a depth to which storm water must be pumped to a higher elevation. In some instances, holding ponds are utilized to provide additional capacity as development occurs. Exhibit 3 depicts the extents of the storm sewer piping, lift stations, and English Coulee Diversion channel.
To accommodate development on the south end of the City, significant investment has been made over the past decade on open channel storm infrastructure. This infrastructure includes the south end drainway, which was designed to handle runoff from the south accommodating drainage beyond Tier 1 and the west as far as Interstate 29. Furthermore, improvements have been made to accommodate drainage conveyance from the west of the City beyond I-29 in the form of the upgrades to the legal drain along 17th Avenue South as well as the construction of the 48th Street South open channel. As development occurs in these and other areas, the City relies on developers to design each development’s individual storm water plan.
In addition to the traditional stormwater management practices employed by the City, a $400 million flood protection project was recently completed for the City by the United States Army Corps of Engineers (USACE). Elements of the system include the English Coulee diversion, 12 interior flood protection pump stations, retention ponds, levees, and floodwalls. The completed flood protection system layout is depicted in Exhibit 3.
All infrastructure and development interior to the flood protection system must be done with regard to the impacts on the system. Preferably, new developments will be
2040 Land Use Plan Update A-6 FINAL DRAFT October 7, 2011 constructed within the protective confines of the system. Developments constructed outside the system are subject to flooding and higher flood insurance rates.
Infrastructure passing through or beneath levees and flood walls is discouraged. However, should the City allow infrastructure to pass through the flood protection system it must be built to stricter specifications than customary municipal construction, and all plans for constructing infrastructure through the flood protection system are subject to approval by the USACE.
The City of Grand Forks owns the land surrounding the flood protection elements. No buildings or landscaping can be constructed on the flood protection property. Likewise, easements for driveways, utilities, and the like within the flood protection property boundaries are not granted.
Issues/Needs Stormwater system capacity is a significant concern and limiting factor with respect to development south and west of the City. Stormwater from the south and west must pass through or around the City. In addition, the storm sewer in the central areas of the City is generally undersized.
Perhaps the most significant need facing the City regarding drainage is the requirements placed upon constructing drainage interior to the City’s flood protection system. In addition, recent changes to the City’s Municipally Separate Storm Sewer System (MS4) permit with the North Dakota Department of Health have caused changes to the City’s drainage requirements for developing areas of the City to mitigate water quality impact from new development.
The combination of these regulatory driven requirements caused the City to take “high altitude” look at their impacts through a Perimeter Drainage Study (PDS) completed in 2008. The main objectives of the study were to determine a strategy for accomplishing drainage in developing areas interior to the flood protection project to ensure a no net impact to the system (i.e. interior mapped flood elevations) and to review current/upcoming state and federal water quality regulations to understand how they will interface with the flood control requirements.
The study ultimately determined that a network of Stormwater Best Management Practices (BMPs) in the form of ponds would be the best way to accomplish both flood and water quality control requirements. The BMPs needed will require a significant land area in the land use Tiers identified (estimated at 3% to 5% of the contributing drainage areas) and will also place a fiscal constraint on both developers and the City to find a way to fund these facilities.
Recommendations To determine appropriate implementation of the concepts presented in the PDS, the City is currently in the process of evaluating funding mechanisms and land dedication requirements through the previously described Infrastructure Master Plan. The
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stormwater/flood protection infrastructure introduced in the PDS and being further evaluated in the Infrastructure Master Plan will accommodate Tier 1 development and beyond. Successful implementation of this infrastructure will be very difficult without diligent consideration of funding mechanisms, roles and responsibilities of key parties, and implementation steps. To ensure fiscally responsible implementation of this infrastructure, it is recommended that the City explore through the master planning process all funding options available to them for the required facilities with an eye toward an outcome that is advantageous to all stakeholders.
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2040 Land Use Plan Update A-11 APPENDIX B—SUMMARY OF GRAND FORKS IMPLEMENTATION TOOLS (FROM 2035 LAND USE PLAN)
Note: The bulk of this appendix has been adapted from the 2015 Land Use Plan. It has been updated to reflect the City’s current practices, prior to adoption of the 2035 Land Use Plan. Some of the implementation tools have been altered with this plan while others will be studied. This section notes where a tool may change as a result of the 2035 Land Use Plan or implementation of the plan.
The effectiveness of the 2035 Land Use Plan is dependent upon an array of implementation tools. The most important implementation tool for this plan is the Grand Forks Land Development Code (LDC). The LDC regulates the zoning and subdivision of land within the city and a four-mile extraterritorial area adjacent to the city. The Grand Forks Capital Improvement Plan (CIP) helps to regulate growth by identifying major capital expenditures for the City, including the extension of public utilities and streets. The CIP, updated during the second quarter each year by the CIP Committee, must ultimately be approved by the City Council as a part of the annual budgetary process.
GRAND FORKS LAND DEVELOPMENT CODE
A land use plan is the base upon which all other City master plans are drawn. It shows the general allocation of land resources for agriculture, housing, commerce, industry, recreation, education, public building, and other categories of both public and private uses of land. The land use plan consists of maps and the necessary supporting documents. The text should describe the basis for estimating future needs, along with data on soil type, topography and present use. This material is the basis for the delineation of the boundaries of various land use zones (zoning districts).
Conventional Zoning
Zoning is the division of land into districts (or zones), each having different uses. It is a legal process designed to protect the individual and the community from uses of land which are potentially harmful or which conflict with the community’s development objectives. Zoning controls the height and placement of buildings and structures; regulates the area of buildings, yards, courts and other open spaces; ensures the proper use for each parcel of land within the city’s jurisdiction; and limits population density by controlling the size of lots and use of buildings. Zoning is a legal tool used to guide future development.
The power to regulate land use is delegated to cities by the state through its broad police powers. North Dakota has passed enabling legislation granting the power of zoning to local units of government. The constitutionality of zoning was upheld in the landmark case of the Village of Euclid vs. Amber Realty Co. (272 U.S. 365, 1926). Since that time,
B-1 the separation of land by uses is sometimes called Euclidean zoning. Zoning is one of several tools used to encourage the most appropriate use of land. Companion tools, which are often confused with zoning laws, are subdivision and sanitary regulations, and housing and building codes.
Zoning affects property values by keeping incompatible land uses apart. It keeps industrial and commercial development out of residential areas and prevents urban sprawl in agricultural areas. Regulations that define lot size, setback lines, building height and population density can make an area more attractive, thus preserving and enhancing the character of the area. Zoning promotes public health and safety by requiring that rural lots be large enough to allow for the safe disposal of septic tank effluent and by requiring homes to be spaced far enough apart to prevent the spread of fire. It prohibits high-traffic- generating businesses from locating near schools and playgrounds. Zoning can be an important factor in attracting business and industry to an area. Setting commercial and industrial zones apart from residential neighborhoods provides protection against complaints about noise and traffic.
The zoning ordinance or resolution is a legal document consisting of two major parts – the zoning text and the zoning map.
Note: Several zoning districts will be examined in 2006 and may change as a result of the recommendations of the 2035 Land Use Plan.
The Zoning Text
The heart of the zoning ordinance is the text that ties the zoning map to the official controls. In Grand Forks’ zoning ordinance, this is the “classification of districts,” which establishes the various use districts shown on the zoning map, and lists the uses permitted in each of the zones.
One of the most frequently overlooked parts of a zoning ordinance is the statement of the intent for each zone as determined between the comprehensive plan and the zoning regulations. This is useful for two reasons: first, it is a guide for the zoning administrator in the daily administration of his or her duties; and second, it provides justification for the regulations if they are challenged in the courts.
As it currently exists (2006) the zoning section of the Land Development Code contains 16 conventional zoning districts, consisting of two agricultural districts, six residential districts, four commercial districts, two industrial districts, a University district, and an Airport district. There are two overlay districts which relate to flood management areas along the Red River. The LDC also contains a planned unit development district. Every conventional zoning district is structured similarly and contains a statement of intent, permitted uses, conditional uses, and development regulations.
Conventional zoning districts regulate many things, including building setbacks, impervious surface area, height restrictions, and minimum lot size/density of
B-2 development. Building setbacks vary depending on the zoning district, size of the building lot, location of the lot (e.g., mid-block, corner lot), arterial street frontage, and height of the building. Impervious surface area, expressed in percentage of lot area, is the area of a lot that cannot absorb water, such as buildings, parking areas, and sidewalks. The height restrictions are measured in feet or number of stories from normal sidewalk grade. The residential districts limit the density of development by either regulating the minimum lot size for a single family house or limiting the number of housing units per acre for multiple-family building.
The Zoning Map
The zoning map is an essential part of the zoning ordinance and must be drawn so that there is no ambiguity in boundary line locations. The zoning map is subject to constant revision as amendments to the zoning ordinance are made, and it is essential that the official map be kept current.
Special Districts
The two largest public land users in Grand Forks have their own zoning districts. All of the University of North Dakota and neighborhood north of the campus are in the U-D University District. This district is unique because the vast majority of the land is owned by the State of North Dakota. The A-D Airport District contains the Grand Forks International Airport, and is actually a mix of many different land uses. The airport contains runways, taxiways, aircraft aprons, hangars, the terminal, fixed base operations (FBO), and a variety of public buildings. The airport is the single largest public land use in Grand Forks, and is owned and operated by the Grand Forks Regional Airport Authority. State law gives the Airport Authority the power to zone the land within its own boundaries. The Airport Authority and the City have an agreement in which the City zones the airport property, but allows the Airport Authority latitude in determining permitted uses and development standards. In the future, the permitted uses section of the A-D Airport District may be expanded to include a wider variety of uses. The only development standards contained in the A-D Airport District restrict height within the airspace zones; there are no building setbacks or impervious surface area requirements.
Under the Airport Authority’s recent airport master planning process, the area around the airport falls within suggested Airport Compatibility Zones (see Chapter 4). The City coordinated with the Airport Authority in assigning land use categories and tier boundaries surrounding the airport for the 2035 Land Use Plan. The Compatibility Zones identify appropriate land uses and densities within close proximity of the airport (e.g., rural residential density limit of 40-acre lots, low-density commercial and industrial uses). In addition, building heights, uses that may attract wildlife, and uses that interfere with aircraft navigation must be managed within this area. This plan pays attention to the need to carefully define the types and density of future developments in the area to minimize impacts to residents from the airport. The airport compatibility issues result in the elimination of residential uses and limiting any commercial or business/office uses
B-3 where large numbers of people are concentrated. Industrial uses with low population density are most appropriate around the A-D Airport District.
Overlay Districts
Note: New overlay districts are recommended as part of the 2035 Land Use Plan.
As the name implies, overlay zoning districts are placed over existing zoning districts. A common use of overlay zoning is to place additional requirements or restrictions on a zoning district, or across several zoning districts. Grand Forks currently has two overlay districts, both of which are located along the Red River and seek to restrict building in the floodplain and floodway. Other communities use overlay districts for other purposes; for example, an overlay district may require a commercial corridor to provide larger setbacks and additional landscaping.
