Planning Advisory Board/Zoning Commission 2 Park Drive South, Great Falls, MT Commission Chambers, Civic Center Agenda August 24, 2021 3:00 PM

UPDATES CONCERNING PROCESS OF MEETINGS In order to honor the Right of Participation and the Right to Know (Article II, Sections 8 and 9 of the Montana Constitution), the City of Great Falls and Planning Advisory Board/Zoning Commission are making every effort to meet the requirements of open meeting laws: • Effective May 4, 2021 Planning Advisory Board/Zoning Commission members and City staff will be attending the meeting in person. • The agenda packet material is available on the City’s website: https://greatfallsmt.net/meetings. The Public may view and listen to the meeting on government access channel City-190, cable channel 190; or online at https://greatfallsmt.net/livestream. • Public participation is welcome in the following ways: • Attend in person. Please refrain from attending in person if you are not feeling well. • Provide public comments via email. Comments may be sent via email before 12:00 PM on Tuesday, August 24, 2021, to: [email protected]. Include the agenda item or agenda item number in the subject line, and include the name of the commenter and either an address or whether the commenter is a city resident. Written communication received by that time will be shared with the City Commission and appropriate City staff for consideration during the agenda item and before final vote on the matter; and, will be so noted in the official record of the meeting. • Call-in. The public may call in during specific public comment periods at 406-761-4786. All callers will be in a queued system and are asked to remain on hold and be patient. Calls will be taken in the order in which they are received. Callers will be restricted to customary time limits. This is a pilot service to test the feasibility of expanded public participation by phone. We ask for your patience in the event there are technical difficulties

OPENING MEETING

1. Call to Order 3:00 P.M.

2. Roll Call – Board Introductions Dave Bertelsen - Chair Chuck Pankratz - Vice Chair Lindsey Bullock Kelly Buschmeyer Pat Green Tory Mills Samantha Shinaberger 3. Recognition of Staff

4. Approval of Meeting Minutes - July 22, 2021

1 BOARD ACTIONS REQUIRING PUBLIC HEARING

BOARD ACTIONS NOT REQUIRING PUBLIC HEARING

5. A request from the Great Falls Business Improvement District to use West Bank Tax Increment Financing funds to provide additional funding for implementing the City of Great Falls Wayfinding Plan.

6. Federal Fiscal Year (FFY) 2022 Unified Planning Work Program (UPWP)

COMMUNICATIONS

PUBLIC COMMENT

Public Comment on any matter and that is within the jurisdiction of the Planning Advisory Board/Zoning Commission. Please keep your remarks to a maximum of five (5) minutes. Speak into the microphone, and state your name and address for the record.

ADJOURNMENT

(Please exit the chambers as quickly as possible. Chamber doors will be closed 5 minutes after adjournment of the meeting.)

Assistive listening devices are available for the hard of hearing, please arrive a few minutes early for set up, or contact the City Clerk’s Office in advance at 455-8451. Wi-Fi is available during the meetings for viewing of the online meeting documents.

Planning Advisory Board/Zoning Commission meetings are televised on cable channel 190 and streamed live at https://greatfallsmt.net. Meetings are re-aired on cable channel 190 the following Thursday at 7 p.m.

2 Agenda #4.

MINUTES OF THE MEETING GREAT FALLS PLANNING ADVISORY BOARD/ZONING COMMISSION July 27, 2021

CALL TO ORDER

The regular meeting of the Great Falls Planning Advisory Board/Zoning Commission was called to order by Chair Dave Bertelsen at 3:02 p.m. in the Commission Chambers at the Civic Center

ROLL CALL & ATTENDANCE

UPDATES CONCERNING PROCESS OF MEETINGS In order to honor the Right of Participation and the Right to Know (Article II, Sections 8 and 9 of the Montana Constitution), the City of Great Falls and Planning Advisory Board/Zoning Commission are making every effort to meet the requirements of open meeting laws: • Effective May 4, 2021 Planning Advisory Board/Zoning Commission members and City staff will be attending the meeting in person. • The agenda packet material is available on the City’s website: https://greatfallsmt.net/meetings. The Public may view and listen to the meeting on government access channel City-190, cable channel 190; or online at https://greatfallsmt.net/livestream. • Public participation is welcome in the following ways: • Attend in person. Please refrain from attending in person if you are not feeling well. • Provide public comments via email. Comments may be sent via email before 12:00 PM on Tuesday, July 27, 2021, to: [email protected]. Include the agenda item or agenda item number in the subject line, and include the name of the commenter and either an address or whether the commenter is a city resident. Written communication received by that time will be shared with the City Commission and appropriate City staff for consideration during the agenda item and before final vote on the matter; and, will be so noted in the official record of the meeting. • Call-in. The public may call in during specific public comment periods at 406-761-4786. All callers will be in a queued system and are asked to remain on hold and be patient. Calls will be taken in the order in which they are received. Callers will be restricted to customary time limits. This is a pilot service to test the feasibility of expanded public participation by phone. We ask for your patience in the event there are technical

Planning Board Members present:

Dave Bertelsen, Chair Charles Pankratz, Vice Chair Lindsey Bullock Kelly Buschmeyer Pat Green

Planning Board Members absent:

Tory Mills Samantha Shinaberger

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Planning Staff Members present:

Craig Raymond, Director Planning and Community Development Tom Micuda, Deputy Director Planning and Community Development Shelley Francis, Permit Technician Lonnie Hill, Planner I Alaina Mattimiro, Planner I

Other Staff present:

Jeff Hindoien, Deputy City Attorney

Mr. Raymond affirmed a quorum of the Board was present.

MINUTES

Chair Dave Bertelsen asked if there were any comments or corrections to the minutes of the meeting held on June 22, 2021. Seeing none, Mr. Pankratz moved to approve the minutes. Ms. Buschmeyer seconded, and all being in favor, the minutes were approved.

BOARD ACTIONS REQUIRING A PUBLIC HEARING

Subsequent Minor Subdivision - Rivers Edge Dental Minor Subdivision addressed as 1900 River Drive N and legally described as Lot 2, Block 3, Edgewater Industrial Tract No. 3, Section 6, T20N, R4E, M.P.M., Great Falls, Cascade County, Montana

Lonnie Hill, Planner I, presented to the Board. He stated that the applicant, Allan Currie, the owner of Rivers Edge Dental, submitted an application requesting a subsequent minor subdivision of the subject property, as the original 2.97 acre parcel was created through a previous subdivision. The applicant is proposing to create three lots and a 30 foot wide private access and utility easement.

Mr. Hill presented an Aerial Map, Site Photo, Zoning Map and Preliminary Amended Plat of the subject property.

Mr. Hill stated that Lot 2A will consist of 1.082 acres and is currently developed as Rivers Edge Dental. Lot 2B will consist of 1.161 acres and is currently undeveloped. Lot 2C will consist of 0.728 acres and is also currently undeveloped. Each of the proposed lots conform to the lot area and dimensional standards of the M-2 zoning district.

Mr. Hill also presented the Review Criteria for the Basis of Decision and discussed some of the high points:  Effect on Local Services - Mr. Hill stated that it was identified in the preliminary meeting with Public Works that there is a sewer capacity limitation downstream of the proposed subdivision. It was flagged so that the applicant would be aware that there are some capacity issues in the area, which will limit the amount of sewer discharge that can be released for future development of the two new lots. Otherwise, there are no local service issues.

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 Compliance with Survey requirements – A Preliminary Plat has been provided that complies with requirements.  Compliance with OCCGF regulations – Lot dimensions and setbacks in compliance with M-2 district  Provisions of easements for any planned utilities/legal access – A 30 foot access/utility easement has been shown on the plat.

Mr. Hill stated that Staff recommends approval of the subsequent minor subdivision of the subject property legally described as Lot 2, Block 3, Edgewater Industrial Tract No. 3 with the following conditions:

Conditions of Approval:

 The applicant shall provide an amended plat of the subject property which shall be in compliance with survey requirements of the Title and State law and incorporate corrections of any errors or omissions noted by Staff.  The proposed plans shall conform to the M-2 zoning district development standards in the Land Development Code within the Official Code of the City of Great Falls.  The applicant is required to dedicate easements for utilities to the satisfaction of the City’s Public Works Department. Said easements must be submitted to the City Commission for approval at the same time as the minor subdivision.  Sewer Improvements may be required if existing capacity is not adequate. Cost of improvements would be the responsibility of the owner if deemed necessary by the City.

Mr. Hill stated that the Planning Advisory Board/Zoning Commission could recommend denial of the applicant’s request. For those actions, the Planning Advisory Board/Zoning Commission must provide alternative Findings of Fact to support a denial of the minor subdivision request.

PETITIONER’S PRESENTATION

Ryan Buffington, 2209 23rd Ave S.W., TD & H, was present for any questions.

PROPONENTS

None.

OPPONENTS

None.

BOARD DISCUSSION AND ACTION

Mr. Pankratz asked if there will be access from River Drive and 12th Avenue North. Mr. Hill responded that the access easement [coming from 12th Avenue North] will serve as the main ingress/egress for the properties. As for River Drive, there is a grade change towards the river in

5 Agenda #4. Minutes of the July 27, 2021 Planning Advisory Board Meeting Page 4 addition to the route being part of Montana Department of Transportation’s jurisdiction, so they are avoidingaccess from River Drive.

MOTION: That the Planning Advisory Board recommend the City Commission approve the minor subdivision as legally described in the Staff Report, and the accompanying Findings of Fact, subject to the Conditions of Approval being fulfilled by the applicant.

Made by: Mr. Pankratz Second: Mr. Green

VOTE: All in favor, the motion carried 5-0

OCCGF Title 17, Chapter 20 Garage and Accessory Structures Amendments (Ordinance 3232)

Alaina Mattimiro, Planner I, presented to the Board. She stated that Ordinance 3232 is an Amendment proposal to the Land Use Code regarding garages and accessory structures. She presented some background and stated that within the past couple of years there have been requests from a couple of residents, within the city, who wanted garages that were bigger than what the code allowed. Requests went to the Board of Adjustment and were denied due to not having a hardship that the variances required. One of the Board of Adjustment members came forward and asked if there could be a code change to accommodate people with larger lots. Staff did a Code comparison with Missoula, Bozeman, Kalispell and Billings to see what they allow and Great Falls is on the lower end of regulations, meaning that Great Falls allows more square footage currently than other cities in Montana. Staff also did a line by line review of the code. There was a focus group that met that consisted of several of the building professionals in the community.

Ms. Mattimiro presented a Summary of Amendments:  Clarification of Design Standards Table – Currently the code combines the standards for principal and accessory structures. Staff proposes to break out the standards for accessory structures (detached garages, carports, and sheds) to make them easier for code users to find, as well as to define standards that currently are not called out within the code.  Create Flexibility – Staff proposes to increase the maximum height of accessory garages to 24 feet across residential zoning districts rather than requiring a lower height when the home on the lot is a one-story structure. This will create more flexible storage space to accommodate larger vehicles. Staff also proposes increasing the setbacks for accessory structures from two feet to five feet to balance out the larger height allowance.  Update language – The use of the term “accessory structures” is proposed to replace the term “garages” to categorize structures including, but not limited to, detached garages, sheds, and carports. Staff currently reviews permits for these structures if they are at least 200 square feet, to ensure that the aggregate square footage in the code is not being exceeded. Since sheds, carports, and other structures are already counted towards the allowed square footage for cumulative garage area, staff is clarifying the code to make sure these structures count to the allowed square footage for each lot.

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 Increase maximum square footage allowances – This is the most important change to the code being driven by citizen input. The current allowed cumulative square footage for attached garages, detached garages and other structure as well as the proposed changes were shown on the Power Point presentation.

Ms. Mattimiro stated that the proposed increases will be for the three largest lot sizes. She stated that the numbers were chosen based on square footage of a single car garage stall to be able to accommodate three stall garages, recreational vehicle parking, sheds, and boats.

Ms. Mattimiro presented some examples on the Power Point of what the proposed changes will look like around the community.

PROPONENTS

There was a letter that was received from Tim McInerney, prior to the meeting, which was included in the Agenda Packet.

OPPONENTS

None.

BOARD DISCUSSION AND ACTION

Mr. Pankratz asked if the size of the lot or the structure being constructed made a difference on the setbacks, so that if someone has a big building, they might need to move it further away from the lot line as opposed to a smaller structure. Ms. Mattimiro responded that the setbacks are based on the zoning rather than the size of the lot so that it stays consistent, regardless of the size of the lot.

Mr. Green asked if a garage is attached to a house, if it would be considered as part of the house and not a garage and citizens could still have accessory structures. Ms. Mattimiro responded that an attached garage does count towards the cumulative square footage for a garage or an accessory structure. Mr. Micuda also stated the reason for the added verbiage was to make sure that citizens know that sheds and carports also count towards the square footage allowable.

Mr. Bertelsen asked what the setbacks will be that are being proposed for residential zoning. Ms. Mattimiro stated that the setbacks on the side and the back are currently 2 feet and it is being proposed to be 5 feet. He stated that the 5 feet setback is a big difference. He wanted to know that if someone has a small shed if they would still have to be 5 feet away. Mr. Micuda responded that structures under 200 feet do not require a building permit and do not typically come through the Planning office.

Mr. Pankratz wanted staff to explain to him how the setback was decided. Mr. Raymond responded that if it is less than 5 feet, there needs to be a constructed firewall.

Mr. Bertelsen asked if existing structures are grandfathered in. Mr. Raymond responded that existing structures will be grandfathered in as legal non-conforming.

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Mr. Micuda stated that the purpose of the Code change is to help alleviate issues with larger parcels for people who need more storage options . There have been several requests from citizens that have larger parcels, and they bought them to be able to store extra vehicles, etc. The change will allow for taller and bigger structures to be constructed on these larger lots.

Mr. Raymond stated that Jeff Hindoien, Deputy City Attorney, is working on an Amendment to the City Code to create a large vehicle ordinance to restrict on-street parking of such vehicles, so by increasing garage square footage it will help people resolve issues with on-street large vehicle parking.

MOTION: That the Planning Advisory Board recommend the City Commission adopt Ordinance 3232.

Made by: Ms. Bullock Second: Ms. Buschmeyer

VOTE: All in favor, the motion carried 5-0

COMMUNICATIONS

Mr. Raymond stated that staff is anticipating the meeting for August 10, 2021 to be canceled and stated that there will more than likely be a meeting on August 24, 2021.

PUBLIC COMMENT

None.

ADJOURNMENT

There being no further business, Chair Bertelsen adjourned the meeting at 3:34 p.m.

CHAIRMAN SECRETARY

8 Agenda #5.

Meeting Date: August 24, 2021 CITY OF GREAT FALLS PLANNING ADVISORY BOARD / ZONING COMMISSION AGENDA REPORT

Item: A request from the Great Falls Business Improvement District to use West Bank Tax Increment Financing funds to provide additional funding for implementing the City of Great Falls Wayfinding Plan.

Initiated By: Joan Redeen, Great Falls Business Improvement District

Presented By: Brad Eatherly, Planner II, Planning and Community Development

Action Requested: Recommendation to the City Commission to approve an application for $6,820 of West Bank Tax Increment Financing District funds to support funding for implementation of the City of Great Falls Wayfinding Plan.

Suggested Motion:

1. Board Member moves:

“I move that the Planning Advisory Board recommend the City Commission (approve/deny) the Great Falls Business Improvement District’s request for West Bank Tax Increment Financing District funds to assist with implementation of the City of Great Falls Wayfinding Plan, as legally described in the Staff Report, and the accompanying Findings of Fact, subject to the Conditions of Approval being fulfilled by the applicants.”

2. Chairman calls for a second, public comment, board/commission discussion, and calls for the vote.

Background: A wayfinding plan has been a community goal for several years. Establishing a wayfinding plan was listed as a goal in the 2012 City of Great Falls Downtown Master Plan, the 2013 City of Great Falls Growth Policy Update, and the Downtown Urban Renewal Plan. Several attempts over the years were made to secure funding for creating a wayfinding plan for the City.

With the hopes of being awarded a Montana Main Street grant, the BID released a Wayfinding Plan RFP on October 18, 2019. The award of the Main Street grant on February 5, 2020, allowed the City and the BID to move forward with the project. The Wayfinding Plan contract was awarded to Cushing Terrell on March 9, 2020. Over the course of the spring and summer of 2020, the Core Team, consisting of the consultant, the BID, and City Planning and Community Development staff, worked to complete the Wayfinding Plan. A Steering Committee and a Stakeholder’s Group were formed in order to receive input from larger, more diverse groups. The Core Team also sought public participation in the process by asking them to pinpoint destinations they felt were important to the community and participate in a scavenger hunt in order to bring awareness to the planning effort without encouraging large public gatherings during the Covid-19 pandemic.

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The Wayfinding Plan is essential to connect people travelling to Great Falls to the historic downtown and to the surrounding cultural, natural and recreational amenities. By having access to prominent, appealing signage, many who would otherwise simply travel through Great Falls or those who are not familiar with the area, will learn about the services, destinations and points of interest that are available. There are five goals included in the Wayfinding Plan. They include: 1) Establish clear and consistent citywide signage geared toward vehicles and pedestrians that connect residents and visitors with downtown Great Falls and the area’s cultural, natural, and recreational amenities, 2) To incorporate elements from existing logo/branding effort into the sign design, 3) To incorporate a variety of signs that reinforce a “sense of place and identity”- providing visitors and residents with an understanding of where to find existing amenities and destinations, 4) Develop signs that add to a Great Falls aesthetic without creating clutter or discord, and 5) Ensure signs comply with all applicable local, state, and federal sign regulations.

On April 6, 2021, the Great Falls City Commission formally adopted the City of Great Falls Wayfinding Plan. The estimated cost for the implementation of the wayfinding plan is $220,000. The Great Falls BID has secured several funding sources for the construction and installation of the signage within the plan, including $12,500 from Montana Main Street, $84,184 from Montana Tourism, $5,000 from Great Falls Montana Tourism, $1,300 from Great Falls Association of Realtors, $6,500 from both the Great Falls BID and Great Falls Downtown Development Partnership, and $1,000 from both the Great Falls Development Authority and the Great Falls Downtown Association. These amounts total $117,984 committed to the implementation of the wayfinding plan.

There are a total of two motorist signs that are eligible to be funded with funds from the West Bank Tax Increment Financing District. The estimated price per motorist sign is $3050.00. The amount requested (6,820) will cover the two signs eligible for funding from the West Bank TIF District, as well as account for any contingencies there may be in the installation process. The BID has requested that the requested funds be potentially reimbursed in phases as work is completed. There are an additional 56 motorist signs to be installed, 39 of which will be included in the Downtown Urban Renewal District. There are also 20 pedestrian signs that will be located within the Downtown Urban Renewal District. There will be an additional request from the BID to use Downtown TIF funds to supplement funding for the implementation of these signs.

