Franklin, Nebraska Comprehensive Plan
Adopted
Table of Contents Table of Contents
City of Franklin, Nebraska Comprehensive Plan 2019
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City of Franklin, Nebraska Comprehensive Plan 2019 PLAN PARTICIPANTS
City Council MARGARET M. SIEL - MAYOR TOM DREHR – COUNCIL PRESIDENT MARK GOEBEL KASEY LOSCHEN SANDY URBINA
City Personnel RAQUEL FELZIEN CLERK/TREASURER MICHELLE KAHRS DEPUTY CLERK BRYAN MCQUAY CITY ATTORNEY CORY DAVIS CEMETERY/PARK MIKE BOWER ELECTRIC/POWER PLANT JESSICA LEE LIBRARY DIRECTOR CALEB CHVALA POLICE CHIEF BRAD FREY POLICE OFFICER STAN MUIR SANITATION/RECYCLING OPERATOR BARRY RUBENDALL STREET SUPERINTENDENT SHANNNON CARRAHER UTILITY WORKER LAWRENCE STOVER ZONING ADMINISTRATOR
TOM PAULSEN CEMETERY BOARD CHAIRPERSON LAUREN ANDERSON COMMUNITY DEVELOPMENT AUTHORITY BOARD PRESIDENT JOAN DORN LIBRARY BOARD PRESIDENT ADAM BOETTCHER REC/BALL PARK CHAIRPERSON
Zoning Board ROGER DORN– CHAIR VERNON DUNCAN DAVE DUNCAN JERRELL GERDES DAVE PLATT
Board of Adjustment JIM URBINA RICH SIEL RICK DEAN DAVE DUNCAN RHN JACOBSEN
Planning Consultants Partial Funding By
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City of Franklin, Nebraska Comprehensive Plan 2019 Table of Contents
Chapter 1: Introduction ...... 1 Location ...... 1 Comprehensive Development Planning ...... 1 The Planning Process ...... 2 Plan Preparation ...... 2 Comprehensive Plan Components ...... 2 Jurisdictional Organization ...... 3 Chapter 2: Community Engagement ...... 5 Community Engagement ...... 5 Steering Committee Meetings ...... 5 Community Needs Assessment Survey ...... 6 Town Hall Meeting ...... 6 Goals and Policies ...... 6 Franklin Vision and the Plan ...... 7 Franklin Plan Goals and Policies ...... 7 Chapter 3: Population ...... 9 Population Profile ...... 9 Population Trends and Analysis ...... 9 Age Structure Analysis ...... 10 Median Age………………………………………………………………………………………11 Dependency Ratio………………………………………………………………………………11 Ethnicity ...... 13 Population Projections ...... 13 Trend Line Analysis ...... 15 Franklin Trend Analysis ...... 15 Summary of Population Projections ...... 15 Chapter 4: Housing Chapter ...... 17 Housing Profile ...... 17 Age of Existing Housing Stock ...... 17 Housing Characteristics ...... 17 Median Home Value ...... 18 Median Gross Rent ...... 19 Occupied Versus Vacant Housing Units—Vacancy Status ...... 19 Workforce Housing & Market Conditions ...... 19 Persons Per Household ...... 20 Substandard Housing ...... 21 Housing Goals, Objectives, and Policies ...... 22 Chapter 5: Economy and Economic Development ...... 23 Economic and Employment Profile ...... 23 Income Statistics ...... 23 Unemployment Rates ...... 24 Wages ...... 24 Commuter Trends………………………………………………………………………………..24 Industry Employment ...... 25 Economic Development ...... 26 Economic Development in Franklin ...... 27 Retention of Youth ...... 27 Retention of Local School System ...... 27 A Strong Agricultural Economy ...... 27 Entrepreneurship by Local Residents ...... 27 Supplying Basic Goods and Services Locally ...... 28 Quality Infrastructure ...... 28 Quality Housing Stock ...... 28 City of Franklin, Nebraska Comprehensive Plan 2019 v Table of Contents
Economic Development Goals and Policies ...... 28 Tools and Strategies...... 28 Environment ...... 29 Regulation ...... 29 Qualified Labor Force ...... 29 Infill and Redevelopment ...... 30 Adequate Infrastructure and Land Supply ...... 30 Economic Development Resources ...... 30 Tax Increment Financing ...... 31 Other Potential Funding Sources ...... 31 Chapter 6: Community Facilities ...... 33 Community Facilities Plan ...... 33 Recreation ...... 33 Regional Recreation ...... 33 Harlan County Lake Dam and Recreation Area ...... 34 Republican River ...... 34 Wildlife Management Areas ...... 34 Rowe Sanctuary ...... 34 Area Historical Museums ...... 34 Franklin Baseball Field ...... 35 Franklin City Park ...... 35 Franklin Golf Course ...... 35 Franklin County Fairgrounds ...... 35 Rosebowl Playhouse & Movie Theatre ...... 35 South Park RV Park & Campground ...... 36 Valley Gun Club ...... 36 Franklin Public Library ...... 36 Education ...... 36 Public Schools ...... 36 Post-Secondary Education ...... 37 Early Childhood Programs ...... 37 Communications ...... 37 Internet/World Wide Web Service Providers (ISP) ...... 37 Newspapers ...... 37 Radio Stations ...... 37 Telephone Services ...... 37 Television Stations, Cable and Satellite Services ...... 37 Fire Protection...... 38 Fire and Rescue ...... 38 Law Enforcement ...... 38 Franklin Police Department ...... 38 Public Utilities...... 38 Electricity ...... 38 Natural Gas ...... 38 Sewer Collection and Treatment...... 38 Solid Waste ...... 38 Recycling Center ...... 38 Construction and Demolition Site...... 38 Tree Dump...... 38 Water System...... 38 Health Care...... 38 Franklin County Memorial Hospital and Clinics...... 38 vi City of Franklin, Nebraska Comprehensive Plan 2019 Table of Contents
Elder Care Centers & Services...... 39 Franklin County Senior Citizens Center ...... 39 Golden Age Village...... 39 Franklin Care & Rehabilitation Center and Assisted Living Facility ...... 39 Facilities Goals and Policies ...... 39 Parks and Recreation Goals ...... 39 Educational Goals ...... 40 Public Safety Goals ...... 40 Chapter 7: Energy Element………………………………………………………………………... .41 Energy Element…………………………………………………………………………………. .41 Sustainability.…..………………………………………………………………………...... 41 Energy Infrastructure…………………………………………………………………………... .42 Energy Infrastructure and Use by Sector………………………………………………..42 Electrical Distribution………………………………………………………………………..42 Natural Gas Service………………………………………………………………………....42 Energy Use by Sector…………………………………………………………………………... .43 Residential Uses…………………………………………………………………………...... 43 Commercial Uses…………………………………………………………………………....43 Industrial Uses…………………………………………………………………………...... 43 Short-Term and Long-Term Strategies………………………………………………………. 44 Residential Strategies………………………………………………………...... 44 Commercial/Industrial Strategies………………………………………………………...... 44 Public Strategies………………………………………………………...... 45 Renewable Energy Source…………………………………………………………………… 45 Wind………………………………………………………...... 46 Solar………………………………………………………...... 46 Geothermal Energy………………………………………………………...... 46 Methane Energy………………………………………………………...... 47 State Programs………………………………………………………...... 47 C-BED Program………………………………………………………...... 47 Local Government and Renewable Energy Policies………………………………...48 Net Metering in Nebraska………………………………………………………...... 48 State Law of Solar and Wind Easements……………………………………………….48 Current Renewable Energy Programs/Funding Sources……………………………….. 48 Energy in Franklin ...... 48 Chapter 8: Land Use and Development ...... 49 Introduction ...... 49 Franklin Land Use Elements ...... 49 Existing Land Use………………………………………………………………………………....49 Existing Land Use Categories ...... 50 Existing Land Use Analysis — Corporate Limits ...... 50 Transitional Agriculture Land Use ...... 53 General Purpose ...... 53 Typical uses ...... 53 Potential issues to consider ...... 53 Buildable lot policies ...... 53 Residential densities ...... 53 Development policies to consider ...... 53 Low Density Residential Land Use…………………………………………………………... .54 General Purpose ...... 54 Typical uses ...... 54 Potential issues to consider ...... 54 Buildable lot policies ...... 54
City of Franklin, Nebraska Comprehensive Plan 2019 vii Table of Contents
Residential densities ...... 54 Development policies to consider ...... 54 Medium to High Density Residential Land Use……………………………………………..55 General Purpose ...... 55 Typical uses ...... 55 Potential issues to consider ...... 55 Buildable lot policies ...... 55 Residential densities ...... 55 Mobile Home Residential Land Use ...... 56 General Purpose ...... 56 Typical uses ...... 56 Potential issues to consider ...... 56 Buildable lot policies ...... 56 Development policies to consider ...... 56 Downtown Commercial Land Use………………………………………………………….. 57 General Purpose ...... 57 Typical uses ...... 57 Potential issues to consider ...... 57 Buildable lot policies ...... 57 Development policies to consider ...... 57 General Commercial Land Use……………………………………………………………....58 General Purpose ...... 58 Typical uses ...... 58 Potential issues to consider ...... 58 Buildable lot policies ...... 58 Development policies to consider ...... 58 Industrial Land Use…………………………………………………………………………….....59 General Purpose ...... 59 Typical uses ...... 59 Potential issues to consider ...... 59 Buildable lot policies ...... 59 Development policies to consider ...... 59 Public/Quasi-Public Land Use………………………………………………………………. ..60 General Purpose ...... 60 Typical uses ...... 60 Park and Recreational Land Use……………………………………………………………..60 General Purpose ...... 60 Typical uses ...... 60 Extraterritorial Jurisdiction (ETJ)………………………………………………………………..61 Conservation Subdivisions/Planned Unit Developments……………………...... 61 Environmental Conditions...... ……………………...... 62 Agriculture ...... 62 Floodplain...... 62 Well Head Protection Areas ...... 62 Future Land Use Goals………………………………………………………………………….64 Land Use Goal and Objectives...... 64 Chapter 9: Annexation ...... 67 Annexation ...... 67 Annexation Policy ...... 68 Potential Future Annexations ...... 68 Chapter 10: Transportation ...... 71 Transportation Plan ...... 71 Existing Transportation System and Facilities ...... 71 viii City of Franklin, Nebraska Comprehensive Plan 2019 Table of Contents
Bus Service ...... 71 Commercial Airport Service ...... 71 Railroad Service ...... 73 Small Craft Public Airports ...... 73 Surface Transportation ...... 73 State and Federal Highways ...... 73 Transportation Planning and Land Use ...... 73 Street and Road Classification System ...... 73 Traffic Counts Near Franklin...... 75 Nebraska Department of Roads’ Improvements...... 76 Trails Development...... 76 Character of the Sidewalks………………………………………………………………....77 Transportation and Trail Goals ...... 77 Transportation and Trail Goal 1...... 77 Transportation Financing Issues...... 77 Chapter 11: Implementation...... 79 Achieving Franklin’s Future ...... 79 Action Agenda ...... 79 Support Programs for the Action Agenda ...... 79 Comprehensive Plan Maintenance ...... 79 Annual Review of the Plan ...... 79 Unanticipated Opportunities ...... 80 Plan Amendment Procedures ...... 80 Evaluating Development Proposals ...... 80
Table of Figures
Chapter 1: Introduction Figure 1.1: Franklin City Map...... 1 Figure 1.2: Components of a Comprehensive Plan...... 2 Chapter 3: Population Figure 3.1: Franklin’s Population Compared to Regional Entities ...... 10 Figure 3.2: Franklin’s Population Compared to Similar Towns ...... 10 Figure 3.3: Composition of Franklin’s Population ...... 11 Figure 3.4: Age of Head of Household ...... 12 Figure 3.5: Median Age, 2000 to 2010 ...... 12 Figure 3.6: Dependency Ratio, 2000 ...... 12 Figure 3.7: Dependency Ratio, 2010 ...... 12 Figure 3.8: Population by Ethnicity ...... 13 Figure 3.9: City of Franklin Population and Projections, 1880 to 2040 ...... 14 Figure 3.10: Franklin County Population and Projections, 1880 to 2040 ...... 14 Chapter 4: Housing Chapter Figure 4.1: Age of Existing Housing Stock ...... 18 Figure 4.2: Value of Homes in Franklin ...... 18 Figure 4.3: Median Gross Rent Compared to State ...... 18 Figure 4.4: Aerial View of Franklin Neighborhood ...... 19 Figure 4.5: Housing Unit Summary—Vacancy Rate ...... 20 Figure 4.6: Franklin Vacancy Rates, 2010 & 2017 ...... 20 Figure 4.7: Occupied Housing Units By Age of Householder ...... 21 Figure 4.8: Age of Head of Household by Type ...... 21 Figure 4.9: Substandard Housing Conditions ...... 21 Figure 4.10: Persons by Household Type ...... 21 City of Franklin, Nebraska Comprehensive Plan 2019 ix Table of Figures Chapter 5: Economy and Economic Development Figure 5.1: Household Income ...... 23 Figure 5.2: Annual Average Unemployment Rate Comparison ...... 24 Figure 5.3: Average Weekly Wage ...... 24 Figure 5.4: Commuter Trends — Travel Time to Work ...... 24 Figure 5.5: Jobs by Sector ...... 25 Figure 5.6: Opinion of Quality Job Opportunities ...... 25 Figure 5.7: Opinion of Available Local Job Opportunities ...... 25 Figure 5.8: Opinion of Economic Development Efforts ...... 25 Figure 5.9: Opinion — Business Use if Available ...... 26 Figure 5.10: Opinion — Means to Improve Employment ...... 26 Figure 5.11: Opinion — Utilizing TIF Funding in Franklin ...... 26 Figure 5.12: Opinion — Interested in Starting a Business in Franklin ...... 26 Figure 5.13 Opinion — Interested in Business Succession ...... 26 Chapter 6: Community Facilities Figure 6.1: Nebraska Game and Park Regions...... 34 Figure 6.2: Harlan County Lake & Republican River ...... 34 Figure 6.3: Harlan County Lake Dam ...... 34 Figure 6.4: City Park in Franklin ...... 35 Figure 6.5: Franklin Golf Club ...... 35 Figure 6.6: Franklin Public Library ...... 36 Figure 6.7: Franklin Flyers Logo ...... 36 Figure 6.8: Post-Secondary Education ...... 37 Figure 6.9: Early Child & Family Development Program...... 37 Figure 6.10: AM-FM Radio Stations ...... 37 Figure 6.11: Franklin County Memorial Hospital & FCMH Pool Medical Clinic...... 39 Figure 6.12: Golden Age Village ...... 39 Figure 6.13: Franklin Care & Rehabilitation Center ...... 39 Chapter 7: Energy Element Figure 7.1: Southern Power District Service Area ...... 42 Figure 7.2: Black Hills Energy Service Area ...... 42 Figure 7.3: Nebraska Energy Consumption by End-Use Sector ...... 43 Figure 7.4: Franklin Household Monthly Electricity Cost ...... 44 Figure 7.5: Net Energy Consumption by Fuel Type ...... 45 Figure 7.6: Annual Average Wind Speed at 80 Meters ...... 45 Figure 7.7: Solar Contours of United States ...... 46 Figure 7.8: Solar Panels at Parking Lot in Omaha ...... 46 Chapter 8: Land Use and Development Figure 8.1: Existing Land Use: Percent of Acres ...... 50 Figure 8.2: Existing Land Use: Number of Parcels, Percent & Acres ...... 50 Figure 8.3: Existing Land Use Map ...... 51 Figure 8.4: Future Land Use Map ...... 52 Figure 8.4: Cluster Developments...... 61 Figure 8.5: Floodplain Map ...... 63 Chapter 9: Annexation Figure 9.1: Annexation Map...... 69 Chapter 10: Transportation Figure 10.1: Aerial Map of Regional and Small Craft Public Airports ...... 72 Figure 10.2: Franklin Transportation System — Streets & Sidewalks Map ...... 74 Figure 10.3: Franklin Traffic Flow Map ...... 75 Figure 10.4: NDOT Six-Year Highway Program...... 76 Figure 10.5: Six-Year Highway Program—Franklin County Projects...... 77 Figure 10.6: Potential Trail Configuration—Sloped Areas...... 80 x City of Franklin, Nebraska Comprehensive Plan 2019 Chapter 1 Introduction
backroadbound.com Location Franklin is located in southcentral Franklin County, seven miles north of the Nebraska-Kansas border. Franklin is bisected by US Highway 136 and Nebraska Highway 10. It is almost equidistant from Kearney, Holdrege, and Hastings—three urban hubs in the region: approximately 57 miles south of Kearney, 50 miles southeast of Holdrege, and 60 miles southwest of Hastings.
COMPREHENSIVE DEVELOPMENT PLANNING The Franklin Comprehensive Development Plan is designed to promote orderly growth and development for the community, as well as providing policy guidelines to enable citizens and elected officials to make informed decisions about the future of the community.
The Comprehensive Development Plan will provide a guideline for the location of future developments and uses within the planning jurisdiction of Franklin. The Comprehensive Development Plan is intended to provide a vision and direction for the planning period.
The Comprehensive Development Plan is intended Figure 1.1 Franklin City Map as an information and management tool for Source: Google Maps
Franklin, Nebraska Comprehensive Development Plan 2019 1 Introduction community leaders to use in their decision-making process when considering future developments.
THE PLANNING PROCESS The Comprehensive Development Plan begins with the development of general goals and policies, based upon current and future issues faced by the community and its residents. These are intended to be practical guidelines for addressing existing conditions and guiding future growth.
In conjunction, the data collection phase will be occurring. Data are collected to provide a snapshot of the past and present conditions within the community. Analysis of data provides the basis for developing forecasts for future land use demands, as well as future needs regarding housing and facilities.
The Comprehensive Development Plan is a blueprint…designed to identify, assess, and develop actions and policies in the areas of population, land use, transportation, housing, economic development, community facilities, and utilities. The Comprehensive Development Plan COMPREHENSIVE PLAN COMPONENTS contains recommendations, when implemented will Nebraska State Statutes require the inclusion of be of value to the community. certain elements in a Comprehensive Plan. A The Plan identifies the tools, programs, and methods “Comprehensive Development Plan,” as defined in necessary to carry out the recommendations. Neb. Rev. Stat. § 19-903, “shall consist of both graphic Nevertheless, the implementation of the and textual material and shall be designed to development policies contained within the accommodate anticipated long-range future Comprehensive Plan is dependent upon the growth.” The Comprehensive Plan is comprised of the adoption of the Plan by the governing body, and the following chapters and sections: leadership exercised by the present and future • Introduction Chapter elected and appointed officials of the City. • Community Engagement Chapter • Population Statistics Chapter • Housing Chapter PLAN PREPARATION • Economics/Economic Development Chapter The Plan was prepared under the direction of City of • Community Facilities Chapter Franklin Planning Commission, with the assistance of • Environmental Conditions Chapter the Franklin City Council; City staff; the Plan Review • Land Use Chapter Committee and citizens of Franklin. The time period • Transportation Chapter for achieving the goals, programs, and • Energy Chapter developments identified in the Franklin • Implementation Chapter Comprehensive Plan is 20 years. However, the community should review the Plan annually and Analyzing past and existing demographic, housing, update the document every 10 years (2029), or when economic and social trends permit the projection of major, unanticipated opportunity arises. likely conditions in the future. Projections and Completing updates every ten years or so will allow forecasts are useful tools in planning for the future; the community to incorporate ideas and however, these tools are not always accurate and developments not known at the time of the present may change due to unforeseen factors. Also, past comprehensive planning process. trends may be skewed or the data may be inaccurate, creating a distorted picture of past conditions. Therefore, it is important for Franklin to closely monitor population, housing and economic conditions that may impact the community. Through periodic monitoring, the City can adapt and adjust to changes at the local level. Having the ability to
2 Franklin, Nebraska Comprehensive Development Plan 2019 Introduction adapt to socio-economic change allows the City to maintain an effective Comprehensive Development Plan for the future, to enhance the quality of life, and to raise the standard of living for all residents. The Comprehensive Development Plan records where Franklin has been, where it is now, and where it likely will be in the future. Having this record in the Comprehensive Development Plan will serve to inform City officials as much as possible.