Amendment Process
All of the land within Grand Forks and its four-mile extraterritorial jurisdiction is zoned. If a change in that zoning is desired, the zoning map must be amended. An amendment to the official zoning map can be initiated by one of four entities: the owner(s) of property, the Planning and Zoning Commission, the City Council, and the Planning Department. Most requests come from property owners in the process of developing land. The zoning amendment process begins with submittal of an application and fee to the Planning Department, along with a legal description of the property to be rezoned. The Planning Department reviews the requests and makes a recommendation to the Planning Commission. The Planning Commission evaluates the merits of the request, prepares a recommendation to City Council, and sets the date for a public hearing. The City Council has three options: approve the request as submitted, approve the request with conditions, or deny the request. If the request is approved or approved conditionally, the process continues. If the request is denied, the process ends. Before the next Planning Commission meeting, the applicant is required to provide the Planning Department with a list of property owners located within 400 feet of the rezoned request, and revised plans if necessary (see Figure B.1). The Planning Department reviews the revised application and makes a recommendation to the Planning Commission, which evaluates the request, holds a public hearing, sends a recommendation to City Council, and sets the date for a public hearing. The City Council holds a second public hearing and can take one of three options: approve the request as submitted, approve the request with conditions, or deny the request.
Extraterritorial Jurisdiction
Current state code permits cities with populations greater than 25,000 to zone and subdivide land within four miles of city limits; Grand Forks passed an ordinance to assume this zoning authority in 2006. The North Dakota Century Code provides that representatives residing in the extraterritorial area be added to the Planning Commission if a city chooses to exercise its extraterritorial zoning authority. Rural residents have been members of Grand Forks’ Planning Commission since 1975.
B-4 Site Plans
An approved site plan is required for any development within a multiple-family, commercial, or industrial zoning district. The developer submits a drawing showing lot lines, building locations, utilities, parking, landscaping, dimensions, signage, to the Planning Department Staff. The staff reviews the site plan for conformance with the LDC.
Planned Unit Development (PUD) District
Note: The PUD process will be examined in 2006 and may change as a result of recommendations in the 2035 Land Use Plan.
The use of PUDs allows the Planning Commission and City Council greater flexibility and control of development in Grand Forks. Grand Forks adopted its original PUD ordinance in March of 1973. Prior to that, the City utilized a similar tool called a Community Unit Project Figure B.1 Zoning Amendment Approval Process (CUP); however, a CUP was limited to only the R-4 multiple family or B-2 shopping center district.
PUDs are utilized extensively in Grand Forks and other cities in the region. Since nearly everything in a PUD is negotiable, PUDs require a knowledgeable planning staff to administer them. PUDs are designed:
x To allow a planned and coordinated mix of land uses which are compatible and harmonious, but formerly not permitted under conventional zoning procedures; x To encourage a more creative and efficient utilization of land, concentrate open space in more usable areas, and preserve the natural resources of the site; x To allow a variety in the types of environment available to the people of Grand Forks; x To provide the means for greater creativity and flexibility in environmental design than is provided under the strict application of the zoning and subdivision ordinances while at the same time preserving the health, safety, order, and general welfare of the City of Grand Forks and its residents; x To encourage the overall planning and design of large land areas; and x To provide a better means of cooperation between the City of Grand Forks and private developers in the urbanization of new lands and the renewal of existing decayed areas.
B-5 Concept Development Plan Approval Process
Grand Forks operates a two-stage PUD approval process. The first stage is the Concept Development Plan (CDP). The CDP establishes the following elements:
x Permitted types of land use (residential, commercial, industrial, etc.); x Density of development (units per acre); x Preliminary street network design; and x Timing or phasing of the CDP.
Concept Development Plans (CDP) must be approved by ordinance since they are adopted as part of the City’s Official Zoning Map (see Figure B.2). The first step in the CDP approval process is a review of the plans by the Planning Department staff. The staff reviews the plans and makes recommendations to the Planning Commission. The Planning Commission, in turn, reviews the plans and the staff recommendations and forwards a recommendation to City Council. By the time the CDP reaches the City Council for preliminary approval, many of the issues have been resolved. The plans with the required changes are sent back to the developer for revisions. The revised plans are submitted to the Planning Department for a final review where the process is repeated. A public hearing is held by the Planning Commission so that affected citizens may be heard. The Commission forwards its recommendations regarding the CDP to the City Council, which reviews the recommendations and holds a public hearing on the CDP. If the City Council approves the CDP by two-thirds of a majority, the Official Grand Forks Zoning Map is amended.
Figure B.2 PUD-Concept Development Detailed Development Plan Approval Process Plan Approval Process
The second stage to the PUD process is the Detailed Development Plan (DDP). The DDP is required to include the following elements:
x Legal description, address, zoning information, etc.; x Existing information - surrounding land uses and utilities; x Technical information - impervious surface area, parking ratio, etc.; x Building, parking, signage, and landscaping location and dimensions; x Sign and building elevations or renderings.
B-6 In 1997, after a one-year trial period, the City of Grand Forks changed the DDP approval process to an administrative review by staff (see Figure B.3). The approval process was changed to expedite plan reviews, as many builders and developers felt that the approval process was too time consuming. A drawback to the new approach is the elimination of public participation.
Upon receipt of an application and DDP, copies are distributed to the Engineering Department/Inspections Division, Fire Department, and Sanitation Department for review and comment. Comments and plan revisions are returned to the developer within one week.1 Revised DDPs are returned and the review process repeated. If necessary, a third review is performed until all issues are settled.
Figure B.3 PUD-Detailed Development Plan Approval Process
For DDPs, the Planning and Zoning Commission serves as the “board of adjustment” to hear appeals when there is a disagreement between staff and the developer over development requirements or when a variance is needed that has not been approved with the Concept Development Plan. Appeals to the Planning and Zoning Commission require a public hearing. Adjacent property owners are notified and given an opportunity to comment at the public hearing. The Planning and Zoning Commission may grant or deny the appeal or a variance. If the appeal is denied, final submission of the DDP must be in
1 The review period may be extended depending on the complexity of the DDP.
B-7 conformance with standard zoning district requirements. Variances cannot be granted to reduce the number of required off-street parking stalls or the type of sign allowed.
Public Participation
The North Dakota Century Code requires that the public be notified of the plan approval or rezoning process by publication of a notice in the newspaper of general circulation that indicates time, place, and date where the public hearing on the matter will be held. Grand Forks goes a step further by notifying by mail property owners within a 400-foot radius of the proposed change. Nevertheless, many people in or adjacent to the affected area remain unaware of a development proposal. One technique to increase public participation is to place a sign on the property that is proposed for development identifying that there is a building proposal for that piece of land (see example sign in Figure B.4).
General Zoning Requirements
General zoning requirements apply to both conventionally zoned land and PUDs. This ensures equitable implementation of the regulations. For example, a fast-food restaurant would have to meet the same parking and landscaping requirements whether built in a B-3 District or in a commercial area of a PUD. The Planning Commission has the flexibility in the development of property in a PUD either to be more restrictive or to grant a variance for any of the regulations.
Figure B.4 Detail Development Plan Parking Public Participation Sign
Off-street parking is a general zoning requirement of the LDC. The parking section regulates many elements of off-street parking, including:
x Parking lot design - parking stall width and depth, paving setbacks, etc.; x Handicapped accessible parking requirements; x Access to off-street parking; x Combined parking facilities; x Parking lot construction and maintenance; x Off-street parking ratios; x Off-street loading requirements.
Off-street parking is identified as a permitted use in the appropriate conventional zoning districts. This was intended to prevent variances in off-street parking ratios. However, as
B-8 a matter of practice, the City has allowed variances in several sections of the parking code, such as hard surfacing and paving setbacks. The parking ratio section needs to be periodically reviewed to ensure it remains fair and in line with regional and national standards.
Landscaping
Note: The landscaping requirements will be examined in 2006 and may change as a result of recommendations in the 2035 Land Use Plan.
Landscaping has been an element of the LDC since 1985. There are three parts to the landscaping portion of the code: bufferyards, special landscaping requirements based on zoning districts, and parking lot landscaping. Bufferyards are a combination of trees, shrubs, fencing and mounding located within a defined area. They contain four possible types of planting material: shade trees, ornamental trees, evergreen trees, and shrubs. Bufferyards also identify the minimum size of the planting, either by caliper or height. The caliper is the diameter of the tree truck measured six inches above ground level.
The LDC identifies the purpose for bufferyards as follows:
In order to minimize any negative effects that a more…intensive use will impose on its neighbors, this section requires that bufferyards to be provided between uses. Such bufferyards are required to protect one (1) class of use from adverse impacts caused by a use in another class or to ameliorate the impact two (2) uses in the same class may have on one another. This requirement benefits both the developer and the adjoining landowners because it allows the developers several options from which to choose in developing the property, while insuring each neighbor adequate protection.
Only one bufferyard is required between two uses. When the bufferyard requirement involves different types of uses, the installation of the bufferyard is the responsibility of the more intense use. For example, if a commercial use wishes to build adjacent to a residential area, a Type E bufferyard would be required on the commercial lot. Where similar uses are proposed, the bufferyards should be centered on the lot line separating the uses. Bufferyards are required between all uses, except for single family homes and duplexes. See Figure B.5 for an example of a typical bufferyard.
Different zoning districts and land uses also have special landscaping requirements. These include exterior storage, trash container screening, and general landscaping requirements. The storage of materials outdoors is not permitted in residential districts, while in commercial and industrial districts an opaque fence is required to surround materials stored outside. Trash Figure B.5 Typical Bufferyard Diagram containers located in the R-3, R-4, B-1,
9 B-2, B-3, I-1 and I-2 districts must be screened with an opaque fence.
The final element of the general landscaping requirements is the landscaping of parking lots. Improving the appearance of parking lots improves the overall appearance of a community. Conventional commercial design places the parking lot between the street and the building. This often results in the creation of a “sea of paving,” especially with large land uses. The installation of planting islands, trees, and shrubs visually breaks up an expansive parking lot. Current parking lot landscaping requirements of the LDC apply only when a parking lot is designed for 20 or more parking spaces, or is greater than 8,000 square feet in size.
Sign Regulations
Regulating signs requires balancing the need of businesses to communicate with the public with streetscape aesthetics and traffic safety. Communities have been given broad authority to regulate signage based on these considerations. Prior to the construction of 32nd Avenue South and South Columbia Road, Grand Forks residents expressed concern over the appearance of the major corridor entrances to the city. When 32nd Avenue South and South Columbia Road were completed, the Planning Commission decided that the signage on these new streets would be limited to wall and ground monument signs. All developments on 32nd Avenue South and South Columbia have complied with the code provision requiring ground monument signs. Improving the appearance of the city’s older commercial corridors needs to be reviewed; little change in the sign code governing the older corridors has taken place. Several Planning Commissioners have suggested that ground monument signs be phased in along the city’s older corridors. The neater, small- scale ground monument signs are in sharp contrast to the large 50-foot-high pylon signs found in these older areas. In 2006, the City passed new regulations regarding signs, as spelled out in Ordinance 4105.