Review Criteria:

Preliminary Findings

After thorough review and evaluation of the Project, City Staff has determined:  No persons will be displaced from their housing by the Project or the infrastructure improvements.  The Project and the infrastructure improvements substantially satisfy the review criteria of the funding application process and meet the purpose and goals of the State Law, the District and Plan.  The infrastructure improvements constitute public improvements in accordance with the Act.  A sound and adequate financial program exists for the financing of the infrastructure improvements.

Montana Code Annotated (MCA) TIF Regulations The creation and administration of TIF Districts are governed by State Law. According to Montana Code Annotated (MCA) (7-15-4288), tax increment can only be used for the following purposes: The

Page 2 of 6 10 Agenda #5. tax increment may be used by the local government to pay for the following costs of or incurred in connection with an urban renewal plan or targeted economic development district comprehensive plan: 1. land acquisition; 2. demolition and removal of structures; 3. relocation of occupants; 4. the acquisition construction, and improvement of public improvements or infrastructure, including streets, roads, curbs, gutters, sidewalks, pedestrian malls, alleys, parking lots and off- street parking facilities, sewers, sewer lines, sewage treatment facilities, storm sewers, waterlines, waterways, water treatment facilities, natural gas lines, electrical lines, telecommunication lines, rail lines, rail spurs, bridges, publicly owned buildings, and any public improvements authorized by Title 7, chapter 12, parts 41 through 45; Title 7, chapter 13, parts 42 and 43; and Title 7, chapter 14, part 47, and items of personal property to be used in connection with improvements for which the foregoing costs may be incurred; 5. costs incurred in connection with the redevelopment activities allowed under 7-15-4233; 6. acquisition of infrastructure-deficient areas or portions of areas; 7. administrative costs associated with the management of the urban renewal area or targeted economic development district; 8. assemblage of land for development or redevelopment by private enterprise or public agencies, including sale, initial leasing, or retention by the local government itself at its fair value; 9. the compilation and analysis of pertinent information required to adequately determine the needs of the urban renewal area or targeted economic development district; 10. the connection of the urban renewal area or targeted economic district to existing infrastructure outside the area or district; 11. the provision of direct assistance to secondary value-adding industries to assist in meeting their infrastructure and land needs within the area or district; and 12. the acquisition, construction, or improvement of facilities or equipment for reducing, preventing, abating, or eliminating pollution.

City of Great Falls TIF Review Criteria

In order for the Planning Advisory Board and eventually the City Commission to approve any TIF funding request, the request must meet the criteria recommended in the Urban Renewal Plan, as well as be eligible for TIF participation in accordance with MCA guidelines noted in this report. To aid in this determination, the City of Great Falls’ Tax Increment Application Process established twelve specific criteria to assess the merits of projects against the Plan. Those criteria are:

1) Public Infrastructure Improvements – Public infrastructure improvements have the benefit of improving and impacting an entire district. Each district may have its own Capital Improvement Plan, which may include things such as roadway improvements, storm drains, sewer and waterlines, railroads, etc.

Staff Analysis – Public signage that is intended to advertise unique districts and civic enterprises within the City can be considered public infrastructure and will improve and impact the West Bank TIF District in a positive way. The proposed small expenditure of $6,820 has the potential to add important economic development into the West Bank TIF District. These two signs will potentially direct a higher number of visitors to the West Bank area.

2) Economic Stimulus- The amount of economic activity to be generated within a district

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through the development is assessed, as well as the leverage ratio of public to private investment. In general, the maximum limit of any one development is 10% of the construction/rehabilitation costs, exclusive of acquisition costs. Projects demonstrating extraordinary benefit to Districts or the community may, at the discretion of City Commission, receive additional TIF assistance for eligible items. All applications should contain credible, measurable information substantiating the project’s economic stimulus in the District and the community.

Staff Analysis – The economic benefits of community wayfinding are well established. The installation of wayfinding signs within the West Bank District will increase visitation and economic activity at key destinations within the TIF District.

3) Tax Generation – The increase in taxable value due to the new district development, including construction/rehabilitation, as estimated by the County Assessor’s office to determine tax increment generation.

Staff Analysis – With the implementation of the Wayfinding Plan, the amount of business and traffic that the district sees will increase and spur further build out of the area. The future development within West Bank will continue to become more feasible and create additional assessed property tax valuation for the District.

4) Employment Generation – Total employment generated by the district development is assessed in terms of permanent and part-time jobs, and construction jobs.

Staff Analysis – If approved, the TIF funds will be used to implement the City of Great Falls Wayfinding Plan, which will create construction jobs for the installation of a large number of wayfinding signs. Also, through spurred investment, increased tourism, and growing businesses, the Wayfinding Plan should indirectly help expand the availability of employment opportunities within the West Bank TIF District.

5) Elimination of Blight – The development’s direct and indirect impact on the physical and fiscal deterioration within the appropriate district and the community, as identified in the appropriate district plan.

Staff Analysis –The West Bank TIF District was specifically adopted to implement the West Bank Urban Renewal Plan. Additional visitation of destinations within the West Bank Urban Renewal Plan Area will lead to economic development opportunities to further eliminate blight within the District.

6) Special or Unique Opportunities – The extent to which the district’s development represents a unique opportunity, meets a special need, or addresses specific district or community goals. The restoration of a historic property or the provisions of an unmet community need is an example of special or unique opportunities.

Staff Analysis – Staff believes that the opportunity to leverage TIF District funds to benefit not only the Downtown and West Bank TIF Districts but create a community wayfinding plan, is a unique opportunity to meet an unmet community need. A wayfinding plan has been listed as goal of the community since 2012 when it was included in the Downtown Master Plan.

7) Impact Assessment – The extent of both positive and negative environmental impacts,

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appropriateness of the developer’s project design, and impact on existing businesses or residents.

Staff Analysis –The implementation of wayfinding signs within the District will create positive impacts to existing businesses within the Urban Renewal Area. The installation of two signs within the District will have no environmental impacts.

8) Financial Assistance – Other forms of financing available to the Applicant, Lender participation, industrial development revenue bonds, and state and federal grant monies, for example are examined to assess the need for TIF assistance.

Staff Analysis – This request for TIF funds will be used in addition to a request for $128,950 from the Downtown Urban Renewal TIF District. The BID has already been awarded $84,184 from a Montana Tourism grant, $12,500 from a Montana Main Street Grant, as well as funds committed by the BID, Downtown Development Partnership, Great Falls Development Authority, Great Falls Downtown Association, Great Falls Montana Tourism, and the Great Falls Realtors Association for a total of $117,984.

9) Development’s Feasibility – A determination of feasibility is made on the strength of the Applicant’s demonstration of market demand for the development in the district and is contained primarily on the pro forma and financing commitments.

Staff Analysis – Because this criterion is tailored to fit development project proposals seeking TIF funds, it is not applicable to the applicant’s request to financially support the Wayfinding project. The applicant is currently executing a TIF funded project to maintain the boulevard trees inventory within the TIF area.

10) Developer Ability to Perform – An assessment of the Applicant’s capability to undertake the relative complexities of the development based on past performance on similar projects.

Staff Analysis – The project has been put out to bid, with the BID accepting the bid offer from the only contractor who applied. The contractor whose bid was accepted is known to be able to perform the work as described within the Wayfinding Plan.

11) Timely Compensation – The feasibility of completing the development according to the Applicant’s development schedule.

Staff Analysis – Staff believes that the applicant will be able to meet the development schedule as noted within the application.

12) Payment of Taxes – All property taxes, special improvement district assessments and other assessments on the project property must be paid to date.

Staff Analysis – There are currently no outstanding tax issues within the district.

Concurrences: The applicant’s request for TIF funding had been reviewed by the City’s outside legal counsel from Dorsey & Whitney LLP.

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Fiscal Impact: The relatively low funding request will allow for a greater economic impact to the West Bank Urban Renewal District. Currently the West Bank TIF has a balance of $233,183, with a cash payment and a debt service still to be fulfilled. This request will not affect the City’s other financial obligations for the TIF district.

Staff Recommendation: Staff recommends approval of the proposed TIF funding request based on the findings of the required criteria.

Alternatives: The Planning Advisory Board/Zoning Commission could recommend denial of the TIF funding request to the City Commission, in which case alternative findings should be provided.

Attachments/Exhibits: TIF Application West Bank TIF District Map West Bank Urban Renewal Plan

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West Bank Urban Renewal Plan Great Falls, Montana

2007

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Acknowledgements

We wish to thank the following for their contributions to the West Bank Urban Renewal Plan: -Great Falls City Commission -Great Falls Planning, Community Development, Fiscal Services, and Public Works Departments -City Manager’s Office -Great Falls Neighborhood Council #2 -Great Falls Economic Development Authority -West Bank Area Property Owners and Stakeholders -Great Falls Planning Board

Planning Oversight: -Benjamin Rangel, Great Falls Planning Director

Project Consultant: -Janet Cornish, Community Development Services of Montana

24 Agenda #5.

West Bank Urban Renewal Plan ~ Table of Contents

Section Page Number Chapter 1. Introduction 1 Statement of Purpose 3

Chapter 2. Description of the Urban Renewal District 5 Legal Description 5 Area History 5 Existing Characteristics 7

Chapter 3. Key Findings 10 Area Assets and Opportunities 10 Challenges 11 Blighted Conditions in the West Bank Urban Renewal Dist. 12

Chapter 4. Goals and Strategies of the West Bank Urban Renewal Plan 15 Remediation of Environmental Pollutants 15 Public Infrastructure Improvements 17 Community and Economic Development 21 Historic/Cultural Resources 23 Natural Resources 25

Chapter 5. Planning Approach – The Defining Elements 26 Sub Area Planning – Phased Approach 26 Thoughtful Design 26 Intergovernmental Cooperation 26 Public Investment 27 Planning Consistency 27

Chapter 6. Implementation 28 Administration 28 Program Funding 30 Tax Increment Financing Provision 30 Other Funding Mechanisms 30 West Bank Urban Renewal Program Evaluation 39

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Table of Appendices:

A. Resolution of Blight B. Parcel Data C. Public Utilities D. Allowable Uses of Tax Increment Funds

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Chapter 1. Introduction

The City of Great Falls, Montana is embarking on a program of urban renewal for the area known as West Bank, bounded on the West by 3rd Street NW/SW, on the East by the center line of the Missouri River, on the North by a point just north of 14th Avenue NW and on the South by a point just south of 5th Avenue SW. (See Figure 1, below.) The area, which has been designated by the Great Falls City Commission as the West Bank Urban Renewal District is in transition. Historically, the District was characterized by heavy industrial uses. However, as the City has grown, industrial development has shifted to the city’s periphery. At the same time, the community is promoting a more diversified and integrated development within the city’s core, focusing on mixed uses – recreational, commercial and residential. The West Bank’s proximity to the River and associated parkland, as well as to a major roadway (3rd Street NW/SW), makes it a logical place to encourage new mixed-use development in concert with efforts to revitalize downtown Great Falls. The revitalization of the West Bank area is being undertaken in cooperation with efforts to address contamination of an area within the District, formerly occupied by a brewery and an oil refinery and currently occupied by the County Shop complex and a specialty seed mill.

This urban renewal effort is being undertaken in accordance with the Montana Urban Renewal Law which provides for the renewal of “blighted” areas in 7-15-42 and 7-15-43, MCA, as follows:

7-15-4209. Development of workable urban renewal program. (1) A municipality, for the purposes of this part and part 43, may formulate a workable program for utilizing appropriate private and public resources: (a) to eliminate and prevent the development or spread of blighted areas; (b) to encourage needed urban rehabilitation; (c) to provide for the redevelopment of such areas; or

(d) to undertake such of the aforesaid activities or other feasible municipal activities

as may be suitably employed to achieve the objectives of such workable program. (2) Such workable program may include, without limitation, provision for: (a) the prevention of the spread of blight into areas of the municipality which are free from blight through diligent enforcement of housing, zoning, and occupancy controls and standards; (b) the rehabilitation of blighted areas or portions thereof by replanning, removing congestion, providing parks, playgrounds, and other public improvements; by encouraging voluntary rehabilitation; and by compelling the repair and rehabilitation of deteriorated or deteriorating structures; and (c) the clearance and redevelopment of blighted areas or portions thereof.

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On November 8, 2006, the Great Falls City Commission authorized an investigation of the West Bank area. The purpose of the investigation was to determine the presence and extent of blight within the area as defined by the Montana Urban Renewal Law (7- 15, Parts 42 and 43 MCA) as a first step in preparing a West Bank Urban Renewal Plan. The investigation culminated in a “Finding of Blight”, that was adopted by Resolution 9626 (attached as Appendix A) by the Great Falls City Commission on December 5, 2006. In particular, the Resolution identified the following blighted conditions:

1. Physical deterioration of buildings and properties  Many of the structures in the defined area are in poor repair and properties are poorly maintained. City building permit information indicates that the majority of existing structures have not been substantially improved for at least twenty years. 2. Inappropriate or mixed uses of land or buildings  The presence of existing heavy industrial uses within the defined area is incompatible with retail, commercial, residential and parkland development. This land use conflict has proven to be a disincentive to the improvement of properties within the area by private enterprise. 3. Defective street layout  Much of the area is without streets, sidewalks, curbs, or gutters resulting in poor traffic circulation and storm drainage problems. 4. Unsanitary and unsafe conditions  Portions of the defined area are included in the list of priority sites maintained by the Montana Department of Environmental Quality under the Comprehensive Environmental Cleanup and Responsibility Act (CECRA) and are designated a Brownfield site as defined by the U.S. Environmental Protection Agency. Contamination on the site is associated with historic industrial activity and has affected both the soil and groundwater and threatens to contaminate the Missouri River.

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Figure 1. Great Falls West Bank Urban Renewal District

Statement of Purpose Changes in land use in the West Bank area, in conjunction with the proposed removal of contamination associated with historic industrial activities, provides an opportunity for area redevelopment through public-private partnerships. The City of Great Falls has chosen to participate in this redevelopment effort through the creation of an urban renewal program, including a tax increment financing (TIF) provision to help fund public investment in the area.

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This Urban Renewal Plan provides direction to the City of Great Falls in fostering the revitalization and economic development of the West Bank Urban Renewal District. The Plan provides a “platform” for redevelopment activities that will be undertaken by a variety of public and private entities over the next several decades. More particularly, this Plan recommends a series of programs and projects that will be undertaken by the local government to encourage reinvestment in the District and to address blighted conditions that have diminished the environmental, economic and cultural well-being of the West Bank area over time.

Although the Montana Urban Renewal Law recognizes that eliminating urban blight is a matter of public interest, this Plan has been developed, based on the underlying principle that it is the citizens who work, reside and own property in the West Bank Renewal District who will be engaged directly in the revitalization effort. Further, the Plan has been prepared with respect to three Guiding Principles as follows:

 The plan for the West Bank Urban Renewal District should foster economic development and job creation.  The improvement of the overall environmental quality of the West Bank Urban Renewal District is critical.  Protection and enhancement of the West Bank Park and the Missouri River, which form the eastern boundary of the District are key in the redevelopment of the West Bank Urban Renewal District.

The West Bank Urban Renewal Plan outlines the approach that the City of Great Falls will take in responding to blighted conditions within the District. The Plan recommends ways to comprehensively address the problems and opportunities that face the area. However, the Plan recognizes that this area is in transition and therefore prescribes a large measure of flexibility in devising solutions and provides for ongoing planning on the part of the City, the residents, the businesses and property owners.

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Chapter 2. Description of the Urban Renewal District

Legal Description of the West Bank Urban Renewal District The West Bank Urban Renewal District includes all that real property in the City of Great Falls, County of Cascade, State of Montana, which lies within the following described boundary, excluding any unincorporated property, as of October 2006:

“The POINT OF BEGINNING is at the intersection of the north right of way line of 4th Avenue SW and the east right of way line of 4th Street SW; thence northeasterly along the west right of way line of 3rd Street SW and 3rd Street NW to its intersection with the northwest/southeast projection of the north property line of the parcel of land legally described as Mark No.13, Section 2, Township 20 North, Range 3 East (Geo-code #3015- 02-1-10-06); thence southeasterly along the northwest/southeast projection of the north property line of the parcel of land legally described as Mark No.13, Section 2, Township 20 North, Range 3 East (Geo-code #3015-02-1-10-06) to the centerline of the Missouri River; thence southwesterly/southeasterly along the centerline of the Missouri River to the north edge of the BNSF Railway/Missouri River Bridge; thence southwesterly along the north edge of the BNSF Railway/Missouri River Bridge and the north right of way line of the BNSF Railway main line (coincidental with the south property line of Lots 1- 4, Block 9, BN Car Shop Addition to Great Falls) to its extended connection with the south end of the east right of way line of 5th Street SW (coincidental with the southwest corner of Lot 10, Block 546, 6th Addition to Great Falls); thence northeasterly along the west right of way line of the BNSF Railway spur line (coincidental with the south/southeast boundary of Block 546, 6th Addition to Great Falls) to the intersection of the south right of way line of 5th Avenue SW and the west right of way line of 4th Street SW; thence north along the west right of way line of 4th Street SW to its intersection with the north right of way line of 4th Avenue SW; thence east to the POINT OF BEGINNING.”

Area History Historically, the west side of the Missouri River in Great Falls was the home of Montana’s largest gasoline refinery, built by the Great Falls Sunburst Oil and Refinery Company. The refinery began operations in early 1923 along the 300 and 400 block of 3rd Street Northwest and was subsequently purchased by the California Eastern Oil Company in 1927. Cascade County took possession of the property in 1936 after California Eastern failed to pay gasoline license taxes and associated delinquent fees. By 1938 Cascade County had constructed its shops (Figure 2) at the site (Great Falls Tribune, December 16, 2001).

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Figure 2 Cascade County Shops The West Bank area includes the site of the former Montana Brewing Company complex, built in 1893-94, just north of Central Avenue West, along the Missouri River. In 1933, it became the malt plant for the Great Falls Brewery, Inc., finally closing in 1968. (Figure 3.) The last remnants of the site were finally removed in July of 2006 to make way for a new 54,000 square foot Federal Courthouse (July 11, 2006, Sun River News).

Figure 3. Montana Brewery.

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Existing Characteristics The West Bank Urban Renewal District continues to be largely characterized by industrial and warehouse uses. It also contains a small number of residences and a variety of retail and service oriented businesses, including a veterinary clinic, the Cowboy’s Bar and the J Bar T Tavern. The area just south of the County Shops and Montana Specialty Mills includes the site where the new Federal Courthouse will be built. South of Central Avenue West, the District is more sparsely developed, but includes the Montana Association of Electrical Cooperatives offices as well as a former highway department structure, now held privately (Figure 4). The northern end of the District is directly adjacent to a growing commercial area. It includes the Stockman Bank, built within the last few years and will include a new Walgreens Pharmacy, already under construction.