The Comprehensive Development Plan is an information and management tool for City leaders to use in their decision-making process when considering future developments. The Comprehensive Development Plan is not a static document; it should evolve as changes in the land use, population or local economy occur during the planning period. This information is the basis for Franklin’s evolution as it achieves its physical, social, and economic goals.
JURISDICTIONAL ORGANIZATION The Franklin City Council, which is composed of elected officials including the Mayor, performs all necessary governmental functions for the City. It has planning and zoning powers, pursuant to Neb. Rev. Stat. § 19-901 -903 (Reissue 1997). This power encompasses all of the incorporated areas of the city, as well as the established extraterritorial jurisdiction (ETJ) extending up to one mile from corporate limits. The Council may enforce such zoning and subdivision regulations as are necessary to protect the health, safety, and welfare of the community. These include, but are not limited to, building, electrical, plumbing, and property maintenance codes.
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Chapter 2 Community Engagement
COMMUNITY ENGAGEMENT Steering Committee Meetings Community engagement is important to a successful With the assistance of the South Central planning effort. The use of public participation makes Economic Development District, Inc., a steering it possible to have a clearer understanding of how committee was decided upon which includes the residents feel regarding different parts of the City staff and Council members, and the community. However, there are limited numbers of Planning Commission and Zoning Board individuals concerned about the effort either members, to provide regular input on all because things are going in a good direction or phases of the planning project. This group also specific issues do not impact them. provided the internal assistance the planning effort needed to get more people involved in the process. COMMUNITY ENGAGEMENT Community engagement in Franklin was designed as a major component of the project and the process included multiple approaches. It was structured in a manner allowing for stakeholders to be involved in numerous ways throughout the process. Some key elements included: • Use of a steering committee • Community Needs Assessment Survey • Town Hall meeting • Public hearings 2017 Community Needs
Assessment Survey
Franklin, Nebraska Comprehensive Development Plan 2019 5 Community Engagement
The steering committee also acts as a sounding Visioning is a process of evaluating present board during the entire process; this allows all conditions, identifying problem areas, and bringing pieces/Chapters of the plan to be reviewed about consensus on how to overcome existing and commented on at regularly scheduled problems and manage change. By determining meetings. The steering committee is one of the Franklin’s vision, the community can decide where it more critical components of the process. wants to be in the future, and then develop a “roadmap” guiding decisions of the community. Community Needs Assessment Survey However, the plan cannot only be based upon this The City of Franklin worked with South Central “vision” and “road map” concept. The residents of Economic Development District, Inc. (SCEDD) to Franklin must also act or implement the necessary conduct the CNAS in May of 2017. The questionnaire steps involved in achieving this “vision”. was divided into seven areas of interest: demographics, city, community/recreational Planned growth will make Franklin more effective facilities, business and economic development, in serving residents, more efficient in using education, child care, and housing. Volunteers, who resources, and able to meet the standard of living were trained by SCEDD staff, hand delivered and and quality of life every individual desires. picked up the surveys between February 22 and February 24, 2017. An envelope was provided for each household to seal their survey to ensure Change is continuous, therefore Franklin must decide confidentiality. For rural households, SCEDD mailed specific criteria that will be used to judge and the surveys to each household with a return envelope manage change. Instead of reacting to addressed to SCEDD. The community displayed a development pressures after the fact, the community strong turnout—243 households returned surveys. The along with their strategic vision, can better reinforce response rate was 62% for the City of Franklin. The the desired changes, and discourage negative results of this survey will be used throughout this impacts that may undermine the vision. A shared comprehensive plan. vision allows Franklin to focus its diverse energies and minimize conflicts in the present, and in the future. The remaining questions will be included in an Appendix of this document. A key component of a Comprehensive Plan is the goals and policies. The issues and concerns of the Town Hall Meeting citizens are developed into a vision. The vision statement can then be further delineated and After compiling the results of the CNAS, SCEDD translated into action statements and/or policies, hosted a Town Hall Meeting in the Franklin Public used to guide, direct, and base decisions for future School gym to create goals and priorities for the City. growth, development and change within Franklin. A presentation of the CNAS results kicked off the Consensus on "what is good land use?", and "how to meeting. SCEDD staff then facilitated discussions manage change in order to provide the greatest regarding Franklin’s strengths. Finally, participants benefit to the community and its residents?", is brainstormed community priorities that residents formed. Franklin’s goals and policies attempt to could support and act upon. This allowed address various issues, regarding the questions of participants to develop priorities, implement plans, “how” to plan for the future. build consensus and collaboration, and increase visibility of community projects. There were 33 people who participated in the meeting. The Comprehensive Development Plan is a vision presented in text, graphics and tables GOALS AND POLICIES representing the desires of the City and its residents for the future. Planning for the future land uses of the community is an ongoing process of goal setting and problem solving aimed at encouraging and enhancing a better community with a better quality of life. Planning focuses upon ways of solving existing Goals are desires, necessities and issues to be problems within the city, and providing a attained in the future. A goal should be established in management tool enabling Franklin citizens to a manner that allows it to be accomplished. Goals achieve their vision for the future. are the end-state of a desired outcome. Goals also play a factor in the establishment of policies within a community. In order to attain certain goals and/or policies within City government, they may need to be
6 Franklin, Nebraska Comprehensive Development Plan 2019 Community Engagement modified or changed from time to time. environmental, and social components of the City. The plan is a combination of practicality and vision, The Plan is only one of several tools within the and provides guidelines for sustaining the rich fabric toolbox that helps guide the community into the of Franklin. future.
Policies are measurable, definable steps that lead to the eventual completion of the goal. They are FRANKLIN PLAN GOALS AND POLICIES specific statements of principle or actions that imply The goals and policies for the Franklin Comprehensive a direction that needs to be undertaken. Plan will be contained throughout the following Chapters. Each Chapter shall contain the pertinent These policies will synthesize the information from the goals and polices for the Chapter. goals, as well as the responses from the participants of the various input processes. Policies play an important role in the Comprehensive Development The Franklin Comprehensive Plan provides a Plan because they direct the different actions that will need to be taken to meet the goals. broadly painted picture for the community’s It is important for communities to establish their goals future. The vision statements and goals describing and policies in a manner allowing for both long-term the desired future conditions provide guidance for and short-term accomplishments. The short-term land use decisions and other actions, both public goals and policies serve several functions: and private that collectively will determine the • Allow for immediate feedback and success, future of the community. which fuels the desire to achieve additional goals and better policies. • Allow for the distribution of resources over time, Goals are intended as a long-range desire; however, thus assuring a balanced use of public as the Plan is implemented and different things in the investment. world around Franklin changes, then the goals need • Establish certain policies that need to be followed to be modified to address the new direction and before the long-term goals can be factors. Therefore, goals need to be flexible to ensure accomplished. success and positive outcomes.
FRANKLIN VISION AND THE PLAN The Franklin Comprehensive Plan provides a broadly painted picture for the community’s future. The vision statements and goals describing the desired future conditions provide guidance for land use decisions and other actions, both public and private that collectively will determine the future of Franklin.
Vision without action is merely a dream Action without vision is just passing time Vision with action can change the world ~ Joel Barker
The core premise embedded in the Franklin Plan 2019 is designed to maintain and enhance the health, safety and welfare of the community during times of change, to promote our ideals and values as changes occur, and to meet the needs of today without sacrificing the ability of future generations to meet their needs. The plan acknowledges the importance of the connections between economic,
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8 Franklin, Nebraska Comprehensive Development Plan 2019
Franklin County Population Statistics
Chapter 3 Population
POPULATION PROFILE Franklin fits within those trends. Red Cloud, Alma, and Franklin have similar population counts and all are Understanding past and existing populations; while county seats in the southern portion of Nebraska. The applying these to the future is critical. Franklin, data provide a look at where the communities have including the decision-makers, should understand been and allows for the eventual projection of where the City has been, where it is, and where it populations in the communities. appears to be going. Population impacts all of the major components making up the community Typically, a mid-decade comprehensive plan including housing, local employment, economics, update would include the most recent population and fiscal stability. estimates. These numbers are the best a community has at the time. It is critical to understand, these Developing an understanding of the historic numbers can be and have been underestimated for population helps identify where the population is the period. going in the future and aids in determining potential impacts on future housing, retail, medical, Overall, the City of Franklin has seen a –13% (137 employment, and educational needs within Franklin. people) decrease in population from 1980 to 2010, while Franklin County saw a decrease of –29% (1,152 Projections provide an estimate for the City to base people) during the same period. The peak future land use and development decisions. population in Franklin occurred in 1980 with 1,137 However, population projections are only estimates people and has declined to 1,000 people by 2010. and unforeseen factors may affect projections significantly. Over the past four decades, all three communities have seen decreases in their populations. Population POPULATION TRENDS AND ANALYSIS decline has become frequent in rural Nebraska. A Figure 3.1 contains the historic population between total of 69 of Nebraska’s 93 counties have recorded 1980 and 2010 for the City of Franklin, Regional Cities, a population loss between the last two census years and Franklin County. Nearby cities with similar (2000 and 2010). This loss in population is connected population counts can be compared to Franklin to to the advancement of agricultural technology. As help understand regional population trends and how fewer farmers are able to farm larger tracts of land,
Franklin, Nebraska Comprehensive Development Plan 2019 9 Population Franklin’s Population Compared to Regional Entities Total Population Population Change Percent Change Place 1980 1990 2000 2010 80-89 90-99 00-09 80-89 90-99 00-99
Red Cloud 1,300 1,204 1,131 1,020 -96 -73 -111 -7% -6% -11%
Alma 1,369 1,226 1,214 1,133 -143 -12 -81 -1% -1% -7%
Franklin 1,137 1,112 1,026 1,000 -25 -86 -26 -2% -8% -3%
Franklin Co. 4,377 3,983 3,574 3,225 -394 -409 -349 -9% -10% -10% Franklin Co.
(excluding 3,240 2,871 2,548 2,225 -369 -323 -323 -11% -11% -13% Franklin) FIGURE 3.1: POPULATION COMPARISONS FRANKLIN COUNTY, REGIONAL CITIES 1980 TO 2010 Source: U.S. Census Bureau 2017 many people have left the rural setting to seek age. These age cohorts are primarily working age, education and employment elsewhere. which enhances Franklin’s economic base. The most significant loss in population occurred in those 75-80 AGE STRUCTURE ANALYSIS years of age. The number of children under five (5) Age structure is an important component of years of age also increased 3.1%. population analysis. By analyzing age structure, one The highest increase in population was in those aged can determine a key dynamic affecting the 60-64 years. This “graying population” represents a population of Franklin. portion of the Baby Boomer Generation, those individuals who are 50-70 years of age. This group is Each age group affects the population in a number currently in the last stages of or have left the of different ways. For example, the existence of large workforce and are no longer within traditional child younger age groups (20-44 years) means there is a rearing years. The Boomers currently represent greater ability to sustain future population growth approximately 20% of the City’s population. compared to large older age groups. Understanding what is happening within the age groups of the population is necessary to effectively plan for the Franklin's Population Compared to Similar Towns future. Source: Nebraska Department of Economic Development, 2017 Figure 3.3 contains the age group structure for 1600 Franklin in 2000 and 2010. The examination of age 1400 structure provides an understanding of where some 1200 of the population shifts are occurring. These data 1000 allow for a better understanding of what could occur 800 in the future. 600 400 Reviewing population in this manner permits a 200 0 detailed analysis of which specific groups are moving 1980 1990 2000 2010 in and out of the City. Negative changes in a group Franklin Red Cloud Alma indicate out-migration or a combination of out- migration and deaths. Figure 3.2 Comparing Population to Similar Towns Source: U.S. Census Bureau 2017 The composition of Franklin will affect future population dynamics. The median age of residents increased slightly, shifting from 48 to 48.5. Franklin has SCEDD’s CNAS reported the largest age group in the seen a slight increase in their young adult population. City was 55-64 years of age, with 21% reporting a There has been a 2.4% increase in people 20-24 years head-of-household in that age group. More than of age and .5% increase in people 25-34 years of half, 63% of the 234 households responding indicated a head-of-household of age 55 or older, including 10 Franklin, Nebraska Comprehensive Development Plan 2019 Population Composition of Franklin's Population 2000 2010 Change % Change Annual Growth Rate Age Number Percent Number Percent Total Over 10 Years Over 10 Years
Total 1,026 100 1,000 100 -26 -2 -2.0% population Under 5 48 4.7 63 6.3 15 31 3.1% years 5 to 9 years 65 6.3 61 6.1 -4 -6 -0.6% 10 to 14 70 6.8 72 7.2 2 3 0.3% years 15 to 19 68 6.6 58 5.8 -10 15 1.5% years 20 to 24 25 2.4 31 3.1 6 24 2.4% years 25 to 34 77 7.5 81 8.1 4 5 0.5% years 35 to 44 131 12.8 93 9.3 -38 -29 -2.9% years 45 to 54 110 10.7 133 13.3 23 21 2.1% years 55 to 59 53 5.2 64 6.4 11 21 2.1% years 60 to 64 43 4.2 69 6.9 26 60 6.0% years 65 to 74 117 11.4 103 10.3 -14 -12 -1.2% years 75 to 84 147 14.3 103 10.3 -44 -30 -3.0% years 85 years and 72 7 69 6.9 -3 -4 -0.4% over Median age 48 48.5 (years) U.S. Census Bureau, 2010 Figure 3.3 Composition of Population by Age Source: U.S. Census Bureau, Decennials 2000 & 2010
20% who were ages 65-74, 15% ages 75-84, and 7% whether there are enough employed persons in the age 85 or older. The smallest age group was 19-24, City to support these populations as well as with 2%. A total of 12% of the households had a head themselves. -of-household age 25-34, 9% ages 35-44, and 14% ages 45-54. Figures 3.6 and 3.7 indicate the dependency ratios for 2000 and 2010 in Franklin. The portion of persons MEDIAN AGE less than 18 years of age decreased by 2.8% Between 2000 and 2010, the median age in Franklin between 2000 and 2010; while those aged 65 years increased from 40.2 years to 45.5 years. This increase and older decreased by 1.4% overall. equaled 5.3 years or 13.2% for the period. Nationally, In 2000, Franklin had a Dependency Ratio of 1.04 the country saw only a 2.0 year increase in median (50.9%/49.1%); however, by 2010 the Ratio had age, from 35.3 in 2000 to 37.2 in 2010. decreased to 1.25 (55.5%/44.5%). This is supported by the increase in the 18 and under age group, plus the DEPENDENCY RATIO decrease in the 65 and older group from 2000 to The dependency ratio examines the portion of 2010. Franklin supporting age groups historically dependent upon others for survival (those under 18 years and ETHNICITY those 65 years and older). See the box for details on calculating the ratio. The importance of this ratio Franklin during the past decade has seen little focuses on the number of dependent persons and change in the ethnicity within the City. Analysis of the ethnicity provides more detail as to the changes
Franklin, Nebraska Comprehensive Development Plan 2019 11 Population
What is the age of your head-of-household?
50 48, 47, 40 20.5% 20.1% 36, 30 33, 15.4% 28, 14.1% 20 12% 20, 5, 17, Dependency 10 2.1% 8.5% 7.3%
Number of Respondents Ratio = 1.04 0 19-24 25-34 35-44 45-54 55-64 65-74 75-84 85 or older Figure 3.4 Age of Head of Household Source: SCEDD 2017 CNAS
FIGURE 3.6: DEPENDENCY RATIO FRANKLIN Source: U.S. Census Bureau 2000-2010
FIGURE 3.5: MEDIAN AGE FRANKLIN, NE 2000 TO 2010 Source: U.S. Census Bureau 2000-2010 Dependency Ratio = 1.25
Dependency Ratio
The dependency ratio examines the portion of a community’s earnings that is spent supporting age groups typically and historically dependent on the incomes of others. < 1: 1 Independent resident is able to support more than 1 Dependent resident
=1: 1 Independent resident able to support 1 Dependent resident
>1: 1 Independent resident able to support less than 1 Dependent resident FIGURE 3.7: DEPENDENCY RATIO FRANKLIN, NE 2010 (%18 years and younger + %65 years and older) Source: U.S. Census Bureau 2000-2010 % of remaining population
Between 2000 and 2010, Franklin saw a change of being seen. Ethnicity is more than additional people -4% in the White, Not Hispanic population, and a living in the county since these new residents bring combined total increase of other ethnic people by their own cultures and beliefs to the area. 20%.
12 Franklin, Nebraska Comprehensive Development Plan 2019 Population
The largest change was in both the Asian, Pacific The population of the City of Franklin peaked by 1950 Islander population, which grew from one to five at 1,602 people before sharply decreasing between people between 2000 and 2010, and the Hispanic 1950 and 1960 - 408 people left the City. The City has population, which grew from 10 to 15 people continued to see a decline in their population. Today, between 2000 and 2010. Franklin has a population of approximately 929 based upon the 2016 Census estimates. The City and school district need to track these changes annually in order to minimize any potential Unless measures are adopted to prevent this fiscal impacts. decrease in population, the City’s population is projected to continue decline to 792 people by 2040. POPULATION PROJECTIONS Franklin County also saw a steep decline. After the Population projections are estimates based upon population peaked in 1910 at 10,303 people, the past and present circumstances. The use of sharpest decline occurred between 1950 and 1960, population projections allows Franklin to estimate the when the population decreased by 1,647 people. potential population in future years by looking at past Today, Franklin County has a population of trends. By scrutinizing population changes in this approximately 2,985 people. Roughly one-third of the manner, Franklin will be able to develop a baseline of County’s population resides in its county seat, the change from which future scenarios can be City of Franklin. Unless measures are adopted to generated. A number of factors (demographics, prevent it, the county’s population is projected to economics, social, etc.) may affect projections decrease to 1,325 people by 2040. positively or negatively. TREND LINE ANALYSIS At the present time, these projections are the best Trend Line Analysis is a process of projecting future crystal ball Franklin has for predicting future populations based upon changes during a specified population changes. There are many methods to period of time. In the analysis of Franklin, four different project the future population trends; the projection trend lines were reviewed: 2000 to 2010, 1980 to 2010, technique used below is intended to give Franklin a 1990 to 2010, and 1960 to 2010. A review of these broad overview of the possible population changes trend lines indicates Franklin will see varied levels of that could occur in the future. population changes between now and 2040. The following projections summarize the decennial population for Franklin through 2040.