Variances
A key zoning characteristic is that all land within a district must be subject to the same restrictions, unless otherwise stated in the zoning ordinance. Such classifications may result in undue hardships on landowners whose land, for some particular reason (such as size, shape, location or topography), cannot comply will all requirements of the district in which it is situated. To accommodate hardship cases, a variance may be granted by the Board of Zoning Adjustment. A variance is defined as a modification or variation of the provisions of this chapter, as applied to a specific piece of property, except that modifications in the allowable uses within a district shall not be permitted as a variance.
The Grand Forks Board of Zoning Adjustment (BOA) is an appointed body that is empowered to grant zoning variances in all of the conventional zoning districts. It has authority to grant variances related to most items in these districts. The BOA is made up of six members who are appointed by the Mayor and City Council. The Planning and Zoning Commission may also act as a Board of Adjustment in PUDs; however, in practice, the BOA grants variances in single family and duplex areas within PUDs.
B-10 Subdivision Regulations
Note: Subdivision regulations will be examined in 2006 and may change as a result of the recommendations of the 2035 Land Use Plan.
There are generally two types of subdivisions in Grand Forks: major subdivisions and minor subdivisions (see Figure B.6). Major subdivisions are required when there are six or more lots, or in subdivisions requiring the dedication of rights-of-way or roadway easements. Major subdivisions take a minimum of two months for approval because the dedication of right-of-way requires an amendment to the Street and Highway Master Plan, which must be done by ordinance. Minor subdivisions are those involving the creation of five or fewer lots and no dedications. The City Council can approve the plat, approve the plat conditionally, amend the conditions of the plat, or deny the plat upon a recommendation by the Planning Commission.
Figure B.6 Subdivision Approval Process
B-11 Rights-of-way
Dedicated public rights-of-way create the framework around which a city is built. The dedication of right-of-way is a critical function of the subdivision process. The term “right-of-way” is defined as the following:
A strip of land occupied or intended to be occupied by a street, crosswalk, railroad, electric transmission line, oil or gas pipeline, water main, sanitary or storm sewer main, shade trees, or for another special use. The usage of the term “right-of-way” for land- platting purposes shall mean that every right-of-way hereafter established and shown on a final plat is to be separate and distinct from the lots or parcels adjoining such right-of- way and not included within the dimensions or areas of such lots or parcels. Rights-of- way intended for streets, crosswalks, water mains, sanitary sewers, storm drains, shade trees, or any other use involving maintenance by a public agency shall be dedicated to public use by the maker of the plat on which such right-of-way is established.
Grand Forks’ subdivision regulations identify a minimum right-of-way width requirement depending on the functional classification of the street or designated purpose (see Table B.1). The location of some rights-of-way is also identified as part of the subdivision regulations. For example, arterial streets are located on section lines and collector streets are located on quarter section lines. Additional right-of-way is required for major roads designed to carry a large number of cars (see Figure B.7). For example, the additional right-of-way width of functionally classified streets allows for wider streets and additional turn lanes.
Subdivision regulations also determine the number of access locations permitted along collector and arterial streets. Access spacing varies, depending on the type of street. Collectors, for example, permit access every 150 feet, while principal arterials permit an access every 880 feet. Restricting access along functionally classified streets is intended to improve traffic movement.
Easements
An easement is an agreement between a property owner and another party, such as the City, for the limited use of a defined area. Once an easement is established, it remains with the property even when the property is sold. Easements are used for a variety of purposes including utilities, drainage, sidewalks/bikepaths, and screening. Other users may install electrical lines, natural gas lines, telephone wires, and cable television wires in public easements. The City does not permit structures, such as buildings or signs, to be built over easements. Landscaping and parking lots have been permitted to encroach on public easements, although this is discouraged whenever possible.
B-12 Easements are required either during the platting process or in a separate Table B.1 recorded legal document. The City acquires most easements during the platting or replatting process. The existing subdivision regulations require the dedication of a 10-foot- wide utility easement along the front lot line of newly platted subdivisions. This allows the City to properly space and/or install all underground utilities without locating any under the street pavement. These front yard utility easements often are important due to the width of the trench required for deeper pipes. Other easements are acquired on an as-needed basis.
Vacations Figure B.7 Public rights-of-ways and easements can only be eliminated by an action of the City known as a vacation. A vacation request begins with the submission of a signed petition from adjoining property owners to the Planning Department or City Auditor. The Planning Department reviews the request, notifies utility companies of the request, and submits recommendations to the Planning and Zoning Commission. The Planning Commission reviews the application and makes a recommendation to the City Council. The City Council directs the City Auditor to publish notice of petition and contents and the City sets a public hearing date which will be held 30 days after the first notice is published. Council holds a public hearing and either vacates the property by resolution or denies the petition. The City Auditor records a copy of the vacation resolution with the Register of Deeds, which transfer interest to the adjoining property owners (see Figure B.8).
B-13 Public Land Exactions
The current subdivision regulations require eight percent of the net subdivision area to be dedicated for park land when a new residential subdivision is approved. Money can be accepted in lieu of land, or a combination of land and money may be accepted. A three-member park dedication committee meets with the property owner between preliminary and final approval to negotiate an agreement. This committee consists of one representative appointed by the Planning and Zoning Commission, one representative from the Grand Forks Park District, and one representative from the Grand Forks City Council.
As a result of recent litigation, Dolan vs. City of Tigard (114 S.C. + 2309, 1994), the U.S. Supreme Court identified two criteria public land exactions must meet “rough proportionality” and “rational Figure B.8 Right-of-Way and Easement Vacation nexus.” “Rough proportionality” Process means that dedication requirements must be reasonably equitable among different developments. The second test of a public exaction is the “rational nexus.” In simplified terms, the rational nexus test requires that the exaction be directly related to the proposed development. In response to these Court decisions, the Planning Department is conducting an in-depth study of impact fees. Communities around the nation have used impact fees to fund schools, police and fire stations, libraries and more.
Variances
The Planning and Zoning Commission acts as the Board of Adjustment when there is a variance requested to the subdivision regulations. The same parameters defining a zoning hardship apply to subdivision hardships. Variance requests to the subdivision regulations include access control, minimum lot frontage, maximum block length, and minimum lot area. Minimum lot dimensions identified in the zoning portion of the LDC are enforced through the subdivision section of the code.
B-14 CAPITAL IMPROVEMENT PLAN
The Capital Improvement Plan (CIP) is a schedule of capital expenditures to be incurred each year over a fixed period of years to meet capital needs. The schedule should itemize each project or capital expenditure that the City hopes to accomplish (including a budget with cost estimates and proposed means of financing); the schedule will be reviewed, updated and revised each year. The term “capital improvement” refers to any major non- recurring expenditure for new or expanded physical facilities of enduring value, and also for the replacement, renovation, rehabilitation or alternation of existing public facilities such as streets, parks, public buildings and all other public works. Expenditures for the purchase of land and certain major equipment valued at 50,000 dollars or greater are considered non-recurring capital expenditures. The programming of an orderly sequence enables the City to prioritize specific projects and establish a schedule of land acquisition and facilities construction within its financial capacity. By proceeding on a priority schedule of capital improvements which accounts for current and anticipated needs, as well as current and projected finances, the City ensures that necessary projects are not built before they are needed or after they have become prohibitively expensive. The CIP integrates all the components included in the 2035 Land Use Plan with the actual construction of public improvements. Because capital improvement projects are influential in determining patterns of land use and urban growth, the CIP is an important implementation tool of the planning process; by guiding the provisions for, nature of, and location of public improvements, city growth can be guided along desirable channels and in a logical and orderly manner.
Major benefits and advantages of the Capital Improvements Planning process are:
x The CIP ensures that the transportation and public facilities portion of the land use plan will be implemented, and conversely, that capital improvements decisions will be responsive to population and land use trends. x The CIP identifies deficiencies in the City and suggests appropriate corrective measures. x The CIP affords the City an opportunity to distribute or prorate the cost of capital improvements over a period of years, thereby maintaining tax stability and avoiding sharp changes in the debt structure of the community. x The CIP protects the community from various pressure groups and “pork barrel” projects, many of which may not directly benefit the City, thereby allowing impartial treatment to all areas. x The CIP, by anticipating needs in advance, provides adequate time for proper design of new projects, and review of policy decisions to see whether they were properly made, and adjust capital expenditures according to the financial resources of the community. x The CIP, by listing long-range projects, helps to keep the public informed as to the status of the needs of the City and its plans to meet such needs. x The CIP provides an opportunity to save money in the acquisition of land as sites for public facilities by anticipating future needs and acquiring land at lower costs before private development would increase the costs. x The CIP provides a stronger position on which public officials may justify capital improvement expenditures. x The CIP prevents premature development of areas and prevents excessive costs and demands on the City in providing services and extending municipal utilities.
B-15 x The CIP helps to achieve a more balanced development of projects in order to avoid concentration or overemphasis of any single project. x The CIP makes available to other governmental agencies, private utilities, private investors and other industries, a comprehensive view of public improvement needs for which they may make sounder judgements concerning their own programs. x The CIP improves local ability to use state and federal grant-in-aid programs. Applications can be timed to fit Capital Improvement Program development schedule. ANNEXATION
Note: The 2035 Land Use Plan has recommended changes for the City’s annexation system that have been adopted as part of the 2035 Land Use Plan. These changes are noted below under Annexation Point Rating System.
As Grand Forks expands, the existing urban development contiguous to the community should be annexed. Annexation is an initial component of the conversion of agricultural land on the fringe of a community into urban land uses. The City has the power to apply its zoning and subdivision authority to the unincorporated territory located within four miles of its corporate limits (North Dakota Century Code 40-47-01.1). The purpose of this statute is to provide uniformity within unincorporated areas adjacent to a community, thus allowing the City to plan for growth in a comprehensive manner. Therefore, the annexation of land along the edge of the City limits can affect property up to four miles away.
Several factors determine when and where future annexations of land should occur. City policies concerning the timing and location of capital improvements and the provision of municipal services can be very influential in determining the location of future annexations and urban development. In considering the proposed annexation of a parcel of land, many elements must be analyzed. The potential for annexation of a subdivision or parcel of land in relation to its surrounding land use activities should take into consideration the following factors:
x Nature, extent and size of the proposed annexation area. x Anticipated population and density. x Timing of the annexation of the development. x Nature and degree of urbanization of the contiguous property. x Availability of municipal sewer and water mains. x Potential impact on the economic and efficient operation of public facilities. x Distance of any necessary extensions of sewer and water facilities through unsubdivided lands which are designated as areas to be set aside for future development. x Availability and quality of adequate municipal streets to serve the proposed annexation area. x Adequacy and availability within a reasonable distance of fire and police protection, utilities and improved park facilities.