Figure 4. Former Highway Department Building

The District encompasses portions of two Census Tracts (See Table 1) and 51 parcels. A list of the properties by parcel is included in Appendix B.

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Table 1. West Bank Urban Renewal District – Census Information Census Census Block Group Block Number Population Housing Units Tract 16 2 2000 0 0 16 2 2017* 45 15 16 5 5001 8 3 16 5 5002 0 0 16 5 5004 0 0 16 5 5005 0 0 18 3 3000* 4 2 18 3 3019** 0 0 18 3 3020* 0 0 Totals 57 20 Source: U.S. Census (2000 Information) Notes: * Only a portion of this block is in the Urban Renewal District ** This is the parcel that is not incorporated into the City of Great Falls

Census designations are noted in Figure 5.

Zoning Designation The City of Great Falls has zoned the West Bank area M-2, Mixed-use Transitional. The Great Falls Zoning Ordinance describes an M-2 zone as follows: “This zoning designation is intended to promote a transition over time to a predominately mixed-use land use pattern. Because of changing economic conditions and other factors, some current uses do not represent the highest and best use, given other more suitable areas. Current industrial uses and warehouses are not considered nonconforming. As such, current industrial uses and warehouses existing at the time this Title was adopted are allowed to expand or to be re-established, if damaged, provided development and appearance standards under the purview of the Design Review Board are met.”

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Figure 5. Census Designations

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Chapter 3. Key Findings

This chapter of the Urban Renewal Plan provides an overview of the challenges and opportunities associated with the redevelopment of the West Bank Urban Renewal District. Information presented here has been gleaned from interviews and meetings with area property owners and residents, local government staff, Neighborhood Council #2 and other area stakeholders. While the West Bank Urban Renewal District can be characterized as blighted, the area has a number of recognized assets that will help foster redevelopment. For example, there is wide-spread support for area revitalization among property owners, stakeholders and the community in general.

Area Assets and Opportunities The Missouri River and West Bank Park The West Bank Urban Renewal District is bounded on the east by West Bank Park and the Missouri River which provide important scenic, natural, historic and recreational resources to residents and visitors. As noted in the 2004 Missouri River Urban Corridor Plan, the River is “a major community asset for enhanced livability, growth and economic development”. The District’s proximity to the river, in combination with West Bank Park can attract new development. The Corridor Plan also points out that the “Riverfront…creates real estate value [associated with its] proximity to water, views and public open space.”

Proximity to Downtown/Combating Urban Sprawl The City’s plan to undertake the renewal of the West Bank area can be viewed as part of the overall effort to revitalize the city’s central business district and to discourage urban sprawl in general. As noted in the 2002 Great Falls Development Authority’s proposal to EPA for Brownfield Assessment grant funds, the redevelopment of “lands that have existing infrastructure…makes good planning sense, and it keeps redevelopment affordable and reduces urban sprawl. It also creates jobs in the city, close to where people live.”

Proximity to Transportation Corridors The West Bank area is situated along two critical four-lane arterials – Central Avenue West and 3rd Street NW, which provide important links between downtown Great Falls, Interstate 15, the airport and the fairgrounds. The area has experienced increased traffic counts on 3rd Street Northwest and the Northwest Bypass, offering opportunities for successful development. The 2003 Great Falls Area Transportation Plan identifies 3rd Street Northwest as a major traffic corridor that is experiencing heavy traffic volumes.

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Finally, railroad service is provided on an as needed basis to service Montana Specialty Mills and Montana Refining Company.

Existing and Proposed Area Development As noted above, the West Bank Urban Renewal District is experiencing a change in land use, from heavy industrial to mixed uses. The new Federal Building, to be located on the former brewery property and the Walgreens Pharmacy, which is under construction in the northern portion of the District, will provide two important anchors for the District. The area is also home to a number of retail and service businesses. Finally, the Montana Expo Park borders the District on the west, providing an important traffic generator, as well as a potential partner in redevelopment efforts.

Challenges Clean-up of Contaminants The Third Street Northwest Groundwater Site is located within the West Bank Urban Renewal District and includes the County Shops, Montana Specialty Mills, portions of the BNSF Railway spur and West Bank Park. The Site is listed on the State of Montana’s “Mini- Superfund Sites” because of petrochemical related contamination. Figure 6 shows the contaminated portion of the District.

Figure 6. Contaminated Area

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Clean-up of these contaminants will occur sequentially. For example, contaminants cannot be removed from West Bank Park until the County Shops and Montana Specialty Mill areas are addressed, because they are the “upstream” source of the pollutants. (See Table 2, Remediation Schedule in Chapter 4.) Redevelopment cannot occur in these areas until clean-up is complete.

Lot Size Some of the properties within the urban renewal district are too small to accommodate new office or commercial development. Prior to significant redevelopment occurring, some of the smaller parcels of land will have to be consolidated, particularly those at the southern end of the District.

Access While the District is adjacent to major arterials, access to and within the West Bank area is limited. In addition to the absence of roads, the railroad tracks that run north-south and parallel to the riverfront make it difficult to address the District’s transportation needs of vehicles and pedestrians. In particular, the sidetrack which currently serves Montana Specialty Mills, and which will no longer be needed once the mill is relocated, limits east-west access through a large portion of the District. Overall, the area lacks the necessary infrastructure to link recreational and commercial uses, which will ultimately be key to the successful redevelopment of the District.

Blighted Conditions in the West Bank Urban Renewal District A Finding of Blight report for the West Bank Urban Renewal District was prepared in November of 2006. The following excerpts provide a general overview of blighted conditions in the District.

Physical deterioration of buildings Although most of the buildings within the proposed West Bank Urban Renewal District are in use, the area generally has a deteriorating appearance. Many structures are in poor repair and properties are often poorly maintained, cluttered with refuse and waste storage areas.

According to building permit information prepared by the Great Falls Community Development Department, the majority of structures in the proposed district were constructed prior to the 1980s and many were constructed in the 1950s. While age alone does not indicate deterioration, permit information indicates that few major improvements have been made in recent decades.

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Inappropriate or mixed uses of land or buildings The eastern edge of the West Bank Urban Renewal District includes portions of West Bank Park, an important recreation and scenic resource for the City of Great Falls. The park is located adjacent to areas that have been blighted by industrial pollution and refuse storage sites. These detract from and diminish the quality of the park. The District includes a number of retail and service establishments, reflective of the land uses on those properties adjacent to the urban renewal district. The presence of heavy industrial activities in close proximity to these less intensive uses creates incompatibilities associated with industrial noise, odor and dust.

The West Bank Urban Renewal District also includes a small number of homes. The presence of heavy industrial sites in close proximity to residences can result in the devaluation of property over time. A review of residential property values within the district indicates that while the land values have increased slightly, the value of improvements has stagnated between 2000 and 2006.

Public Infrastructure/Defective or Inadequate Street Layout The sewer and water lines within the district were installed primarily in the 1960's and 1970's to serve the commercial and large industrial users in the area. There are also some large sewer trunk lines which traverse the area from south to north. They are generally in good condition and would be able to accommodate new commercial, office and residential development. (See Appendix C, Public Utilities.) The streets that are in the area serve the perimeter of the planning area well, but are virtually non-existent in the interior, especially on the north end of the district. Access is very poor to the area between the River and the railroad tracks. Of the roads that do exist, some require paving, while others should be realigned. The district is characterized by large industrial and heavy commercial uses and in some cases, there is no public access to individual sites via roads. For example, better access is needed to West Bank Park and the new Federal Building that is slated for construction to the north of Central Avenue West. Overall the interior of the area lacks sidewalks, curbs and gutters, landscaping and adequate lighting.

Unhealthy or Unsafe Conditions The West Bank Urban Renewal District includes the Third Street Northwest Groundwater Site, which is listed on the Montana Comprehensive Environmental Cleanup and Responsibility Act (CECRA) listing of “Mini-Superfund” priority sites. According to the Montana Department of Environmental Quality, contaminants at the site include benzene, toluene, ethylbenzene, xylene, chlorinated solvents and phenols. (Great Falls Tribune, December 16, 2001)

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In 2002, the Great Falls Development Authority applied for and obtained a U.S. Environmental Protection Agency (EPA) Brownfields Assessment Grant as a first step in facilitating the redevelopment of the West Bank area. Brownfields are defined as those properties for which the expansion, redevelopment, or reuse may be complicated by the presence or potential presence of a hazardous substance, pollutant, or contaminant. (http://www.epa.gov/brownfields/)

The proposal to EPA noted that the potential for in-fill development and reuse of lands in the West Bank area had been “marginalized” by the environmental pollution, creating a “lost opportunity” for reinvestment in the area. (Great Falls Riverfront Redevelopment Project…Final Grant Proposal).

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Chapter 4. Goals and Strategies of the West Bank Urban Renewal Plan This chapter presents the goals and strategies of the West Bank Urban Renewal Plan by category of concern.

Remediation of Environmental Pollutants The West Bank Urban Renewal District includes the Third Street Northwest Groundwater Site, which is listed on the Montana Comprehensive Environmental Cleanup and Responsibility Act (CECRA) listing of “Mini-Superfund” priority sites. CECRA provides the Montana Department of Environmental Quality with similar authorities as provided under the federal Superfund Act. CECRA ranks these sites as maximum, high, medium, low and operation and maintenance priority based on the severity of contamination at the facility and the actual and potential impacts of contamination to public health, safety, and welfare and the environment. The Third Street Northwest Groundwater Site has been listed with a ranking of medium. (http://www.deq.state.mt.us/StateSuperfund/index.asp). According to the Montana Department of Environmental Quality, contaminants at the site include benzene, toluene, ethylbenzene, xylene, chlorinated solvents and phenols. (Great Falls, Tribune, December 16, 2001)

In 2002, the Great Falls Development Authority applied for and obtained a U.S. Environmental Protection Agency (EPA) Brownfields Assessment Grant as a first step in facilitating the redevelopment of the West Bank area. Brownfields are defined as those properties for which the expansion, redevelopment, or reuse may be complicated by the presence or potential presence of a hazardous substance, pollutant, or contaminant. (http://www.epa.gov/brownfields/). The proposal noted that the grant would help “facilitate development through completion of environmental assessments on properties in the area…and would identify the nature and severity of contamination on the properties and allow for the selection of cleanup remedies“. (Finding of Blight Report, 2006)

Cascade County is largely responsible for the removal of contaminants from the Third Street Northwest Groundwater Site which includes the site of the County Shops and Montana Specialty Mills (Figure 7). The clean-up of contaminants should occur sequentially. The clean-up phases are summarized below in Table 2. (Commencement dates, as provided by Cascade County, are approximate.)

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Table 2. Remediation Schedule for the Third Street Northwest Groundwater Site Phase Corrective Action Proposed Date of Commencement I Remove contaminants from Cascade County Road November, 2007 and Bridge Department Shop (southern end of property) II Remove contaminants from Montana Specialty Late, 2008 Mills site III Clean-up Burlington Northern Santa Fe Railroad 2009 (BNSF) right of way IV Clean-up West Bank Park area 2010

V Remove contaminants from the Cascade County 2007-2008 Solid Waste District Shop (northern end of property) VI Clean-up northeast area of County Shop 2007-2008

The Great Falls Growth Policy notes that Brownfields are currently “dealt with on a case- by-case basis, with clean-up usually funded as part of the cost of redeveloping the property”. The removal of contaminants in the West Bank Urban Renewal District by Cascade County will enable the property to be redeveloped for non-industrial uses. While the City of Great Falls is not responsible for contaminant removal, the Urban Renewal Plan must reflect the timing of clean-up activities.

Figure 7. Montana Specialty Mills

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Goal: Foster development in the West Bank Urban Renewal District in phases with respect to the availability of land following the removal of contaminants.

Strategies:  Communicate regularly with Cascade County to enable the coordination of development activities as contaminants are removed.  Work with Cascade County in determining an approach to clean-up non-county properties including the BNSF railroad and West Bank Park.

Public Infrastructure Improvements Sewer and Water Services The sewer and water lines within the West Bank Urban Renewal District were installed primarily in the 1960's and 1970's to serve the commercial and large industrial users in the area. There are also some large sewer trunk lines which traverse the area from south to north. They are generally in good condition and would be able to accommodate new development. However, due to the lack of streets, curbs and sidewalks in the area, the storm drain system is inadequate and will have to be addressed.

Goal: Ensure that all land uses within the West Bank Urban Renewal District have safe water supplies, environmentally sound wastewater disposal systems, solid waste recycling/collection programs, and stormwater management systems that protect the public health, safety and welfare.” (Great Falls Growth Policy, 2005)

Strategies:  Work with the City of Great Falls Public Works Department to assure that the sewer and water infrastructure is appropriate for the scale and type of proposed development in the West Bank Urban Renewal District.  Evaluate the current condition of the storm drain system with respect to proposed development within the West Bank Urban Renewal District and make improvements accordingly.

Area Access – Pedestrian and Vehicular The streets in the area serve the perimeter of the Urban Renewal District well, but are virtually non-existent in the interior, especially on the north end of the District. Access is very poor to the area between the River and the railroad tracks. Of the roads that do exist, some require paving, while others should be realigned. The District is characterized by large industrial and heavy commercial uses and in some cases there is no public road access to individual sites. Better access is needed to West Bank Park and

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the new Federal Building that is slated for construction to the north of Central Avenue West. In addition to the absence of roads within the District, it is difficult to access 3rd Street Northwest and Central Avenue West via a left turn from the existing roads within the District. The entire interior of the District lacks sidewalks, curbs and gutters. (Finding of Blight Report)

Goal: Provide a safe, efficient, accessible and cost-effective transportation system that offers viable choices for moving people and goods throughout the West Bank Urban Renewal District. (Great Falls Growth Policy)

Strategies:  Identify and construct road system improvements for the West Bank Urban Renewal District that serve existing and proposed uses and address: o Access to and within the District o Sidewalks/Trails o Curbs o Gutters and Storm Drains  Install traffic control signals and other safety features to improve access at appropriate locations.  Work with BNSF to identify ways to provide access across the railroad right-of- way for both vehicles and pedestrians.  Work with BNSF to determine the feasibility of removing the sidetrack rail serving Montana Specialty Mills to accommodate better access to the area.  Provide for pedestrian access to and within the West Bank Urban Renewal District, providing links to Montana ExpoPark, West Bank Park, River’s Edge Trail and nearby residential areas.

Park Development West Bank Park (Figure 8) is an important area and community resource. Protection and enhancement of the Park is a key component in the redevelopment of the West Bank Urban Renewal District. More particularly, the Park is located within the Primary Impact Area, as defined in the Great Falls Missouri River Urban Corridor Plan (2004), “which includes those lands that have strong relationships to the river…” The Plan, which was called for in the1999 Great Falls City-County Comprehensive Plan (now the Great Falls Growth Policy, 2005) presents a vision for what is possible in this corridor and includes general recommendations for access to the river, trails and the maintenance of public land. A companion document, the Missouri River Urban Corridor Inventory & Assessment (September 2002) characterizes existing conditions in the Corridor and makes recommendations for appropriate stabilization and recreational improvements.

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The West Bank Park has also been identified by Great Falls Neighborhood Council #2 as an important neighborhood asset that contributes to the quality of life in the area and ties well to the Montana Expo Park. Area property owners have noted that West Bank Park and the riverfront help contribute to adjacent property values and provide an attractive setting for tenants and customers.

Figure 8. West Bank Park (Missouri River Corridor Plan)

Goal: Maintain and Improve West Bank Park within the West Bank Urban Renewal District.

Strategies:  Prepare and Implement a Park Improvement Plan that addresses: o Pedestrian and Vehicular Access o Vegetation and Habitat o Trail & Pedestrian Use Within the Park o Connections to the River’s Edge Trail System o Park Amenities and Facilities o Maintenance o Implementation Tools and Resources  Work with adjacent property owners and developers to address Park access, visual integration with adjoining development/uses, and maintenance.

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Area Design Features, Including Lighting and Landscaping The Missouri River Urban Corridor Plan observes that “...there is a hodgepodge of poor quality design elements. In some areas, Quonset hut-style buildings and other structures of little aesthetic or architectural value, a surplus of unattractive and prominent signage, and a lack of unifying design details like street lighting and landscaping have resulted in a chaotic, unappealing environment. Development of this type discourages investment and upgrade to area properties.” Design concepts such as buffering, shared open spaces, connection to public spaces, preservation of river views, street trees, and mixed uses are all encouraged to promote area identity, marketability and area vibrancy.

In addition, the Great Falls Growth Policy notes that it is the policy of the City to “encourage and promote street tree planting throughout the community and as a matter of policy, consider street trees as public infrastructure with priorities for preservation, replacement and maintenance”.

Landscaping undertaken in association with development of streets, sidewalks and trails will serve to enhance the West Bank Urban Renewal District. In addition, the area will need adequate lighting to provide a safe and welcoming environment.

Goal: Urban Renewal Projects should be designed in a manner that is respectful of the area’s natural and cultural setting with particular attention to landscaping and lighting.

Strategies:  Develop and implement an urban tree planting program for the West Bank Urban Renewal District in association with the development of streets and sidewalks and in conjunction with the City Parks & Recreation Department that defines appropriate species, planting cycles and maintenance. Per the Great Falls Growth Policy, the City should prepare and implement a comprehensive planting, management and maintenance plan for street trees in the public rights-of-way.  Identify an appropriate light standard that can be used throughout the District in conjunction with public improvements and private development.  Encourage the preparation and adoption by area property owners of area-wide development standards to provide for cohesive development with a unique identity. Such standards could be used by developers when preparing plans and by the City’s Design Review Board when considering proposed developments. This could be accomplished through the creation of neighborhood conservation overlay district.

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Community and Economic Development The Great Falls Growth Policy identifies a series of economic development goals, including the following that directly relate to the West Bank Urban Renewal District. These are:

 Diversify the base economy  Enhance, strengthen and expand the existing economic base  Encourage businesses and industries that will utilize existing infrastructure

The redevelopment of the West Bank Urban Renewal District can strengthen the economic base of Great Falls while taking advantage of existing sewer and water infrastructure within the urban core. This approach helps to counter urban sprawl and the associated costs in providing public services.

Fostering Private Development The West Bank Urban Renewal Plan calls for public improvements in the West Bank Urban Renewal District in support of new investment. The role of the private sector will be critical in the redevelopment process. Private investments made in the area will, in turn, provide the City with the necessary financial resources (via Tax Increment Financing and other mechanisms) to develop public infrastructure that will contribute to the overall revitalization of the area.