2000 2010 2000-2010 % of To- Net Number % of Total Number % of Change Race tal Change White, Not Hispanic 1,021 99.5% 991 99.1% -30 .4% 0 0% 0 0% 0 0% Black or African American
5 .5% 6 .6% 1 .1% American Indian or AK Native Asian & Pacific Islander 1 .1% 6 .6% 5 .5% Other, not Hispanic 0 0% 4 .4% 4 .4% Hispanic 10 1% 15 1.5% 5 .5% Mexican 2 .2% 5 .5% 3 .3% Puerto Rican 0 0% 1 .1% 1 .1% Cuban 3 .3% 3 .3% 0 0% Other Hispanic 5 .5% 6 .6% 1 .1% TABLE 3.8: POPULATION BY ETHNICITY FRANKLIN, NE 2000 TO 2010 Source: U.S. Census 2000 and 2010
Franklin, Nebraska Comprehensive Development Plan 2019 13 Population
1,800 1,600 1,602 1,400
1,200 1,272 1,194 1,193 1,137 1,000 1,103 1,112 1,055 1,026 1,000 949 800 756 600 556 400 200 0 78 1880 1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 2020 2030 2040
Franklin Low Series Medium Series High Series
FIGURE 3.9: POPULATION AND PROJECTIONS CITY OF FRANKLIN 1880 TO 2040 SOURCE: US CENSUS
Franklin County Population Projection through 2040 12000 10000 8000 6000 4000 Population 2000 0
Source: U.S. Census
FIGURE 3.10: POPULATION AND PROJECTIONS FRANKLIN COUNTY1880 TO 2040 SOURCE: U.S. CENSUS BUREAU
14 Franklin, Nebraska Comprehensive Development Plan 2019 Population
FRANKLIN TREND ANALYSIS Year 1960 to 2010 2010 1,000 persons 2020 917 persons 2030 839 persons 2040 861 persons
Year 1980 to 2010 2010 1,000 persons 2020 908 persons 2030 859 persons 2040 812 persons
Year 1990 to 2010 2010 1,000 persons 2020 903 persons 2030 843 persons 2040 757 persons
Year 2000 to 2016 2010 1,000 persons 2020 894 persons 2030 809 persons 2040 733 persons
SUMMARY OF POPULATION PROJECTIONS Using the modeling techniques discussed in the previous paragraphs, a summary of the population projections for Franklin through the year 2040 is shown in Figure 3.9. Three population projection scenarios were selected and include (1) a Low Series; (2) a Medium Series; and, (3) a High Series.
Low = 2000 to 2016 2020 894 persons 2030 809 persons 2040 733 persons
Medium = 1980 to 2010 2020 908 persons 2030 859 persons 2040 812 persons
High = 1960 to 2010 2020 917 persons 2030 889 persons 2040 861 persons
Figure 3.9 reviews the population history of Franklin between 1910 and 2010, and identifies the three population projection scenarios into the years 2020, 2030, and 2040.
Franklin, Nebraska Comprehensive Development Plan 2019 15 Population
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16 Franklin, Nebraska Comprehensive Development Plan 2019 Chapter 4 Housing
HOUSING PROFILE Figure 4.1 indicates 550 homes, or 96% of Franklin’s 575 total housing units, were constructed by 1989. The Housing Profile identifies existing housing characteristics for residents of Franklin. The primary Franklin saw positive construction activity between goal of the housing profile is to allow examination of 1970 and 1979 with 120 homes (21%) constructed. past and present conditions; while, identifying These data indicate the economy was relatively potential needs including provisions for safe, decent, good during these decades. However, in recent sanitary, and affordable housing for every family and years the construction of new homes has slowed. individual residing within Franklin. Twenty-five homes were built between 1990 and 2009. No houses have been built within the City limits Projecting future housing needs requires several since then. factors to be considered. These factors include population change, household income, employment One hundred percent (100%) of all housing units in rates, land use patterns, and residents' attitudes. Franklin were constructed prior to 2009. Due to the age of the majority of these homes, there may be a The following tables and figures provide the need for special weatherization programs to bring information to aid in determining future housing these homes up to current energy efficiency needs and develop policies designed to accomplish standards. the housing goals for the City of Franklin. HOUSING CHARACTERISTICS AGE OF EXISTING HOUSING STOCK Figures 4.2 through 4.10 identify several different An analysis of the age of the housing stock can housing characteristics in Franklin. The figures indicate reveal a great deal about population and economic the breakdown between home value and owner– conditions of the past. Examining the housing stock is and renter-occupied housing characteristics. important in order to understand the overall quality of housing in Franklin.
Franklin, Nebraska Comprehensive Development Plan 2019 17 Housing
FIGURE 4.1: AGE OF EXISTING HOUSING STOCK FIGURE 4.3: MEDIAN GROSS RENT IN FRANKLIN VS. STATE OF NE Source: U.S. Census Bureau, 2000 and FRANKLIN, NE 2013-2017 American Community Survey 5-year Estimate Source: U.S. Census Bureau, 2013-2017 American Community Survey 5-year estimates Overall, the condition of the housing in Franklin was Median Home Value viewed favorably. In a self-certification conducted in Franklin has the lowest median home value when the 2017 CNAS (Figure 4.4), a majority of residents compared to other similar communities. Lower rated their residence as “Excellent” or “Structurally housing costs can be a driver for population growth Sound.” as long as the housing stock is in good condition. Even with the lower value, Franklin is still missing A windshield assessment conducted by a neutral middle housing, which refers to a range of smaller, third party in 2017 rated the majority of the housing multi-unit or cluster housing types necessary for robust stock as “Satisfactory.” transitional housing stock. The housing stock currently available will continue to age. If the downward construction trend continues, and no new stock is built to replace the aging stock,
FIGURE 4.2: VALUE OF HOMES IN FRANKLIN AND SIMILAR COMMUNITIES Source: U.S. Census Bureau, American Community Survey 2015
The value of a home is correlated to its age and upkeep. The largest period of construction occurred previous to 1939. Since then, the percentage of houses built each decade has declined. This is reflected in the overall value of the housing stock within the City. The majority fall within the less than $50,000 to $99,000 value range. Ninety-five percent of the housing stock in the City of Franklin has a value of less than $150,000.
18 Franklin, Nebraska Comprehensive Development Plan 2019 Housing home values in the area will follow the downward in a Workforce Housing Needs Survey conducted by trend. This will reduce taxes available to the City SCEDD to determine housing needs within the government. community. Participants were asked to supply information regarding number of employees, status Median Gross Rent of employees, employment opportunities, commute Median gross rent in Franklin increased from $343 per information, and problems created by the lack or month in 2000 to $483 per month in 2010, or an availability of workforce housing. Highlights of the increase of 118.6%. The State’s median monthly gross results are: rent increased by 32.0%. This indicates Franklin has • Difficulty finding available medium to lower seen a gross rent increase approximately 3.5 times priced housing more than the State. Franklin’s median gross rent was • Difficulty recruiting a family physician to the 115.7% of the State’s median gross rent in 2010. community because of a lack of high quality housing Comparing changes in monthly rents between 2000 and 2010, with the Consumer Price Index (CPI), Participants were asked about personal experiences enables the local housing market to be compared to they have faced regarding housing needs and national economic conditions. Inflation between employment. The most common issue was the lack of 2000 and 2010 increased at a rate of 23.5%, affordable single family housing units, thus, hindering indicating Franklin’s rents increased by over three potential employees from considering the community times the rate of inflation for the 10-year period. Thus when looking to relocate. The lack of available rental on average, Franklin tenants were paying housing may force residents to buy a home before considerably more in monthly rents in 2010, in terms of they are ready. real dollars, than they were in 2000. Landlords were potentially making less on their investment. The City of Franklin is served by real estate agents and realtors in communities surrounding Franklin. Occupied Versus Vacant Housing Units Prospective homeowners generally work with one of Vacancy Status these regional area real estate offices for assistance According to the most recent U.S. Census Bureau with their home purchase needs. According to a estimates, of the 575 housing units in Franklin, 129 units search of the major real estate websites as of June were considered vacant, giving Franklin a vacancy 2018, there were four homes listed for sale, three with rate of 22.4%. Of those, 22.9% were for rent, while local realtors and one for sale by owner. 4.4% were owned, but vacant. As shown in ore specific vacancy data was drawn from the 2010 U.S. Census. “All Other Vacants” was not further defined.)
An independent inventory conducted by SCEDD in February 2018 found approximately 85% of units were occupied; however, 15, approximately 3%, were vacant but available. There were 46 vacant but unavailable.
Planning standards have determined a vacancy rate of 5% to 7% is a healthy rate. This allows for space for new families to move in and provides enough options within the housing market. Anything smaller limits the housing market. A larger vacancy rate will be difficult to fill. Too few houses will sell and those left on the market will fall into dilapidated states. Franklin’s vacancy rate is far higher than the recommended FIGURE 4.5: VACANCY RATE range. FRANKLIN, NE Source: U.S. Census Bureau, Workforce Housing & Market Conditions 2013-2017 American Community Survey 5-Year Estimates It is important for a community to have a portion of vacant homes available “for sale” or “for rent” to create a healthy housing market and attract new residents. Employers in the Franklin area participated
Franklin, Nebraska Comprehensive Development Plan 2019 19 Housing
It is also important to consider the lack of available Franklin Vacancy Rates 2010 & 2017 housing and the effect on local employers. If prospective employees cannot move to town due to 2010 2017 a lack of housing, employers are confronted with Total Housing 519 575 difficulties in filling job vacancies. As stated previously by local employers, housing availability for their Total Vacant Housing 76 129 workforce is an issue to be confronted. Total Vacancy Rates 14.6% 22.4% Persons Per Household - Homeowner, Not Occupied n/a 4.4% A majority of the occupied housing units are held by - For Sale Only 14.5% n/a individuals above the age 45 years. As these - Sold, Not Occupied 1.3% n/a individuals age out of the market, a number of units will come available. It is vital to ensure these houses - For Rent, Not Occupied 6.6% 22.9% then meet the needs of the following generations. - For Seasonal, Recreational, or Houses failing to meet these requirements should be 17.1% n/a Occasional Use remodeled or cleared to make room for new stock.
- All Other Vacant 60.5% n/a Figures 4.7, 4.8, and 4.8 show tenure (owner- occupied and renter-occupied) of households by n/a = data not available number of occupants and age of persons in each housing unit. Analyzing these data gives Franklin the FIGURE 4.6: VACANCY RATE opportunity to determine where there may be a FRANKLIN, NE Source: U.S. Census Bureau, need for additional housing. 2013-2017 American Community Survey 5-Year Estimates The largest group of owner-occupied housing in SCEDD staff spoke with a realtor in the region. It was Franklin was in the two-person household, with 183 reported it is currently a bit of both a seller’s market, units or 54% of the total owner-occupied units. because houses are selling quickly, and a buyer’s market because buyers still have the ability to get a Similarly, the largest household size for rentals was good price. If the houses are priced right, they have also the two-person household group with 200 renter- been selling right at asking price. None of the houses occupied housing units, or 45% of the total renter- are selling above asking price. The average days on occupied units. the market for this region is two weeks to a month. There have not been any ranch style three bedroom, The U.S. Census estimates age cohorts representing two bathroom homes available in this market. This the largest group of home owners were those 35 to report does not take into account any private 64 years old at 47%, followed by 37% who were 65 transactions having been completed. years of age and older; those between 15 and 34 years owned 16% of the homes in the City. A tight housing market can increase housing prices making it difficult for people to purchase a home in the community. If no homes are available or are too expensive when a family is looking to move to Franklin, the family will be forced to look in surrounding towns where homes are available. Once settled into an adjacent community, it is difficult to “pull up roots” as the family begins to invest in their new home and location. The opportunity to attract and retain this family has been lost or greatly diminished.
It is important to make sure available homes fit the needs and wants of buyers. Franklin’s low market availability rate is a strong indicator of a need for FIGURE 4. : OCCUPIED HOUSING UNITS BY AGE OF HOUSEHOLDER new housing. With the increases in renter households, 7 CITY OF FRANKLIN there is a need for additional suitable rental units as Source: U.S. Census Bureau, well. American Community Survey 2010-2016 5-year Estimates
20 Franklin, Nebraska Comprehensive Development Plan 2019 Housing
Franklin Tenure by Age of Householder between the ages of 35 and 64 years comprised 25% of renters.
Owner Renter Age of Total Franklin was comprised of 341 1- or 2-person Occupied Occupied Householder Housing Units Housing Units Housing Units households, or 76% of all households, which represents a considerable portion of the households in the City. Households with 4- or more persons 15 to 34 years 54 35 89 accounted for 79 units, or 18% of the total, while 3- 35 to 64 years 158 27 185 person households only comprised 6% of the total. 65 years and 126 46 172 Substandard Housing over According to the U.S. Department of Housing and Urban Development (HUD) guidelines, housing units FIGURE 4.8: AGE OF HEAD OF HOUSEHOLD BY TYPE, CITY OF lacking complete plumbing or overcrowded are FRANKLIN Source: U.S. Census, American Community Survey 2013-2017 5-Year considered substandard housing units. HUD defines a complete plumbing facility as hot and cold-piped water, a bathtub or shower, and a flush toilet; overcrowding is more than one person per room. In addition, anytime there is more than 1.0 persons per room, the housing unit is considered overcrowded, thus substandard.
This Substandard Housing figure was reached by adding the number of housing units meeting one criterion to the number of housing units meeting the other criterion. This criteria, when applied to Franklin, 12 units were substandard in 2000, however eight units were substandard in 2010. Substandard units in 2010 were equally attributed to the two criteria. FIGURE 4.9: SUBSTANDARD HOUSING CONDITIONS FRANKLIN, NE 2000 TO 2010 What these data fail to consider are housing units Sources: U.S. Census Bureau 2000, ACS 2010 that have met both criterion and counted twice. Even so, the City should not assume these data The U.S. Census estimates 43% of renter-occupied overestimate the number of substandard housing housing was comprised of residents 65 and over. The units. Housing units containing major defects requiring second largest group of cohorts that occupied rehabilitation or upgrading to meet building, rentals were residents between 15 and 34 years of electrical, or plumbing codes should also be included age who made up 32% rentals, while residents in an analysis of substandard housing.
Franklin Tenure by Household Size
Owner Occupied Renter Occupied Total Occupied Household Size % % % Housing Units Housing Units Housing Units
1 Person 81 24% 60 55% 141 31%
2 Person 183 54% 17 16% 200 45%
3 Person 20 6% 6 6% 26 6% 4 Person or More Persons 54 16% 25 23% 79 18%
Total Households 338 100% 108 100% 446 100%
FIGURE 4.10: PERSONS BY HOUSEHOLD TYPE, CITY OF FRANKLIN Sources: U.S. Census, American Community Survey 2013-2017 5-Year Estimates
Franklin, Nebraska Comprehensive Development Plan 2019 21 Housing
A comprehensive survey of the entire housing stock should be completed every five years to determine and identify the housing units that would benefit from remodeling or rehabilitation work. This process will help ensure that a City maintains a high quality of life for its residents through protecting the quality and quantity of its housing stock.
HOUSING GOALS, OBJECTIVES AND POLICIES Housing Goal H-1 Work jointly with public and private sectors, as well as the South Central Economic Development District (SCEDD), the City of Franklin should implement a housing development initiative as a primary economic development activity.
Objectives and Policies H-1.1 The Community should create further partnerships with local housing developers and local and state funding sources, in an effort to create new housing in the community. H-1.2 Plan and implement an Employer’s Housing Assistance Program, to encourage major employers in the Franklin area to become directly involved with assisting their employees in becoming residents of the community.
Housing Goal H-2 Housing rehabilitation programs and activities in the City of Franklin should strive to protect and preserve the existing housing stock of the community.
Objectives and Policies H-2.1 Create a housing rehabilitation program, for both owner and rental housing units with emphasis on meeting the housing needs of the elderly, low income families and housing for persons with special needs. H-2.2 Franklin should continue to work with South Central Economic Development District on a housing nuisance abatement program.
22 Franklin, Nebraska Comprehensive Development Plan 2019 Chapter 5 Economy and Economic Development
ECONOMIC AND EMPLOYMENT PROFILE 25.0%
Economic data are collected in order to understand 20.0% local changes in economic activity and employment 15.0% 22.6% 22.6% needs and opportunities in Franklin. In this section, 19.8% 10.0% 15.0%
household income statistics, employment by industry, 14.1% 14.1% 13.4%
5.0% 11.0% 9.4% 9.6% 8.5% and commuter analyses were reviewed for Franklin 10.0% 5.7% 4.4% 4.7% 4.1% 4.3% 3.6% 1.6% 1.3% and Nebraska. 0.0%
INCOME STATISTICS Income statistics for households are important in determining the earning power of households. The data within show household income levels for Franklin Nebraska Franklin in comparison to the state. These data were reviewed to determine whether households FIGURE 5.1: HOUSEHOLD INCOME experienced income increases at a rate CITY OF FRANKLIN comparable to the state of Nebraska and the Source: U.S. Census Bureau, Consumer Price Index (CPI). 2013-2017 American Community Survey 5-Year Estimates
Figure 5.1 indicates the number of households in The median household income estimated by the U.S. each income range for Franklin in comparison to the Census Bureau in 2017 for Franklin was $47,500, which state. In 2000, the household income range most was approximately $9,175 less than the State median commonly reported was $35,000 to 49,999, which income of $56,675. accounted for 28.4% of all households. UNEMPLOYMENT RATES The income range reported most were the $35,000 to The most recent information for Nebraska and $49,999 and $50,000 to $74,999 ranges; these income Franklin County were obtained from the Nebraska ranges represented 45% of the total households. Department of Labor. These figures are only available at the state and county levels. The most recent information regarding the United States
Franklin, Nebraska Comprehensive Development Plan 2019 23 Economy and Economic Development
Annual Average Unemployment Rates 2007 2010 2013 2017 United States 4.6% 9.6% 7.4% 4.1% Nebraska 3.0% 4.6% 3.8% 2.9% Franklin County 2.8% 4.3% 3.5% 3.0%
FIGURE 5.2: ANNUAL AVERAGE UNEMPLOYMENT RATE COMPARISON Source: Nebraska Department of Labor unemployment rates were gathered from the Federal Reserve database.
Unemployment rates in Franklin County have remained well below the national average. With the exception of 2017, they have remained slightly lower FIGURE 5.3: AVERAGE WEEKLY WAGES than Nebraska’s average. In both Nebraska and FRANKLIN, NE Franklin County, the lower unemployment rates Source: US Bureau of Labor Statistics, 2017 reflect the fact most people who want to work are employed.
Franklin does have a significant number of the Commuter Trends population who will be aging out of the workforce in 6.6% the coming years. Those jobs will need to be filled by an incoming workforce. 27.2% 79.7% The unemployment rate of a community is also used as a signaling device to companies looking for a 66% place to locate their business. A too-low 20.3% unemployment rate indicates there is not a workforce available to fill the new job opportunities. Both Nebraska and Franklin County’s unemployment rates indicate an unemployment market in which there are not enough workers to fill jobs. Remain in Franklin County Commute out of Franklin County Travel less than 10 minutes Commute 10-44 minutes to job WAGES Commute more than 45 minutes The average weekly wage in Franklin County is below the average weekly wage of the entire state. FIGURE 5.4: TRAVEL TIME TO WORK Average wages across the state are increasing at the FRANKLIN, NE same rate as those in Franklin County. On average, Source: U.S. Census Bureau, wages across both Nebraska and Franklin County American Community Survey 2013-2017 5-Year Estimates increased nearly 9% between 2013 and 2017. Franklin to work. This is most likely attributed to the large County’s average weekly wage was on par with agricultural work base in Franklin County. While a few those of other counties with similar traits. Harlan commuters carpooled or walked to work, 88.3% drive County and Webster County both saw a 9% increase to work alone in their own car, truck, or van. in wages as well. INDUSTRY EMPLOYMENT COMMUTER TRENDS Franklin County has a variety of job sectors to offer According to the U.S. Census Bureau, there are the residents of Franklin. The total amount of jobs in approximately 557 workers aged 16 and over who Franklin County has decreased slightly between 2015 live in the City of Franklin. Many of Franklin residents and 2017. The jobs by sector chart below does not commute to their jobs and they are not alone. Of include workers listing farming as their primary Franklin’s workers, 79.7% remain in Franklin County occupation. Overall, most of the jobs saw a decrease while 20.3% commute to jobs outside of Franklin in availability. However, public administration and County. Of Franklin County’s workers who commute, professional and technical services both saw 66.2% travel less than 10 minutes, while the commute increases. Health care and social assistance time for 27.2% of Franklin’s commuters ranges from 10 remained the same. to 44 minutes; 6.6% commute more than 45 minutes
24 Franklin, Nebraska Comprehensive Development Plan 2019 Economy and Economic Development
The United States Department of Agriculture, Economic Research Services listed Franklin County as a Nonmetro Farming Dependent county. Farming Dependent counties are those where 25% or more of the county’s average annual jobs were in farming, as measured by the 2010-2012 Bureau of Economic Analysis, Local Area Personal Income and Employment data. This means Franklin County’s local economy is heavily reliant on agriculture.