The amount of land annexed varies from year to year (see Table B.2). In the past, most annexations of developing properties occurred on a piecemeal basis. For example,
B-16 Johnson’s PUD, approved in 1992, covered approximately 175 acres; Total Annexations however, property was annexed only as Grand Forks, 1985-2004 different phases developed. To date, Year Increase in Total Acres Square 120.88 of the 175 acres have been Acres Miles annexed. Occasionally, an area larger than 1985 101.85 8,736.88 13.65 the proposed development is annexed. 1986 45.83 8,782.71 13.72 This is usually done in order to more 1987 103.04 8,885.75 13.88 evenly distribute the cost of infrastructure 1988 86.40 8,972.15 14.02 improvements to the benefiting properties. 1989 35.60 9,007.75 14.07 Development beyond the City’s urban 1990 63.78 9,071.53 14.17 service area is strongly discouraged, and 1991 277.50 9,349.03 14.61 the City has denied requests for 1992 0.86 9,349.89 14.61 development based on its adopted growth 1993 43.16 9,393.05 14.68 management goals and policies. In some 1994* 703.59 10,096.64 15.78 instances, however, development has been 1995 108.89 10,205.53 15.95 allowed contingent upon the property 1996 229.66 10,435.19 16.30 owners’ signing and recording a document 1997 385.41 10,820.60 16.91 waiving their rights to protest annexation.2 1998 409.97 11,230.57 17.55 This latter approach has been used 1999 915.42 12,145.99 18.98 sparingly and is suggested as a more 2000 112.07 12,258.06 19.15 fiscally responsible approach for the City 2001 15.81 12,273.87 19.18 in the 2035 Land Use Plan. 2002 86.69 12,360.56 19.31 2003 108.51 12,469.07 19.48 2004 0.00 12,469.07 19.48 Planning Commissioners have asked that all property owners be notified prior to a *In 1994 the City annexed 491 acres owned by the Grand Forks Airport Authority meeting in which an annexation proposal Source: Grand Forks Planning Department, 2005 will be heard. In practice, though, this Table B.2 Total Annexations Grand Forks, 1985-2004 notification is sometimes impossible because the boundary of the annexation area may be amended by the Planning Commission during the meeting. Affected property owners are, however, notified prior to the public hearing at the City Council.
Annexation of Undeveloped Land
The following is a recommended checklist of information that should be submitted to the City by the property owner requesting the annexation:
x Map showing the location of existing development within the immediate vicinity of the proposed annexation site. x Map showing the location of existing serviceable utilities such as lift stations, sanitary sewer, water mains, storm sewer, and street pavements with reference to the area proposed for annexation.
2 Section 40-48-18.1 NDCC limits the waiving of the right to protest annexation to within ¼ mile of the city limits.
B-17 x Map showing the location of existing municipal facilities such as police and fire stations, maintenance shops, water reservoir, and lagoons with reference to the area proposed for annexation. x Map showing a staging plan for development in the proposed annexation area. x Map showing predetermined special assessment boundaries for arterial and collector streets, water trunk lines, sewer trunk lines, etc. x The estimated projected construction cost and percent of cost sharing between the City and the property owners. x Map showing the need for other unique facilities such as dams, bridges, box culverts, dikes, etc., on the annexation site and proposed financing thereof. x Legal description of the property for which annexation is requested.
Annexation of Developed Land
The following items should be considered when determining the feasibility of annexing a developing area:
x What are the existing and proposed land uses of the area considered for annexation? x Does a community of interest exist between the area considered for annexation and the City of Grand Forks? x Are the educational, recreational, civic, social, religious, commercial, industrial, or municipal services provided by the City of Grand Forks readily available to any resident, business or industry located in the area considered for annexation? x Is there an economic, political and social relationship between the area considered for annexation and the City of Grand Forks, Grand Forks Public School District #1, and other affected political subdivisions?
Annexation Point Rating System
In order to justify future land annexations to the City, a quantifiable point rating system is used to determine the feasibility of each annexation. Orderly development can be achieved through the implementation of a point system since areas requesting annexation must meet minimum point requirements. Areas meeting the minimum requirements are appropriate for annexation since it has been shown that a community of interest exists between the area sought to be annexed and the City. Conversely, the annexation of fringe areas not meeting the minimum point criteria should be delayed because their annexation would result in costly premature development.
Prior to the adoption of the 2035 Land Use Plan, nine criteria comprised the annexation point rating system. The rating system provided for a total of twenty-three points in the total land use category; twelve points was the minimum point total required to justify the annexation. The nine criteria are assigned different point values in accordance with their relative importance. The emphasis of the point system centered on the availability of water, sewer and street facilities, with factors such as percent of urban development, with contiguity and compactness also being important. Less significant criteria include the proximity of municipal fire stations and improved public parks, and the salinity characteristics of the soil. Table B.3 shows the annexation point rating system for the City of Grand Forks as it has been used prior to the adoption of the 2035 Land Use Plan.
B-18 The adopted 2035 Land Use Plan includes a Growth Management Goal with policies that encourage equitable sharing of the costs of service provision between city residents and those who will receive city services in newly developing areas. The policies recommend reviewing the existing point system used in determining annexation suitability to include, at a minimum, two additional measures: (1) a cost-benefit analysis, and (2) criteria that examine potential, rather than existing, urban development.
A cost-benefit analysis of a proposed annexation should examine the costs of providing service to an area (water service, sanitary sewer, storm water management, new or upgraded roadways, police and fire service, park and recreational service delivery, and any others) against the potential tax revenue from the proposed area at full development.
With a cost-benefit analysis, the city must be able to anticipate what types of uses and densities will occur in a new development. Rather than the current rating that examines the percent of existing urban development, this plan encourages the city to annex for future development when there is an approved development agreement and/or subdivision.
The City will revisit the annexation point rating system to determine how to incorporate the changes recommended by the 2035 Land Use Plan.
2035 Land Use Plan B-19 Table B.3 Annexation Point Rating System
B-20 APPENDIX C GATEWAY DRIVE (TH2) PLANT LIST
The soils along Gateway Drive are problematic for plant establishment due to the existence of three challenging soils conditions (high salinity, high alkalinity and the possibility of seasonal drought conditions). Of the three conditions, the high salinity of the soil is the most problematic. When the soil has high levels of salt, even if the soil is moist, a plant can die from lack of water uptake because the high salt concentration outside of the plant will cause the plant cells to lose water and collapse due to osmotic movement.
This condition is exacerbated by the fact that the area goes through cycles of wet seasons and dry seasons, which impacts the height of the underlying water table. When the water table is high, the capillary action of soil brings additional salt into the soil where plants are being established. The fluctuating water table is the likely reason why some plants will be growing nicely for several years (low water table) and then one year become stressed and die (high water table).
When soils have high levels of alkalinity, it reduces the opportunity for plants to uptake needed nutrients.
In addition to planting species that are shown to have a high tolerance for soils with high salinity and alkalinity (see Table 1), the most important way to improve soil conditions to support plant growth is to keep the salt levels in the soil as low as possible. The following techniques can be employed to help reduce the salinity level in the soil: y Maintain good drainage under planted areas. Install a deep draintile system to keep groundwater from rising to a height where the capillary action of the soil does not impact the root zone of the plants. y Irrigate plantings. The irrigation water will flush the salt lower into the soil profile. This technique requires that a draintile system is installed to remove excess water (avoid capillary movement back up) and that the irrigation water not contain high concentrations of salt. y Install native grasses. Native grasses will be better adapted to these soil conditions. In addition, the deep roots of the native species will uptake water prior to it reaching the more sensitive plants and may act to keep the water table lower.
In addition to the above techniques, it is recommended that species be planted as a size smaller than what would be installed on better soil conditions. A plant will have a better change of survival if it is planted small. Small plants are not under transplant stress as long as larger plants. Typically, when trees are transplanted, their roots are undersized compared to their canopy, which causes stress due to their need to find adequate water and nutrients to support a large canopy with less roots than normal. Without trying to support a pre-existing large canopy on undersized roots, small plants can quickly spread out roots to areas where it has a better change of finding the nutrients it needs to survive.
C-1 It is recommended that soil tests are performed to better understand the level of soil salinity when selecting plants and designing irrigation and/or drainage systems.
Definitions taken from the North Dakota Tree Handbook:
Saline soil - A soil condition in which soluble salts are present in the soil in sufficient quantity to affect the ability of certain plants to absorb water from the soil. Trees and shrubs do best on soils with salinity levels below 2.0 deciSiemens per meter (dS/M) or millimhos per centimeter (mmhos/cm). However, many plants are able to perform satisfactorily on soils with salinty levels between 2 to 8 dS/M. Only a limited number of species survive at salinity levels between 8 and 16 dS/M. No species grow well on soils with salinity exceeding 16dS/M. The following chart quantifies the ranges of salinity:
Measurement Range less than 2.0 not saline 2-4 very slightly saline 4-8 slightly saline 8-16 moderately saline 16+ strongly saline
Alkaline soil - Soil having a preponderance of hydroxyl ions (high pH) over hydrogen ions (low pH) in the soil solutions; thus a soil with pH above the neutral range (6.6 to 7.3).
C-2 APPENDIX D - URBAN DESIGN AND LAND USE (Chapter 5 from 2035 Land Use Plan)
The 2035 Land Use Plan recognizes the desire of Grand Forks residents to enhance the design of new development in the City—a desire that was reiterated throughout the update process. Although Grand Forks residents have had some design guidance (notably through the Downtown Design Review District), there have been few examples with which consistent design standards have been applied to development proposals. One prominent example that has been considered a design success by many residents is the Bronson property development (south of Gateway Drive and west of Columbia Road North). This large tract implements a consistent design approach and includes commercial properties (such as a restaurant and gas station), a variety of attached housing units, and University of North Dakota facilities (including the Ralph Englestad Arena).
In recognition of the community’s greater emphasis on urban design, this plan provides direction for the City’s efforts in two specific ways: with broad commercial, industrial, and residential design guidelines; and with design concepts appropriate for incorporation in each of the three pilot areas studied in the plan. These are in response to the desires of residents, as expressed throughout the update process. Some residents called for urban design to be employed to encourage new styles of development, including the New Urbanist incorporation of smaller lots and higher population density, a reliance on the traditional grid system of streets, and a mix of residential types that provides complete life cycle housing. Other community members called for city-wide design guidelines to direct developers, neighbors and decision-makers in reviewing new projects and developments.
In order to develop meaningful recommendations, a series of design boards was created for the purpose of collecting public feedback. These boards stimulated detailed discussion about what design-related approaches residents did and did not want to see adopted in the city. This feedback was used to guide development of the Urban Design goal (and related policies) in Chapter 3, as well as the design guidelines presented in this chapter. The public also provided input as to what specific development issues each Pilot Area should address.
The Pilot Area plans offer prototypes for site plans showing both residential and commercial/industrial development, storm water and wastewater management options, open space development in conjunction with flood control structures, multi-building commercial and industrial developments and other considerations. The Pilot Area plans are discussed later in this chapter
D-1 DESIGN GUIDELINES
As discussed above, the development of design guidelines was an objective identified by city staff, developers, and residents throughout the plan update process. Members of the Grand Forks community recognize that adopting at least basic design guidelines provides all parties with a clearer up-front understanding of the city’s development review goals and requirements. The Commercial and Industrial Design Guidelines and the Residential Design Guidelines presented here are intended for implementation by City staff in the development review process. They are fairly broad because they are a first step to implementing design review throughout the city. In the future, the City should develop specific guidelines tailored to specific locations (such as commercial corridors and neighborhoods), similar to those used by the Downtown Design Review Board.
Several of the design boards which were presented at a project open house were informative in creating the guidelines that appear below. Feedback in response to two “Design Consideration” boards, as well as the “Alternative Storm Water Management Approaches” board is reflected in these guidelines. The boards, as they appeared at the public open house, follow.