This Urban Renewal Plan provides the necessary administrative structure to direct community resources to renewal activities within the District. However, it will be the private sector that undertakes specific site planning and development activities on privately owned lands. To achieve a high quality of design, representatives of private property owners, including Cascade County and area developers will work together to prepare a development master plan that will reflect the following underlying principles:  Public access to West Bank Park and other riverfront parks will be incorporated into area design schemes.  Lighting, street design and other landscaping features will be consistent throughout the District. Unifying architectural features and signage is also encouraged.  Development will be phased in accordance with the contaminated soils clean-up schedule, as developed by Cascade County and the Montana Department of Environmental Quality.

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Goal: Encourage thoughtful, well designed private development activity.

Strategies:  Encourage the preparation of a development master plan for the West Bank District by property owners and developers that recognizes the sequential nature of the removal of pollutants from the area.  Encourage the preparation of a development master plan that addresses the various sub-areas within the Urban Renewal District as follows: o The area to the south of the Cascade County Shops (including the area south of Central Avenue o The area that includes both the Cascade County Shops and the Montana Specialty Mills (MSM) o The area to the north of the Shops and MSM  Consider the use of protective covenants in addition to existing zoning provisions to assure high quality development within the area  Facilitate thoughtful project design that focuses on enhancing and protecting the area’s natural and scenic resources  Work with the private sector to identify public infrastructure needs for the area.  Work with BNSF to determine the feasibility of removing the sidetrack rail serving Montana Specialty Mills to create more privately-owned land for development  Foster cooperative efforts among public and private entities to achieve the goals of the Urban Renewal Plan  Work with property owners and developers to identify opportunities to realign Bay Drive to facilitate redevelopment

Working in Partnership with Downtown The City’s plan to undertake the renewal of the West Bank District is part of an overall effort to revitalize the City’s urban core and to discourage urban sprawl in general. The redevelopment of the West Bank District will serve to both expand and enhance Great Falls’ urban center. The proposed private and public investment in the West Bank District will enable the City’s core business area to encompass both sides of the Missouri River, taking full advantage of this important asset.

Goal: Coordinate the West Bank Urban Renewal program with ongoing efforts to revitalize Downtown Great Falls.

Strategies:  Coordinate planning efforts between the West Bank District and Downtown.

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 Identify joint activities, such as the creation of transportation and recreation services that connect Downtown and the West Bank District.

Historic/Cultural Resources Historically, the west side of the Missouri River in Great Falls was the home of Montana’s largest gasoline refinery, built by the Great Falls Sunburst Oil and Refinery Company. The refinery began operations in early 1923 along the 300 and 400 blocks of 3rd Street Northwest and was subsequently purchased by the California Eastern Oil Company in 1927. Cascade County took possession of the property in 1936 after California Eastern failed to pay gasoline license taxes and associated delinquent fees. By 1938, Cascade County had constructed its road and bridge department shops at the site (Great Falls, Tribune, December 16, 2001). The West Bank District also included the site of the former Montana Brewing Company complex, built in 1893-94, just north of Central Avenue West, along the Missouri River. In 1933, it became the malt plant for the Great Falls Breweries, Inc., which closed in 1968. The last remnants of the site were removed in July, 2006 to make way for a new 54,000 square foot Federal Courthouse (Sun River News, July 11, 2006).

Today, there are 51 parcels in the West Bank Urban Renewal District, including a small number of residences and a variety of retail and service oriented businesses, such as, a veterinary clinic, J Bar T Tavern, and the Cowboy’s Bar. Overall, the West Bank District is undergoing a transition from heavy industrial uses to commercial and retail uses, reflective of development that is occurring on adjacent properties, particularly along 3rd Street NW/SW. As this transition continues, it will be important to take stock of the remaining historic properties and to plan carefully for their interpretation, preservation and appropriate integration into area development. For example, the Montana Cowboy’s Association is interested in having the Cowboy’s Bar and associated museum placed on the National Register of Historic Places. (See Figure 9, below.) Additionally, the Missouri River and Sacagawea Island are important natural, cultural and historic resources that should be included in any area assessments. Other properties may be eligible for listing as well. Most federal and state grant programs require applicants to address potential impacts on properties eligible for listing in the National Register. An inventory of historic resources would help assure more thoughtful development.

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Goal: Assess, preserve and interpret historic and cultural resources within the West Bank Urban Renewal District.

Strategies:  Conduct an inventory of historic and cultural resources within the West Bank Urban Renewal District  Work with private property owners to preserve historic sites  Develop a pedestrian oriented interpretive program to include information concerning: o Existing sites of historic or cultural interest o Former occupants of the area o Environmental history of the area o History of the River

Figure 9. Cowboy’s Bar

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Natural Resources The Missouri River and the associated West Bank Park are the defining features of the West Bank Urban Renewal District. Not only do these resources make the area more attractive for investment and overall community renewal, but they are intrinsic to the quality of life in the City of Great Falls and the surrounding region. They offer scenic and recreational opportunities for both residents and visitors to Great Falls.

The area along the River has undergone a significant transition. As recently as 20 years ago, the current West Bank Park was the site of a construction waste dump. The area was “reclaimed” through a major effort to remove the waste and restore the river front area, providing an important recreation resource for the people of Great Falls. The Park is now part of the city wide park system and a key component of the public corridor along the Missouri River.

The Missouri River Urban Corridor Plan identifies guiding principles and “communicates a vision for economic vitality” associated with the River while, at the same time recognizing “that the River is a vital part of a large ecosystem and that the environmental integrity of the River must be protected.” The following Urban Renewal Plan Goal is taken directly from the Missouri River Urban Corridor Plan.

Goal: Promote beneficial, sustainable economic development that utilizes the River as an amenity while preserving and enhancing its ecological integrity and asset values.

Strategies  Restore, enhance and protect water quality, natural shoreline vegetation and wetlands in association with improvements to West Bank Park and the River’s Edge Trail  Assure that the environmental health of the River will not be compromised by development  Work with property owners to develop shoreline protection programs in conjunction with their development activities

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Chapter 5. Planning Approach – The Defining Elements The design and implementation of the West Bank Urban Renewal Plan is being undertaken in a manner that is reflective of sound public policy and thoughtful planning. To this end, a number of “defining” elements have been identified that will characterize the projects and activities undertaken in connection with the revitalization and redevelopment of the West Bank area.

Sub Area Planning – Phased Development The West Bank Urban Renewal District is likely to be developed in stages. The sequential nature of the removal of contaminants from the area currently occupied by the County Shops and Montana Specialty Mills will dictate, to some extent, which lands are redeveloped first. Given that the removal of contaminants will not be completed for approximately three years, the areas to the north and south of the Third Street Northwest Groundwater Site will likely be developed first. The building of the new Federal Courthouse to the south and the new Walgreens Pharmacy to the north provide examples of likely development patterns. Private development and public infrastructure improvements should be designed in a manner that will allow for phased implementation.

Thoughtful Design The location of the West Bank Urban Renewal District, adjacent to the Missouri River and West Bank Park, requires that projects are designed in a manner that is sensitive to the area’s natural resources. The River and the Park add value to the lands within the District by providing an aesthetically pleasing environment within which reinvestment can occur. Urban renewal projects should serve to complement these resources rather than create a development pattern that diminishes their value. Thoughtful, well- designed development will, in turn, enhance the natural setting, drawing additional investment.

Intergovernmental Cooperation The successful implementation of the West Bank Urban Renewal Plan will rely on cooperation between the City of Great Falls, Cascade County and the State of Montana. Cascade County, over the next several years, will be working with the Montana Department of Environmental Quality to address contaminated soils in the central portions of the West Bank Urban Renewal District. Following clean-up, the County will exercise its options regarding redevelopment of its properties. It will be important for Cascade County to be involved with other property owners in the West Bank Urban Renewal District, as well as the City of Great Falls in planning for the District’s redevelopment. The County’s participation in the development master planning

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process for the area will be particularly critical. The proximity of the Montana Expo Park with the Renewal District is also a key factor in redevelopment. The Expo Park provides an important area asset that can help contribute to the District’s revitalization.

Public Investment The revitalization of the West Bank Urban Renewal District will require cooperation between the public and private sectors. As noted above, the City of Great Falls intends to invest in public infrastructure improvements in order to foster private investment. Public improvement projects will be undertaken in support of private development and with respect to area master plans developed by area property owners and investors. Funding for public infrastructure improvements will come from a number of sources including, but not limited to Tax Increment Financing (TIF). Specific projects will be undertaken in accordance with the Montana Urban Renewal Law, 7-15-42 and 7-15-43, MCA.

Planning Consistency Conformity with the Growth Policy This Urban Renewal Plan must conform to the Great Falls, Growth Policy, adopted in 2005, per 7-15-4213, MCA. Where appropriate, specific reference has been made to the Growth Policy, particularly in Chapter 4 of this Plan. On February 27, 2007, the Great Falls City Planning Board reviewed this Urban Renewal Plan and found it to be in conformance with the Growth Policy, per statutory requirements.

Other Planning Documents In the preparation of the West Bank Urban Renewal Plan, a variety of other planning documents were consulted to assure that the Urban Renewal Plan would work in concert with other efforts to plan for the future of Great Falls. These included:  Missouri River Urban Corridor Inventory and Assessment (2002)  Great Falls Area Transportation Plan (2003)  Missouri River Urban Corridor Plan (2004)

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Chapter 6. Implementation The West Bank Urban Renewal Plan sets a direction for redevelopment and revitalization of the West Bank Urban Renewal District. Upon its adoption, this Plan will serve as the official policy guide for public action. However, these policies can only be transformed to action through an effective implementation program. Key to implementation will be sound processes of administration, financing and program evaluation.

Administration The administration of the redevelopment effort outlined in this plan will be the responsibility of the Great Falls City Commission. Under 7-15- 4232, the City Commission may choose to create a separate urban renewal agency or authorize an existing department to implement this Urban Renewal Plan. However, it is the intent of the Commission to retain the responsibility and authority for administering the West Bank Urban Renewal Program. Various city departments will be authorized by the Commission to undertake specific tasks associated with implementation as necessary.

Each year the City of Great Falls, or the authorized department will prepare an annual work program and budget and will list the activities and costs of the activities for the coming fiscal year, as well as the method of financing those activities. This program and budget may be amended during the course of the fiscal year, in light of funding and program changes. All budgets and revised budgets shall be reviewed and approved by the City of Great Falls. Urban renewal activities undertaken by the City of Great Falls will be in accordance with Montana State statute. (See specific provisions below.)

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7-15-4233. Powers which may be exercised by urban renewal agency or authorized department. (1) In the event the local governing body makes such determination, such body may authorize the urban renewal agency or department or other officers of the municipality to exercise any of the following urban renewal project powers: (a) to formulate and coordinate a workable program as specified in 7-15-4209; (b) to prepare urban renewal plans; (c) to prepare recommended modifications to an urban renewal project plan; (d) to undertake and carry out urban renewal projects as required by the local governing body; (e) to make and execute contracts as specified in 7-15-4251, 7-15-4254, 7-15-4255, and 7-15-4281, with the exception of contracts for the purchase or sale of real or personal property; (f) to disseminate blight clearance and urban renewal information; (g) to exercise the powers prescribed by 7-15-4255, except the power to agree to conditions for federal financial assistance and imposed pursuant to federal law relating to salaries and wages shall be reserved to the local governing body; (h) to enter any building or property in any urban renewal area in order to make surveys and appraisals in the manner specified in 7-15-4257; (i) to improve, clear, or prepare for redevelopment any real or personal property in an urban renewal area; (j) to insure real or personal property as provided in 7-15-4258; (k) to effectuate the plans provided for in 7-15-4254; (l) to prepare plans for the relocation of families displaced from an urban renewal area and to coordinate public and private agencies in such relocation; (m) to prepare plans for carrying out a program of voluntary or compulsory repair and rehabilitation of buildings and improvements; (n) to conduct appraisals, title searches, surveys, studies, and other preliminary plans and work necessary to prepare for the undertaking of urban renewal projects; (o) to negotiate for the acquisition of land; (p) to study the closing, vacating, planning, or replanning of streets, roads, sidewalks, ways, or other places and to make recommendations with respect thereto; (q) to organize, coordinate, and direct the administration of the provisions of this part and part 43; (r) to perform such duties as the local governing body may direct so as to make the necessary arrangements for the exercise of the powers and performance of the duties and responsibilities entrusted to the local governing body. (2) Any powers granted in this part or part 43 that are not included in subsection (1) as powers of the urban renewal agency or a department or other officers of a municipality in lieu thereof may only be exercised by the local governing body or other officers, boards, and commissions as provided under existing law.

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Program Funding

Tax Increment Financing Provision The implementation of the West Bank Urban Renewal Plan will include the use of Tax Increment Financing (TIF). Under Section 7-15-4282 of the Montana Urban Renewal Law communities may establish tax increment districts for the purposes of revitalizing blighted neighborhoods and central business districts. Tax increment financing directs new property tax dollars resulting from increases in the market value of real property to the area where the real property is located. The base property tax (before any improvements to real property) continues to be distributed to the local governments and school districts. However, tax dollars that accrue from increases in property values (from rehabilitation, new construction, etc.) are available for urban renewal projects as defined by the Montana Urban Renewal Law. More particularly, costs which may be paid using TIF dollars are included in 7-15-4288, MCA. (See Appendix D.)

A tax increment program is authorized for 15 years or longer if the tax increment revenue is pledged to the payment of tax increment bonds. 7-15-4289, MCA provides for the use of tax increments for bond payments. The tax increment may be pledged to the payment of the principal of premiums, if any, and interest on bonds which the municipality may issue for the purpose of providing funds to pay such costs.

The City of Great Falls will establish a Tax Increment Financing program for the West Bank Urban Renewal District, as defined in Chapter 2 of this Urban Renewal Plan. The base year for the purposes of measuring any incremental value will be January 1, 2007.

Per 7-15-4291, MCA, the City of Great Falls may enter into agreements with the other affected taxing bodies to remit to such taxing bodies any portion of the annual tax increment not currently required for the payment of the costs listed in 7-15-4288, MCA or pledged to the payment of the principal of premiums, if any, and interest on bonds.

Other Financing Mechanisms There are a number of financial assistance programs that can be used in the revitalization of the West Bank Urban Renewal District in addition to Tax Increment Financing. Financing strategies for addressing urban renewal needs identified in this Plan will likely include combining various funding sources. For example, a local special improvement district might be used in combination with a Montana Board of Investment Intercap loan to match federal or state dollars. The following is a summary of programs available to fund urban renewal projects

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Transportation Infrastructure This section describes funds and funding sources that are available to finance urban renewal transportation related projects. These funding methods, such as local option taxes, improvement districts and other types of bonds, enable local citizens to participate in funding projects. In general, however, the ability to use additional property tax levies to fund urban renewal is governed by Montana Statute under 15-10- 402 MCA that limits taxes to1996 levels.

A. Bridge and Road Mills (Property Taxes) Montana law provides for cities (7-14-4101, MCA) to manage transportation infrastructure. Counties are specifically responsible for all the bridges in a county, including those within cities and towns, except those managed by the Montana Department of Transportation. Municipalities may establish a city road fund under 7- 14-4113 MCA.

B. Transportation Improvement Authority Established under 7-14-1001, MCA, the purpose of a transportation improvement authority is to blend the interests of local, state, and federal governments with the interests of the general public and the business community to build, modify, or improve transportation facilities and systems within its jurisdiction. A county and a municipality within a county may, by joint resolution, create a transportation improvement authority. The Authority may enter into contracts and accept local, state, federal and private funds to undertake transportation projects.

C. Community Transportation Enhancement Program Under 23 USC 133 (d) (2) (Federal Code) 10 percent of the Surface Transportation Program monies are awarded to each state for transportation enhancements. Montana is unique in that enhancements are made available to communities under the Community Transportation Enhancement Program (CTEP) administered by the Montana Department of Transportation. The MDT distributes these funds for all counties and cities that are 1st, 2nd, and 3rd class cities, and tribal governments. Local governments are responsible for providing the required 13 percent of project costs as non-federal match for their transportation enhancement projects.

In order to receive funding, transportation enhancement projects must be included in the local Transportation Improvement Program (TIP) and the Statewide Transportation Improvement Program. Eligible CTEP categories include:  Pedestrian and bicycle facilities  Historic preservation

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 Acquisition of scenic easements and historic or scenic sites  Archaeological planning and research  Mitigation of water pollution due to highway runoff or reduce vehicle-caused  Wildlife mortality while maintaining habitat connectivity  Scenic or historic highway programs including provisions of tourist and welcome center facilities  Landscaping and other scenic beautification  Preservation of abandoned railway corridors (including the conversion and use for bicycle or pedestrian trails)  Rehabilitation and operation of historic transportation buildings, structures or facilities (including railroads)  Control and removal of outdoor advertising  Establishment of transportation museums  Provisions of safety and educational activities for pedestrians and bicyclists

Projects addressing these categories and that are linked to the transportation system by proximity, function or impact, and where required, meet the "historic" criteria, may be eligible for enhancement funding. For example, where an historic bridge must be replaced because of structural deficiencies, enhancement funds might be used to preserve the original bridge as part of an interpretive trail.

D. State Fuel Tax Under 15-70-101, MCA, Montana assesses a tax of $.27 per gallon on gasoline and diesel fuel used for transportation purposes. Each incorporated city and town receives a portion of the total tax funds allocated to cities and towns based on:

1) The ratio of the population within each city and town to the total population in all cities and towns in the State; 2) The ratio of the street mileage within each city and town to the total street mileage in all incorporated cities and towns in the State. The street mileage is exclusive of the Interstate, National Highway, and Primary Systems.

All fuel tax funds allocated to city governments must be used for the construction, reconstruction, maintenance, and repair of rural roads or city streets and alleys. Priorities for the use of these funds are established by the cities receiving them.

Debt Financing – All Types of Projects Cities can make use of various kinds of debt financing to fund urban renewal projects. These include general obligation bonds, special improvement district bonds and

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revenue bonds as well as Tax Increment Financing Bonds. Debt financing enables local governments to finance major infrastructure projects using future revenue from special assessments, user fees, and other forms of revenue. Under 7-7-4101, MCA, a city or town council has power to incur indebtedness by borrowing money, issuing bonds, issuing notes, entering into leases, entering into lease-purchase agreements, or entering into installment purchase contracts for the following purposes: (1) acquiring land for and designing and erecting public buildings; (2) acquiring land for and designing and constructing sewers, sewage treatment and disposal plants, waterworks, reservoirs, reservoir sites, and lighting plants; (3) supplying the city or town with water by contract and the construction or purchase of canals or ditches and water rights for supplying the city or town with water; (4) designing and constructing bridges, docks, wharves, breakwaters, piers, jetties, and moles; (5) acquiring, opening, or widening any street and improving the street by constructing, reconstructing, and repairing pavement, gutters, curbs, and vehicle parking strips and to pay all or any portion of the cost relating to the project; (6) purchasing or leasing fire apparatus, street and other equipment, and personal property, including without limitation, vehicles, telephone systems, and photocopy and office equipment, including computer hardware and software; (7) building, purchasing, designing, constructing, and maintaining devices intended to protect the safety of the public from open ditches carrying irrigation or other water; (8) funding outstanding warrants and maturing bonds; and (9) repaying tax protests lost by the city, town, or other municipal corporation.