FIGURE 5.7: OPINION OF AVAILABLE LOCAL JOB OPPORTUNITIES CITY OF FRANKLIN Source: SCEDD CNAS, 2017
FIGURE 5.5: JOBS BY SECTOR CITY OF FRANKLIN Source: Nebraska Department of Labor, 2015, 2017
FIGURE 5.8: OPINION OF ECONOMIC DEVELOPMENT EFFORTS CITY OF FRANKLIN Source: SCEDD CNAS, 2017
When asked, Franklin residents did not feel there was an availability of quality jobs within Franklin. Residents were split on their opinion regarding the quality of local job opportunities. A total of 44% had a poor opinion, 44% had a fair opinion, 11% felt good about the opportunities, and only 1% felt the job opportunities were excellent. Residents also felt more training would enable them to improve their employment status.
The most supported new business options were a pharmacy, a restaurant/café open in the evenings, FIGURE 5.6: OPINION OF QUALITY JOB OPPORTUNITIES and an automatic car wash. Twenty people in CITY OF FRANKLIN . Franklin are interested in starting or purchasing a Source: SCEDD CNAS, 2017 business. There are 10 business owners seeking to transition out of their business in the future. The residents of Franklin would support the use of Tax Increment Financing (TIF).
Franklin, Nebraska Comprehensive Development Plan 2019 25 Economy and Economic Development
FIGURE 5.9: OPINION - BUSINESS USE IF THEY WERE Number of Respondents AVAILABLE FIGURE 5.12: OPINION—INTERESTED IN STARTING A BUSINESS ITY OF RANKLIN C F CITY OF FRANKLIN Source: SCEDD CNAS, 2017 Source: SCEDD CNAS, 2017
Number of Respondents
FIGURE 5.10: OPINION—MEANS TO IMPROVE EMPLOYMENT FIGURE 5.13: OPINION—INTERESTED IN BUSINESS SUCCESSION CITY OF FRANKLIN CITY OF FRANKLIN Source: SCEDD CNAS, 2017 Source: SCEDD CNAS, 2017
The economy plays a key role in sustaining quality of life within a community. The benefits of a healthy economy reach far beyond the business sector. Local capital investment and job creation lead to quality schools, infrastructure, fire and police protection, parks and the support of countless additional community facilities and services.
The importance of economic development is apparent in Franklin’s development of various programs to support economic survival and growth. The purpose of the Economic Development section of this Comprehensive Plan is to present simple goals and policies leading to and supporting a strong and vibrant future.
FIGURE 5.11: OPINION—MEANS TO IMPROVE EMPLOYMENT, This section focuses primarily on entrepreneurialism, FRANKLIN business retention and expansion, tools and Source: SCEDD CNAS, 2017 strategies, labor and workforce training, infill and redevelopment, and infrastructure and land supply. The goals and objectives stated within this chapter are to be considered a community-directed guide for future economic development activities.
26 Franklin, Nebraska Comprehensive Development Plan 2019 Economy and Economic Development
ECONOMIC DEVELOPMENT IN FRANKLIN Franklin a population survivor. The primary local advocate of economic development in Franklin is the City Council. However, RETENTION OF THE LOCAL SCHOOL SYSTEM there can be assistance as needed from South A critical component to the previous paragraphs is Central Economic Development District, Inc. the continuation of Franklin Public Schools. The local (SCEDD), Southern Public Power District (SPD), school system is a critical component to the quality of Nebraska Public Power District (NPPD), Nebraska life in the community. In today’s economic and Investment Finance Authority (NIFA), and Nebraska political climates it is extremely difficult for small Department of Economic Development (NDED). The districts such as Franklin to provide all of the City needs to continue to use these partners to their necessities needed and demanded. fullest in order to maximize future needs and economic development efforts. A STRONG AGRICULTURAL ECONOMY Unfortunately, a lot of Franklin’s fortunes and Economic development activity does not require a misfortunes ride primarily on the agricultural constant attempt to lure the “one big” economy; this is not uncommon in rural areas of manufacturing company to the community. In Nebraska and the Great Plains. Through an Franklin, economic development becomes about economic development process, the City needs to survival in both the short– and long-term. The find other areas of economic stability even if they are community has plenty of ground to lure a big smaller in nature. manufacturing company to town but there is typically a limited workforce available to supply the ENTREPRENEURSHIP BY LOCAL RESIDENTS necessary labor pool. One of the best and safest means to grow a community’s economy is through the entrepreneurial The future of Franklin and its economic viability rely on spirit. Most communities are looking for the next big a few key elements. These elements include: business or industry to relocate to their community. In • The retention of youth within the community today’s economy these type of economic • The retention of the school system locally development wins are fewer and fewer apart. Local entrepreneurs can be the biggest windfall a • A strong agricultural economy community can see. These people are typically loyal • Entrepreneurship by local residents to the local area and likely will give back to the • Supplying basic goods and services locally community. However, the biggest mistake that • Quality infrastructure occurs with local entrepreneurs is that the locals do not support the business for some reason or another. • Quality housing stock Locals either: • Don’t want a local to succeed due to jealousy RETENTION OF YOUTH • Can find what they’re selling cheaper in the town The survival of any community is dependent upon 20 to 30 miles up the road maintaining its population base. As Franklin goes • Don’t like the individual for one reason or another through this planning period, the population base of the community may be greatly challenged. As the Local entrepreneurs are more likely to: residents from the “Greatest Generation” and the • Give back and support the community as “Baby Boomers” age, move into nursing facilities and opposed to the out of town operation pass away, the need for a replacement population • Pay local property taxes will be critical. There are fewer people in the • Support the local school activities in physical and remaining population groups such as the “Gen X”, monetary support “Gen Y”, and “Gen Z” to replace those in the prior groups. It is ironic when communities similar to Franklin were founded, the entire commercial aspects of the The retention of the youth and/or the attraction of community were likely entrepreneurs. Again, in the younger couples with children will be critical to the 21st Century, the future of these communities may future of Franklin. This will require the community to be rely on locally grown and nurtured individuals. perceived and act in a manner that has a quality of life desired by these groups. The best way to start is to Finally, there is one additional factor weighing heavily ask youth in the community what is and will be on the success of the entrepreneur, financial important to them in the future. What will it take to backing. New business start-ups have difficulty finding get them to move back to Franklin? The younger the proper financial support to be successful. There is population are the future leaders of the community; a listing of potential business assistance programs at they need to provide the insight necessary to make
Franklin, Nebraska Comprehensive Development Plan 2019 27 Economy and Economic Development the end of this chapter, but one of the most critical include availability of public services and facilities, can come from local investment clubs and permitting procedures, property taxes, and training individuals who believe in the entrepreneur and the programs. Recruitment programs largely focus on entrepreneurial process. attracting industrial/primary users as a major economic development strategy. Retaining, SUPPLYING BASIC GOODS AND SERVICES LOCALLY expanding and attracting industrial businesses is The more the local economy can support itself important because these companies generally through key goods and services such as grocery, fuel, provide higher-paying jobs and do not sell directly to pharmacies, hardware, restaurants/bars, etc., the the end-user, creating an economic multiplier effect more it has to offer its residents. One key factor to this throughout the local economy. issue is the critical mass required to support businesses. When examining communities that have Economic Development Goal 1 been successful one major item stands out, the ability Create a healthy and stable local economy by of a local business to supply more than one specialty; retention, expansion and recruitment of businesses. for example, the pharmacy that not only contain Policies over-the-counter drugs and other toiletries, but also ED-1.1 Encourage continued cooperation between has some clothing, gifts, etc. The business is not Franklin’s governmental and civic dependent on making it on only one item. organizations for identification and support of bolstering local economic development. QUALITY INFRASTRUCTURE ED-1.2 Perform business retention/expansion surveys Quality infrastructure is critical to attracting and with assistance from SCEDD and NEDED for keeping residents. Quality water systems and waste every primary/industrial company within the systems need to be in place and maintained in order City at a minimum of once every two years. to make the community attractive as a place to live. ED-1.3 Prioritize visits with corporate office headquarters of local primary employers Communities such as Franklin will be faced with once every two years. additional improvements as the older water mains ED-1.4 Encourage public/private partnerships for and sanitary collection system continue to age. creative financing of local economic Staying on top of these improvements will allow the development and affiliated projects. community to stay attractive to new and existing ED-1.5 Investigate the development of a local loan residents. fund for the support of entrepreneurialism. ED-1.6 Develop policies for the use of Tax Increment Maintaining the infrastructure, most of which is Financing regarding business retention and underground and unseen, is critical to a healthy expansion. community image. ED-1.7 Work cooperatively with local businesses to develop business transition plans so QUALITY HOUSING STOCK retirements do not also mean a loss of a Franklin is currently a “bedroom community” to business in the community. several area communities including Holdrege, Kearney and Hastings. Bedroom communities, like ENVIRONMENT Franklin, have a great role to play in rural Nebraska; Franklin’s citizens recognize economic development they offer a different and typically a better quality of should not come at the expense of environmental life. The key quality of life components include: quality, which itself is recognized as an important • A quieter place to live without the “white noise” component of a community. A balanced approach found in more urban areas to environmental sustainability advocates a balance • Cleaner, prouder residents between utilization of area resources and economic • A safe environment with minimal levels of crime growth. Economic growth should not exceed the • An environment where people look out for their ability of the natural or built environment to sustain neighbors and friends growth over the long term. Economic Development Goal 2 ECONOMIC DEVELOPMENT GOALS/POLICIES Recognize the importance of environmental quality TOOLS AND STRATEGIES and acknowledge protection of the environment will Business retention, expansion and recruitment efforts contribute to economic vitality. work toward maintaining a stable economy. Business retention and expansion programs address the issues Policies that might affect decisions by established businesses ED-2.1 Recognize environmental quality and and industries to remain or expand. Such issues might economic development are objectives.
28 Franklin, Nebraska Comprehensive Development Plan 2019 Economy and Economic Development
ED-2.2 Encourage recruitment of lower-impact, training. environmentally friendly businesses. ED-4.4 Conduct research through demographic and ED-2.3 Encourage programs promoting sustainable economic analysis as well as business business practices such as recycling, pollution retention and expansion visits to determine control, and low-energy consumption. assets and deficiencies in the skill sets found ED-2.4 Review and amend zoning regulations to within the local labor pool. ensure the environmental stability and ED-4.5 Work with Central Community College to protection of all uses, including primary uses. develop customized training programs to meet business needs. Regulation ED-4.6 Encourage the region’s community colleges Franklin encourages an environment offering to continue offering courses that position flexibility, consistency, predictability, and clear students to be prepared for employment direction to advance economic opportunities. opportunities found in the modern, Economic Development Goal 3 technology and information age. Provide consistent, fair, and timely regulations that ED-4.7 Advocate for legislative change to provide a are flexible, responsive, and effective in promoting funding mechanism for technical skills training local economic development. in the local high schools. ED-4.8 Prioritize the development of quality housing Policies stock as a means of attracting and ED-3.1 Contract with SCEDD to enforce nuisance maintaining a qualified local labor base. codes. ED-3.2 Encourage the streamlining of the permitting INFILL AND REDEVELOPMENT processes to ensure timeliness in processing of Encourage infill and redevelopment as an economic permitting and zoning applications to create development tool to revitalize under-utilized areas. a competitive advantage in the attraction of Infill development is the process of developing or new or expansion of existing businesses. redeveloping vacant land or under used parcels of ED-3.3 Perform development reviews to ensure land within the community that are already provided proposed developments are consistent with with urban infrastructure services. Infill development community vision and Franklin’s zoning code policies help utilize existing utilities and services before . considering costly service extensions. The policies QUALIFIED LABOR FORCE relating to infill and redevelopment encourage infill Qualified labor is essential to recruit and retain development in areas that are already provided with business locally. The basic cornerstone in the services. development of a qualified labor force is Economic Development Goal 5 educational opportunity. Franklin’s citizens should encourage the constant evaluation, growth and Facilitate infill and redevelopment through the use of responsiveness of K-12 education. Partnerships incentives and special development strategies. between business and the educational community Policies should be nurtured to further the process of aligning ED-5.1 Identify and designate specific areas for infill community business needs with a trained workforce. and redevelopment. Economic Development Goal 4 ED-5.2 Investigate using incentives such as Tax Promote a qualified labor force that is globally Increment Financing (TIF), revolving loan funds competitive and responds to the changing needs of or community sales tax proceeds to support the workplace. and incentivize re-use and infill within areas slated for redevelopment. Policies ED-5.3 Allow for focused public investment to ED-4.1 Support the cooperation between Franklin address the difficulties of development on and the University of Nebraska Extension small and/or nonconforming lots. regarding labor and workforce training ED-5.4 Prioritize demolition of vacant, delinquent opportunities with a continued focus on and/or unsafe facilities. entrepreneurship. ED-5.5 Investigate cost-effective measures for ED-4.2 Continue support of K-12 education to demolition of vacant, delinquent and/or include skills-based training and creative unsafe facilities. partnerships with businesses. ED-4.3 Advocate for greater partnership between community, community college and local school district for enhanced workforce
Franklin, Nebraska Comprehensive Development Plan 2019 29 Economy and Economic Development
ADEQUATE INFRASTRUCTURE AND LAND SUPPLY specifically, within the corporate limits. The Infrastructure availability is one of the most critical “Increment” is the difference between the current factors in economic development. Sewer, water, taxes generated and the anticipated or new taxes transportation, electric, natural gas, and that will be created from said project. communications facilities must be available or easily obtained. For attracting industrial/primary uses, an Funding under TIF projects is limited, however, to adequate supply of usable industrial land being used for activities deemed to be public unencumbered by conflicting land uses and/or infrastructure or in the public’s best interest. Prior to a environmental constraints is important. community using TIF as a funding mechanism, the governing body must complete a number of Economic Development Goal 6 statutory requirements. These requirements include Ensure adequate amounts of usable industrial and the authorization of a blight and substandard study commercially viable land in which new businesses to be conducted, findings that specific statutory may locate. conditions exist, and a declaration of blight and substandard conditions by the governing body. Policies ED-6.1 Encourage the identification of sites suitable Upon a declaration of blight and substandard for new primary/industrial development. conditions, the governing body must have a general ED-6.2 Ensure potential industrial and commercial redevelopment plan generated that discusses how land has the characteristics necessary to the blight and substandard conditions will be support commerce and industry. addressed. However, once a redevelopment/ ED-6.3 Maintain an inventory of identified, usable development project is proposed and the governing industrial and commercial land that is body expresses interest, the general redevelopment sufficient to meet the projected demand and plan must be amended to deal with specifics encourage marketability of the region. associated with the proposed project. The specific ED-6.4 Create and grow partnerships between redevelopment plan is basically a contract between government, the educational community, the municipality and the developer. The contract civic organizations, and businesses to deal spells out what will be paid for by the municipality, with economic issues at all levels and what means of upfront financing will be used on the particularly those that impact permitting and project, the terms of the agreement, not to exceed expediency of development. 15 years, and others as deemed appropriate. At this point, TIF funds can be authorized and the project started. The City of Franklin has several tools at their disposal with regard to economic development. One of the OTHER POTENTIAL FUNDING SOURCES best tools is their membership in South Central USDA Rural Development – Nebraska Economic Development District, Inc. The District can Web: http://www.rurdev.usda.gov/ne/ be a major asset in the development of grant applications through the Nebraska Department of UNK Entrepreneurship and Innovation Program Economic Development and other resources. Web: http://www.unk.edu/academics/crrd/ Entrepreneurship_program.php TAX INCREMENT FINANCING Another tool that is available to the City is the use of SCC Entrepreneurship Center Tax Increment Financing (TIF). In order for the City to Web: https://www.southeast.edu/Entrepreneurship/ use TIF the City Council would need to have a Blight and Substandard Study completed. The City would Nebraska Business Development Center (NBDC) be able to declare up to 50% of the corporate limits Web: http://www.nbdc.unomaha.edu/ as blighted and substandard. Center for Rural Affairs – Rural Enterprise Assistance Tax Increment Financing (TIF) in Nebraska is Project authorized within the State Statutes under the Web: http://www.cfra.org/reap/home Community Redevelopment Act. The use of TIF has been established for the purpose of the public sector Community Development Resources being capable of partnering with the private sector Web: http://cdr-nebraska.org on redevelopment/development activities. TIF is a means where a municipality may capture new tax revenues that are generated by a specific project,
30 Franklin, Nebraska Comprehensive Development Plan 2019 Economy and Economic Development The Food Processing Center – University of Nebraska Lincoln Web: http://fpc.unl.edu
Nebraska Enterprise Fund Web: http://www.nebbiz.org
Buy Fresh, Buy Local Nebraska Web: http://www.buylocalnebraska.org
Franklin, Nebraska Comprehensive Development Plan 2019 31 Economy and Economic Development
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32 Franklin, Nebraska Comprehensive Development Plan 2019 Chapter 6 Community Facilities
COMMUNITY FACILITIES Community Facilities Plan State and local governments provide a number of The Facilities Plan component of a Comprehensive services to their citizens and are referred to as public Development Plan reviews present capacities of all facilities. Public facilities represent a wide range of public and private facilities and services. buildings and services built and maintained by the different levels of government. Such facilities are The Facilities Plan for Franklin is divided into the provided to insure the safety, wellbeing and following categories: enjoyment of the residents of Franklin. These facilities • Recreation and services provide residents with social, cultural, • Historic Sites educational, and recreational opportunities, as well • Education as law enforcement and fire protection services • Fire Protection designed to meet area needs. • Law Enforcement • Communication It is important for all levels of government to • Public Utilities anticipate the future demand for their services if they • Health Care are to remain strong and vital. The analysis of existing facilities and future services are contained in the RECREATION Facilities Chapter. Alternatively, in some instances, Franklin is located in Region 4/South Central within there are a number of services not provided by the the Nebraska Game and Parks Commission. The local or state governmental body and are provided Region includes 13 counties in southcentral Nebraska. by non-governmental private or non-profit organizations for the community as a whole. These organizations are important providers of services and REGIONAL RECREATION are in integral part of the community. Regional recreational areas are a combination of state, federal, and major private facilities that attract people into the Franklin area. The following is a brief description of the facilities operated by private organizations, the U.S. Army Corp of Engineers, and Nebraska Game and Parks Commission in and around Franklin:
Franklin, Nebraska Comprehensive Development Plan 2019 33 Franklin Community Facilities
FIGURE 6.1: NEBRASKA GAME AND PARKS REGIONS Figure 6.3 Harlan County Lake Dam Franklin Parks and Recreation Opportunities Source: harlantourism.org
Harlan County Lake Dam and Recreation Area Wildlife Management Areas Accessed through Republican City approximately 15 Nebraska Game and Parks manages two Wildlife miles west of Franklin, the Harlan County Lake Dam Management areas, both south of the City. Both and Recreation Area, managed by the U.S. Army offer rolling hills pasture land, grasses, and rock Corp of Engineers, is a convenient place for outdoor outcrops where hunters and trappers can find deer, fun. The area is most notable for camping and dove, pheasant, rabbit, squirrel and turkey. Ash picnicking, fishing, hunting, and boating, but visitors Grove WMA encompasses 77 acres, while Limestone also enjoy bird watching, horseback riding, nature Bluffs WMA offers 480 acres. hike/bike and ATV trails. Harlan County Lake has over 13,000 surface acres of water and nearly 75 miles of Rowe Sanctuary shoreline, making it Nebraska’s second-largest lake. The Ian Nicolson Audubon Center north of Franklin Visitors to Harlan County Lake can see a movie, along the Platte River invites guests from late winter to refuel, or stock up on supplies in the City of Franklin. early spring to watch Sandhill cranes from their viewing blinds. Canadian and Snow geese that number in the tens of thousands, an occasional rare Whooping crane, ducks and numerous other bird species, can also be spotted in the region as they rest and refuel on their migration north. Hiking trails can be accessed from the visitor’s center.