D-2 DESIGN CONSIDERATIONS Building Facades
Quality Materials on Front Brick with New Architectural Accents Less Expensive Materials on Sides and Back
Painted Facade
Less Expensive Materials with Architectural Accents Precast Panels
Parking and Storage Screening
Ornamental Fence with Shrubs Vegetation Berms
Chain Link Fencing Parking on Side of Building
Wooden Fencing
September 15, 2005 2035 Grand Forks Extraterritorial Land Use Plan Study DESIGN CONSIDERATIONS
Signage
Addresses Directional
Company Names
Create a Sense of Place
Streetscaping and Landscaping
Quality of Signage
Public Art
Employee Amenities
Architectural Treatments Quality Building Materials
September 15, 2005 2035 Grand Forks Extraterritorial Land Use Plan Study ALTERNATIVEALTERNATIVE STORMSTORM WATERWATER MANAGEMENTMANAGEMENT APPROACHESAPPROACHES
Storm Water As A Site Amenity
• Provides an open space amenity for adjacent residential development • Provides habitat • Cleanses storm water prior to being released into the river • Requires ongoing maintenance
Storm Water Treatment Parking Lot Storm with Reduced Emphasis Water Treatment
• Ponds (reduced emphasis) located where space allows • Requires ongoing maintenance • Treats storm water close to source of pollutants (roads, parking lots) • Provides habitat
Storm Water Channels
• Quickly conveys storm water to river • No long-term standing water • Minimal removal of pollutants
September 15, 2005 2035 Grand Forks Extraterritorial Land Use Plan Study Commercial and Industrial Design Guidelines
Design guidelines allow the city to protect investment in the community by encouraging consistently high-quality development; they also help foster a sense of community pride and facilitate safe and functional developments. Because its recent population growth is anticipated to continue, it is appropriate for the city to begin developing detailed design guidelines. The guidelines presented here are basic recommendations and should be built upon as necessary at the city’s discretion.
While the differences between commercial and industrial uses mean that detailed guidelines would result in differences as well, there are sufficient similarities. This text focuses on commonalities between commercial and industrial developments’ design. It divides commercial and industrial design guidelines into two main categories: site design and planning, and building design.
Site design is an important component of planning multi-building projects such as office parks and mixed use developments. However, because of the larger scale of these projects and their potential to be located proximate to residential uses—particularly in the case of mixed use developments—good site design becomes essential in ensuring high-quality multi-building development. Specific guidelines for these types of development are noted where appropriate.
Site design and planning Commercial and industrial site design x Orient support uses (e.g., trash enclosures, provides appropriate functional and aesthetic compactors, truck loading areas, outdoor arrangement of buildings and other site storage) away from public areas. features. x Include expanded landscape planting areas to buffer residential uses.
Relationship to Surrounding Uses Refer to Section 18-0309 Landscaping of the Land Development Code Intent: Ensure that commercial and for full landscaping guidance. industrial buildings and developments contribute to a positive community Building Location and Orientation character. Intent: Ensure that the location and orientation of commercial and industrial x Encourage adequate buffering of buildings incorporate a strong relationship to buildings/developments from adjacent the street. uses. x Incorporate significant existing natural x Encourage functional public entrances that features. are also a visual focus of the building. x Buildings shall incorporate appropriate x Locate buildings, rather than parking, at scale, setback and heights, particularly arterial intersections to provide a strong when adjacent to residential areas.
D-6 visual and pedestrian relationship to the x Design sites to accommodate bus stops in street. shopping centers with existing transit x Site buildings up to the street whenever service and where future transit service is possible. planned. x The impact of parking areas, truck x When possible, incorporate protected delivery areas, outdoor storage areas, and pedestrian waiting areas, including bus industrial and mechanical equipment stops, into the design of buildings. should be minimized from public rights- x Provide bicycle parking facilities of-way. throughout larger sites and locate them in x Orient gas canopies, drive-through lanes, convenient and visible areas that do not service functions and accessory structures interfere with pedestrian or vehicular away from the intersection of arterial circulation. roadways to safely accommodate queuing. Parking Areas Pedestrian Amenities Intent: Minimize conflicts between vehicles Intent: Ensure that developments are safe for and pedestrians, employee and visitor and attractive to pedestrian users. traffic, and truck delivery and all other traffic within commercial and industrial x Provide for continuous pedestrian access developments. when developments are adjacent to existing or planned open/recreational x Enhance primary entry drives with space, residential areas, or other uses landscaping, monument signs, and other where such connections are appropriate. design features that identify site access x Pedestrian connections shall provide locations. reasonable pedestrian access and shall x Discourage large, uninterrupted expanses meet the requirements of the Americans of parking lot. Several smaller parking lots with Disabilities Act (ADA). are preferable to one larger lot. x Incorporate differentiated paving, x Parking areas should be adequately landscaping, lighting, railings, and similar landscaped and lit and provide safe tools to provide clear pedestrian pedestrian circulation. connections between buildings and x Locate surface parking areas, especially between parking lots and building truck delivery and loading areas, at the entrances. rear or sides of buildings whenever x Identify pedestrian walkways through possible. large parking areas to connect dispersed x If parking must be located at the front of buildings with arterial streets and the building, screen parking from the street sidewalks. using landscaping or berms. x Minimize driveway cuts on arterial streets Mixed use or Multi-building Projects by providing vehicular cross-access x Organize the site layout to provide easements and shared access driveways functional pedestrian spaces, plazas and between adjacent projects. amenities between or in front of buildings. x Not less than five percent of the interior of Provide weather protection, such as parking lots should be paved. overhangs, awnings, canopies, etc. to x Parking areas are to be adequately lit to enhance customers’ experience. ensure the safety of vehicular and pedestrian users.
D-7 Refer to Section 18-0302 Off-street Parking and x Building, freestanding, and directional Loading of the Land Development Code for specific parking requirements. signs should be designed to further the design theme of the building or Refer to Section 18-0309 Landscaping of the Land architectural style/theme of the Development Code for specific landscaping requirements for parking lots. development. x Provide building signage that is proportional to the scale of the building Loading and Utility Areas façade, or for the particular tenant in a Intent: Maintain a relationship to the public multi-bay building. street and minimize potential conflicts x The use of billboards (“off-premise between employees, visitors, pedestrians and advertising signs”) in commercial and truck traffic. industrial corridors is to be discouraged. x Awnings may be used as a sign panel for x Screen all service, loading, storage, and businesses where appropriate, and also refuse areas and orient away from public provide weather protection for visitors. street frontages. Large-scale storage uses x Internally illuminated signs are (e.g., salvage yards, heavy equipment discouraged. storage) should be screened with opaque fencing. Mixed use or Multi-building Projects x Refuse enclosures should match the design x All signs within the development are to be features of the buildings they serve. of the same type, material, and general x On final site plans identify the location of style when possible. all proposed outdoor display and sales x Signage should further the design theme of areas, including propane sales, vending the development. machines, amusements and seasonal sales. x Provide directory signs with building Their location should not displace required addresses at main entrances. parking, pedestrian, or landscaping areas. x Use ground monument signs to identify x Provide long-term storage of shopping buildings when free-standing signage is carts either within the tenant space or needed. These are preferable in most adjacent to it, behind a decorative office park situations. screening wall. x In mixed use developments (for which many ground monument signs within proximity of each other may not be Signage appropriate), appropriately sized Intent: Enhance the aesthetic quality of projecting signs may be considered. commercial and industrial developments and Refer to Section 18-0301 Signs of the Land Development contribute to a cohesive identity. Code for full guidance on signs. x Use ground monument signs to identify Refer to Ordinance 4105 for full guidance on signs. buildings when free-standing signage is needed. x On individual buildings, building address numbers should be provided and readable from the street, and be visible from both pedestrian and vehicular areas.
D-8 Landscaping Lighting Intent: Enhance the visual quality of Intent: Enhance the safety and visual quality commercial and industrial developments and of commercial and industrial developments. screen, buffer, or soften site elements. x Provide pedestrian-scale lighting fixtures x Require landscaping for all commercially- in areas designed for pedestrian activity and industrially-zoned projects, including (e.g., pathways/sidewalks, seating areas, building foundation and/or accent courtyards). plantings and trees, boulevard x Select lighting fixtures that complement landscaping, and parking lot and drive the general architectural style of the aisle landscaping. The landscaping theme development. should complement and enhance project x Lighting an entire building (or major architecture. portion) should be discouraged; instead x Design arterial street intersections with use accent lighting to highlight significant hardscape features, using creative grading architectural, landscaping, or artistic design, fountains, seasonal color, art features. and/or vertical landscape focal points. x Provide security lighting that is both x Coordinate landscaping plans with above- effective and attractive in promoting a safe and below-ground utility locations. and secure facility. x Screen the paved area of auto-intense uses—such as service stations, convenience stores, and drive-through Stormwater and Drainage Elements services—from streets and major public Intent: Ensure that new development, and use areas with a wall or a dense vegetative particularly multiple-building developments, buffer. are designed to handle stormwater on-site to x The use of native plants, as well as those the greatest extent possible. suited to specific soil conditions, is encouraged. Nuisance species are not x Developments must prepare master permitted. drainage plans addressing common stormwater retention needs. Mixed use or Multi-building Projects x Highly visible retention basins should be Intent: To reduce the visual impact of the contoured using curvilinear design and development on adjacent uses by integrating landscaped with a combination of an overall landscape design. vegetative and non-vegetative materials. x When retaining walls are necessary x Incorporate street frontage landscaping. components of stormwater elements, they x Incorporate perimeter landscaping and/or should be terraced, landscaped, or buffers where sites border other uses. incorporate soil erosion control systems to x Incorporate prominent entry features, reduce their visual scale. vertical landscape forms and/or seasonal x Stormwater should be treated as an color at both vehicular and pedestrian amenity when feasible, including but not project entrances appropriate to the scale limited to the incorporation of recreational of the project. paths along drainageways.
Refer to Section 18-0309 Landscaping in the Land Development Code for full landscaping guidance.
D-9 Building design x Portions of facades that do not have windows shall incorporate architectural The visual impact of buildings is determined and design elements to break up long by their size, use of materials, architectural segments of wall (e.g., lighting, design, relationship to surrounding open landscaping, varied materials, staggered spaces and the presence of human-scaled walls). elements, such as doors and windows. x Building entries should be enhanced using elements such as canopies, overhangs, Architectural design in industrial and peaked roofs, or by different paving commercial developments should be materials, building materials or colors. employed in order to improve the overall x Entry areas may also be enhanced using aesthetic and bring distinctive identity to integral planters or wing walls to such areas. incorporate landscaped areas and/or sitting areas. Specific components that should be x Fully screen roof-mounted mechanical addressed include building massing, equipment. articulation of facades and elevations, and x Internalize roof drain elements within the choice of materials. building or apply an architectural feature where visible from streets and public areas. Building Design x Building elevations should incorporate Intent: Ensure that each building contributes architectural features and patterns that to an overall high-quality development that include a pedestrian scale. contributes, and is visually connected, to the x Buildings should have clearly defined surrounding community. customer entrance(s). Mixed use or Multi-building Projects x Use exterior building materials that are high quality, energy efficient and durable x Multi-building projects should include (should be determined in conjunction with consistent design elements throughout the a more detailed overlay district). project. x Multi-building projects should be defined x Multi-story commercial buildings should incorporate lower scale, single-story with prominent focal points. Architectural elements and/or greater setbacks adjacent structures, art, historical and/or landscape to existing and future single family features should be located at both development. vehicular and pedestrian project entrances. x Incorporate canopy shade trees, landscape x All elevations generally visible from public view should reflect the overall features and seating or other pedestrian design, colors and textures used on the amenities near colonnades, storefronts and front façade. pedestrian routes. x Buildings should have clearly defined public entrances that front onto the street. x Ground floor façades visible from any street shall include an appropriate percentage of clear glass (should be determined in conjunction with a more detailed overlay district).