The local government incurs various administrative costs in conjunction with issuing bonds. These costs include the retention of legal counsel and financial consultants, the establishment of reserve funds and the preparation of the prospectus and various required documents. These bonds provide tax-free interest earnings to purchasers and are therefore subject to detailed scrutiny under both state and federal law. The citations in the Montana Code are listed below, for each type of bond described.

A. Special Improvement Districts Under 7-12-4101, MCA, cities and towns can create special improvement districts for a number of activities including:  The acquisition, construction or reconstruction of public streets and roads  The acquisition, construction or reconstruction of sidewalks, culverts, bridges, gutters, curbs, steps and parks including the planting of trees

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 The construction or reconstruction of sewers, ditches, drains, conduits, and channels for sanitary or drainage purposes, with outlets, cesspools, manholes, catch basins, flush tanks, septic tanks, connecting sewers, ditches, drains, conduits, channels, and other appurtenances  The construction of sewer and water systems including fire hydrants  The acquisition and improvement of land to be designated as public park or open-space land  The conversion of overhead utilities to underground locations in accordance with 69-4-311 through 69-4-314, MCA  The purchase, installation, maintenance, and management of alternative energy production facilities

B. General Obligation Bonds General obligation bonds are backed by the full faith and credit of the city and must be approved by the voters in an election. General obligation bonds are generally payable from ad valorem taxes (based on the value of property) and expressed in mills. General obligation bonds are attractive to bond buyers because they have voter approval and are not as vulnerable to fluctuations in revenue. Cities are assigned a bond debt limit based on a percentage of taxable valuation. General obligation bonds must fall within this limit.

C . Revenue Bonds Under 7-7-4401, MCA, a city or town may issue revenue bonds to finance any project or activity authorized

Railroad Crossing Related Programs A. STPRP - Rail/Highway Crossing Protective Devices Program The purpose of the Federal Rail/Highway Crossing – Protective Devices Program is to identify high hazard rail crossing sites and install new rail crossing signals. MDT's Rail - Highway Safety manager is responsible for surveying, identifying and prioritizing those railroad crossings that require new protective devices or upgrading of existing devices. The funds are distributed on a statewide basis determined by a priority list ranked by a hazard index. The Federal/State ratio is 90% Federal and 10% State.

B. STPRR - Rail/Highway Crossing Elimination of Hazard Program The purpose of the Federal Rail/Highway Crossing – Elimination of Hazard Program is to identify high hazard rail crossing sites and construct new rail/highway grade crossings. The program also uses funds to rehabilitate existing grade separations.

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Grade separation projects are funded with 90% Federal funds and 10% State funds. Since funding for this program is limited, STPRR funds are often used in combination with other Federal funding sources to fund costly grade separation projects.

Eligible expenditures include the separation or protection at grade crossings, reconstruction of existing crossings and relocation of highways to eliminate crossings.

Projects for this program are selected by identifying those sites where only a grade separation will eliminate an identified hazard or where an existing grade separation exists but needs rehabilitation or replacement.

Funding for Public Improvements (Sewer, Water, Roads, Community Facilities, Parks) A. Treasure State Endowment Program ~ Montana Department of Commerce The Montana Treasure State Endowment Program (TSEP) is a state-funded program, authorized under 90-6-701 through 710, MCA, and is administered by the Montana Department of Commerce (MDOC). It is designed to assist local governments in financing capital improvements to sewer and water facilities. Funds are derived from the Montana coal severance tax and made available to local governments as matching grants, loans and grant/loan combinations. TSEP also provides matching grants of up to $15,000 to local governments for preliminary engineering study costs.

TSEP funds may not be used for annual operation and maintenance; the purchase of non- permanent furnishings; or for refinancing existing debt, except when required in conjunction with the financing of a new TSEP project. Grant requests cannot exceed $500,000 and the local government must typically provide a dollar for dollar match that can include other grant funds. Matching funds can be public or private funds provided by a TSEP applicant to directly support the cost of eligible project activities. There are a number of ways in which local governments can provide matching funds for bridge projects. Eligible types of matching funds include:  local general funds or other cash;  proceeds from the sale of general obligation, revenue, special assessment or other bonds;  entitlement or formula-based federal or state funds such as federal highway funds or payments in lieu of taxes;  loan or grant funds from a state or federal program (including TSEP loans);  funds expended for engineering studies, reports, and plans, or other reasonable expenses expended for the preparation of the application, directly related to the proposed project during the period 24 months prior to the TSEP application deadline;

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 funds expended after the TSEP application deadline, but before being approved by the Legislature, for project management, final engineering design, and other reasonable expenses necessary to prepare the project as proposed in the TSEP application for the construction phase;  the value of land or materials provided by the applicant, if appraised within a two-year period preceding the application deadline. The appraisal must be:  an impartially written statement that adequately describes the land or materials, and states an opinion of defined value as of a specific date;  supported by an analysis of relevant market information; and  prepared by a qualified appraiser independent from the applicant.  the value of labor performed by the applicant’s employees on the proposed project, after the TSEP project has been approved for funding and a TSEP contract has been signed, as long as the employee is paid at his or her standard hourly rate of pay and the time worked is adequately documented; and  the value of machinery used in the process of constructing the project that is owned (or leased) and operated by the applicant. The value of the use of the machinery will be determined using the Federal Emergency Management Agency (FEMA) equipment rate schedules.

B. The Montana Intercap Program ~ Montana Board of Investments The INTERCAP Program is a low cost, variable-rate program that lends money to Montana local governments, state agencies and the university system for the purpose of financing or refinancing the acquisition and installation of equipment or personal and real property and infrastructure improvements. The Board of Investments issues tax- exempt bonds and loans the proceeds to eligible borrowers. In addition to long-term financing, INTERCAP is an excellent source for interim financing.

Funding is always available with no specific cycle. Allocations of $200,000 and under are considered and approved by the Board of Investments staff. Allocations in excess of $200,000 are considered and approved by the Board. Funds are released on an on-going basis as the project is completed. The program provides loans at a variable rate plus a one percent loan origination fee on loans over one year and for a term of 5 or 10 years depending on the borrower's legal authority. Short-term loans of less than a year are also available. Interest and principal payments are due bi-annually (February 15 and August 15 of each year). Loans may be pre-paid without penalty with 30 days notice. Types of financing include installment purchase loans, general fund loans, general obligation bonds, revenue bonds and special improvement district and rural improvement district bonds. Gas tax revenues may not be used to service debt. Projects that will use rural improvement district payments to cover the annual debt are

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limited to a total loan of $300,000. Intercap funds may be used in association with other grant and loan programs as well as local sources.

C. Community Development Block Grant (CDBG)- US Department of Urban Development (HUD)

This program provides annual grants on a formula basis to entitled cities and counties to develop viable urban communities by providing decent housing and a suitable living environment, and by expanding economic opportunities, principally for low- and moderate-income persons. The program is authorized under Title 1 of the Housing and Community Development Act of 1974, Public Law 93-383, as amended; 42 U.S.C.-5301 et seq.

HUD awards grants to entitlement community grantees to carry out a wide range of community development activities directed toward revitalizing neighborhoods, economic development, and providing improved community facilities and services.

Entitlement communities develop their own programs and funding priorities. However, grantees must give maximum feasible priority to activities which benefit low- and moderate-income persons. A grantee may also carry out activities which aid in the prevention or elimination of slums or blight. Additionally, grantees may fund activities when the grantee certifies that the activities meet other community development needs having a particular urgency because existing conditions pose a serious and immediate threat to the health or welfare of the community where other financial resources are not available to meet such needs. CDBG funds may not be used for activities which do not meet these broad national objectives.

Eligible grantees are as follows:

 principal cities of Metropolitan Statistical Areas (MSAs);  other metropolitan cities with populations of at least 50,000; and  qualified urban counties with populations of at least 200,000 (excluding the population of entitled cities) are entitled to receive annual grants.

HUD determines the amount of each entitlement grant by a statutory dual formula which uses several objective measures of community needs, including the extent of poverty, population, housing overcrowding, age of housing and population growth lag in relationship to other metropolitan areas. CDBG funds may be used for activities which include, but are not limited to:

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 acquisition of real property;  relocation and demolition;  rehabilitation of residential and non-residential structures;  construction of public facilities and improvements, such as water and sewer facilities, streets, neighborhood centers, and the conversion of school buildings for eligible purposes;  public services, within certain limits;  activities relating to energy conservation and renewable energy resources; and  provision of assistance to profit-motivated businesses to carry out economic development and job creation/retention activities.

D. Public Works Program ~ Economic Development Administration The Economic Development Administration (EDA) is an agency within the U.S. Department of Commerce. The purpose of the Public Works Program is to assist communities with the funding of public works and development facilities that contribute to the creation or retention of private sector jobs and to the alleviation of unemployment and underemployment. Such assistance is designed to help communities achieve lasting improvement by stabilizing and diversifying local economies, and improving local living conditions and the economic environment of the area.

Grants are awarded up to a participation level of 80 percent but the average EDA grant covers approximately 50 percent of project costs. Acceptable sources of match include cash, local general obligation or revenue bonds; Community Development Block Grants, TSEP grants and loans, entitlement funds, Rural Development loans; and other public and private financing, including donations.

Projects must result in private sector job and business development in order to be considered for funding. Eligible applicants under this program include any state, or political subdivision thereof, Indian tribe (and other U.S. political entities), private or public nonprofit organization or association representing any redevelopment area if the project is within an EDA-designated redevelopment area. Redevelopment areas, other than those designated under the Public Works Impact Program must have a current EDA-approved Overall Economic Development Program (OEDP) in place.

E. Water, Wastewater and Solid Waste Action Coordinating Team In 1982, a group of professionals from state, federal, and non-profit organizations that finance, regulate, or provide technical assistance for community water and wastewater systems, decided to start meeting in order to coordinate and enhance their efforts. This group calls itself the "Water, Wastewater and Solid Waste Action Coordinating Team"

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or W2ASACT for short. W2ASACT meets several times a year to find ways to improve our state's environmental infrastructure. All of the programs represented in W2ASACT have different missions and meet unique needs. However, it has been the common elements shared by the funding programs that have been the driving force of W2 SACT. These programs provide money (grants or loans), take applications from communities to fund their projects, and administer those monies once the project is funded. While W2ASACT cannot change all of the state or federal requirements, it can identify unnecessary duplication of requirements that make compliance difficult for communities.

Voluntary Programs In some cases, homeowner associations, business groups or other property owners may finance urban renewal projects voluntary basis.

West Bank Urban Renewal Program Evaluation The West Bank Urban Renewal Plan will be evaluated on a yearly basis in conjunction with the preparation of the annual report. Measures that may be used in evaluating program success include:

 Increases in the property tax base  Creation of jobs within the Urban Renewal District  Elimination of blighted conditions  The extent of redevelopment in previously contaminated areas  Use of the public spaces within the District including the West Bank Park and the riverfront trail system

Success will also be measured in terms of the overall guiding principles noted in Chapter 1 of this plan and restated here:

 The plan for the West Bank Urban Renewal District should foster economic development and job creation.  The improvement of the overall environmental quality of the West Bank Urban Renewal District is critical.  Protection and enhancement of West Bank Park and the Missouri River, which form the eastern boundary of the District are key in the redevelopment of the West Bank Urban Renewal District.

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The plan provides flexibility to accommodate a variety of approaches. However, changes over time may necessitate more formal amendments to the Urban Renewal Plan. The Urban Renewal Plan may be modified by ordinance under 7-15-4221, MCA.

Figure 10. Urban Renewal Area from the north

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67 Agenda #5.

68 APPENDIX B – WEST BANK URBAN RENEWAL DISTRICT PARCEL DATA Agenda #5.

OWNER OF RECORD BUSINESS NAME/OCCUPANCY STREET GRH GLENWOOD LLC ETAL WALGREENS (under construction) 3RD ST NW CITY OF GREAT FALLS SACAJAWIA ISLAND GRH GLENWOOD LLC ETAL WALGREENS (under construction) GRH GLENWOOD LLC ETAL WALGREENS (under construction) 3RD ST NW ROGERS JEWELERS INC ETAL ROGERS JEWELERS 3RD ST NW BYPASS PROPERTY LLC (Outside City Limits) BREEN OIL COMPANY 3RD ST NW HENDERSON MICHAEL S & WILLIAM L JOHNSON DISTRIBUTING 3RD ST NW HENDERSON MICHAEL S & WILLIAM L 3RD ST NW HENDERSON MICHAEL S ETAL 3RD ST NW HENDERSON MICHAEL S ETAL 3RD ST NW HILL RUSSELL & CATHERINE B 3RD ST NW STOCKMAN BANK OF MONTANA STOCKMAN BANK OF MONTANA 3RD ST NW KRALICH JOANNE MONTANA SPECIALTY MILLS LLC MONTANA SPECIALTY MILLS LLC 3RD ST NW JOHNSON MOLLIE L ETAL J BAR T INC 3RD ST NW CASCADE COUNTY CASCADE COUNTY SHOP COMPLEX 3RD ST NW MONTANA COWBOYS ASSOCIATION INC COWBOY'S BAR 3RD ST NW MONTANA COWBOYS ASSN INC COWBOY'S BAR 3RD ST NW MONTANA COWBOYS ASSOCIATION COWBOY'S BAR 4TH AVE NW TALCOTT JAMES CONSTRUCTION INC 1ST AVE NW FALLCAMP LLC 3RD ST NW MITCHELL DEVELOPMENT & INVESTMENTS LLC CENTRAL AVE W FALLCAMP LLC FALLCAMP LLC 3RD ST NW TALCOTT PROPERTIES LLC 3RD ST NW TALCOTT JAMES CONSTRUCTION CO BURLINGTON NORTHERN SANTA FE RAILROAD CO RIGHT OF WAY BAY DR CITY OF GREAT FALLS (West Bank Park - South End) WEST BANK PARK PARK-WEST BANK SCHUMAN HENRY & ALICE 3RD ST NW HIGH PLAINS PIZZA INC 3RD ST NW MYHRE ADVERTISING CENTRAL AVE W MONTANA DEPT OF TRANSPORTATION RIGHT OF WAY BUMBARGER FRED & PATRICIA S PAYLESS FURNITURE CENTRAL AVE W HOLMAN GRAIN (Brick Building) BAY DR JORGENSEN ROBERT F JR 2ND AVE SW HOLMAN GRAIN COMPANY HOLMAN GRAIN COMPANY BAY DR OKSNESS BERT 2ND AVE SW BN LEASING CORPORATION ROBERTSON ENTERPRISES LLC BAY DR MARTIN JOHN L 2ND AVE SW CITY OF GREAT FALLS (BN Park) BN PARK PARK-GARDEN HOME BN LEASING CORPORATION BAY DR

BURLINGTON NORTHERN SANTA FE RAILROAD CO

MONTANA ELECTRIC COOPERATIVES ASSO ETAL MONTANA ELECTRIC COOPERATIVES ASSOC. BAY DR BURLINGTON NORTHERN SANTA FE RAILROAD CO BAY DR BN LEASING CORPORATION BN LEASING CORPORATION MILES CT BN LEASING CORPORATION BN LEASING CORPORATION BN LEASING CORPORATION CITY OF GREAT FALLS (West Bank Park - North End) WEST BANK PARK 69 Agenda #5.

APPENDIX C. PUBLIC UTILITIES IN THE WEST BANK URBAN RENEWAL DISTRICT

70 Agenda #5.

APPENDIX D ALLOWABLE USES OF TAX INCREMENT FUNDS (Note: This is under revision by the 2007 Montana Legislature)

7-15-4288. Costs that may be paid by tax increment financing. The tax increments may be used by the municipality to pay the following costs of or incurred in connection with an urban renewal project, industrial infrastructure development project, technology infrastructure development project, or aerospace transportation and technology infrastructure development project: (1) land acquisition; (2) demolition and removal of structures; (3) relocation of occupants; (4) the acquisition, construction, and improvement of infrastructure, industrial infrastructure, technology infrastructure, or aerospace transportation and technology infrastructure that includes streets, roads, curbs, gutters, sidewalks, pedestrian malls, alleys, parking lots and offstreet parking facilities, sewers, sewer lines, sewage treatment facilities, storm sewers, waterlines, waterways, water treatment facilities, natural gas lines, electrical lines, telecommunications lines, rail lines, rail spurs, bridges, spaceports for reusable launch vehicles with associated runways and launch, recovery, fuel manufacturing, and cargo holding facilities, publicly owned buildings, and any public improvements authorized by parts 41 through 45 of chapter 12, parts 42 and 43 of chapter 13, and part 47 of chapter 14 and items of personal property to be used in connection with improvements for which the foregoing costs may be incurred; (5) costs incurred in connection with the redevelopment activities allowed under 7-15-4233; (6) acquisition of infrastructure-deficient areas or portions of areas; (7) administrative costs associated with the management of the urban renewal area, industrial district, technology district, or aerospace transportation and technology district; (8) assemblage of land for development or redevelopment by private enterprise or public agencies, including sale, initial leasing, or retention by the municipality itself at its fair value; (9) the compilation and analysis of pertinent information required to adequately determine the infrastructure needs of secondary, value-adding industries in the industrial district, the needs of a technology infrastructure development project in the technology district, or the needs of an aerospace transportation and technology infrastructure development project in the aerospace transportation and technology district; (10) the connection of the urban renewal area, industrial district, technology district, or aerospace transportation and technology district to existing infrastructure outside the district; (11) the provision of direct assistance, through industrial infrastructure development projects, technology development projects, or aerospace transportation and technology infrastructure development projects, to secondary, value-adding industries to assist in meeting their infrastructure and land needs within the district; and (12) the acquisition, construction, or improvement of facilities or equipment for reducing, preventing, abating, or eliminating pollution.

71 Agenda #6.

Meeting Date: August 24, 2022 CITY OF GREAT FALLS PLANNING ADVISORY BOARD / ZONING COMMISSION AGENDA REPORT

Item: Federal Fiscal Year (FFY) 2022 Unified Planning Work Program (UPWP)

Initiated By: Great Falls Transportation Planning Process

Presented By: Andrew Finch, Senior Planner

Action Requested: Approve the FFY2022 Unified Planning Work Program

Suggested Motion:

1. Board Member moves:

“I move that the Planning Advisory Board (approve/deny) the FFY2022 Unified Planning Work Program, inclusive of any minor changes necessary to respond to Federal agency comments.”