Area Historical Museums Figure 6.2 Harlan County Lake & Republican River • Fort Kearny Museum, Fort Kearny Source: harlantourism.org • Franklin County Historical Museum, Franklin • Pioneer Village Museum, Minden Republican River • The Great Platte River Road Archway, Kearney The Republican River flows through southwestern • Webster County Historical Museum, Red Cloud Nebraska, south of the City of Franklin. Flanked by hills • Willa Cather State Historic Site, Red Cloud with moderate to steep loess slopes and sharp ridge crests, the Republican River is slow-flowing, making it FRANKLIN BASEBALL FIELD ideal during July and August for canoeing, tubing The Clarence Mitchell Baseball Park is located on the and kayaking. From the Harlan County Lake Dam, west edge of the City. City staff maintain the park. the U.S. Army Corp of Engineers releases water into Summer sports programs utilize the park, as well as the Republican River. From the Dam near Republican other baseball and softball events scheduled during City to Red Cloud east of Franklin, this 49 mile the year that are open to the public. The park is also Republican River canoe trail includes three primitive available for activities like kite flying, Frisbee, playing campsites multiple parking and launch sites and catch and throwing the football. abundant wildlife and scenery. Franklin is well situated for travelers needing to refresh before and after their adventures.
34 Franklin, Nebraska Comprehensive Development Plan 2019 Franklin Community Facilities
FRANKLIN CITY PARK The Franklin City Park provides residents access to picnic pavilions, BBQ grills, tennis courts, sand volleyball, basketball courts, playground equipment, and the Franklin Swimming Pool. There is also a Veterans Memorial with two tanks and a fighter jet on display.
The majority of residents live within a 1/4 mile of the park. Parkland encompasses approximately eight acres of space. According to the American Planning Association, two acres of parkland should be dedicated for every 100 people in the community, which means Franklin should have 18 acres. The average amount of park space per resident in Franklin is .008 acre. In order to reach the average, the City would need to add 10 acres of park space. Should the City choose to add additional park space, it should do so in the southeast portion of town. It should be noted Franklin Public Schools is located in the southwest portion of the City and offers open space and playground equipment to the public. However, it is not a City-owned facility and therefore is not included in park space calculations.
Figure 6.5 Franklin Golf Club Source: golfnebraska.com
Franklin County Fair Usually held in the first two weeks of July, the Franklin County Fair runs about ten full days and is one of the premier events taking place in the area. The Fair features carnival rides, 4-H Club and FFA livestock competitions and awards, livestock scrambles, tractor pulls and demolition derbies. Live entertainment, dances and a free barbeque along with lots of arts, crafts, cooking and baking 6. City Park in Franklin Figure 4 competitions round out the attractions at this popular Source: Google Earth event. The Fair is held at the Franklin County Fairgrounds located one mile west of Franklin on J Street. FRANKLIN GOLF COURSE The Franklin Golf Club is a nine-hole public golf ROSEBOWL PLAYHOUSE & MOVIE THEATRE course. It features cart rentals and lush fairways. The Rosebowl Movie Theater is a local gem. The Center Creek meanders through the course. It has a building was donated to the Franklin Chamber of modern club facility that features a full service bar, Commerce in 1990. Since then, it has been lovingly snacks, showers, and a social area with big screen restored, even rising from the ashes of a tragic fire in TVs. It is also available for private events. 2012. The theater shows movies every weekend and is available for special occasions.
Franklin, Nebraska Comprehensive Development Plan 2019 35 Franklin Community Facilities
SOUTH PARK RV PARK & CAMPGROUND population of 1,000 inhabitants or less that On the southern edge of the City, South Park RV Park maintains both elementary and high school & Campground is a pet and family-friendly grades under the direction of a single school campground that offers RV sites with full hookup board. amenities and a dump station. The City owns and Class 3 Any school district with territory having a operates the park. population of more than 1,000 and less than 100,000 that maintains both elementary and Valley Gun Club high school grades under the direction of a The Valley Gun Club offers trap shooting, a pistol single school board. range and a center fire rifle range. The trap range Class 4 Any school district with territory having a has an electronically controlled, automatic target population of 100,000 or more and less than machine with cement shooting paths from 16 to 27 200,000 inhabitants that maintains both yards. The rifle range has 100, 200 and 300 yard elementary and high school grades under the distances and five solid cement shooting benches. direction of a single school board. The Gun Club is open year round and membership Class 5 Any school district with territory having a dues are $20 per year. In addition to the typical population of 200,000 or more that maintains range shooting, there are many classes and both elementary and high school grades programs available that typically run from April under the direction of a single school board. through October, including the Young Guns 4-H Club, Class 6 Any school district that maintains only a high the Quail Forever Youth Mentor Program, hunting school under the direction of a single school safety classes, the Ladies Only Trapshooting and board. The territory of Class 6 district is made various competitive events. Arrangements can be made for private shooting events. up entirely of Class 1 districts (or portions thereof) that have joined the Class 6.
Figure 6.6 Franklin Public Library Source: SCEDD 2017 Library Franklin Public Library is located on the south side of Franklin City Park and is supported by City tax revenues. The library celebrated its 25th anniversary in 2017. The Library provides books for all ages, audiobooks, DVDs, CDs, and periodicals, and cake pans for check out. Each year, the Library sponsors a Summer Reading Program. There are always games available for play in the Library. Computers and Internet connection are available for all patrons, as Figure 6.7 Franklin Flyers well as printer services. The Library also provides fun logo Source: twitter.com/sflyers children’s programs throughout the year. Franklin Public Schools is a Class 3 school. All EDUCATION programs are located within one building. Programs PUBLIC SCHOOLS include Pre-K—12th grade education, Special The public schools in Nebraska are grouped into six Education, Title I, and Gifted programs. Activities and classes, depending upon the type of educational sports programs include Future Farmers of America services provided and the size of the school district. (FFA), Family, Career and Community Leaders of The six classes, as defined by the State of Nebraska, America (FCCLA), Quiz Bowl, Future Problem Solvers, are: Science Club, Speech, Drama, Band, Vocal Music, Class 1 Dissolved by Legislative action Football, Cross Country, Volleyball, Wrestling, Class 2 Any school district with territory having a Basketball, Track, and Golf. For the 2015-2016
36 Franklin, Nebraska Comprehensive Development Plan 2019 Franklin Community Facilities academic year, the school had a valuation of Communications $488,643,851. The district received $45,959 in state aid Internet/World Wide Web Service Providers (ISP) during that year. Their mission is to “equip all students Internet service providers in Franklin are: with the skills and competencies needed to meet the • Frontier Communications challenges of the twenty-first century.” There are 281 • Glenwood Communications students enrolled during the 2018-2019 school year. Those students who sat for the American College Newspapers Testing program (ACT) scored above the Nebraska Newspapers available in Franklin are: state average. • Kearney Hub (daily) • Hastings Tribune (daily) Post-Secondary Education • Franklin County Chronicle (weekly) Nebraska offers multiple opportunities for higher education, most of which are located in the Omaha Radio Stations and Lincoln area. Figure 6.5 indicates some institutions with higher enrollment levels close to While there are no commercial radio stations based Franklin. The closest institution is the University of in Franklin, the county receives many commercial Nebraska—Kearney. radio frequencies based in surrounding areas such as Grand Island, Hastings, Kearney, Columbus, and Lincoln. Miles from Facility Location Enrollment Franklin Strongest AM-FM Radio Stations Available in Franklin
University of Kearney, FM Stations AM Stations 6,047 43 Nebraska - Kearney NE 88.7 KLNE 97.7 KMTY 550 KFRM 880 KRVN Hastings, Hastings College 1,181 60 90.1 KNEF 98.9 KKPR 580 WIBW 970 KJLT NE 91.9 KAWZ 101.5 KROR 590 KXSP 1020 KMMQ Central Community Grand 4,159 63 College Island, NE 92.5 KQMA 102.3 KRNY 750 KMMJ 1190 KVSV
Fort Hays State 94.5 KLIQ 103.1 KKJK 790 KXXX 1230 KHAS Hays, KS 8,728 88 University Figure 6.10 AM-FM Radio Barton County Great Stations Source: city-data.com 4,108 118 Community College Bend, KS
Figure 6.8 Post-Secondary Telephone Services Education Source: city-data.com Home telephone service is provided by Frontier Communications. Cellular Service can be obtained through Verizon or Viaero. Early Childhood Programs There are three early childhood development Television Stations, Cable and Satellite Services programs in Franklin. One is the Lutheran Pre-school Presently there are no local television stations located provided through Grace Lutheran Church. Another is in Franklin County. The over the air stations serving the provided through the elementary school facilities. The area originate out of Axtell, Hastings and Lincoln. school follows Nebraska Department of Education’s Cable TV is provided through Eagle Communications. Rule 11 guidelines for age requirements. Franklin also Satellite TV can be obtained through DirecTV or Dish has an Early Head Start/Head Start Child & Family Network. Development Program, which offers high quality child development services to children and family of all Fire Protection backgrounds. Fire and Rescue Rural Fire District, Franklin EMT, Volunteer Fire Department, and Volunteer Rescue Squad were merged in 2013. They are located at 618 14th Avenue. Franklin’s Fire Department, Rescue Squad, and EMTs have won numerous awards and set an example for the surrounding communities. Figure 6.9 Early Child & Family Development Program Source: hshn.org
Franklin, Nebraska Comprehensive Development Plan 2019 37 Franklin Community Facilities Law Enforcement Construction and Demolition Site—The City provides a Franklin Police Department Construction and Demolition Site accepts Franklin has its own police department. The Franklin construction materials for disposal, including empty Police Station is located at 1516 M Street. There are demolished structures. Trash, furniture, and pallets are two officers employed with the City. One is the Chief not accepted. An asbestos inspection is required for of Police, the other is a part time officer. The City of any material brought into the site. Franklin also works with the Franklin County Sheriff’s Tree Dump—The City also provides a Tree Dump to Department, who has an office in the Franklin County residents. It is open year round and accepts only Courthouse that is located in the City. trees, grass clippings, and yard waste.
Public Utilities Water System This section focuses on the public and private utilities The City owns and operates a public water system. the residents of Franklin need to sustain a The system consists of three wells north of town and comfortable lifestyle. The location, quality, capacity, two wells in town, a water tower, and a submersible and improvements of these utilities will influence pump. To ensure water quality, the City conducts future development. water quality testing monthly and quarterly. A water sample is sent to Nebraska Public Health Lab in Electricity Lincoln, Nebraska. The water is treated periodically, The City of Franklin provides electricity for its residents as needed. Current water rates for a single family via Southern Power District. For single family residence is a base rate of $15.00 per month with a residences, there is a base rate of $11.75. During the usage rate of $1.10 per thousand gallons. Farmers are summer months, there is a usage rate of $.1250 per charged for bulk water available at the power plant kWh. In the winter, there is a usage rate of $.1250 for that is priced at $5.00 minimum. Anything over 500 the first 600 kWh; kWh in excess of 600 are charged at gallons is charged at $1.00 per 100 gallons. a rate of $.0830 per kWh. Health Care Natural Gas Franklin County Memorial Hospital and Clinics Franklin’s natural gas provider is Black Hills Energy. The Opened in June 1952, FCMH has grown to become a base rate customer charge for a single family home certified critical access hospital providing health care with one meter is $15.02 per month. There is a safety services to residents of central Nebraska through its and integrity charge of $4.92 per month. Black Hills hospital and outpatient clinics. Located in Franklin Energy also has a distribution charge calculated at are the Franklin County Memorial Hospital, FCMH Pool $.4675 for the first 20 therms and $.1338 per therm for Medical Clinic, and FCMH Pharmacy. Physical, any exceeding the first 20 terms. Occupational, Aqua, and Speech therapy services Sewer Collection and Treatment are housed in the new Outpatient Services Building Franklin owns and operates a lagoon system for its that also provides specialty clinics, a new laboratory, sewer and waste water needs. The lagoon is located ultrasound, and a CT scanner. Counseling is offered south of the City. There is a $14.00 charge per month by a qualified psychologist, dietary consultation by a for this collection. Medical Nutritionist, and wound care by a Nursing Wound Specialist. Mobile diagnostic services provide Solid Waste Echocardiography, Mammography, MRI, Nuclear The City of Franklin provides solid waste collection for Scans, and Doppler studies. FCMH outreach clinics its residents. The City utilizes Prairie Hill Landfill in are located in Red Cloud, Hildreth, and Campbell. Holdrege, Nebraska. Their rate for residential Clinics are Certified Provider Based Rural Health customers is fifteen dollars $15.00 for one tote and Clinics. Staffing includes one physician and five nurse $25.00 for two totes. practitioners who are supported by a wide variety of licensed, professional and skilled staff. Recycling Center—The City provides a Recycling Center located north of town on Highway 136. This Elder Care Centers & Services Center provides for the recycling of newspapers, Franklin County Senior Citizens Center offers Bible magazines, phone books, cardboard, number 1 and study, exercise classes, coffees, entertainment, 2 plastic containers, aluminum, tin, and used motor birthday dinners, holiday events, cards, billiards and oil. Periodically, the Center provides for collection of bingo. Services include Noon meals served at the hazardous household waste, tires, appliances, scrap Center as well as home delivered meals, public lumber, and materials. transportation, housework, yard work, medical clinics, educational programs, legal aide and help with
38 Franklin, Nebraska Comprehensive Development Plan 2019 Franklin Community Facilities understanding federal programs. FACILITIES GOALS AND POLICIES Parks and Recreational Goals Parks and Recreation Goal 1 Development of a City-wide trails system will aid in the long-term recreational and walkability needs as well as creating a tourism destination for the City.
Parks and Recreation Policies and Strategies PR-1.1 The City should complete a long-range trails Master Plan in order to identify specific locations, routes and amenities to connect. PR-1.2 The City should work with the NRD’s to determine potential funding for the planning and construction of recreational trails within Franklin. Figure 6.11 Franklin County Memorial Hospital & FCMH Pool Medical Clinic PR-1.3 The City should, as the paved City roads Source: fcmh.com are repaired, overlaid, etc., work to incorporate a standard trail width to the shoulder of the roadway. Golden Age Village—A congregate apartment PR-1.4 A trail system should work to connect complex for income eligible elders who are able to different entities within the City together live independently in this community setting. Activities as well as connect to other regional trails include community dinners, cards, parties, billiards, in the area. Bible study, and gardening. Parks and Recreation Goal 2 Franklin will continue to work closely with different entities including the community’s parks department and NRD to maintain and enhance the existing parks, camps, riverfront, and lakes.
Figure 6.12 Golden Age Village Parks and Recreation Policies and Strategies Source: Google, Inc., May 2012 PR-2.1 The City should continue promoting the area’s recreational destinations. Franklin Care & Rehabilitation Center offers 24 hour PR-2.2 The City should continue to promote local skilled nursing care that includes on-site outpatient agri-tourism. and inpatient rehabilitation services plus long-term Educational Goals care for adults. In addition to its 47-bed skilled nursing Educational Goal 1 facility, FCRC offers 19 assisted living units. Quality education is a vital component of positive growth. Although the City's role is limited, objectives and policies need to be established with regard to locating development to insure cost effective use of existing facilities. Educational Policies and Strategies EDU-1.1 Continue to cooperate with the school Figure 6.13 Franklin Care & Rehabilitation Center system in expanding public uses of Source: facebook.com/franklincareandrehab educational facilities. EDU-1.2 The school district should review all new development proposed within the zoning jurisdiction of the City of Franklin so future school populations can be accommodated. Educational Goal 2 The City should coordinate with the school district to insure adequate areas for future educational needs.
Franklin, Nebraska Comprehensive Development Plan 2019 39 Franklin Community Facilities
Above all, the main goal is to encourage excellence in the school curriculum and facilities. Educational Policies and Strategies EDU-2.1 Cooperate with school systems on any future expansion or the development of new joint facilities. EDU-2.2 Work with students to continually identify new facilities needed in the future. Public Safety Goals Public Safety Goal 1 The goal of Franklin (residents) is to maintain fire protection, rescue, and ambulance programs by exploring programs and alternative services to insure optimum service levels and public costs.
Public Safety Policies and Strategies PS -1.1 The different fire and rescue organizations and the City should continue to work to maintain quality equipment levels. PS-1.2 The fire department should continue to expand fire safety education and prevention throughout the City.
Public Safety Goal 2 The goal of Franklin is to maintain quality law enforcement throughout the City. Public Safety Policies and Strategies PS-2.1 Continue to identify specific ways to work cooperatively with the City Police Department regarding protection in the City. PS-2.2 Continue to support minimum standards regarding equipment used by law enforcement. Public Safety Goal 3 The goal of Franklin is to maintain regulations to protect the general health and safety of all residents.
Public Safety Policies and Strategies PS-3.1 Establish regulations protecting the City residents from the secondary effects of adult entertainment.
40 Franklin, Nebraska Comprehensive Development Plan 2019 Chapter 7 Energy Element
ENERGY ELEMENT Energy and the issues connected to the different sources are becoming more critical every year. The Energy usage in the early 21st Century is becoming a critical issue throughout Nebraska as well as the entire need for the Energy Element in the Franklin United States. Our dependency on non-renewable Comprehensive Development Plan should be energy sources has increased significantly over the something desired as opposed to required. However, past 100 years. during the 2010 Legislative Session of the Nebraska Unicameral, the State Senators passed LB 997 which Energy consumption comes in several forms, such as: required this section become a part of all community • Lighting our homes, businesses, and industries comprehensive plans, except for villages. • Cooling and heating our homes, businesses, and industries SUSTAINABILITY • Heating our water for homes, businesses, and industries • Food preparation • Transportation–both personal and business related • Agricultural equipment • Recreation and Entertainment–vehicular, computers, music, etc.
The 21st Century ushered in an increased concern for energy usage and its impacts on the environment. This increased concern for the environment created a better understanding of the carbon footprint generated by any one individual as well as striving towards modifying our behavior patterns in order to lessen the footprint. In addition, the phrase and concept of sustainability has become more widely used, even in Nebraska.
Franklin, Nebraska Comprehensive Development Plan 2019 41 Energy Element
All of us living in today’s world need to begin switching gradually to cleaner and more renewable resources. By doing so it will aid future generations with their quality of life. The more renewable energy sources become the norm for our generation, the more likely these sources will be second nature and common in the future. Americans have grown to rely more heavily on electricity. However, state and federal policies have been more insistent on curbing the level of our reliance on electricity; especially, those sources produced by non-renewable fossil fuels such as oil and coal. Federal policy has set a goal for 20% of all electricity, by 2020, in the United States be from renewable sources such as solar and wind. So, what can Franklin do to be more sustainable? There are a number of activities that can be undertaken and pursued to make an impact. The following information will meet at a minimum, the Figure 7.1 Southern Power District Service Area requirements of LB 997 but will also provide basic Source: southernpd.com strategies the City can undertake to make a contribution to the overall energy solution. ENERGY USE BY SECTOR This section analyzes the energy use by residential, ENERGY INFRASTRUCTURE commercial, industrial and other users and will Energy Infrastructure and Use by Sector examine the different types of energy sources that According to the U.S. Energy Information are utilized by these different sectors. Administration (EIA), the largest consumer of energy is the industrial sector. The EIA attributes this use to the Residential Uses large agricultural and food production portions of the Within Franklin, residential uses are provided by a industry sector. number of options for both power and heating and cooling. These include electrical power (both fossil Net energy consumption is defined by the Nebraska fuel and renewable resources), natural gas, oil, Department of Energy (NEDOE) as the amount of propane, and wood. The most dominant of the energy used minus electrical systems losses. Electrical system losses are defined as the amount of energy needed to generate, transmit, and distribute electricity. Electrical system losses are subtracted out in order to indicate the amount of energy actually consumed by sector.