D-10 Building Massing Intent: Reduce the massiveness of commercial and industrial buildings. x Buildings should convey visually distinct “tops” and “bottoms” through the use of architectural and design details. x Use texture, color, material changes, shadow lines, and other façade treatments as means to articulate building mass. x Reduce building mass by using a combination of the following techniques: variation in the rooflines and form; use of protected and recessed entries; use of vertical elements on or in front of expansive blank walls; use of focal points and vertical accents; inclusion of windows on elevations facing streets and pedestrian areas; or other appropriate techniques. x Locate office and retail uses at the front of the building where they are clearly identified and accessible.
D-11 Building design x Portions of facades that do not have windows shall incorporate architectural The visual impact of buildings is determined and design elements to break up long by their size, use of materials, architectural segments of wall (e.g., lighting, design, relationship to surrounding open landscaping, varied materials, staggered spaces and the presence of human-scaled walls). elements, such as doors and windows. x Building entries should be enhanced using elements such as canopies, overhangs, Architectural design in industrial and peaked roofs, or by different paving commercial developments should be materials, building materials or colors. employed in order to improve the overall x Entry areas may also be enhanced using aesthetic and bring distinctive identity to integral planters or wing walls to such areas. incorporate landscaped areas and/or sitting areas. Specific components that should be x Fully screen roof-mounted mechanical addressed include building massing, equipment. articulation of facades and elevations, and x Internalize roof drain elements within the choice of materials. building or apply an architectural feature where visible from streets and public areas. Building Design x Building elevations should incorporate Intent: Ensure that each building contributes architectural features and patterns that to an overall high-quality development that include a pedestrian scale. contributes, and is visually connected, to the x Buildings should have clearly defined surrounding community. customer entrance(s). Mixed use or Multi-building Projects x Use exterior building materials that are high quality, energy efficient and durable x Multi-building projects should include (should be determined in conjunction with consistent design elements throughout the a more detailed overlay district). project. x Multi-building projects should be defined x Multi-story commercial buildings should incorporate lower scale, single-story with prominent focal points. Architectural elements and/or greater setbacks adjacent structures, art, historical and/or landscape to existing and future single family features should be located at both development. vehicular and pedestrian project entrances. x Incorporate canopy shade trees, landscape x All elevations generally visible from public view should reflect the overall features and seating or other pedestrian design, colors and textures used on the amenities near colonnades, storefronts and front façade. pedestrian routes. x Buildings should have clearly defined public entrances that front onto the street. x Ground floor façades visible from any street shall include an appropriate percentage of clear glass (should be determined in conjunction with a more detailed overlay district).
D-10 parking areas to the rear of residences x Identify pedestrian walkways through or underground when possible. parking areas to connect buildings with x Incorporate high quality monument streets and sidewalks. signage at development entries and hardscape features at street intersections to create an overall Landscaping development identity. Intent: Enhance the visual quality of x Orient trash enclosures and parking residential developments and screen, areas away from streets and common buffer, or soften accessory elements. areas. x Preserve and incorporate significant existing natural features. x Coordinate landscaping plans with Pedestrian Amenities above- and below-ground utility Intent: Ensure that neighborhoods are locations. safe for and attractive to pedestrian x The use of native plants, as well as users. those suited to specific soil conditions, is encouraged. Nuisance species are x Provide for continuous pedestrian use not permitted. when developments are adjacent to existing or planned open/recreational Multi-Family Residential space, or other uses where such x Encourage developments to provide a connections are appropriate. combination of both private and x Pedestrian connections shall provide common outdoor spaces. reasonable pedestrian access and shall x Require common open space that is meet the requirements of the available to all residents and is Americans with Disabilities Act integrated into and easily accessible by (ADA). the larger development. x Open space areas should be designed Multi-Family Residential and oriented to take advantage of x Incorporate differentiated paving, sunlight and be sheltered from traffic landscaping, lighting, railings, and and other incompatible uses. similar tools to provide clear x Children’s play areas should be visible pedestrian connections between from residential units. buildings and between parking lots and x Screen parking areas, trash areas, and building entrances. accessory uses from streets and x Design lit, weather-protected bus common areas with a wall or a dense shelters at entrances where transit vegetative buffer. service exists or where future transit x Incorporate perimeter landscaping, service is planned. These can also be berms, walls or fences to buffer used for children waiting for school residential developments from other busses. uses. x Provide bicycle parking facilities x Incorporate prominent entry features, throughout larger sites and locate them vertical landscape forms and/or in convenient and visible areas that do seasonal color at entrances. not interfere with pedestrian or x Incorporate canopy shade trees, vehicular circulation. landscape and hardscape features and
D-13 seating or other pedestrian amenities in and landscaped with a combination of common areas. vegetative and non-vegetative materials. Land Refer to Section 18-0309 Landscaping in the x Stormwater should be treated as an Development Code for full landscaping guidance. amenity when feasible, including but not limited to the incorporation of recreational paths along drainageways. Lighting Intent: Enhance the safety and visual quality of residential, and particularly multi-family, developments. Building design x Provide pedestrian-scale lighting The visual impact of structures on the fixtures in areas designed for surrounding area is determined by their pedestrian activity (e.g., size, use of materials, architectural pathways/sidewalks, seating areas, design, and relationship to surrounding parks, playgrounds). open spaces. x Select lighting fixtures that complement the overall architectural Architectural design should be employed style of the development. in order to improve the overall aesthetic x Provide security lighting that is both and bring distinctive identity to attractive and effective in promoting a residential communities. safe environment. Specific components that should be addressed include building massing, Storm water and Drainage Elements articulation of facades and elevations, Intent: Ensure that new development, and choice of materials. and particularly multiple-building developments, are designed to handle stormwater on-site to the greatest extent Building Massing possible. Intent: Reduce the massiveness and enhance the visual variety of residential x Site design and layout should structures. recognize and incorporate existing drainage patterns. x Reduce building mass by using a x Encourage the use of landscaping that combination of the following can help treat and absorb storm water techniques: variation in the rooflines on-site (e.g, rainwater gardens). and form; use of protected and x Enforce impervious surface recessed entries; changes in texture, maximums. color, and material; and use of window and door patterns. Multi-Family Residential Multi-Family Residential x Developments must prepare master x Large projects should be broken up drainage plans addressing common into groups of structures. Single stormwater retention needs. “mega-structures” are to be x Highly visible retention basins should discouraged. be contoured using curvilinear design
D-14 x Encourage breaking up building project an image of larger custom facades to give the appearance of homes or traditional rowhouses. smaller structures. Long, unbroken x Use walls and other architectural facades and box-like forms are features to reduce the visual impact of discouraged. garage doors. x To the extent possible, each unit x Mechanical equipment must be should be individually recognizable screened from view, including utility (e.g., with the use of balconies, meters, which should not be visible setbacks, projections, and pattern of from the street. doors and windows that articulate individual units or collections of units). Materials Intent: Recognize building materials’ contribution to a high-quality Building Design development. Intent: Ensure that each structure contributes to an overall high-quality x Use exterior building materials that are development that contributes, and is high quality, aesthetic, energy efficient visually connected, to the surrounding and durable. community. x Piecemeal embellishment and frequent changes in materials is discouraged. x Encourage façade and roof articulation x Screening for equipment, accessory to provide visual variety. uses, etc. should utilize materials x Orient porches, doors and windows to compatible with overall project the street. architecture. x De-emphasize garages and accessory buildings. Residential entries should Multi-Family Residential front onto the street when possible. x Exterior stairs should complement the architectural design, form, and Multi-Family Residential massing of the multi-family structure. x Development entry areas should Thin-looking, open metal, pre- provide residents and visitors with an fabricated stairs are discouraged. overview to the project and should x Gutters and downspouts should be include landscaping, hardscape, concealed unless designed as a development directories, and continuous architectural feature. recreational facilities as appropriate. x Access points to units should be clustered in groups of four or less in order to avoid monotonous access areas. x Multi-family projects should include consistent design elements throughout the project. x Encourage attached dwellings to incorporate architectural articulation to
D-15 PILOT AREA PLANS
Because the City has three distinct growth tiers, each with unique characteristics and development expectations, it was determined early in the planning process that “pilot area plans,” intended to provide design concepts for development options in each, were needed in order to examine the three areas in greater detail. The Tiered Growth Concepts and Pilot Sites map (Map 5.1) identifies the pilot areas. Anticipated land use and level of development, transportation issues, urban service provision, drainage and flooding, and parks and open spaces were all addressed in order to develop pilot area plans that illustrate a variety of development options in site planning, land uses, and residential density. In addition, they propose innovative approaches to issues such as storm water management, sanitary treatment options, and integration of flood control systems.
It is important to recognize that these pilot area plans are not intended to definitively address all issues that may arise prior to or during development; rather, they invite the City, residents, and developers to consider new approaches to platting and development. Similarly, some of the illustrated options may not be useable on every site or be workable because of site characteristics. The intent, however, has been to stimulate new methods of approaching development in a creative, environmentally safe and cost-effective fashion.
As with the design guidelines, the public provided input on several design boards that has informed the development of the pilot area plans. In particular, feedback to the two “Alternative Residential Configurations” boards, as well as the “Alternative Land Uses Adjacent to High Volume Roadways” board, has been incorporated into the pilot area plans. Those boards, as they appeared at the public open house, follow. Specifics of the three pilot area plans appear after the design boards.
D-16 22ND AVE NE
ile M Tiered 4 Growth Concept )m and e il M 2 Pilot Sites
Æ` 27TH AVE N
Pilot Site 3 Grand Forks, GATEWAY DR North Dakota )g !"`$
DEMERS AVE S WASHINGTONST
S COLUMBIARD
S 69TH ST
Pilot Site 2
32ND AVE S
47TH AVE S
62ND AVE S Pilot Site 1 MERRIFIELD RD
Tier 1 Tier 2 Tier 3 City Boundaries ·
2035 Land Use Plan ALTERNATIVE RESIDENTIAL CONFIGURATIONS
2.5 Acre Minimum Lots
DEMERS AVE. BENEFITS:
• Lots large enough to accommodate septic systems
ONYRA 5 ROAD COUNTY MDC • “Visual” open space of adjacent lots • Large spacing between houses
150 DRAWBACKS: ACRES • High cost to provide and maintain future
OUBARD. COLUMBIA City infrastructure and utilities
160 • Open space is privately held ACRES • Maintenance of large lawn areas • High water table/clay soils cause septic MDC system failure • Inefficient use of agricultural land • Homeowners’ Association required to maintain the road
MERRIFIELD RD.