2. Chairman calls for a second, public comment, board discussion, and calls for the vote.

Background: Annually, the Great Falls Planning & Community Development Department, as the host agency for the Great Falls Metropolitan Planning Organization (MPO), prepares a Unified Planning Work Program (UPWP), as required by federal transportation planning requirements. The UPWP outlines the various work activities to be performed during the next federal fiscal year by the Department and the Great Falls Transit District, as well as projected staff hours and funding levels and sources.

Covering the period from October 1 to September 30, the UPWP includes activities to be conducted primarily by staff members from the Planning & Community Development Department, as well as consulting or contracted activities and activities funded with Federal Transit Administration pass- through funds to the Great Falls Transit District. The Program will use Federal Highway Administration (FHWA) Planning (PL) funds, Federal Transit Administration (FTA) Section 5303 funds, and local/other funds.

Overall, the proposed Work Program is a continuation of current and past year Programs, with the addition of a major update to the Long Range Transportation Plan that is scheduled to begin in mid- FFY2022 and continue into the next fiscal year.

Although the major work activities have not been modified significantly, there have been changes to staffing and modifications to staff hours dedicated to the various Work Elements. Adjustments will likely be made in future Work Programs as further refinements to job duties in the Department occur and as new hirings continue.

Page 1 of 2 72 Agenda #6.

Concurrences: The Technical Advisory Committee (TAC) for transportation planning has approved the UPWP, and has recommended approval by the Policy Coordinating Committee (PCC) for transportation planning.

Fiscal Impact: The UPWP must be annually prepared and approved, in order to receive Federal reimbursement for eligible expenses and staff hours. Without an approved UPWP, neither the Planning & Community Development Department nor the Great Falls Transit District would be eligible for Federal transportation planning funds.

Staff Recommendation: Staff recommends that the Planning Advisory Board approve the FFY2022 Unified Planning Work Program, inclusive of any minor changes necessary to respond to Federal agency comments.

Alternatives: The Planning Advisory Board could elect to not approve the FFY2022 Unified Planning Work Program, or elect to take no action. Ultimate decision-making authority over the UPWP lies with the Policy Coordinating Committee, but approval by the Planning Advisory Board is desirable, as it demonstrates local support of the Work Program.

Attachments/Exhibits: FFY2022 Unified Planning Work Program

Page 2 of 2 73 Agenda #6.

UNIFIED PLANNING WORK PROGRAM

GREAT FALLS, MONTANA

FEDERAL FISCAL YEAR 2022

(October 1, 2021 - September 30, 2022)

Prepared by:

CITY OF GREAT FALLS

GREAT FALLS PLANNING & COMMUNITY DEVELOPMENT DEPARTMENT

for the Great Falls Metropolitan Planning Organization

in cooperation with

MONTANA DEPARTMENT OF TRANSPORTATION

FEDERAL HIGHWAY ADMINISTRATION

and

FEDERAL TRANSIT ADMINISTRATION

This report was funded in part through a grant from the Federal Highway Administration, U.S. Department of Transportation. The views and opinions expressed herein do not necessarily state or reflect those of the U. S. Department of Transportation.

APPROVALS: MPO () FHWA () TAC () MDT () PCC () FTA ()

74 Agenda #6.

INTRODUCTION

Purpose

The purpose of the Unified Planning Work Program (UPWP) is to present in a unified and composite form, a detailed explanation of the planning activities anticipated to be undertaken within the Great Falls area during the program year of the UPWP. The document identifies agency responsibilities, level and source of funding and the interrelationship of planning activities. Some of the intended accomplishments are as follows:

-- Provide state and federal agencies information and a means to evaluate accomplishment of program requirements by program participants.

-- Serve as a management tool for more effective allocation of staff and the available financial resources in fulfilling assigned tasks.

-- Minimize or eliminate duplication among program participants and to encourage pooling of separate resources in a coordinated and mutually supportive manner.

-- Provide program participants with a written basis to better understand the scope and extent of planning activities and available services.

Participants

The planning process in the Great Falls area involves a collaboration of program participants from the local, state and federal levels. Those program participants involved in the development and implementation of the UPWP vary periodically depending upon funding sources and planning activities undertaken during the program year of the UPWP.

UPWP Development

This document represents the Unified Planning Work Program for the Great Falls area as prepared by the Great Falls Planning Advisory Board and reviewed and approved by the various local, state and federal program participants. The final UPWP must receive approval by the Policy Coordinating Committee, the Technical Advisory Committee and the Great Falls Planning Advisory Board. Prior to transmittal of the final document to the various federal program participants, the UPWP receives approval by the Montana Department of Transportation.

Timeframe

This UPWP covers planning activities for the twelve-month period commencing October 1, 2021.

Program Objectives and Accomplishments

The UPWP should not only identify all work activities and programs associated with conducting an ongoing planning process, but should also identify work activities essential to addressing or considering general or overall concerns which have been identified in carrying out the process.

There are a host of transportation-related concerns and issues which have arisen since the 3-C transportation planning process was first established in the mid-1960s. These have included:

-- Organizational Structure and Accountability. The interactions and lines of authority among the transportation planning committees, and other governing and advisory bodies in the community are not always clear in the minds of some of the transportation planning process participants. Efforts need to be continued to make the process participants more aware of the proper interaction among agencies.

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75 Agenda #6.

-- Excessive Time Required to Implement Improvements. There appears to be, at times, a significant time delay between plan development and plan implementation. The traditional planning- implementation process has shown, on occasion, to be unable to respond quickly to meet immediate transportation needs. While it should be recognized that this may not be the fault of the planning process per se and that excessive delay may be due to regulations, funding, work priorities, etc., project development timeframes should continually be reviewed for opportunities for streamlining for timelier implementation of projects and programs.

-- Insufficient Funding for Local Transportation Needs. The present funding levels for transportation improvements, uncertainty of future funding and reduction or elimination of funding programs have made it difficult for the Great Falls area to maintain the existing transportation system. Although Federal-Aid Transportation Funds are still available for the area, there is a need to identify or create new sources of revenue.

In that the UPWP identifies those work activities and programs to be conducted during the forthcoming fiscal year, it would be the appropriate document in which to include the efforts to address or consider these identified concerns. The following is a brief discussion of objectives, hopeful of being accomplished during the current and future program years to address some of the identified transportation-related concerns as well as other general planning process concerns. These are general objectives, which will be addressed through the specific objectives identified for each work element discussed in the document.

Additionally, there were a number of accomplishments over the past fiscal years, which warrant recognition. These are items which not only addressed identified concerns but also issues, projects and programs which were conducted as continuing elements of the overall planning process. Again, these are general accomplishments. Specific accomplishments and previous work are discussed in the document for each work element.

Objectives

-- Continue to advise and educate the community, as well as the participants in the local 3-C transportation planning process, of the proper interaction among agencies involved in the process in an effort to maintain good lines of communication among the agencies and to increase the accountability and credibility of the process.

-- Continue to advise and keep the community as well as the participants of the local 3-C transportation planning process aware and informed of anticipated projects and programs scheduled for implementation as well as progress being made on the implementation of projects in an effort to expedite the project implementation process and to maintain good public relations and public involvement in the transportation planning decision making process.

-- Continue to keep the Great Falls area eligible for receipt of federal and state transportation construction funds for implementation of the Great Falls Area Long Range Transportation Plan and federal transit funds for implementation of the Great Falls Transit Development Program.

Accomplishments

-- The transportation planning process maintained its eligibility for continued receipt of FHWA transportation construction funds and FTA capital and operating assistance funds.

-- Continued to be involved in and assist in the ongoing physical development and redevelopment of property and improvements in the Great Falls area, primarily in processing subdivisions, annexations, re-zonings and responding to public inquiries.

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76 Agenda #6.

Consistency with State Implementation Plan

The UPWP is consistent with and conforms to the State Implementation Plan (SIP). Previous activities associated with addressing the initial carbon monoxide problem on 10th Avenue South and the preparation of a revision to the State Implementation Plan were conducted as work elements under previous UPWPs. Activities related to air quality conformance will generally be addressed under Work Element 100 Transportation Program Administration & Participation, while work related to implementation of projects that benefit air quality, such as those funded through CMAQ Program, will be performed under Work Element 300 Transportation Plan Implementation and Project Development. The UPWP also contains a work activity, titled Work Element 302 Transportation Plans, Analyses, Assessments & Consistency Determinations, which deals with procedures to assure consistency/conformity between air quality and transportation planning plans and programs, as well as other environmental factors such as noise, water quality, air, aesthetics, etc.

Public Involvement and Comment

The review, consideration and approval of this document followed the MPO’s adopted Public Participation Plan. Ample opportunity for public comment was provided. No comments were received.

Planning Priorities facing the Area

The various Work Elements individually discuss priorities for the upcoming Fiscal Year, and identifies strategies for addressing them. However, in general, priorities include:  identify funding sources for priority projects, within the appropriate fiscal year  maintain communication lines between implementing agencies, including but not limited to the City of Great Falls, Great Falls Transit District, MDT-Great Falls District, and Cascade County  continually monitor status and progress of projects to ensure timely implementation  push local and state agencies to construct more bicycle and pedestrian facilities  maintain up-to-date products, including the LRTP, TIP and UPWP

Additional issues, concerns and priorities relating to transportation planning for the Great Falls Metropolitan Area are contained in the previous paragraphs, as well as listed individually in the Work Elements that follow.

Fixing America's Surface Transportation Act or "FAST Act" On December 4, 2015, President Obama signed the Fixing America’s Surface Transportation (FAST) Act (Pub. L. No. 114-94) into law—the first federal law in over a decade to provide long-term funding certainty for surface transportation infrastructure planning and investment. The FAST Act maintains Federal focus on safety, keeps intact the established structure of the various highway-related programs, continues efforts to streamline project delivery and provides a dedicated source of federal dollars for freight projects.

Generally, Fast Act continues the provisions in MAP-21, the previous Federal Transportation Act, with a few additions. Among other requirements, the Act:  Adds intercity transportation to planning requirements  Adds to the consultation list, officials involved with planning for tourism and natural disasters, as well as public ports  To the scope of long range transportation plans, expands the list to include improving transportation system resiliency and reliability; reducing (or mitigating) the stormwater impacts of surface transportation; and enhancing travel and tourism  Expands the focus on the resiliency of the transportation system as well as activities to reduce storm water runoff from transportation infrastructure. In addition, it newly requires strategies to reduce the vulnerability of existing transportation infrastructure to natural disasters

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77 Agenda #6.

MAP-21 and FAST Act Implementation  Transition to Performance Based Planning and Programming. The development and implementation of a performance management approach to transportation planning and programming includes the development and use of transportation performance measures, target setting, performance reporting, and transportation investments that support the achievement of performance targets. These components will ensure the achievement of transportation system performance outcomes.  Use of scenario planning by MPOs as part of developing metropolitan transportation plans. MPOs may use scenario planning to improve decision making by providing information to the public and to decision makers on the performance outcome tradeoffs of various investment decisions when developing the metropolitan transportation plan.

The MPO coordinated with MDT in the development of performance measures and target setting, and will partner in performance targets reporting. With the adoption of performance measures, as shown in the 2018 LRTP Update and through action by TAC and PCC, focus will shift to meeting targets and reporting.

As Congress is considering a new Transportation Act, any new or changed transportation planning provisions will be appropriately addressed under this UPWP.

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78 Agenda #6.

Work Program and Budget (October 1, 2021 - September 30, 2022)

This section includes a detailed description of each work element included in the Unified Planning Work Program. Additionally, a summary of funding sources and funding disbursements for each work element is included in Table 1 - Funding Summary. A cash flow diagram (Figure 1), a funding proration schedule (Table 2), and a cost allocation plan conclude the section.

Abbreviations used in this section and throughout the document: FHWA – Federal Highway Administration FTA – Federal Transit Administration GFTD – Great Falls Transit District LRTP – Long Range Transportation Plan MDT – Montana Department of Transportation MPO – Metropolitan Planning Organization PCD – Great Falls Planning & Community Development Department (staffing the MPO) PCC – Policy Coordinating Committee TAC – Technical Advisory Committee TIP – Transportation Improvement Plan

The following is a list of work elements included in this program.

A - Program Support and Administration

100 Transportation Program Administration and Participation 101 Service

B - General Development/Comprehensive Planning

200 Planning Information and Database Program 202 Land Use and Development Review 203 Growth Policy Development and Implementation 204 Historic Preservation 205 Code Enforcement

C - Long Range Transportation Planning

300 Transportation Plan Implementation and Project Development 301 Transportation System Data Base Program 302 Transportation Plans, Analyses, Assessments and Studies

D - Transit Transportation Planning

400 Transit Program Administration 401 Transit Service Planning and Assessment 402 Transit Service Enhancement 403 Transit Americans with Disabilities Act (ADA) Implementation

E - Transportation Improvement Program

600 Transportation Improvement Program (TIP)

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79 Agenda #6.

A - PROGRAM SUPPORT AND ADMINISTRATION

WORK ELEMENT:

100 Transportation Program Administration and Participation

Objectives: 1) To provide for general administration of transportation work elements and activities 2) To provide work plans as required for individual UPWP work elements 3) To provide periodic audits of annual work programs 4) To maintain an organized reference source 5) To maintain a staff with the technical adequacy necessary to conduct a well-rounded 3-C transportation planning process 6) To develop a document that describes annual planning activities 7) To address air quality issues, as required 8) To address transportation related historic preservation issues, as needed 9) To provide and maintain a mechanism for public involvement and participation at all levels of the planning process 10) To comply with Title VI provisions of the Civil Rights Act of 1964, regarding equal program participation/benefits 11) To comply with Federal regulations regarding Disadvantaged Business Enterprises 12) To comply with the FTA policy regarding private enterprise participation in the Federal Transit Program

Selected Previous Work: 1) References were obtained and a library maintained to keep staff current on latest planning ideas and techniques. 2) Members of the staff attended seminars, webinars and planning conferences and maintained professional registrations 3) Work programs were annually prepared. Quarterly work element status reports were prepared 4) Traditional media and social media were used to advise the community of various planning projects 5) New outreach methods were developed to address COVID-based meeting limitations, including virtual meetings and expanded digital outreach methods 6) Direct mailings and personal contacts with various special interest groups and individuals were also used to encourage participation 7) A Public Participation Plan was maintained, as well as a comprehensive Title VI Compliance Program 8) An Annual Listing of Obligated Projects for the Great Falls Metropolitan Area was made available on the City of Great Falls’ website

Methodology: This work element includes staff attendance at PCC, TAC, MDT Quarterly, Great Falls Planning Advisory Board and other meetings, preparation of material for such meetings (including reports, recommendations, minutes and agendas), review and comment on planning reports, studies and other related documents, and conduct of other miscellaneous business which does not relate specifically to other work elements.

General administration of transportation work elements and activities is conducted under this work element.

Staff will continue to acquire publications and other reference materials to maintain the planning library. The files, library, and other documentation procedures already established will be continued.

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80 Agenda #6.

100 Transportation Program Administration and Participation (Continued)

Workshops, conferences, webinars and seminars will be attended, as available and as judged useful to the overall transportation planning process. Authorization for travel and/or registration for workshops/seminars will be coordinated with MDT. Attendance at national AMPO conference or similar MPO training will be pursued. It is anticipated that such attendance will not exceed $2,000.

A Unified Planning Work Program which includes FHWA and FTA funded work activities will be developed for the upcoming fiscal year. An Indirect Cost Allocation Plan will be developed in support of the work program. Revisions to the current year UPWP and preparation of quarterly status reports will also be included in this work element.

A process review in accordance with joint FHWA/FTA Regulations will be conducted and documented in support of the eligibility statement provided in the Transportation Improvement Program.

FTA Section 5303 funds passed through to the Great Falls Transit District for transit planning activities will be administered under this work element, including entering into an agreement for pass through of funds to the District.

Air quality/clean air planning activities will be conducted under this work element.

General requirements of the various Federal Transportation funding acts will be addressed per guidelines and regulations issued by FHWA/FTA, including MAP-21 and FAST Act. Changing federal guidelines, programs and funding mechanisms will be monitored, reviewed and integrated into the MPO’s programs. Specifically, through coordination with MDT, requirements for planning performance measures will be implemented as guidance is provided by FHWA, and as methodology is prepared by MDT – within deadlines set in the Federal Register and other FHWA guidance. Having adopted MDT’s performance measures, an agreement is in place to memorialize this relationship. The MPO has been provided an opportunity to review and concur on any changes to state targets, and continues to be afforded such opportunities.

The MPO’s public involvement process will be followed. The Public Participation Plan will be updated, as appropriate.

The policies and procedures outlined in the MPO’s Title VI Compliance Program will be considered in all aspects of the local planning process. Updated Title VI documentation for FTA, Section 5303 Technical and Planning Assistance Funds will be submitted as required.

An Annual Listing of Obligated Projects for the Great Falls Metropolitan Area will be prepared and made available on the MPO’s webpage, hosted by the City of Great Falls.

Demographic releases from the 2020 Census will be reviewed for accuracy, and the need for challenges will be weighed.

The policy and procedures approved by the MPO regarding Private Enterprise Participation in the development of plans and programs funded by the Federal Transit Administration will be followed, and liaison with the Transit District Board will continue.

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100 Transportation Program Administration and Participation (Continued)

Staffing: Administrative Technical Clerical

(Weeks) 13 22 7

Funding: PL State FTA Local Total

PCD (FY21) 110,822 17,178 0 5,000 128,000 PCD (FY22) 92,641 14,359 0 5,000 112,000

Functional Agency Responsibility: PCD will be responsible for all work.

Product: 1) An administered transportation planning program 2) A well rounded, technically proficient staff 3) A document which describes all planning-related programs to be undertaken in the Great Falls area by the MPO 4) A current air quality planning program 5) A current Public Participation Plan 6) A community which is well informed and actively involved in the local planning process 7) A planning process which is in compliance with applicable Federal regulations and policies regarding equal opportunity provisions for program participation, provisions for Disadvantaged Business Enterprises, and provisions for private enterprise participation 8) An accurate 2020 Census

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A - PROGRAM SUPPORT AND ADMINISTRATION

101 Service

Objectives: 1) To maintain an organized system of information and services exchange with various governmental agencies 2) To provide information and guidance to the public regarding various aspects of the planning process

Previous Work: Informational flows were maintained between agencies involved in the planning process, both in the form of request information and courtesy information.