Electrical Distribution In Nebraska, most households are primarily powered by natural gas or electricity. Due to the availability of data, energy consumption in Franklin will be based upon electricity.
The Franklin has approximately 590 accounts that purchase power from the City. The City purchases it’s electricity from Southern Power District, a publicly- owned electric distribution system.
Natural Gas Service Natural gas supplies in Franklin are controlled by Black Hills Energy. Black Hills Energy provides electric and natural gas service to more than 600,000 customers in Figure 7.2 Black Hills Energy Service Area hundreds of communities throughout Arkansas, Source: blackhillscorp.com/about-black-hills-corporation/ Colorado, Iowa, Kansas, Nebraska, and Wyoming. corporate-responsibility-report/who-we-are
42 Franklin, Nebraska Comprehensive Development Plan 2019 Energy Element energy sources available and used by the residents of These include electrical power (both fossil fuel and Franklin is electricity produced from both fossil fuels renewable resources), natural gas, propane, oil and and renewable resources. wood. The type of energy source is very dependent upon the specific commercial use and the facilities The use of natural gas, oil, propane, and wood will be employed to house the use. The most dominant of the found typically as heating sources during the winter energy sources available is electricity produced from months. The type of fuel used will depend a great both fossil fuels and renewable resources. deal on where a residence is located within the city. Residents located within the more urbanized parts of Similar to residential uses, the use of natural gas, oil, Franklin are more likely to have natural gas heating or propane, and wood will be found typically as heating electrical furnaces. Propane and wood stoves are sources during the winter months. The type of fuel most likely found in the rural parts of the city where used will depend a great deal on the type of natural gas infrastructure is not always available. commercial use and the construction of the building involved. The location of the commercial uses will also dictate, similar to residential uses, what type of heating fuels are used. However, in commercial uses such as repair garages and other uses in larger metal buildings, they may be dependent upon recycling used motor oils to heat their facilities.
Industrial Uses Franklin’s industrial uses will be very similar to those discussed within the commercial section. However, in some cases, diesel fuel can play a role in both power generation and heating and cooling.
SHORT-TERM AND LONG-TERM STRATEGIES As the need and even regulatory requirements for Figure 7.3 Nebraska Energy Consumption by End-Use energy conservation increases, residents of Franklin Source: Energy Information Administration will need to: 1. Become even more conservative with energy usage; Eighty-one percent of Franklin’s 2017 CNAS 2. Make use of existing and future programs for respondents paid on average more than $101 per retrofitting houses, businesses, and manufacturing month for their households’ electricity usage; 19% plants; and, paid less than $100 per month on average. 3. Increase their dependence on renewable energy sources. According to the Energy Information Administration (EIA), the average electric bill for residential in 2016, was $105.47 in the state of Nebraska; therefore, the RESIDENTIAL STRATEGIES majority of customers in Franklin are paying around or There are many different strategies capable of being above the state average for electricity. undertaken to improve energy efficiency and usage Regionally, the cost of electricity is higher for the City in residences. These strategies range from simple (less of Franklin as the City has an average price per kWh costly) to complex (costly). Unfortunately, not all of of $.0984. This is in comparison to the: the solutions will have an immediate return on • City of Nelson’s average price was $.0898 investment. As individual property owners, residents • City of Blue Hill’s average price was $.0805 will need to find strategies fitting the budgets to invest • City of Red Cloud’s average price was $.0907 in the long-term savings.
The EIA lists the average price of electricity for the There are several ways to make a residence more residential sector as 9.5 cents per kWh. Therefore, the energy efficient. Some of the easiest include: Converting incandescent light bulbs and residents of the City of Franklin are paying around the • average price per kWh for electricity. Compact Florescent Lights to Light Emitting Diodes or the most recent technology to conserve Commercial Uses energy. Installing additional insulation in the attic. Franklin’s commercial uses also have a number of • Converting standard thermostats to digital/ options for both power and heating and cooling. •
Franklin, Nebraska Comprehensive Development Plan 2019 43 Energy Element
florescent systems. • Converting standard thermostats to digital/ programmable thermostats. • Installing additional insulation in an attic space. • Changing out older less efficient air conditioners and furnaces/boilers to newer high-efficiency units. • Exchanging less efficient water heaters with EnergyStar units or on-demand systems.
Some of the costlier ways to make a business more energy efficient include: • Installation of energy-efficient low-e windows and/ or storefronts. • New insulation in exterior walls. Figure 7.4 Franklin Household Monthly Electricity Cost • Addition of solar panels for either electrical Source: SCEDD CNAS, 2017 conversion and/or water heater systems. • Adding individual-scale wind energy conversion programmable thermostats. systems. • Change out older less efficient air conditioners • Installing a geothermal heating and cooling and furnaces/boilers to more high-efficiency units. system. • Changing out older appliances with new • New storefronts with insulated panels and EnergyStar appliances. insulated Low-E glazing. • Exchanging less efficient water heaters with EnergyStar units or on-demand systems. PUBLIC STRATEGIES Some of the costlier ways to make a residence more Energy efficiency strategies for public facilities are energy efficient include: similar to those of commercial and industrial users. • New insulation in exterior walls. Typically, these improvements will require a greater • Addition of solar panels for either electrical amount of investment due to the size of most of these conversion and/or water heater systems. facilities. However, in some cases there are grants • Adding individual-scale wind energy conversion available from time to time to assist public agencies systems. with these improvements. • Installing a geothermal heating and cooling system. There are a number of different methods capable of • Installation of energy-efficient low-e windows. being undertaken to improve energy efficiency and usage in public facilities, including: • Converting all incandescent light bulbs and CFL’s COMMERCIAL/INDUSTRIAL STRATEGIES to LED’s or better on small fixtures. Strategies for energy efficiency within commercial/ • Converting all florescent lights to more efficient industrial facilities are more difficult to achieve than florescent systems. those for residential uses. Typically, these • Converting standard thermostats to digital/ improvements will require a greater amount of programmable thermostats. investment due to the size of most of these facilities. • Installing additional insulation in an attic space. • Changing out older less efficient air conditioners There are a number of different strategies that can be and furnaces/boilers to newer high-efficiency undertaken to improve energy efficiency and usage units. in commercial and industrial facilities. Again, not all of • Exchanging less efficient water heaters with the solutions will have an immediate return on EnergyStar units or on-demand systems. investment. Businesses and industries will need to find strategies fitting into their ability to pay for savings at Some of the costlier ways to make public facilities the present time. more energy efficient include: • Installation of energy-efficient low-e windows and/ There are several ways to make businesses/industries or storefronts. more energy efficient. Some of the easiest include: • New insulation in exterior walls. • Converting all incandescent light bulbs and CFL’s • Addition of solar panels for either electrical to LED’s or better on small fixtures. conversion and/or water heater systems. • Converting all florescent lights to more efficient
44 Franklin, Nebraska Comprehensive Development Plan 2019 Energy Element
• Adding individual-scale wind energy conversion SOLAR systems. Solar energy has been around for decades and it last • Installing a geothermal heating and cooling hit a high in popularity in the 1970’s. However, today’s system. solar energy design is much more efficient and • New storefronts with insulated panels and aesthetically pleasing. Some of the aesthetic insulated Low-E glazing. improvements have to do with the fact that today’s systems are not as bulky as their ancestors. Today, RENEWABLE ENERGY SOURCES solar is being used much like wind turbines, on a small- Renewable energy sources, according to most scale level (home or business) or a much grander definitions, include natural resources such as the wind, level (solar farms). the sun, water, and the earth (geothermal) capable of being used over and over again with minimal or no depletion, as well as tapping into sources of methane (from natural resources or man-made conditions). The most common sources of renewable energy used in Nebraska are the wind, the sun, water and earth. The following are examples of how these renewable resources can be used to reduce dependency on fossil fuels. WIND The wind is one of those resources in abundance in Nebraska. Wind is not a new technology in Nebraska; the pioneers that settled in Nebraska used wind mills for power and to work the water wells on their farms and ranches. Wind can be used to produce electricity through the construction of small-scale or utility/commercial grade wind conversion systems (wind turbines). Figure 7.6 Annual Average Wind Speed at However, not all areas of the state have the ideal 80 Meters levels needed to produce electricity on a utility or commercial level; but the use of small-scale wind Solar energy includes solar water and space heating turbines on homes and businesses will work in most as well as taking solar photovoltaic panels to convert parts of Nebraska. the sun’s rays into electricity. Solar panels can typically produce between 120 and 200 watts per square meter at an installed cost of $11 to $22 per watt, according to the American Solar Energy Society, but these costs are becoming less every year as more solar units are commissioned and new more cost effective technologies are developed. Based upon the diagram above there is great solar potential in the state of Nebraska. A majority of the state lies within some of the better areas in the country for solar potential.
In addition, special urbanized solar farms can be constructed as a dual purpose for generating shade and electricity, as seen on the lower left (the parking lot is located at 25th and Cuming Streets in downtown Omaha). In the future, it may become desirable for new subdivisions/developments to incorporate renewable Figure 7.5 Net Energy Consumption by Fuel Type energy systems such as solar and wind. In order for Source: Nebraska Energy Office this to occur, a standard subdivision regulation and zoning code would likely need to be modified in order
Franklin, Nebraska Comprehensive Development Plan 2019 45 Energy Element
Methane electrical generation can be accomplished through the use of a methane digester which takes the raw gas, naturally generated from some form of decomposing material, and converts the gas into electrical power. There have been some attempts to take the methane generated from animal manure and convert it into electricity; most have been successful but were costly to develop. Another approach to methane electrical generation is to tap into the methane being generated from a solid waste landfill; instead of burning off the methane, it can be piped into a methane convertor and generated into electricity for operating a manufacturing plant or placed on the overall grid for distribution. FIGURE 7.7 SOLAR CONTOURS Source: Solar Energy Industries Association Methane convertors make use of unwanted gases and are able to produce a viable product. As long as to allow these systems. In addition, the state humans need to throw garbage into a landfill or the regulations under the C-BED Program would likely production of livestock is required, there will be a need to be updated. source of methane to tap for electrical generation.
STATE PROGRAMS The following provides a basic history and description of some newer programs in Nebraska; interested parties should contact the State of Nebraska Energy Office, SPD or Black Hills Energy.
C-BED PROGRAM In May 2007, Nebraska established an exemption from the sales and use tax imposed on the gross receipts from the sale, lease, or rental of personal property for use in a community-based energy development (C- BED) project. The Tax Commissioner is required to establish filing requirements to claim the exemption. FIGURE 7.8: SOLAR PANELS AT PARKING LOT IN OMAHA Source: GoogleEarth In April 2008, L.B. 916 made several amendments to this incentive, including: (1) clarified C-BED ownership criteria to recognize ownership by partnerships, GEOTHERMAL ENERGY cooperatives, and other pass-through entities; Geothermal energy is typically utilized through a (2) clarified that the restriction on power purchase process where a series of pipes are lowered into agreement payments should be calculated vertical cores called heat-sink wells. The pipes carry a according to gross and not net receipts; (3) added highly conductive fluid that either is heated or cooled language detailing the review authority of the Tax by the constant temperature of the ground. The Commissioner and recovery of exempted taxes; and resulting heat exchange is then transferred back into (4) defined local payments to include lease the heating and cooling system of a home or other payments, easement payments, and real and structure. This is called a geothermal heat exchange personal property tax receipts from a C-BED project. system or ground source heat pump. The California Energy Commission estimates the costs of a A C-BED project is defined as a new wind energy geothermal system can earn net savings immediately project that meets one of the following ownership when financed as part of a 30-year mortgage conditions: (Source: American Planning Association, PAS Memo • For a C-BED project that consists of more than two January/February 2009). turbines, the project is owned by qualified owners with no single qualified owner owning more than METHANE ENERGY 15% of the project and with at least 33% of the The use of methane to generate electricity is power purchase agreement payments flowing to becoming more cost-effective to use in Nebraska. the qualified owner or owners or local community;
46 Franklin, Nebraska Comprehensive Development Plan 2019 Energy Element
or end of an annualized period will be paid out to the • For a C-BED project that consists of one or two customer. Customers retain all renewable energy turbines, the project is owned by one or more credits (RECs) associated with the electricity their qualified owners with at least 33% of the power system generates. Utilities are required to offer net purchase agreement payments flowing to a metering until the aggregate generating capacity of qualified owner or local community. all customer-generators equals one percent of the utility's average monthly peak demand for that year. In addition, a resolution of support for the project must be adopted by the county board of each county in STATE LAW OF SOLAR AND WIND EASEMENTS which the C-BED project is to be located. Nebraska's solar and wind easement provisions allow A qualified C-BED project owner means: property owners to create binding solar and wind • a Nebraska resident; easements for the purpose of protecting and • a limited liability company that is organized under maintaining proper access to sunlight and wind. the Limited Liability Company Act and that is entirely made up of members who are Nebraska Originally designed only to apply to solar, the laws residents; were revised in March 1997 (LB 140) to include wind. • a Nebraska nonprofit corporation; Counties and municipalities are permitted to develop • An electric supplier(s), subject to certain limitations regulations, or development plans protecting access for a single C-BED project. to solar and wind energy resources if they choose to In separate legislation (LB 629), also enacted in May do so. Local governing bodies may also grant zoning 2007, Nebraska established the Rural Community- variances to solar and wind energy systems that Based Energy Development Act to authorize and would be restricted under existing regulations, so long encourage electric utilities to enter into power as the variance is not substantially detrimental to the public good. purchase agreements with C-BED project developers. LB 568, enacted in May 2009, made some revisions to LOCAL GOVERNMENT AND RENEWABLE ENERGY POLICIES Local governments can take steps to encourage the law and added additional provisions to govern greater participation in wind generation. Cities and the establishment and termination of wind counties can pursue strategies to make these projects agreements. Specifically, the bill provides that the more attractive, including: initial term of a wind agreement may not exceed forty • Develop or amend existing zoning regulations to years. Additionally, a wind agreement will terminate if allow small-scale wind turbines as an accessory development has not commenced within ten years of use in all districts. the effective date of the wind agreement. If all • Develop or amend existing zoning regulations to parties involved agree to extend this period, however, exempt small-scale turbines from maximum height the agreement may be extended. requirements when attached to an existing or new structure; provided, they meet all building codes CURRENT RENEWABLE ENERGY PROGRAMS/ and manufacturers requirements for attachment. FUNDING SOURCES • Work with SPD on ways to use wind turbines on There are several incentive programs available small-scale individual projects or as a source of through SPD to assist in purchasing and installing more power for the community. energy efficient equipment in residences, businesses and irrigation operations. In addition, there are NET METERING IN NEBRASKA funding opportunities through the Nebraska Energy LB 436, signed in May 2009, established statewide net Office. metering rules for all electric utilities in Nebraska. The rules apply to electricity generating facilities which ENERGY IN FRANKLIN use solar, methane, wind, biomass, hydropower, or The City of Franklin will continue to encourage the geothermal energy, and have a rated capacity at or development of energy-related goals, policies and below 25 kilowatts (kW). Electricity produced by a strategies. qualified renewable energy system during a month shall be used to offset any kilowatt-hours (kWh) consumed at the premises during the month.
Any excess generation produced by the system during the month will be credited at the utility’s avoided cost rate for that month and carried forward to the next billing period. Any excess remaining at the
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48 Franklin, Nebraska Comprehensive Development Plan 2019 Chapter 8 Land Use
Both of these elements are integrated in some Any planning jurisdiction, whether a large growing manner. Effective evaluations and decisions urban area or a small declining rural community, regarding development decisions require a there will be changes in land uses throughout the substantial amount of information to be utilized. planning period. The purpose of the Franklin Land Use Chapter is to provide a general guide to direct changes in land use over time. The resulting changes The term “Existing Land Use” refers to the developed in land uses should be capable of coexisting with a uses in place within a building or on a specific parcel minimum number of conflicts. This Chapter must of land. The number and type of uses are constantly reflect the existing conditions and be flexible in order changing within a community, and produce a to meet the needs of its citizens as well as their vision number of impacts either benefitting or detracting for the community’s future. from the community. Because of this, the short and long-term success and sustainability of the The Franklin Land Use Chapter provides the basis for community is directly contingent upon available the formulation of land use and the zoning resources utilized in the best manner given the regulations. For this reason, it is imperative to constraints the City faces during the course of the formulate a plan tailored to the needs, desires and planning period. environmental limitations of the planning area. The Chapter should promote improvements in all the Existing patterns of land use are often fixed in older components of the local economy. communities or at least in established sections, while development in newer areas is often reflective of current development practices. Overall, development patterns in and around Franklin have The elements of the Franklin Land Use Chapter been influenced by topography and manmade include: features such as railroad lines. These likely continue to • Existing Land Use, and influence development patterns today and will do so • Future Land Use Plan throughout the course of the planning period.
Franklin, Nebraska Comprehensive Development Plan 2019 49 Land Use Plan
EXISTING LAND USE CATEGORIES The utilization of land is best described in specific categories with broad descriptions where numerous businesses, institutions, and structures can be grouped. For the purposes of the Comprehensive Plan, the following land use classifications are used: • Single Family Residential • Commercial • Industrial • Public (including City facilities and schools) • Parks & Recreation (including Open Space) • Vacant/Agricultural
These land use classifications are used throughout both the existing land use analysis as well as the future land use plan to ensure continuity and Figure 8.1 Existing Land Use: percent of acres methodology. Source: SCEDD Existing Land Use Inventory, 2017
As part of the planning process, a survey was conducted using the Franklin County Assessors GIS City of Franklin, 2017 Land Use system and as well as through field verifications via a % of % of windshield survey. This survey noted the use of each Land Use Parcels Acres parcel of land within the City of Franklin. The data Total Total from the survey is analyzed in the following Agricultural 45 6% 131 28% paragraphs. Commercial 96 11% 21 5%
Parcels represent ownership of land and the manner Public 47 6% 36 8% in which property tax burdens are distributed. Acres of land represent the amount that is classified as a Industrial 64 8% 33 7% particular use. Franklin encompasses 466 acres total. Residential 530 63% 227 49% Residential use accounts for 227 acres and is the primary land use in Franklin. The second largest Vacant Lots 54 6% 18 3% classification is Public at 36 acres. The next largest is Total 836 100% 466 100% Industrial use at 33 acres. Vacant lots cover 3% of land in Franklin, which is 18 acres. Assuming all of the Figure 8.2 Existing Land Use: Number of Parcels, Percent & land is developable, these vacant lots could be Acres transformed into approximately 72 single-family Source: SCEDD Existing Land Use Inventory, 2017 homes. This assumption is based on the planning standard that 1/4 acre is enough land for a single- family lot. Engaging in infill development will help boost the housing stock and the tax base of the community.