MDC
Cluster Development BENEFITS:
• Consolidates infrastructure and utilities
OPEN SPACE to facilitate future City connections PARK • Open space either permanently or temporarily available for use by all ORGANIC FARM MDC neighborhood residents • Preserves ecologically sensitive areas DRAWBACKS: 162 ACRES • Smaller lot sizes MDC • Homeowners’ Association required to maintain more infrastructure facilities • More up-front costs
TEMPORARY CLUSTER: RURAL CLUSTER:
Allows initial development on a portion Development is concentrated on a portion of a site in Urban Reserve Areas with the of a site in rural areas with the remainder of intention of transitioning to full urban parcel put into permanent conservation densities over time. easement.
* MDC = © Regents of the University of Minnesota. Used with permission of Metropolitan Design Center
September 15, 2005 2035 Grand Forks Extraterritorial Land Use Plan Study ALTERNATIVE RESIDENTIAL CONFIGURATIONS Mixed Density BENEFITS:
• Variety of housing choices within one
.WSIGO ST. WASHINGTON S. neighborhood (Life cycle housing) MDC • Provides opportunity for alternative transportation modes to retail stores
160 • Provides higher population density that ACRES better supports transit 32ND AVE. S.
MDC DRAWBACKS:
• Need appropriate buffering between different land uses • Perceived conflict among values
MDC
150 ACRES
MDC
Small Lots (G-N Net Acre) BENEFITS:
• Efficient layout for City infrastructure 47TH AVE. S.
EMN RD. BELMONT and utilities • Supports affordable housing • Efficient use of land • Encourages social interaction and sense of community DRAWBACKS:
• Tighter spacing between houses
NeoTraditional Neighborhood Development BENEFITS:
• Creates a sense of community • Frees up space for park and open space amenities • Provides a mix of land uses to minimize MDC vehicle trips • Parks, open spaces, and civic buildings are important components of the development DRAWBACKS:
MDC • Maintenance cost of open spaces • More difficult to develop * MDC = © Regents of the University of Minnesota. Used with permission of Metropolitan Design Center
September 15, 2005 2035 Grand Forks Extraterritorial Land Use Plan Study ALTERNATIVE LAND USES ADJACENT TO HIGH VOLUME ROADWAYS Land Uses Desiring High Visibility Towards Passing Vehicles
Hotels
Identity Office
Retail/Commercial
Land Uses Desiring Visibility, but Also Needing to Screen Parking/Storage Areas
Industrial Office – Warehouse
Land Uses Desiring Screening from Roadway Through Berms, Fencing, and/or Landscaping
Multi-family Residential Single Family Residential
September 15, 2005 2035 Grand Forks Extraterritorial Land Use Plan Study Pilot Area 1
Pilot Area 1 is located in both Tier 1 and Tier 2, in the southeast portion of the city near 62nd Avenue South and Belmont Road. The site has a number of challenges, in that it is divided by the flood protection system, and includes some land that will be served by City infrastructure and other areas that will retain private sanitary and water service. This pilot plan also incorporated existing large lot development in the area south of 62nd Avenue South into the higher density prototype subdivision. Pilot Area 1 illustrates the introduction of neighborhood-level commercial development, as well as mixed residential uses including single family and multi-family development.
Pilot Area 1 responds to the following goals that were expressed throughout this planning process: y Mixed use area (not intended for Mixed Use Zoning district) incorporating mixed residential (single family, multi-family) and commercial activities (see “Pilot Area 1 Concept Plan”). y Single family residential development densities of 1/4- to 1/3-acre lots. y Incorporation of existing large lots (2.5-acre lots) into single family developments with urban density. y Incorporation of sanitary treatment and stormwater management elements into open space amenities (see “Pilot Area 1 Concept Plan”). y Utilization of flood protection elements as open space amenities, roadway alignments and visual barriers between different land use types (see “Levee as Greenway Concept”). y Development of areas with and without City infrastructure: o Lots north of 62nd Avenue South, both east and west of the levee, will be connected to City infrastructure (water, sanitary sewer and storm sewer). o Lots south of 62nd Avenue South and east of the levee will not be connected to City infrastructure.
D-21
Pilot Area 1 illustrates the following concepts:
Land Use Different land uses (i.e., commercial, multi-family and single family) can be built in proximity without adversely impacting each other. y The commercial area south of 62nd Avenue South and west of Belmont Road is designed to create a pedestrian-friendly district with adjacent residential uses. Features of the commercial area include: o Creation of a main street focus at the center of the commercial district. o Retail on the first floor, with the option of residential or office space on upper floors. o On-street parking in front of retail areas, supplemented with additional parking within a one-block walking distance. o Retail fronting the streets with a majority of the service areas located in interior courts that are predominantly screened from the street. y Multi-family residential (both south of the commercial area and north of 62nd Avenue South) has been sited to provide a transition between commercial uses and single family residential. y Existing large (2.5-acre) residential lots south of 62nd Avenue South are incorporated into the fabric of the new urban density development. y Single family residential lots north and south of 62nd Avenue South are designed to face onto residential streets rather than major arterials and are adequately buffered from adjacent uses.
Infrastructure y South of 62nd Avenue and east of the levee, urban density can be achieved in areas that will not be immediately connected to City services, through the use of community wastewater and stormwater treatment systems. (See additional sidebar discussion on community wastewater treatment). o House pads in this area will need to be raised to prevent flooding. (See “Residential Front Yard Cross-section”). Excavated soils from the stormwater management system can be used for this purpose. o Groupings of houses throughout the development will share community wastewater treatment systems. o Both the stormwater and wastewater systems are designed to function as on-site treatment/management of sewerage and stormwater and as a greenway system within the neighborhood (see “Pilot Area 1 Concept Plan”). o With appropriate phasing of development, these systems can be incrementally constructed to service the new housing while also extending the existing open space/infrastructure network. y From a residential neighborhood organization standpoint, two different approaches are being demonstrated regarding the stormwater management system: o North of 62nd Avenue South and east of the levee, the streets will be connected to the City’s storm sewer system. All of the collected stormwater is routed to a
D-23 newly created pond that functions as the featured open space element within the neighborhood. - The pond/open space is lined by streets rather than yards, which reinforces this as a community amenity to be enjoyed by all. - To enhance the quality of the water in the ponds, the stormwater could be pre- treated prior to reaching the pond in either grit chambers and/or filtration basins located adjacent to the pond. o South of 62nd Avenue South and east of the levee, the streets will not be connected to the City’s storm sewer system. In addition, the stormwater pond and associated open space system abuts residential back yards. - Locating the stormwater ponds and open space system adjacent to residential back yards requires less street infrastructure. - This approach has been successfully utilized in other areas of the City, but requires oversight by the City to ensure that adjacent property owners are not encroaching on the system for personal use. - For residential lots that do not directly abut the stormwater pond and open space system, stormwater runoff is conveyed to the pond and open space system through swales located at the front and/or side lot lines. - Culverts will be required to move water under driveways, streets and sidewalks.
D-24
Open Space y The levee has been modified to double as a community green space. Additional soil has been placed along the east side of the levee to provide some topographic interest. Trees and shrubs can be planted on areas that have received additional soil. (See “Levee as Greenway Concept”). A trail is shown to weave through the newly created earthen berms. y North of 62nd Avenue South and east of the levee, two alternate neighborhood park locations are shown that could incorporate play equipment and more active recreation such as soccer, tennis or softball. y Both the stormwater and wastewater systems can be designed to create a greenway system within the single family neighborhoods that could provide habitat and support a pedestrian trail system. y The large stormwater pond at the intersection of 62nd Avenue South and Belmont Road has been incorporated into the site design of the neighborhood commercial center and supplemented with trails to create a community amenity. y The street extending south of the stormwater pond is designed to have landscaped median islands that extend the open space amenity into the commercial and multi- family area. y Immediately adjacent to the commercial area, the roadway is designed to have wide median islands. As the road enters the multi-family area, the median islands reduce in width to fit into the residential scale of the area. y A passive neighborhood park is proposed immediately east of the commercial area. This area could provide play equipment and picnic facilities that could be used by both shoppers and adjacent residences. It would also provide some stormwater treatment.
D-26
Pilot Area 2
Pilot Area 2 is located in the Tier 2 area, where no development is anticipated in the near future as documented in this Plan. Should any development be allowed in Tier 2, the plan requires that development should occur at urban densities and with improvements that meet urban standards. The Tier 2 site includes an area either side of 32nd Avenue South, primarily west of 69th Street, but with a portion east of the 69th Street drainage way. The pilot area has an existing large lot subdivision (partly built up) and other existing dwellings along 32nd Avenue South.
This pilot site shows how a subdivision might be developed in stages, and also attempts to illustrate how storm water management could be accomplished in conjunction with open space. Development of this pilot site raised questions about the efficiency of private community sanitary treatment systems and whether they are feasible in this type of setting. While this site illustrates community treatment systems, some comments suggested that it may be more cost-effective in the long run to connect to a City system. Further research on community treatment systems’ costs and benefits should be carried out if any development is permitted in the Tier 2 area.
Pilot Area 2 was intended to illustrate the following goals: y Single family residential development densities of 1/4 – 1/3 acre lots that will not be immediately served by City infrastructure (water, sanitary and storm sewers). y Demonstrate phased development within Tier 2 that immediately incorporates urban densities while also facilitating future development phases (extension of street network, wastewater treatment system and stormwater management system). y Incorporation of existing large lots (2.5-acre lots) into single family developments with urban density lots. y Within residential developments, incorporation of sanitary treatment and stormwater management elements into open space amenities. y Incorporation of stormwater diversion channel into a greenway corridor. y Appropriate ways to buffer single family residential from more intense land uses.
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Pilot Area 2 illustrates the following concepts:
Land Use y Different land uses (i.e. single family, office, and light industrial) can be located near each other when properly buffered by open space and/or street networks without adversely impacting each other. o The office and light industrial located east of 69th Street is buffered from the single family residential located west of 69th Street by the diversion channel greenway. o The office and light industrial area is buffered from more intense industrial uses to the north by a greenway corridor along a street. This corridor would be wide enough to incorporate a pedestrian trail and some trees and low shrubs. y Existing large (2.5-acre) residential lots south of 32nd Avenue South and along Prairie Road are incorporated into the fabric of the new urban density residential development. o Existing parcels could be subdivided into smaller parcels and new streets could be constructed at locations where there would be minimal impact to existing structures and lot usage. (See new roadway and smaller parcels in existing development along Prairie Road). y Where possible, new community open space corridors buffer existing parcels from new housing. y Single family residential lots abutting 32nd Avenue and 69th Street are designed to face onto residential streets rather than major arterials.
Infrastructure y Access to higher volume roadways is limited to: o Approximately ½ mile intervals along 32nd Avenue o Approximately at ¼ mile intervals along 69th Street and 83rd Street y Urban density lots can be achieved in areas that will not be immediately connected to City services through the use of community wastewater and stormwater treatment systems. o Groupings of houses throughout the development will share community wastewater treatment systems. (See additional sidebar discussion on community wastewater treatment). o Both the stormwater and wastewater systems are designed to function as on-site treatment/management of sewerage and stormwater as well as functioning as a greenway system within the neighborhood. o With appropriate phasing of development, these systems can be incrementally constructed to service the new housing while also extending the existing open space/infrastructure network. y Stormwater is conveyed to the larger stormwater open space amenities through swales located at either the front, rear and/or side lot lines (see “Pilot Area 2— Concept Plan with Swales”). o Culverts will be required to move water under streets and sidewalks.