Numerous requests for information and assistance by both the public and governmental agencies were accommodated. In the transportation planning section, this consisted of requests for information on various proposed transportation improvements, programs and projects, as well as traffic counts, population estimates and projections, accident data, etc. In the current planning section, this consisted primarily of providing information and guidance to the public and other governmental agencies and officials regarding annexations, subdivisions, zonings, conditional uses, etc., with the majority of interactions under this Work Element focusing upon how these elements impact the transportation system, and vice versa.

Methodology: Continue to maintain the system of information and services exchange which has been established and continue to inform and assist the public on planning activities and issues, as appropriate. Service activities will also include providing technical input into special studies.

Staffing: Administrative Technical Clerical

(Weeks) 1 31 1

Funding: PL State FTA Local Total

PCD (FY21) 57,143 8,857 0 5,000 71,000 PCD (FY22) 51,948 8,052 0 5,000 65,000

Functional Agency Responsibility: PCD will be responsible for all work.

Product: An established system for the exchange of information and service with governmental agencies and for the provision of information and assistance to the public.

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83 Agenda #6.

B - GENERAL DEVELOPMENT/COMPREHENSIVE PLANNING

WORK ELEMENT:

200 Planning Information and Database Program

Objective: 1) To establish and maintain a system of digital planning information and data 2) To assist in the maintenance of Great Falls area digital base maps and products 3) To facilitate the use and dissemination of Census and other demographic data

Previous Work: Creation and maintenance of a computer accessible database and digital map available for planning purposes. The data is extensively used for day-to-day informational needs and for long-range planning needs. Staff continues to gather and update available information and data and use a number of City, County, State and Federal files for all aspects of the local planning process. Staff also reviews and, if warranted, challenges local Census population estimates.

Methodology: The base data files and maps, including annexations, subdivisions and zone changes, will continue to be updated. It will continue to serve as the base data file for the addition of other planning information and data, as needed and as available. Further refinements to the database will continue as necessary.

Direct financial assistance to the City of Great Falls will also be provided under this work element for the maintenance of Great Falls area digital base maps and products.

2010 U.S. Census data and intercensal estimates for Great Falls and Cascade County, as well as new 2020 Census data, will continue to be assembled. Websites containing this data will be monitored for updates and efficient use of the websites and knowledge of the data they contain will be an important factor in analyzing and disseminating the data. Great Falls area and Cascade County demographic data will be compiled for dissemination.

Census data and other available data sets have been integrated into the area’s GIS, to allow for geographic interpretation and display of area demographics, including population by age, national origin, income, poverty levels, etc. Also, a separate GIS database has been made available to allow for efficient and accurate update of information. Data will be tied to GIS for easy access and interpretation.

Database & Mapping Support by GIS Department (direct): $15,000

Staffing: Administrative Technical Clerical

(Weeks) 0 6.2 1

Funding: PL State FTA Local Total

PCD (FY21) 12,987 2,013 0 15,000 30,000 PCD (FY22) 17,316 2,684 0 5,000 25,000

Functional Agency Responsibility: PCD is responsible for all work.

Products: 1) A system of digital land use information and data 2) Accessibility to Great Falls area digital base maps and products 3) Immediate access to and interpretation of Census data

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B - GENERAL DEVELOPMENT/ COMPREHENSIVE PLANNING

WORK ELEMENT:

202 Land Use and Development Review

Objectives: To solicit and coordinate comments from appropriate review officials concerning applications for rezoning, subdivision, annexation, conditional uses, and planned unit developments and to prepare recommendations regarding same for submittal to the Planning Advisory Board/Zoning Commission (PAB) and City Commission. Also, to review current and proposed land uses and development proposals for compliance with the provisions of the Land Development Code. To process appeals before the Board of Appeals, and variance requests before the Board of Adjustment. To ensure that all development project and permit requests comply with design standards for public utilities, storm water quantity, and transportation infrastructure. To coordinate with Public Works’ inspectors and management staff to ensure that all future dedicated public infrastructure meets standards of quality prior to acceptance by the City. Finally, to oversee the process for other local land development code issues.

Previous Work: Staff reviewed and took projects through the approval process before the PAB and City Commission – including petitions for rezoning, subdivision, annexation, conditional uses, and planned unit developments. Projects and permits were reviewed for compliance with Land Development Code requirements as well as City infrastructure design standards. Project proposals and requests were processed through the Board of Adjustment. Staff served as project managers for most new development projects, ranging from building permits to major subdivisions. Finally, construction projects were inspected for Land Development Code compliance. Projects involving construction and public dedication of infrastructure to the City were additionally inspected to determine suitability for acceptance.

Methodology: 1) Review requests for rezoning, subdivision, annexation, conditional uses, variances, appeals, planned unit developments and project designs. 2) Provide analysis to the PAB and the City Commission regarding compliance of certain development applications with the Growth Policy and other policy plans. 3) Review development projects and, where required, process approvals or denials through the appropriate advisory, regulatory, and policy bodies. 4) Review proposed and current land uses and project proposals for compliance with the Land Development Code, current Development Standards, and other relevant code and guidance documents. Make formal determination of zoning classification of parcel, categorization of land use, and land use conformance with same. Also make determinations of non-conforming use status and sign code, landscaping, transportation, lighting and parking compliance, etc. Finally, act as project managers for all larger development proposals, applications and permits. 5) Formal Land Development Code interpretations will be issued, as well as zoning determinations and other regulatory actions relating to the Land Development Code. 6) Review and process requests for tax abatement. 7) Process requests for use of Tax Increment Financing District funds. 8) Review and process requests for street and alley right of way vacations 9) Develop and oversee amendments to the City’s Land Development Code to respond to issues that arise in the development review process. 10) Review permits and land use application requests to ensure that proposed public utilities, storm water infrastructure, and transportation infrastructure comply with City Design Standards. 11) Review on-going construction projects to verify compliance with Land Development Code as well as the suitability of installed public infrastructure to be accepted into the City’s maintained system. 11

85 Agenda #6.

Staffing: Administrative Technical Clerical

(Weeks) 24 188 12

Funding: PL FTA Local Total

PCD (FY21) 0 0 530,000 530,000 PCD (FY22) 0 0 495,000 495,000

Functional Agency Responsibility: PCD will be responsible for all work.

Products: 1) An ongoing process of rezoning, subdivision, annexation, conditional uses and planned unit development reviews and recommendations 2) Development and land use patterns that conform to the City Code and Growth Policy 3) Infrastructure added to the City’s maintained system that conforms to all standards

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86 Agenda #6.

B - GENERAL DEVELOPMENT/COMPREHENSIVE PLANNING

WORK ELEMENT:

203 Growth Policy Development and Implementation

Objectives: 1) Implement components of and address activities recommended in the Great Falls Growth Policy and other long-range planning documents 2) Ensure long-range planning documents are relevant and up-to-date 3) Prepare sub-area plans as appropriate

Selected Previous Work: 1) The Missouri River Urban Corridor Plan was completed and has been monitored for implementation 2) Staff coordinated completion of various amendments to the City’s Land Development Code 3) Staff coordinated development of a Medical District Master Plan and implements projects in compliance with Plan 4) Staff coordinated the development of the West Bank Urban Renewal Plan and the Downtown Urban Renewal Plan, and amendments to same 5) Staff coordinated creation of Tax Increment Financing Districts and evaluates and processes TIF applications, reviewing for compliance with Plans as well as eligibility 6) Staff was involved in efforts to assess uses of lands located at both ends of Malmstrom Air Force Base’s inactive runway, and continues to participate in such activities 7) Prepared and oversaw adoption of Downtown Plan for Great Falls 8) Prepared a major update to the Growth Policy 9) Assisted in the preparation and adoption of a Wayfinding Plan

Methodology: 1) Staff will administer portions of the City’s Land Development Code. 2) As time and resources allow, staff will review and revise policies, codes, ordinances, resolutions, regulations, etc. and will implement the various actions, strategies and components recommended in the Growth Policy. 3) As time and resources allow, components and recommendations of the Missouri River Urban Corridor Plan, Medical District Master Plan and Downtown Plan will be implemented and advanced in cooperation with other government entities, area property owners and stakeholders. 4) The Land Development Code will be reviewed and code amendments will be processed when appropriate. 5) The Growth Policy will be monitored for effectiveness and relevancy, and various elements moved forward for implementation. 6) The Growth Policy will be updated in FY2022. 7) Urban renewal or development plans will be prepared for newly proposed tax increment financing districts. 8) Tax Increment Financing project applications will be reviewed and processed under this work element. 9) Coordination and cooperation with Malmstrom Air Force Base may be expanded to include joint planning efforts for the Base. 10) A wayfinding sign plan will be implemented as funding allows.

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87 Agenda #6.

203 Growth Policy Development and Implementation (continued)

Staffing: Administrative Technical Clerical

(Weeks) 4.4 26 1

Funding: PL TIF Local Total

PCD (FY21) 0 0 75,000 75,000 PCD (FY22) 0 0 65,000 65,000

Functional Agency Responsibility: PCD is responsible for all work.

Products: 1) Application of the Land Development Code 2) A Missouri River Urban Corridor Plan and implementation of same 3) A Medical District Master Plan and implementation of same 4) A Downtown Master Plan and implementation of same 5) A current Growth Policy and implementation of same 6) A wayfinding plan and implementation of same

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88 Agenda #6.

B - GENERAL DEVELOPMENT/COMPREHENSIVE PLANNING

WORK ELEMENT:

204 Historic Preservation

Objective: 1) To coordinate and administer the Certified Local Government (CLG) preservation program 2) To serve as staff for the Historic Preservation Advisory Commission (HPAC) 3) To integrate historic preservation goals with the community’s planning process 4) To increase the effectiveness of local government in addressing historic preservation issues and needs 5) To increase the community’s awareness and understanding of historic preservation values 6) To act as a preservation information center, providing technical assistance, direction, literature on historic preservation tax credits, National Register, Federal regulations and Secretary of the Interior Standards for Rehabilitation 7) To maintain a system for the survey and inventory of historic properties and make the information available to the public 8) To participate in the National Register nomination process 9) To consult with the City, County, State and Federal agencies on all applications, environmental assessments, and other such documents pertaining to historic properties 10) To participate in, promote and conduct public informational, educational and interpretive programs pertaining to historic preservation and to celebrate successes

Previous Work: The Historic Preservation Officer (HPO) continues to build the collection of architectural and historical inventory files for all reviewed properties within Cascade County and a library of technical rehabilitation/restoration information.

Numerous projects were reviewed for Community Development and telecommunication facilities as part of the Section 106 Review process with comments forwarded to the State Historic Preservation Office.

Supported community-led preservation initiatives including the rehabilitation and National Historic Register listing of the Monarch Depot, restoration of the Great Falls Civic Center façade, exploration of adaptive reuse for the Rainbow Dam Powerhouse, and preservation of the 10th St. Bridge and its imminent conversion into a pedestrian walkway.

The HPO continues to provide preservation education and program overviews by request, and press coverage of the HPAC, administration and activities has been ample and positive.

Participated in planning for downtown revitalization – Downtown Master Plan, Downtown Action Alliance, and Downtown Partnership.

Generally supported and acted as staff for Great Falls/Cascade County Historic Preservation Advisory Board.

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89 Agenda #6.

204 Historic Preservation (continued)

Methodology: All administrative functions necessary in support of preservation planning activities will be performed. Quarterly progress and expenditure reports will be prepared and transmitted to the State Historic Preservation Office to maintain federal funding support.

The HPO will participate in SHPO training programs in order to improve skills. Grant administration functions will be performed.

The policies and procedures governing the CLG preservation program pursuant to Sec. 101 (c) of the National Preservation Act (NHPA) of 1966, as amended (16USC470) will guide all aspects of the local preservation planning process.

Similarly, the policies and procedures Codified by the City of Great Falls and related interagency agreements will also guide the functions of the Historic Preservation program.

Staffing: Administrative Technical Clerical

Local (Weeks) 0 52 0

Funding: PL SHPO Local Total

PCD (FY21) 0 6,000 94,000 100,000 PCD (FY22) 0 6,000 79,000 85,000

Functional Agency Responsibility: PCD is responsible for all work

Products: 1) An administered preservation planning program 2) Established plans and goals 3) Survey information and technical references, which are well organized and useful 4) An active preservation education program 5) An established system for the review of properties and the exchange of information and services with governmental agencies regarding preservation projects 6) Awareness of preservation planning issues and needs in the Great Falls area 7) Established incentive programs for revitalization of downtown historic buildings

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90 Agenda #6.

B - GENERAL DEVELOPMENT/COMPREHENSIVE PLANNING

WORK ELEMENT:

205 Code Enforcement

Objectives: To respond to citizen complaints and enforce certain provisions of the Official Code of the City of Great Falls, and implement aesthetic, health, sanitation, land use and other provisions of the Great Falls Growth Policy and other land use plans.

Previous Work: Ongoing enforcement, property cleanup and abatement of public nuisances.

Methodology: 1) Receive complaints, perform formal, documented property investigations, and work with property owners to formulate methodology to bring properties into compliance. 2) In extreme situations, issue citations and follow through with legal enforcement, if necessary. 3) As necessary, coordinate with other City and County Departments, including City- County Health, City of Great Falls Police, City of Great Falls Fire/Rescue, Cascade County Planning, City of Great Falls Legal staff, City of Great Falls Public Works, Animal Control and City of Great Falls Building Division to resolve Code violations. 4) Prepare for court appearances, including assembling documentation and background on case; testify in court, if necessary. 5) Follow through with final property cleanup or abatement as necessary to ensure it is brought into compliance.

Staffing: Administrative Technical Clerical

(Weeks) 0 52 0

Funding: PL FTA Local Total

PCD (FY21) 0 0 90,000 90,000 PCD (FY22) 0 0 79,000 79,000

Functional Agency Responsibility: PCD will be responsible for all work.

Product: Code compliant properties within the City limits.

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91 Agenda #6.

C - LONG RANGE TRANSPORTATION PLANNING

WORK ELEMENT:

300 Transportation Plan Implementation and Project Development

Objective: To implement components of and address activities associated with the Great Falls Area Transportation Plan.

Recent Previous Work: A number of diverse activities have been conducted under this work element during past fiscal years. Several of these activities are described as follow:

Staff processed the permanent closure and vacation of several streets in conjunction with local studies and development plans. Staff assisted consulting firms retained to conduct various studies and assisted in the implementation of projects and programs recommended in the studies. Staff prepared and conducted trip generation analyses and anticipated traffic impacts of proposed development plans and subdivisions. A number of public hearings and informational meetings were attended regarding preliminary engineering and design of projects scheduled in the Great Falls Transportation Improvement Program. Staff assisted in the coordination and preparation of plans and funding proposals for bicycle and pedestrian projects and worked to implement bike and pedestrian improvements recommended in the Transportation Plan.

Methodology: Steps will continue to be taken to implement elements, projects, programs, etc. of the Great Falls Area Long Range Transportation Plan and other transportation plans and studies, including general or non-transportation plans with transportation elements, chapters or sections. Staff will continue to assist consulting firms retained to conduct special studies and analyses of projects proposed in the Transportation Plan. Trip generation and traffic impacts of proposed commercial, residential and industrial development plans and programs will be conducted, as necessary.

Coordination and planning efforts will continue for the River's Edge Trail and other bicycle and shared-use transportation facilities, including on-street facilities. Assistance for planning and development of shared-use non-motorized facilities that are a functional component of the transportation network will also be contracted from the City of Great Falls under this work element for approximately $50,700.

Staff will provide assistance and support for selecting and moving roadway, bike facility, and pedestrian facility projects forward, as an important and necessary component of implementing the LRTP. Staff participation during project selection and development will be focused upon ensuring the components of the LRTP are adhered to and its stated goals and objectives considered. Transportation programs and issues identified during updates of the Great Falls Growth Policy and its Transportation Element, as well as other local area Plans, will be conducted under this work element.

Transportation Plan issues, activities, strategies and programs will be conducted, as time and staff resources allow, including traffic calming, neighborhood traffic planning, road design standards, roadway landscaping policies, transportation demand management, traffic information brochures, preservation of transportation corridors, future right-of-way needs, etc. System ADA/accessibility will be investigated, and priorities established for upgrades.

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92 Agenda #6.

300 Transportation Plan Implementation and Project Development (continued)

Any necessary Air Quality analyses for new CMAQ projects will be coordinated under this Work Element.

Transportation Alternatives (TA) and other grants and non-traditional funding sources for projects will be pursued under this Work Element. Staff may also act as local project administrator and contact for grants and TA projects needing local coordination under this work element.

Fox Farm Rd. Corridor Study (consultant): $50,000

Staffing: Administrative Technical Clerical

(Weeks) 6 29 2

Funding: PL State FTA Local Total

PCD (FY21) 173,160 26,840 0 0 200,000 PCD (FY22) 156,450 24,250 0 0 180,700

Functional Agency Responsibility: PCD will be responsible for all work.

Product: Transportation projects and programs consistent with the Great Falls Area Long Range Transportation Plan.

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93 Agenda #6.

C - LONG RANGE TRANSPORTATION PLANNING

WORK ELEMENT:

301 Transportation System Data Base Program

Objective: To maintain a coordinated program of transportation system data and information for the Great Falls area.

Previous Work: A formal traffic count program was established for the Great Falls area, cooperatively establishing count locations under the responsibility of the City of Great Falls/Great Falls MPO and MDT. This count program is documented in a technical memorandum, titled "Great Falls Urban Transportation Study Area, Traffic Count Program".

Methodology: Traffic volumes in the Great Falls area will be counted by the MDT and PCD in accordance with the traffic count program. Tabulated traffic data for the Great Falls area will be submitted to MDT by April 1.

Traffic counts performed by The MPO will be provided by the Great Falls Public Works Department during FY22 for a labor plus equipment charge of approximately $8,000. As well, additional bike/ped counts may be initiated if staff time allows.

As time and resources allow, various data will be gathered and updated for the major street network including roadway width, speed and delay, turning movements, number of lanes, pavement condition, signalized intersections, etc. This activity will primarily update the information presented and illustrated in the Existing Conditions chapter of the Great Falls Area Long Range Transportation Plan. Further use and development of web-based transportation information will be investigated. As time and resources allow, the traffic count program and count locations will be reviewed, in coordination with the City Public Works Department and MDT.

Other relevant transportation data will be gathered/compiled under this activity. Performance standards may be considered for development, based upon Federal and State guidance from MAP-21 and FAST Act, or the most recent Federal Transportation Act.

A baseline Sidewalk Inventory will be kept up-to-date for the area, including ADA ramps.

Traffic County Program: $8,000

Staffing: Administrative Technical Clerical

(Weeks) 0 2 0

Funding: PL State FTA Local Total

PCD (FY21) 12,121 1,879 0 0 14,000 PCD (FY22) 10,390 1,610 0 0 12,000

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94 Agenda #6.