50 Franklin, Nebraska Comprehensive Development Plan 2019 CITY OF FRANKLIN, NEBRASKA COMPREHENSIVE PLAN EXISTING LAND USE MAP
Legend
15th Ave 15th Parcel 16th Ave 16th Q St Park Dr 31 D Link City Limits
10th Ave 10th 100 Year Flood Zones
Rd 425 Rd Existing Land Use
M St 12th Ave 12th Residential Gh Rd P St P St Commercial Industrial State Hwy 10 Byp Public / QuasiPublic 14th Ave 14th 18th Ave 18th Government
O St 19th Ave
US Hwy 136 Hwy US Parks & Open Space Fairway Dr Agriculture
N St N St 11th Ave 11th
US Hwy 136 13th Ave 13th M St 10 Hwy State
M St
9th Ave 9th 16th Ave 16th
L St
15th Ave 15th K St
State Hwy 10 Hwy State
14th Ave 14th 18th Ave 18th
J St 19th Ave 19th
I St 17th Ave 17th
H St PROJECTION: NE State Plane (Ft.) DATUM: NAD 83 DATE: 04.14.2019 G St 0 300 600 1,200 Feet $ 1 " = 667 feet Service Layer Credits: Federal Emergency Management Agency (FEMA) Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community Author: Author: FrancesHernandez CITY OF FRANKLIN, NEBRASKA COMPREHENSIVE PLAN FUTURE LAND USE MAP
Legend
Extraterritorial Jurisdiction (1-Mile) City Limits Parcel Future Land Use Low Density Residential US Hwy 136 Medium/High Density Residential
31 D Link General Commercial Downtown Commercial Gh Rd Industrial Public Parks & Recreation
State Hwy 10 Byp
M St
16th Ave 16th State Hwy 10 Hwy State
PROJECTION: NE State Plane (Ft.) DATUM: NAD 83 DATE: 04.14.2019
0 750 1,500 3,000 Feet $ 1 " = 1,667 feet Service Layer Credits: Federal Emergency Management Agency (FEMA) Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community Author: Author: FrancesHernandez Land Use Plan Transitional Agriculture Land Use
General Purpose Crops includingCrops irrigation
Typical uses 1. Crop production, including grazing lands 2. Private grain storage
3. Commercial grain storage per to20 10 acres
4. Manure/fertilizer applications Density of 1 dwellingunit 5. Public recreational, wildlife and historical areas 6. Renewable energy equipment 7. Tourism activities 8. Religious uses and structures
9. Educational uses and structures 10. Mobile home parks, when the design criteria are met
Potential issues to consider 1. Natural amenities such as trees, ponds, and streams Hunting Cabins 2. Wellhead protection areas 3. Site drainage 4. Flood hazards 5. Groundwater contamination 6. Wetlands 7. Water and sanitary sewer connections to the city
Buildable lot policies 1. Minimum residential lot sizes should be kept at the lowest possible size to accommodate both private water and sanitary sewer.
Residential densities 1. Residential densities within this land use category should be no more
than two dwelling units per 1/4 section. Clustereddevelopment
Development policies to consider 1. Cluster developments should be considered and used whenever soils,
topography, natural amenities warrant. 2. Ghost platting should be considered on any proposed subdivision within 1/2-mile of the corporate limits of Franklin. GhostPlatting
Franklin, Nebraska Comprehensive Development Plan 2019 53 Land Use Plan
Low Density Residential Land Use
- General Purpose
This use type should be located near and around existing acreages and in areas where the land is not suitable for agricultural use. An example of a
family typical low density residential/estate development area would be a cluster development that works to incorporate the natural amenities of the area. Large LotLarge Single
In specific cases, where the design criteria are met, mobile home residential development may be allowed in any of these areas. These criteria are intended to provide for an area that has livable lot sizes, landscaping, streets and storm shelters that are safe and clean.
Typical uses 1. Single-family residential dwelling units
CoverCrops 2. Accessory uses associated with single-family residential dwelling units 3. Religious uses and structures 4. Educational uses and structures 5. Community/Recreational Center 6. Public facilities such as police, fire and rescue, libraries, city/county/state/
federal offices 7. Public recreational, wildlife, and historical areas 8. Renewable energy equipment 9. Cover crops on undeveloped tracts and parcels 10. Mobile home parks, when the design criteria are met
Potential issues to consider 1. Slopes Churches/PublicFacilities 2. Topography 3. Natural amenities such as trees, ponds, and streams 4. Site drainage 5. Flooding hazard. 6. Wetlands
Buildable lot policies
Parks 1. Minimum residential lot sizes should be kept at the lowest possible size accommodating both private water and sanitary sewer or public water and sanitary sewer.
Residential densities 1. Residential densities within this land use category should be approximately one dwelling unit per every two to three acres.
Development policies to consider 1. Cluster developments should be considered and used whenever soils,
Plat” topography, natural amenities warrant. See subsection of clustered developments. 2. Ghost platting should be considered on any proposed subdivision within 1- Example“Ghostof a mile of the corporate limits of Franklin. See subsection on “Ghost Platting”.
54 Franklin, Nebraska Comprehensive Development Plan 2019 Land Use Plan Medium to High Density Residential Land Use
General Purpose This designation is the next highest area in terms of residential density. This district is intended to be similar to the typical residential area that covers most communities like Franklin. City services such as water and sewer would be provided. familydwelling unit - It is intended for this district to encourage variations to the standard detached single-family environment. The area should include single- Single family detached dwellings, with an occasional townhouse, condominium, and small multi-family apartment developments. family In specific cases, where the design criteria are met, mobile home - residential development may be allowed in any of these areas. These criteria are intended to provide for an area that has livable lot sizes, landscaping, streets and storm shelters that are safe and clean. attachedmulti Townhouses/horizontally
Typical uses
1. Single-family residential dwelling units 2. Accessory uses associated with single-family residential 3. Townhouses. condominiums and duplexes 4. Multi-family complexes family building 5. Religious uses and structures - 6. Educational uses and structures
7. Community/Recreational Center Example:horizontally
8. Parks and Recreational facilities scaledmulti 9. Public facilities/Community centers 10. Mobile home parks, when the design criteria are met
Potential issues to consider family 1. Slopes - 2. Topography structure 3. Natural amenities such as trees, ponds, and streams 4. Site drainage Largermulti 5. Flooding hazard 6. Wetlands
Buildable lot policies 1. Minimum lot sizes should be approximately 5,000 to 7,500 square feet with some allowances for larger lots for larger multi-family
complexes. 2. Smaller lot sizes should be permitted for townhomes, condominiums, and starter homes (within designated areas). facilities 3. Multi-family dwelling lots should have a minimum amount of land per unit to accommodate for green space and off-street Recreational Park and parking.
Residential densities 1.
2.
Franklin, Nebraska Comprehensive Development Plan 2019 55 Land Use PLan
Mobile Home Residential Land Use
GENERAL PURPOSE These areas are focused on allowing mobile homes as primary dwelling units. However, standard stick-built single-family dwellings units are also allowed.
The mobile home residential use districts may be allowed within other
Trailer Community Park land use districts, if all of the special design requirements are able to be met.
TYPICAL USES 1. Mobile homes as the primary dwelling unit 2. Standard stick built homes as a primary dwelling unit 3. Public facilities such as police, fire and rescue, libraries, city/ county/state/federal offices 4. Religious uses and structures 5. Educational uses and structures
Enlargement of Trailer Park 6. Community/Recreational Center 7. Accessory uses as desired or required
POTENTIAL ISSUES TO CONSIDER
1. Traffic control 2. Parking, especially on-street 3. Safety of residents living in the mobile homes from strong winds 4. Distances of homes from storm shelters family building - BUILDABLE LOT POLICIES 1. Building lots in this district should vary throughout depending Example:horizontally upon the use. The typical lot widths should be a minimum of 25 to scaledmulti 50 feet depending upon off-street parking locations.
DEVELOPMENT POLICIES TO CONSIDER 1. Storm shelters should be required in order to provide adequate safety from wind storms and tornadoes. 2. Storm shelters should meet all FEMA guidelines at the time of construction. 3. Storm shelters should be sized to hold an average of two persons familyDevelopment - per home site in the park. 4. All homes should be strapped down according to all Single manufacturer guidelines. 5. All home sites should have adequate hard-surfaced off-street parking. 6. The mobile home park should have a community building providing laundry services, storm shelter, if desired, etc. 7. Streets within the mobile home park should be hard-surfaced.
56 Franklin, Nebraska Comprehensive Development Plan 2019 Land Use Plan Downtown Commercial Land Use
General Purpose
structures Continueto protecthistoric
Typical uses 1. General retail businesses on all floors
2. General offices on all floors 3. Restaurants Franklin 4. Drinking establishments 5. Entertainment venues Traditional Downtown 6. Public facilities 7. Museums 8. Single-family residential dwellings on upper floors 9. Religious uses and structures 10. Educational uses and structures
11. Community/Recreational Center
Potential issues to consider 1. Traffic control
2. Parking, especially on-street Publicfacilities 3. Character of the area 4. Potential design modifications 5. Railroad 6. Secondary effects of adult entertainment uses
Buildable lot policies Building lots in this district should vary throughout depending upon the use. The typical downtown lot widths range from 25 lineal feet to between 50 and 100 feet.
Development policies to consider 1. Preservation of the historical character of the downtown area 2. New structures need to be sensitive to the architectural character of the area.
Franklin, Nebraska Comprehensive Development Plan 2019 57 Land Use Plan
General Commercial Land Use
General Purpose
ConvenientStores
Typical uses
1. General retail businesses uses 2. General offices 3. Restaurants with or without a drive-thru
Commercialsales land 4. Drinking establishments 5. Public facilities such as police, fire and rescue, libraries, city/ county/state/federal offices
6. Religious uses and structures 7. Educational uses and structures 8. Community/Recreational Center 9. Mobile home parks, when the design criteria are met
Potential issues to consider
Educational facilities 1. Traffic control 2. Parking 3. Potential design modifications 4. Topography 5. Natural amenities such as trees, ponds, and streams
6. Site drainage 7. Flooding hazard 8. Secondary effects of adult entertainment uses
Publicfacilities Buildable lot policies Developments in this district should have a minimum of 10,000 square feet since there will be requirements for parking and internal trafficways.
Development policies to consider
These developments should minimize the impact on adjacent uses such as parks and residential developments. All loading and unloading facilities should be screened from adjacent uses and the general public. Screening should be used between these uses and other uses such as parks and residential developments. Restaurantsand bars
58 Franklin, Nebraska Comprehensive Development Plan 2019 Land Use Plan
Industrial Land Use General Purpose
storage - Self
Typical uses 1. Storage as an accessory use 2. Self-service storage facilities 3. Adult entertainment when the required guidelines are met 4. Light manufacturing 5. Necessary accessory uses and structures that are subordinate to LighterIndustrial Uses the primary structure 6. Religious uses and structures 7. Public facilities 8. Educational uses and structures 9. Community/Recreational Center
Potential issues to consider 1. Traffic control Development Heavy Heavy Industrial 2. Parking 3. Potential design modifications 4. Depth to water table 5. Topography 6. Natural amenities such as trees, ponds, and streams 7. Site drainage 8. Flooding hazard 9. Wetlands 10. Secondary effects of adult entertainment uses
Buildable lot policies 1. Lot size and setbacks should be adjusted to fit the specific area. Some of these areas may be included in Planned Unit Developments (PUD) and the overall scheme of the development may dictate these items. 2. When lots are not part of a PUD then lot sizes should be adequate to handle the required setbacks of the zoning district and all other pertinent requirements such as parking and screening. 3. Setbacks within developments not done as a PUD should follow the appropriate zoning district.
Development policies to consider 1. Cluster developments should be considered and used whenever the soils, topography and natural amenities warrant 2. Signage should be minimal and be aesthetically tied to the overall development or structure. 3. Security fencing should be used in most cases.
Franklin, Nebraska Comprehensive Development Plan 2019 59 Land Use Plan Public/Quasi-Public Land Use General Purpose
Educational facilities
Typical uses 1. Public facilities
2. Hospitals/clinics 3. Religious uses and structures 4. Educational uses and structures 5. Community/Recreational Center
6. Public utilities Publicfacilities Park and Recreational Land Use General Purpose
Playground
Ballfields
Typical uses 1. Park facilities including city/county/state/federal facilities
2. Parks Fairgrounds 3. Trails 4. Community/Recreational Center 5. Recreational facilities such as ballfields, volleyball and basketball courts, horseshoes, swimming pools, etc.
60 Franklin, Nebraska Comprehensive Development Plan 2019 Land Use Plan
EXTRATERRITORIAL JURISDICTION (ETJ) Planning within the extraterritorial jurisdiction of Franklin should be focused more on agricultural uses and less on large lot residential. New residential development should be encouraged to locate either adjacent to the community or within the existing corporate limits as a redevelopment project.
Developments requesting to be within the ETJ should be required to provide either large enough lots to adequately handle individual wells and septic systems or they should be designed with a centralized water and/or sanitary sewer collection system meeting State and Federal standards.
Development within the ETJ should also work in a manner to conserve environmentally sensitive areas as well as natural resources such as tree groves, ponds, lakes, streams, etc. In order to accomplish these protections, the City and the developer should work to use creative subdivision designs including Figure 8.5 Cluster Developments clustered subdivisions and planned unit Source: 21st Century Land Development Code; Freilich, Rob- developments, both are very similar in their ert H., White, S. Mark; APA Planners Press 2008 approach. Density bonuses can be used to encourage CONSERVATION SUBDIVISIONS/ developers to preserve natural space within their PLANNED UNIT DEVELOPMENTS developments, while still developing approximately The Cluster Subdivision is a different type of the same number of lots to do this. The following two subdivision not used in the past in Franklin. These diagrams show how clustering concepts can be used subdivisions are designed to “cluster” building lots to develop the same number of lots in a smaller area, into certain pockets of the site. Generally, these thereby preserving natural features such as tree pockets are located where the least amount of clusters. negative impact will be made to the natural environment. In addition, the Cluster Subdivision provides a means to create new neighborhoods with mature trees, steep slopes, streams and buffers and other natural amenities. The Cluster Subdivision will be one of the most powerful tools the City and developer have to preserve parts of the existing natural environment.
Subdivisions should be designed using principles of environmental conservation and clustering. When clustering is used in subdivision design, the same number of dwelling units may be realized while natural features are preserved. The areas preserved can be used as natural open spaces, linear parks, or trails. This can have the effect of increasing property values as people are drawn to live in areas with environmental amenities.
Another benefit often accompanying cluster development is, when developers utilize this technique, communities tend to see an overall increase in open space without having to increase the park system.
Franklin, Nebraska Comprehensive Development Plan 2019 61 Land Use Plan Environmental Conditions Well Head Protection Areas The Nebraska Department of Environmental Quality As Franklin begins to develop and potentially extend (NDEQ) uses a variety of programs to regulate its boundaries, environmental and natural resource groundwater quality and quantity in the state. One conditions must be considered. The City should such program is the Nebraska Wellhead Protection understand how future development will affect these (WHP) program. The Nebraska Legislature passed LB sensitive areas and strive to protect them whenever 1161 (Neb. Rev. Stat. §46-1509–1509) in 1998, possible. authorizing the Wellhead Protection Areas Act. This Agriculture Act provides a process for communities to implement Nebraska relies heavily on the continued existence of a local Wellhead Protection Area, which includes agricultural land. Increasing population and identifying the land surrounding public water wells expanding urban landscape is the biggest threat to that need protection, identifying potential sources of agricultural production in the state. The lands groundwater contamination within the area, and surrounding Franklin have maintained a productive managing the potential contaminant sources. agricultural based economy, due in large part to the continued success of dryland farming and the The City of Franklin currently does not have a rotation of crops in the area. The community should Wellhead Protection Plan in place. protect this resource by focusing on infill development first, leaving greenfields for agricultural purposes.
Floodplain The Federal Emergency Management Agency (FEMA) identifies flood hazards and assesses flood risks by utilizing their Flood Hazard Mapping Program (FHMP) and Risk Mapping Assessment and Planning (MAP) programs. They work with states and communities to create mitigation plans.
A floodplain consists of three parts: the floodway, a 1% annual chance of flooding event (known as the 100-year flood plain), and a .2% annual chance of flooding event (known as the 500-year floodplain).
According to FEMA, the floodway is both the existing water channel and also Other watercourses and the adjacent land areas that must be reserved in order to discharge the base flood without cumulatively increasing the water surface elevations more than a designated height. Communities must regulate development in these floodways to ensure that there are no increases in upstream flood elevations. The 100-year floodplain describes an area where there is a 1% chance that flooding may occur annually within the boundary. The 500-year floodplain describes an area where there is a .2% chance of annual flooding.
The City of Franklin is almost entirely surrounded by floodplain created by the Republican River and its tributaries Center Creek and Coon Creek.
62 Franklin, Nebraska Comprehensive Development Plan 2019 Land Use Plan
Figure 8.6 Floodplain Map
Franklin, Nebraska Comprehensive Development Plan 2019 63 Land Use Plan FUTURE LAND USE GOALS between incompatible land uses. INDLU-3.3 The City should develop appropriate LAND USE GOAL AND OBJECTIVES performance, design and specification Guiding future growth, development, and standards and requirements for all redevelopment in Franklin towards a compact existing and possible future industrial pattern of land uses based upon the efficient and uses to guide their location or relocation economical expansion of public infrastructure will in the City. continue to maintain and improve the quality of life INDLU-3.4 The City should recognize and for everyone in the community. encourage small-scale industries as viable alternatives to larger, Objectives conventional enterprises. GENLU-1.1 The cost of required improvements, both INDLU-3.5 Signage used within and around on-site and off-site, to a subdivision industrial areas should be designed to exclusively serving the property owners compliment the materials and scale of of the subdivision should be borne by surrounding development. the developer or those property owners INDLU-3.6 Industrial districts should be located: within said subdivision. i. where urban services and GENLU-1.2 The City of Franklin, when feasible, may infrastructure are available or choose to aid a development or planned in the near future; redevelopment with specific funding ii. in sites supported by adequate road mechanisms such as Tax Increment c a p a c i t y – c o m m e r c i a l Financing, special assessments, etc. development should be linked to the GENLU-1.3 The City should designate areas in the implementation of the Land Use Plan addressing future growth transportation plan; in Franklin. iii. so they enhance entryways or public GENLU-1.4 The City should develop zoning and way corridors, when developing subdivision regulations promoting adjacent to these corridors; and efficient land usage, while avoiding land iv. in a manner supporting the creation use conflicts. and maintenance of greenspace. GENLU-1.5 Land use policies should discourage and minimize leapfrog development outside Residential Land Use Objectives of the corporate limits. RESLU-4.1 Residential development should be GENLU-1.6 The City of Franklin should work toward separated from more intensive uses, strong compact development through such as agriculture, commercial, and the redevelopment of older dilapidated industrial development, by the use of lots and neighborhoods. setbacks, buffer zones, or impact easements, when possible. Commercial Land Use Objectives RESLU-4.2 The City should promote a diversified COMLU-2.1 Encourage the redevelopment of the housing market; variations include size, downtown commercial district density, and location. COMLU-2.2 Appropriate transitional methods should RESLU-4.3 The City should develop subdivision be considered at all locations where the regulations providing for a quality living development or expansion of environment while avoiding inefficient commercial land use abuts residential and expensive public infrastructure property (either built or zoned). expansions. COMLU-2.3 Commercial land use districts and uses RESLU-4.4 The City should support housing options within commercial zoning districts should for all incomes and physical capabilities be lenient yet focused in a manner of Franklin’s residents. allowing for new and innovative RESLU-4.5 New residential developments should be business to develop and locate within accompanied by covenants, when Franklin. appropriate, which provide for the maintenance of common areas, Industrial Land Use Objectives easements and drainage. INDLU-3.1 Provide guidelines and incentives RESLU-4.6 The establishment of a rehabilitation promoting clean industrial uses. program should be undertaken to INDLU-3.2 Industrial uses should be located so maintain and improve the existing adequate buffer space is provided housing stock.
64 Franklin, Nebraska Comprehensive Development Plan 2019 Land Use Plan RESLU-4.7 The City should develop relationships and partnerships with housing professions in the public and private sector to establish a range of affordable housing options, ranging from a First Time Homebuyer program to rental assistance. RESLU-4.8 The City should promote low to zero non- farm densities in agricultural districts by providing proper distances between residential and agricultural uses. RESLU-4.9 The City should work with the owners of existing dilapidated properties to eliminate the inadequate structure(s) from the property and open it up for redevelopment. RESLU-4.10 Franklin should work on redevelopment of deteriorated/dilapidated properties in order to address the demand for new housing in the community. This allows for new housing to take advantage of existing street and utility systems without creating a greater demand for maintenance of the existing system.