D-30 o Conveyance along front and side yards will require small culverts under driveways. o Conveyance along rear lot lines will require that property owners not modify their lots in a manner that would block water movement. y Three different approaches are being demonstrated regarding the conveyance of stormwater: o North of 32nd Avenue South in the areas designated as “initial development,” stormwater is initially collected and conveyed in swales along the front lot lines. The water then moves into sideyard swales along streets that run perpendicular to the open space amenity, which will deliver the water to the open space system. o North of 32nd Avenue South in areas designated as “future development,” stormwater is initially collected and conveyed in swales along rear lot lines. The water then moves into sideyard swales along streets that run perpendicular to the open space amenity, which will deliver the water to the open space system. o South of 32nd Avenue South differs from the “initial development” approach by conveying the entire block frontage to one side street. This approach requires swales along only on one side of the perpendicular streets, instead of both sides.
Open Space y Both the stormwater and wastewater systems can be designed to create a greenway system within the neighborhood that could provide habitat and support a pedestrian trail system. y Where possible, the wastewater system is located to create an entrance amenity for the neighborhood and to buffer single family lots from adjacent high volume roadways. y The diversion channel “greenway” can be supplemented with additional vegetation and a trail to provide an open space amenity for both residents and workers at the adjacent office park/light industrial area. y The stormwater open space system west of 69th Street links directly to the 69th Street diversion channel to provide a continuous, interconnected open space network. y The open space greenway extending east from the diversion channel (north of the office park/light industrial area) functions as a buffer between these land uses and more intense industrial land uses immediately north.
Wastewater Treatment Options The community treatment approach to treating wastewater provides several benefits to both the residential lots being served by the system and to the environment: y The community will utilize a service contract that calls for regular inspection and maintenance on the system which typically increases the life of the system; y Treatment areas can be located on soil types best suited for wastewater treatment, increasing the system’s effectiveness, increasing the life of the system and minimizing potential environmental impacts; y Wastewater treatment can be accomplished utilizing less area than the total area needed for individual systems; y Future transition to City provided sanitary sewer will be less costly.
D-31 Numerous approaches exist to treat wastewater utilizing a community treatment approach. For the purpose of the pilot study areas, it was assumed that a subsurface flow constructed wetland system would be used. With this approach, the residential area is subdivided into smaller subareas, each of which would have its own constructed wetland treatment system consisting of two subsurface flow constructed wetland cells. The first cell, which performs the initial treatment, is clay lined and planted with native species. The second cell, which is not clay lined, further cleanses the effluent and allows the effluent to percolate into the underlying soil. These cells are fully enclosed and will not pose a smell nuisance for the community. By placing straw mulch over the cells, they are proven to function in the winter months. Constructed wetland cells must be kept separate from the stormwater system and may need to be raised several feet to ensure that the bottom of the second treatment cell remains several feet above saturated soils.
D-32 Pilot Area 3
Pilot Area 3 includes the land on either side of Gateway Drive from 55th Street west to the entrance to the Airport. Gateway Drive is a primary route into Grand Forks, not only from the airport, but for travelers heading east and west. As an older industrial corridor, it has a mix of uses that developed over time, often without planning ahead for access, drainage, or internal circulation for the businesses on either side of the road.
This corridor has an active Gateway Drive Committee that has been working to improve the image of the corridor by encouraging new development, supporting clean up of nuisance uses, and researching means to create and fund beautification activities. The Committee also works with the Grand Forks Airport Authority in its master planning to ensure that Gateway Drive and airport needs are compatible.
The Gateway Drive Committee has been an active participant in the Pilot Area planning process and offered comments and suggestions throughout. More detailed site plans were prepared for Gateway Drive. In addition to a concept plan, there are several prototypical site plans illustrating uses such as an auto dealer and shipping center, and one site plan incorporating an existing church facility on Gateway Drive. These prototypical plans are intended to show options on access, building placement, and incorporation of landscaping for these types of commercial/industrial and other facilities.
One particularly difficult issue along Gateway Drive is the alkalinity of the soils, a condition that severely limits landscaping options. In the course of the pilot plan development, it became clear that the landscaping guidelines in Chapter 18 of the Land Development Code could not be implemented along Gateway Drive. The requirements in the code were too high for these sites, particularly because of the soils.
The pilot plans were drawn using reduced landscaping requirements, although some comments have questioned the long-term practicality of even that level of landscaping on the alkaline soils. More research in needed on potential landscaping on these soils to determine what types of vegetation can survive over time. A preliminary list of potential plants for alkaline soils is included in Appendix C.
Pilot Area 3 was intended to illustrate the following goals: y Demonstrate how light industrial, office-warehouse or showroom-warehouse developments could be developed along Gateway Drive utilizing a campus approach (west of North 69th Street). y Demonstrate how light industrial, office-warehouse, showroom-warehouse or commercial uses could be developed on individual parcels (east of North 69th Street). y Demonstrate how the roadway and adjacent parcels can be designed to provide a pleasing corridor for travelers as they enter the City. y Incorporation of stormwater management and flood protection elements into open space amenities. y Identify appropriate levels of landscaping on alkaline soils.
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Pilot Area 3 illustrates the following concepts: Land Use y Different land uses (i.e. light industrial, office-warehouse, and commercial requiring large parcels, such as auto dealerships and farm implements) can co-exist along Gateway Drive without adversely impacting each other through the use of appropriate screening (see “Frontage Road Concept—Axonometric View”). y Land uses within this area should comply with airport regulations for low density human inhabitation of buildings within the flight paths. y Existing parcels along Gateway can be upgraded and incorporated into the fabric of the new development along Gateway Drive. y Prototypical sites have received additional detailing to show placement and sizing of monument signs, screening of parking lots, building foundation plantings, and screening of storage/equipment areas (see Representative Automobile Dealer and Shipping Center and Bible Baptist Church Concept Plan). y Alkaline soils make the City’s landscaping standards very difficult to achieve. The pilot area prototypical sites show options that could be undertaken on these soils.
Infrastructure y Access of roadways to Gateway Drive is limited to ½-mile intervals. y Sites north of Gateway Drive show the use of a backage road approach. o These parcels can be viewed from Gateway Drive, but only can be accessed from the backage road. o This approach requires that buildings/lots have nice facades that face both Gateway Drive and the backage road. Signage and building numbering may also be desired/necessary on both sides. o Backage roads minimize the appearance of excessive pavement along Gateway Drive. y Sites south of Gateway Drive show the use of a frontage road approach. o The intersection of the frontage road and the side streets will be setback 300-feet from Gateway Drive. o Frontage roads allow buildings to face purely onto Gateway Drive. y The stormwater management system is designed to be an open space amenity that can be enjoyed by workers during their lunch breaks either as part of the individual parcel design (west of 69th Street) or as an independent community amenity (shown east of 69th Street). y East of 69th Street, swales along parcel lines will facilitate the movement of stormwater runoff to the large pond features. y Trails can be developed along the swale system and/or sidewalks can be constructed along the streets to create walking paths for workers. y Provisions must be made on the parcels to accommodate stormwater movement and treatment. Two treatment approaches are depicted in Pilot Area 3. o North of Gateway Drive and east of the 69th Street, the stormwater pond is lined with a 20’–30’ band of native vegetation. Fully lining the pond with thick vegetation will discourage geese from using the pond. o Elsewhere in the pilot area, stormwater is channeled to infiltration basins, which will temporarily retain stormwater during large storm events. Depending on
D-35 underlying soil conditions, either the stormwater will infiltrate into the underlying soils or the stormwater will percolate through a layer of engineered soil in the basin and then be captured by a drain tile system that will convey the filtered stormwater to the diversion channel. The infiltration basins are intended to be dry except for a few days after large storm events. All stormwater features are subject to compatibility with airport functions.
Open Space y The diversion channel along 69th Street has been modified to double as a community green space. o The diversion channel has been realigned slightly to soften its appearance and help create the quality of an open space amenity. o Where space and topography allow, additional vegetation can be planted adjacent to the diversion channel. o A trail system could parallel the diversion channel to create a greenway for people to walk and bike along. o Where space allows, small infiltration basins could be constructed in the diversion channel right of way that would capture and infiltrate smaller storm events versus sending all stormwater runoff into the channel, which ultimately ends up in the Red River. The infiltration basins could be designed to still provide storage capacity during large storm events. Access to the parcels east of the diversion channel will require the construction of small bridges over the diversion channel.
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Representative Automobile Dealership There are three figures showing the representative auto dealership: a plan view, a cross section, and an axonometric view. The plan view identifies the site placement of the building, with access from a frontage road. The dealership is sited so that the service area is at the back of the building and screened from visitor traffic at the front. Although the landscaping shown on this plan received comment as too much for a business such as the auto dealership, the concept of including landscaping both on the perimeter and in the vehicle lot is worth noting for other similar uses with large parking lots. (This parking lot plan does meet the city’s current requirement of five percent tree coverage in a parking lot). This plan also includes a metal picket fence along the frontage road to provide some definition to the site without blocking the view of the vehicles. Signage is identified by a monument sign on the northwest corner of the site.
The cross section illustrates the parking lot, fencing, street right-of-way and frontage road. An axonometric view illustrates the entire site.
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Representative Shipping Center The representative shipping center is intended to illustrate a use such as a UPS or FedEx facility that must accommodate a high volume of truck traffic. The building is sited to face the Gateway Drive frontage road, with all loading and unloading activity in the rear and thus screened from the street view. Access is provided by two driveways off the frontage road. Screening at the front is provided by a masonry wall, or alternatively, by a retaining wall if a berm is used for landscaping. Screening at the rear and sides of the site is provided by a proposed tall wood fence or masonry wall. Signage is provided by a monument sign at the entrance off the Gateway Drive frontage road.
The cross section portrays the view at the front of the building, showing Gateway Drive, the street right-of-way, the masonry wall, parking lot, and the building. The axonometric view offers an illustration of the entire site, with access from the frontage road, circulation in front of the building and truck loading and unloading at the rear.
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Bible Baptist Church This site plan is the only one based on an actual building along Gateway Drive, the Bible Baptist Church. Since this building already exists, the emphasis on this plan centered on presenting an access and parking lot scheme, along with a site plan that complements the building’s use as a house of worship. The plan incorporates a future addition on the north side of the existing building. The parking lots areas are accessed by a drive off the frontage road. A monument sign is located along the frontage road.
The landscaping proposed for this site uses a berm around the site to provide a basis for the trees and shrubs. Because of the difficulty of sustaining vegetation on the alkaline soils along Gateway Drive, this plan suggests use of native prairie grasses and wildflowers that are anticipated to be more tolerant of the soil conditions. This concept is illustrated on the cross section, which shows the berm as a partial screen for the parking area. The axonometric view provides a concept for the entire site.
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