301 Transportation System Data Base Program (continued)

Functional Agency Responsibility: PCD and MDT will be responsible for counts as specified in the Great Falls Traffic Count Program. PCD, MDT and the City of Great Falls will be responsible for development of other data, as appropriate.

Products:

1) An updated Traffic Count Program 2) Updated data base information 3) Provision of data on the internet 4) Pavement Condition Index

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95 Agenda #6.

C - LONG RANGE TRANSPORTATION PLANNING

WORK ELEMENT:

302 Transportation Plans, Analyses, Assessments and Studies

Objectives: 1) To conduct periodic reviews of the Transportation Plan, including analysis of projected traffic volumes, land use, accidents and funding data. 2) To maintain accurate estimates of socioeconomic indicators. 3) To address FAST-ACT planning requirements in the Transportation Planning Area, as appropriate. 4) To support MDT traffic modeling in the transportation planning process

Previous Work: In cooperation with the MDT, staff has prepared updates of the Long Range Transportation Plan. Additionally, socioeconomic estimates were monitored for population, dwelling units and employment for the Transportation Planning Area. Completed a minor update to the Long Range Transportation Plan in FY2018, as well as an Amendment in FY2019.

Methodology: The coordination of air quality and transportation plans and programs will continue to the extent appropriate and in accordance with applicable requirements. Other environmental factors such as noise, water quality, aesthetics, etc., will be considered to the extent appropriate during major transportation planning decisions in accordance with applicable requirements.

Context-sensitive, smart growth and land use/transportation planning opportunities in the Great Falls area will be investigated to the extent appropriate.

Sub-area transportation studies will be performed as necessary to supplement the LRTP. Review and reporting of Transportation Planning Performance Measures will occur under this work element.

An update to the LRTP Update will begin, and continue into the following fiscal year. Depending upon the scope of the Update, $250,000 or slightly higher may be expended. During FY2022, up to $100,000 may be expended.

Completion of the North Great Falls Sub-Area Transportation Study may occur at the end of FY2021 or the beginning of FY2022.

Staffing: Administrative Technical Clerical

(Weeks) 4 11 2

Funding: PL State FTA Local Total

PCD (FY20) 89,964 15,036 0 10,000 115,000 PCD (FY22) 112,554 17,446 0 0 140,000

Functional Agency Responsibilities: PCD will be responsible for all work.

Products: 1) A compliant Long Range Transportation Plan (LRTP) 2) A North Great Falls Sub-Area Transportation Study

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96 Agenda #6.

D - TRANSIT TRANSPORTATION PLANNING

WORK ELEMENT:

400 Transit Program Administration

Objectives: To provide program support, general administration, grant administration, and training in support of transit planning activities.

Previous Work (FY21): Stayed abreast of federal/state requirements concerning grants, funding and planning. Improved 5303 grant reporting. Performed research for planning resources. Attended general transit-related meetings. Improved data-keeping methodologies. Performed general grant oversight. Updated the UPWP work elements for FY22. Updated the Coordinated Transportation Plan. Worked on Transit Asset Management Plan. Continued activities undertaken in FY2020.

Methodology (FY22): All administrative functions necessary in support of transit planning activities will be performed. Quarterly progress and expenditure reports will be prepared and transmitted to the Planning Advisory Board to maintain federal funding support. Furthermore, this UPWP will be revised when deemed necessary. The FY2022 UPWP for transit planning activities will also be developed under this line item. Maintain coordination with 5310 providers and as the lead agency, develop and apply for capital grants for new vehicles as decided by the Great Falls Transportation Advisory Committee. The Coordinated Transportation Plan will be updated via the Great Falls Transportation Advisory Committee. Continuation of activities undertaken in FY2021.

The General Manager will participate in recognized and approved training programs in order to improve skills and capabilities. General Manager will assimilate regulations and codes to keep abreast of federal, state, and local requirements as they relate to the transit planning process. This will include review of FAST Act provisions and development of strategies to comply with same. To maintain interaction and feedback with appropriate citizen and professional groups, the General Manager will participate with the TAC, PCC, GFTAC, citizen advisory boards, and others as needed. Grant administration functions will be performed.

Staffing: The staff hours for this project will be charged to this program with monthly verifiable time sheets for actual measurable work completed.

General Manager: 560 hrs. = 14 weeks

Funding: PL FTA Local Total

GFTD (FY21) 0 15,244 3,811 19,055 GFTD (FY22) 0 15,244 3,811 19,055

Functional Agency Responsibilities: The Great Falls Transit District will be responsible for all work.

Products: 1) An ongoing administrative program to carry out the transit planning function, including quarterly progress and expenditure reports 2) FFY2023 UPWP work elements 3) An updated Coordinated Public Transportation Plan 4) Transit Asset Management Plan. 5) Federal Safety Plan.

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97 Agenda #6.

D - TRANSIT TRANSPORTATION PLANNING

WORK ELEMENT:

401 Transit Service Planning and Assessment

Objectives: To provide the citizens of Great Falls with acceptable transportation alternatives to single-occupancy private vehicles in the future. To continually assess transportation needs in both developed and developing areas. To provide intermodal options (e.g., bike and bus, park and ride, etc.). To afford viable public transportation during times of constrained financial resources.

Previous Work (FY21): Maintained performance-indicator reports. Considered required service modifications for a more effective system. Assessed the effects of the downtown transfer center; researched possible improvements for the transfer center and for the transfer center’s general management. Performed general planning for system improvements including route changes, schedule changes, and locations for amenities such as bus shelters. Performed general transit planning. Continued activities undertaken in FY2020.

Methodology (FY22): Continuation of activities undertaken in FY2021 including research to determine if there is the possibility additional service hours or routes could be added to the system in the future. Develop a plan for integrating items from the Transit Development Plan, when funding allows for expansion. Study where fixed bus stops should be, should we move to a fixed stop system. Continuation of activities undertaken in FY2021.

Staffing: The staff hours for this project will be charged to this program with monthly verifiable time sheets for actual measurable work completed.

Transit Staff: 1644 hrs. = 41 weeks

Funding: PL FTA Local Total

GFTD (FY21) 0 35,518 8,879 44,397 GFTD (FY22) 0 35,518 8,879 44,397

Functional Agency Responsibilities: The Great Falls Transit District will be responsible for all work.

Products: 1) Monthly summary showing financial position and ridership summary by month 2) On-going ridership tracking by route 3) Grant applications and revisions 4) System assessment documentation (e.g., survey results, locational needs, etc.) 5) Update of Transfer Center - interior repairs and painting 6) Current National Transit Database passenger count

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98 Agenda #6.

D - TRANSIT TRANSPORTATION PLANNING

WORK ELEMENT:

402 Transit Service Enhancement

Objectives: To improve service and ridership in existing transit system.

Previous Work (FY21): Made beneficial changes to GFTD Internet site. Revised historical ridership data and current data for increased accuracy in analysis. Prepared National Transit Database reports. Provided monthly ridership analysis. Gathered information from public for planning purposes. Identified groups in the community for stakeholder outreach efforts. Continued activities undertaken in FY20.

Methodology (FY22): Continue to identify groups in the community for outreach efforts to increase ridership. Assess public reaction to routes, schedules, public outreach tools, and alterations of such. Complete National Transit Database reports. Upkeep monthly ridership figures and summary figures for effective decision-making. Innovate in establishing new reports and figures to better shed light on important decisions for Great Falls Transit. Assess overall system functioning. Develop a more robust Internet site. Produce general flyers and signs for maximum public awareness of system and system changes. Continuation of activities undertaken in FY21.

Staffing: The staff hours for this project will be charged to this program with monthly verifiable time sheets for actual measurable work completed.

Transit Staff: 485 hrs. = 12 weeks

Funding: PL FTA Local Total

GFTD (FY21) 0 10,712 2,678 13,390 GFTD (FY22) 0 10,712 2,678 13,390

Functional Agency Responsibilities: The Great Falls Transit District will be responsible for all work.

Products: 1) Transit ridership by month (i.e., including inter-modal) 2) Performance indicators by month 3) Ridership comparisons by month 4) Educational outreach methods and products

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99 Agenda #6.

D - TRANSIT TRANSPORTATION PLANNING

WORK ELEMENT:

403 Transit ADA Implementation

Objectives: To ensure optimal use of Great Falls Transit District funds in meeting elderly and disabled transportation needs for both specialized and fixed-route transportation in accordance with Federal Americans with Disabilities Act (ADA) regulations.

Previous Work (FY21): Continued activities undertaken in FY20. Maintained an open communication for planning purposes with elderly and disabled people in the community through the ADA Advisory Committee. Identified means to address transit and special transportation needs including efforts to assess both short and long-term paratransit needs of the community and efforts to evaluate organizational and fiscal means to address transportation needs. Closely monitored ACCESS service. Revised and improved ACCESS data reporting. Explored the possibility of expanding coordinated transportation with other agencies and 5310 providers in the Great Falls area.

Methodology (FY22): Continuation of activities undertaken in FY21. Plan additional sensitivity training for GFTD operators and other employees. Continue general administration of ACCESS program as well as records maintenance for future decision making. Research alternative means of serving seniors and people with disabilities through cost-effective programs. Study the consequences for seniors, people with disabilities, and for the ACCESS program of implementing fixed stops on the fixed route system. Localize and plan for wheelchair pads at necessary locations. Devise plans to attract seniors and passengers with disabilities to GFTD’s fixed routes.

Staffing: The staff hours for this project will be charged to this program with monthly verifiable time sheets for actual measurable work completed.

ADA Coordinator: 1708 hrs. = 43 weeks Transit Staff: 1340 hrs. = 34 weeks 3048 hrs. = 77 weeks

Funding: PL FTA Local Total

GFTD (FY21) 0 38,728 9,682 48,410 GFTD (FY22) 0 38,728 9,682 48,410

Functional Agency Responsibilities: The Great Falls Transit District will be responsible for all work.

Products: 1) Elderly and disabled transportation service database 2) Elderly and disabled transportation service certification 3) Elderly and disabled transportation service contract maintenance 4) Elderly and disabled transportation service financial statement 5) Elderly and disabled transportation service ridership (i.e., monthly) 6) ADA Advisory Committee minutes

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100 Agenda #6.

E - TRANSPORTATION IMPROVEMENT PROGRAM

WORK ELEMENT:

600 Transportation Improvement Program (TIP)

Objective: To maintain a Transportation Improvement Program (TIP), which reflects the current implementation status of the transportation plan and transit development program, and conforms to Federal TIP guidance.

Previous Work: The Great Falls TIP was first adopted by the PCC during FY 1976, and has been updated on a regular basis, as needed. As well, the Administrative Modification and Amendment processes were used for minor changes. A full update to a new format was completed in FFY2021.

Methodology: The TIP will be updated and/or amended. During the program period of the adopted TIP, revisions will be conducted as needed in response to changes in the transportation plan, project priorities, funding, etc., and in response to requests to include and modify transit funded programs and projects.

Modifications necessary for compliance with Federal TIP regulations will be made.

Air quality conformity determinations of the TIP will be conducted as appropriate and in accordance with the Clean Air Act Amendments of 1990 and the latest transportation funding act. Interagency consultation procedures will be followed, as appropriate.

Staffing: Administrative Technical Clerical

(Weeks) 0 2 0

Funding: PL State FTA Local Total

PCD (FY21) 4,675 725 0 0 5,400 PCD (FY22) 4,329 671 0 0 5,000

Functional Agency Responsibility: PCD will be responsible for all work.

Product: A current, compliant Transportation Improvement Program.

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101 Agenda #6.

TABLE 1 FEDERAL FISCAL YEAR 2022 FUNDING SUMMARY (OCTOBER 1, 2021 - SEPTEMBER 30, 2022)

FFY 2021 FFY 2021 FFY 2022 FFY 2022 FFY 2022 SOURCES DISBURSEMENT ESTIMATED ESTIMATED ESTIMATED ESTIMATED ESTIMATED WORK ELEMENT ACTUAL COSTS DIRECT SALARY TOTAL PL State FTA SHPO LOCAL PCD MDT GFTD COSTS* COSTS COSTS COSTS 5303

41.11.00-PROGRAM SUPPORT & ADMIN 100 PROG ADMIN & PARTICIPATION 86500 128000 2000 110000 112000 92641 14359 0 0 5000 112000 0 0 101 SERVICE 40200 71000 0 65000 65000 51948 8052 0 0 5000 65000 0 0

41.12.00-GEN DEV & COMP PLANNING 200 INFO & DATABASE PROGRAM 58500 45000 15000 10000 25000 17316 2684 0 0 5000 25000 0 0 202 LAND USE & DEVELOPMENT REVIEW 558000 530000 0 495000 495000 0 0 0 0 495000 495000 0 0 203 GROWTH POLICY DEV & IMP 78000 75000 0 65000 65000 0 0 0 0 65000 65000 0 0 204 HISTORIC PRESERVATION 20500 100000 0 85000 85000 0 0 0 6000 79000 85000 0 0 205 CODE ENFORCEMENT 78000 90000 0 79000 79000 0 0 0 0 79000 79000 0 0

41.13.01-LR TRANS PLNNG-SYS LEVEL 300 TRANS PLAN IMPL & PROJ DEV 89000 200000 100700 80000 180700 156450 24250 0 0 0 180700 0 0 301 TRANS SYSTEM DATA BASE PROG 8800 14000 8000 4000 12000 10390 1610 0 0 0 12000 0 0 302 TRANS PLANS, ANALYSIS, ETC 106000 115000 100000 40000 140000 121212 18788 0 0 0 140000 0 0

41.14.00-SHORT RANGE TRANS PLNNG 400 TRANSIT PROGRAM ADMIN. 17400 19055 0 19055 19055 0 0 15244 0 3811 0 0 19055 401 TRANSIT SERV PLNNG & ASSESS 43500 44397 0 44397 44397 0 0 35518 0 8879 0 0 44397 402 TRANSIT SERVICE ENHANCEMENT 5500 13390 0 13390 13390 0 0 10712 0 2678 0 0 13390 403 TRANSIT ADA IMPLEMENTATION 45000 48410 0 48410 48410 0 0 38728 0 9682 0 0 48410

41.15.00-TRANS IMPROVEMENT PROG. 600 TRANS IMPROVEMENT PROGRAM 10000 5400 0 5000 5000 4329 671 0 0 0 5000 0 0

TOTALS ------1388952 454285 70415 100202 6000 758050 1263700 0 125252

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102 Agenda #6.

(OCTOBER 1, 2020 - SEPTEMBER 30, 2021)

FUNDING PRORATION PERCENTAGES WORK ELEMENT RECIPIENT TOTALS PL* FTA SHPO LOCAL 5303

100 PROG ADMINISTRATION & PARTICIPATION Planning 95% 0% 0% 5% 100%

101 SERVICE Planning 92% 0% 0% 8% 100%

200 INFO. & DATABASE PROGRAM Planning 50% 0% 0% 50% 100%

204 HISTORIC PRESERVATION Planning 0% 0% 7% 93% 100%

400 TRANSIT PROGRAM ADMINISTRATION GFTD 0% 80% 0% 20% 100%

401 TRANSIT SERV PLNG & ASSESSMENT GFTD 0% 80% 0% 20% 100%

402 TRANSIT SERVICE ENHANCEMENT GFTD 0% 80% 0% 20% 100%

403 TRANSIT ADA IMPLEMENTATION GFTD 0% 80% 0% 20% 100%

* Includes State match of 13.42%. Note: As this table applies to salary reimbursement rates, this table does not include direct-reimbursement items such as consultant services

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103 Agenda #6. CASH FLOW DIAGRAM FEDERAL UNIFIED PLANNING WORK PROGRAM HIGHWAY

ADMINISTRATION GREAT FALLS, MONTANA PL

FEDERAL SEC. 5303 TRANSIT ADMINISTRATION MONTANA SALARIES, OVERHEAD, DEPARTMENT OF DIRECT EXPENSES, TRANSPORTATION CONSULTANTS, ETC. PL MATCH SEC.

STATE OF 5303 PL & UNCOMMITTED MONTANA MATCH PL & MATCH

GREAT FALLS CITY OF SALARIES, OVERHEAD, GREAT FALLS PLANNING DIRECT EXPENSES, & COMMUNITY CONSULTANTS, ETC.

DEV. DEPT.

OTHER FUNDING SOURCES

MISCELLANEOUS SEC. 5303 SERVICE CHARGES (PASS - THROUGH)

GREAT FALLS SALARIES, OVERHEAD, TRANSIT DISTRICT DIRECT EXPENSES, BOARD CONSULTANTS, ETC.

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104 Agenda #6.

COST ALLOCATION PLAN

INTRODUCTION:

The following plan provides a procedure for preparing reimbursement requisitions for PL-104 (f), FTA Section 5303 and other planning funds received by the Great Falls Planning & Community Development Department in performance of its duties as staff for the MPO.

IDENTIFICATION OF COSTS

The costs encountered in conducting this work program are delineated below by type:

Direct Indirect Fringe Benefits

Salaries Financial & HR services FICA Mileage Computer & IT costs PERS Advertising Vehicle costs Workers Compensation Travel Office Supplies Unemployment Insurance Interview & Moving Recruitment Sick Leave Printing & Publication Postage Vacation Staff Training Costs Dues & Subscriptions Paid Holidays Consultants Telephone Employee Health Insurance Other Office Equipment & Life Insurance Maintenance Rent

ALLOCATION OF COSTS

Direct costs will be charged to the work program line items to which they apply. A record of staff time and expenditures will be kept to document expenses incurred against each line item.

Based upon a recommendation by the Audit Unit of the Montana Department of Transportation, the indirect rate is based upon eligible indirect costs from the previous year. Due to inconsistent staff levels, this rate fluctuates from year-to-year. This rate is supported by an indirect cost allocation plan submitted to the Montana Department of Transportation and the Federal cognizant agency. From the calculations in the Indirect Cost Allocation Plan, a rate of 50% of direct salary expenditures for indirect costs will be used. The calculated rate will be applied to the Unified Planning Work Program fiscal year of October 1 through September 30, and is a predetermined, fixed rate that is not subject to change during the stated period.

Fringe benefits will be calculated at a rate of 84% of the direct salaries charged to each line item. This rate is supported by documentation submitted to and approved by the Montana Department of Transportation. The calculated rate will be applied to the Unified Planning Work Program fiscal year of October 1 through September 30, and is a predetermined, fixed rate that is not subject to change during the stated period.

The degree of participation by each funding agency is based on the participation percentages that have been determined for each line item. Each funding agency will provide their share of the total charges made against each line item according to the percentages indicated in the Funding Proration Table. However, approved, eligible direct line items that are chargeable to PL will be reimbursed on a 100% basis, and will not be part of the percentage calculations in the Funding Proration Table.

31 105