Franklin, Nebraska Comprehensive Development Plan 2019 65 Land Use Plan
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66 Franklin, Nebraska Comprehensive Development Plan 2019 Chapter 9 Annexation
ANNEXATIONS POLICY The City of Franklin has established an annexation policy. The policy is consistent with the provisions allowed by the State of Nebraska. This policy is as follows: 1. All areas deemed to be urban and suburban in character adjacent to the Corporate Limits of Franklin shall be considered eligible for annexation and annexed according to the
Franklin, Nebraska Comprehensive Development Plan 2019 67 Annexation
Revised Nebraska State Statutes. 2. The City of Franklin shall discourage the use of Sanitary Improvement Districts (SID) within the extraterritorial jurisdiction of Franklin. 3. If SID’s are approved within the extraterritorial jurisdiction, then there needs to be an agreement as part of the subdivision agreement stating the SID will not protest any future annexations undertaken by the City of Franklin in the SID’s area. 4. The City of Franklin shall require the owner of any and all properties adjacent to the Corporate Limits of the City of Franklin to file subdivision plats on such properties as additions to the City of Franklin. 5. All sand and gravel operations within the extraterritorial jurisdiction of Franklin shall be considered to be urban and suburban in character. 6. The City of Franklin shall consider extension of the extraterritorial jurisdiction of the City along with all approved annexations. 7. All areas encompassed by the Corporate Limits of Franklin should be considered for annexation. 8. County Industrial Tracts should periodically be reviewed as allowed by Revised Nebraska State Statutes for consideration of annexation.
POTENTIAL FUTURE ANNEXATIONS There are two smaller areas as of this plan which could meet the statutory criteria for annexation. One area is located on the western edge of Franklin; while, the others are on the eastern edge and would will require some additional development between the corporate limits and other acreages to the east. See Figure 8.1 for details.
At the time of this plan, there were no Sanitary Improvement Districts within Franklin’s zoning jurisdiction.
68 Franklin, Nebraska Comprehensive Development Plan 2019 CITY OF FRANKLIN, NEBRASKA COMPREHENSIVE PLAN ANNEXATION MAP
Legend City Limits Extraterritorial Jurisdiction Annexation Near Term Long Range
US Hwy 136 US Hwy 136
31 D Link
Q St 10th Ave 10th
Gh Rd Rd 425 Rd
P St P St State Hwy 10 Hwy State
14th Ave 14th O St
Fairway Dr Ave 13th N St State Hwy 10 Byp M St
M St
16th Ave 16th 9th Ave 9th
L St
K St
18th Ave 18th 12th Ave 12th
J St Ave 17th 16th Ave 16th
15th Ave 15th I St 19th Ave 19th H St
G St State Hwy 10 Hwy State
PROJECTION: NE State Plane (Ft.) DATUM: NAD 83 DATE: 04.11.2019
0 650 1,300 2,600 Feet $ 1 " = 1,542 feet Service Layer Credits: Federal Emergency Management Agency (FEMA) Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community Author: Author: FrancesHernandez
Chapter 10 Transportation sites.rootsweb.com/~nefrankl/franklinpics.
County Senior Citizens Center. Rates vary depending Transportation networks tie communities together as on destination. The nearest commercial bus service well as providing a link to the outside world. with ticketing services is available in Kearney or Adequate circulation systems are essential for the Grand Island via Arrow Stage Lines and Burlington safe and efficient flow of vehicles and pedestrians, Trailways. and accessibility to all parts of the community. The Commercial Airport Service Transportation Plan will identify existing systems and The Kearney Regional Airport is located in Kearney, any major improvements planned for the future and 55 miles north of Franklin. This airport contracts with those necessary to provide safe and efficient United Express to provide flights to Denver circulation of vehicles within Franklin and Franklin International Airport and points beyond seven days a County, including major projects that ensure week. implementation of the Land Use Plan. Central Nebraska Regional Airport in Grand Island is EXISTING TRANSPORTATION SYSTEM AND FACILITIES 82 miles away from Franklin. Arrivals and departures Residents within a community have specific are limited by major airlines. Currently, the airport and transportation needs. These include rail service, bus commercial service connects people to Phoenix and service, air transportation, as well as vehicular Las Vegas through Allegiant Airlines and points across transportation. All of the transportation facilities are the U.S. through Dallas—Ft. Worth via American not available within the community or county and Airlines. require residents to travel to the nearest location. This portion of the Comprehensive Development Plan Railroad Service examines those services with regard to the closest There is no passenger railroad access within Franklin. proximity for residents of Franklin. The Kansas Nebraska Colorado Railway has a line running south of Franklin. The nearest commercial Bus Service passenger rail service is the Amtrak station in RYDE (Reach Your Destination Easily) Transit is Holdrege or Hastings, Nebraska. available for residents of Franklin County. This service is provided by Community Action Partnership of Mid- Nebraska. In Franklin, it’s office is at the Franklin
Franklin, Nebraska Comprehensive Development Plan 2019 71 Transportation Plan
Figure 10.1 Aerial Map of Regional and Small Craft Public Airports Source: vfrmap.com
72 Franklin, Nebraska Comprehensive Development Plan 2019 Transportation Plan
Small Craft Public Airports In general, the greater the transportation needs of a Franklin does not have a small craft public airport. particular land use, the greater its preference for a Three small craft public airports are within a short site near major transportation facilities. Commercial distance from Franklin. activities are most sensitive to accessibility since their survival often depends upon how easy a consumer Pioneer Village Field Airport in Minden 18 miles north can get to the business. Thus, commercial land uses of Franklin has a 3,900 by 60 foot concrete runway at are generally located near the center of their market an elevation of 2,156.3 feet. Self-service fuel is area and along highways or at the intersection of available. arterial streets. Alma Municipal Airport, 20 miles west of Franklin, has a 3,200 by 60 foot concrete runway at an elevation Industrial uses are also highly dependent on of 2,072.8 feet. Self-service fuel is available. transportation access, but in a different way. For example, visibility is not as critical for an industry as it Red Cloud Municipal Airport, 23 miles to the east, has is for a retail store. Industrial uses often need access a 3,702 by 60 foot concrete runway at an elevation to more specialized transportation facilities, which is of 1,744.4 feet. Call ahead for fuel. why industrial sites tend to be located near railroad Brewster Field, 42 miles northwest of Franklin in lines or highways to suit individual industrial uses. Holdrege, is a General Aviation airport. The primary STREET AND ROAD CLASSIFICATION SYSTEM runway is asphalt/concrete and 4,700 by 75 feet. Self- service fuel, oxygen, aircraft maintenance services, a All of the public highways, roads, and streets in passenger waiting area, pilots lounge, and Nebraska are divided into two broad categories, and conference room are available. each category is divided into multiple functional classifications. The two broad categories are Rural Surface Transportation Highways and Municipal Streets. State statute defines The surface transportation system for Franklin is based Rural Highways as “all public highways and roads primarily upon the system of local streets which are outside the limits of any incorporated municipality,” directly connected to US Highway 136 and State and Municipal Streets as “all public streets within the Highway 10, which allows the community access to limits of any incorporated municipality.” Neb. Rev. the surrounding region. These roadways are an Stat. § 39-2102 (RRS 1998) essential aspect of community development for the residents of Franklin as they provide for movement of Nebraska Highway Law (Chapter 39, Article 21, goods and services into and through the City. Revised Reissue Statutes of Nebraska 1943) proposes the functional classification of both rural and State and Federal Highways municipal roads and streets and public highways. The City of Franklin is connected to points east and Chapter 39, Article 21.03 lists rural highway west via US Highway 136. In addition, the community classifications as: is connected Interstate 80 via driving north on 1. Interstate: federally-designed National System Nebraska Highway 10. Nebraska Highway 10 to the of Interstate and defense highways; south intersects with the east/west US Highway 36. 2. Expressway: second in importance to Interstate. Consists of a group of highways TRANSPORTATION PLANNING AND LAND USE following major traffic desires in Nebraska and Land use and transportation create the pattern for ultimately should be developed to multiple future development and are extremely divided highway standards; interdependent upon one another in order to 3. Major Arterial: consists of the balance of effectively shape a community. An improved or new routes that serve major statewide interests for transportation route generates a greater level of highway transportation in Nebraska. accessibility and will likely determine how adjacent Characterized by high speed, relatively long land will be utilized in the future. distances, travel patterns; In the short term, land use shapes the demand for 4. Other Arterial: consists of a group of highways transportation and vice versa; one key to good land of less importance as through-travel routes. use planning is to balance land use and 5. Collector: consists of a group of highways that transportation. However, new or improved roads, as pick up traffic from the local or land-service well as county and state/federal highways may roads and transport community centers or to change land values, thus altering the intensity of the arterial systems. Main school bus routes, which land is utilized. mail routes, and farm-to-market routes; 6. Local: consists of all remaining rural roads, generally described as land-access roads
Franklin, Nebraska Comprehensive Development Plan 2019 73 Transportation Plan
Figure 10.2 Franklin Transportation System Source: SCEDD 2017 Land Use Survey
74 Franklin, Nebraska Comprehensive Development Plan 2019 Transportation Plan
providing service to adjacent land and major arterial streets, Franklin has one north-south dwellings; and collector street and two east-west collectors. The 7. Bridges: structures crossing a stream three remaining streets are local streets. hundred feet or more in width or channels of such a stream having a combined width of Franklin has two main types of street surfaces— three hundred feet or more. concrete and gravel. Gravel streets are limited to the least densely populated, edges of town. Due to the It is noted in article 39-2103, the combined rural traffic activity and maintenance costs, gravel is an highways classified under subdivisions (1) and (3) appropriate surface for some streets within the City. should serve every incorporated municipality having a minimum population of at least one hundred inhabitants or sufficient commerce, a part of that will be served by stubs or spurs, and the major recreational areas of the state. Street and road classifications for the circulation system within the City of Franklin are outlined below: 1. Arterial streets - public ways where large volumes of high-speed, through traffic are carried, and may serve as primary circulation routes for local traffic. These streets also provide access to abutting property. 2. Collector streets - are connecting links between Arterials and various sectors of the City, over which local residential traffic moves in routine daily trips to centers of activity. 3. Local streets - function primarily to provide access to properties. They are characterized by short trip length and low traffic volumes. FIGURE 10.3: TRAFFIC FLOW MAP 4. Marginal access streets - parallel and Source: Nebraska Department of Transportation adjacent to arterial streets and/or provides access to abutting property. They increase the safety and efficiency of thoroughfares by The City of Franklin is responsible for maintaining all separating the property access function from streets within their corporate limits. The arterial streets the traffic flow function. within the City’s corporate limits are maintained by 5. Alleys - provide secondary access to the Nebraska Department of Transportation (NDOT) properties. They provide service access in the and the City pays NDOT for their services. The City case of commercial and industrial properties. works with JEO Consulting Inc., to annually update Alleys should be provided for residential and maintain their “One and Six Year Program for properties only when necessary for safe Street Improvements,” which enables the City to plan access, due to the fronting of the property on and budget for street maintenance and repair a major thoroughfare. projects.
TRAFFIC COUNTS NEAR FRANKLIN NEBRASKA DEPARTMENT OF ROADS’ IMPROVEMENTS The City of Franklin is intersected by Nebraska The Nebraska Department of Roads publishes an Highway 10, which reaches its southern terminus just annual list of proposed projects for the current fiscal south of Franklin, and U.S. Highway 136. These are the year, for fiscal years one to five years from the two arterial streets in town, linking Franklin to regional present, and six years and beyond. Work is centers. According to the Nebraska Department of scheduled for Franklin County along the entire Transportation (NDOT), between 935 and 1,895 length of Highway 10 in the county and on US vehicles pass through Franklin on Nebraska Highway Highway 136 between Naponee to Bloomington. 10, and between 665 and 1,285 vehicles pass through on U.S. Highway 136 per day.
Local streets provide access to private property while collector streets move traffic from local streets to arterials. Delivering people to private residences is a secondary function of collector streets. Besides the
Franklin, Nebraska Comprehensive Development Plan 2019 75 Transportation Plan
Estimated Highway Project Cost
N-10 Franklin South Resurface, Bridge $4,720
Mill, Resurface N-10 Franklin North $4,420
Mill, Resurface N-10 Macon—N-4 $3,760
Resurface, Bridge US-136 Naponee—Bloomington $5,580
Total $18,480
FIGURE 10.5: SIX-YEAR HIGHWAY PROGRAM - FRANKLIN COUNTY PROJECTS, Source: Nebraska Department of Transportation
Trails development can be accomplished as a means of transportation for the community. In addition, trails have been successful as an economic development tool since they add to the overall quality of life within the community and the surrounding area.
FIGURE 10.4: NDOT SIX-YEAR HIGHWAY PROGRAM Source: Nebraska Department of Transportation
Note: Blue cells indicate Projects from 2020 to 2024
TRAILS DEVELOPMENT FIGURE 9.6: Trails are becoming a larger part of people’s lives. POTENTIAL TRAIL CONFIGURATION - SLOPED AREAS Trails are being used as a means of relaxation and physical fitness. Development of a trials system in Character of the Sidewalks and around Franklin will be a key to future transportation demands. Sidewalks provide pedestrians with a safe route to schools, shopping, parks, and other areas of town. To The trails system needs to cover all parts of the encourage active lifestyles, Franklin must provide community, as well as connecting to other accessible sidewalks to its residents. Sidewalks are communities and subdivisions within Franklin and mostly missing throughout the City. When sidewalks the counties. are built or reconstructed, they should be built with durable materials, meet current design standards, One key way of developing this expanded system and be Americans’ with Disabilities Act (ADA) is to make trails a component of any future street compliant. reconstruction project or new street project as new developments are constructed. Trails can even be TRANSPORTATION AND TRAIL GOALS a part of an existing or new sidewalk system; TRANSPORTATION AND TRAIL GOAL 1 however, the sidewalks will need to meet state and Franklin will maintain its existing road network and federal standards for width in order to be called an enhance it as future development and vehicle official trail. counts justify. The City will provide and encourage an
76 Franklin, Nebraska Comprehensive Development Plan 2019 Transportation Plan efficient, safe, convenient transportation and The “One and Five Year Highway Program”, communication system. developed by the Nebraska Department of Roads, establishes present and future programs for the Objectives development and improvement of state and federal TRAN-1.1 Encourage bicycle and pedestrian access highways. The One-Year Program includes highway to and within existing and future projects scheduled for immediate implementation, commercial areas. while the Five-Year Program identifies highway TRAN-1.2 When new development is contemplated, projects to be implemented within five years or sooner due consideration should be given to the if scheduled bids and work for one-year projects carrying capacity of the existing road cannot be awarded and constructed. system in the area, and development should be discouraged from occurring in areas where the road system is insufficient to handle any additional traffic load. TRAN-1.3 Improve, develop, and maintain well- traveled roads with hard surfacing including asphalt and concrete. TRAN-1.4 Right-of-way and pavements shall be sufficiently wide and of sufficient strength to accommodate anticipated future traffic loads. TRAN-1.5 Commercial signing along major arterials shall be kept to a minimum and shall be low profile. TRAN-1.6 When new or reconstructed streets are built, there should provisions made in the design documents providing for additional space along a wider shoulder or path within the right-of-way for pedestrian/ bicycle access. TRAN-1.7 The City of Franklin will encourage bicycle and pedestrian traffic as an element of the street transportation system. TRAN-1.8 The City should develop a separate Master Trails Plan addressing potential trail locations, designs, and opinions of cost.
TRANSPORTATION FINANCING ISSUES The primary sources of information utilized in the maintenance and development of the transportation and circulation system are (1) City "One and Six Year Road Plan" and (2) the State of Nebraska "One and Five Year Highway Program.” These state and local improvement plans should only be viewed as a planning tool, which are subject to change depending on financing capabilities of the governmental unit. The City’s "One and Six Year Road Plan" is reviewed and adopted by the local unit of government to address the issues of proposed road and street system improvements and development. Upon approval of these plans by the Board of Public Road Classifications and Standards, the governmental units are eligible to receive revenue from the Nebraska Department of Roads and the State Treasurer’s Office, which must be allocated to county road improvement projects.
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78 Franklin, Nebraska Comprehensive Development Plan 2019 ACHIEVING FRANKLIN’S FUTURE 2. Subdivision Regulations--establish criteria for Successful community plans have the same key dividing land into building areas, utility easements, ingredients: "2% inspiration and 98% perspiration." This and streets. Implementing the Transportation Plan section of the plan contains the inspiration of the is a primary function of subdivision regulations. many City officials and residents who have 3. Plan Maintenance--an annual and five-year participated in the planning process. However, the review program will allow the City flexibility in ultimate success of this plan remains in the responding to growth and a continuous program dedication offered by each and every resident. of maintaining the plan's viability. 4. Housing Study – A Housing Study will be critical to There are numerous goals and objectives in this plan. use in direct relationship to the Comprehensive We recommend reviewing the relevant goals during Plan due to the need for addressing housing issues planning and budget setting sessions to determine in the City. The study will help guide the City in the what projects may need to be undertaken during redevelopment and future development of the course of the fiscal year. housing throughout the City of Franklin. 5. Strategic Plan – A Strategic Plan will assist in identifying future economic development ACTION AGENDA strategies that will tie into the overall planning The Action Agenda is a combination of the following: effort of the City. It will be critical to work with this Goals and Objectives • document and the Plan in unison. • Land Use Policies • Support programs for the above items It will be critical to earmark the specific funds to be COMPREHENSIVE PLAN MAINTENANCE used and the individuals primarily responsible for ANNUAL REVIEW OF THE PLAN implementing the goals and objectives in Franklin. A relevant, up to date plan is critical to the on-going planning success. To maintain both public and Support Programs for the Action Agenda private sector confidence; evaluate the Five programs will play a vital role in the success of effectiveness of planning activities; and, most the City of Franklin’s plan. These programs are: importantly, make mid-plan corrections on the use of 1. Zoning Regulations--updated land use districts can City resources, the plan must be current. The annual allow the City to provide direction for future review should occur during the month of January. growth.
Franklin, Nebraska Comprehensive Development Plan 2019 79 Implementation After adoption of the Comprehensive Plan, proposals can be reviewed for their net impact on opportunities should be provided to identify any the Comprehensive Plan. changes in conditions that would impact elements or policies of the Plan. At the beginning of each year a Unanticipated Opportunities report should be prepared by the Planning If major new, unanticipated, innovative Commission which provides information and development opportunities arise which impact recommendations on: several elements of the plan and are determined to whether the Plan is current in respect to • be of importance, a plan amendment may by population and economic changes; and proposed and considered separate from the Annual • The recommended goals, objectives, and/or Review and other proposed Comprehensive Plan policies are still valid for the City and its long-term amendments. The City should compile a list of the growth. proposed amendments during the year; prepare a The Planning Commission should hold a meeting on report providing applicable information for each this report in order to: proposal, and recommend action on the proposed 1. Provide citizens or developers with an opportunity amendments. The Comprehensive Plan amendment to present possible changes to the Plan, process should adhere to the adoption process 2. Identify any changes in the status of projects specified by Nebraska law and provide for the called for in the Plan, and organized participation and involvement of citizens. 3. Bring forth any issues, or identify any changes in conditions, which may impact the validity of the EVALUATING DEVELOPMENT PROPOSALS Plan. The interpretation of the Comprehensive Plan should be composed of a continuous and related series of If the Planning Commission finds major policy issues or analyses, with references to the goals and policies, major changes in basic assumptions or conditions the land use plan, and specific land use policies. have arisen which could necessitate revisions to the Moreover, when considering specific proposed Comprehensive Plan, they should recommend developments, interpretation of the Comprehensive changes or further study of those changes. This Plan should include a thorough review of all sections process may lead to identification of amendments to of the Comprehensive Plan. the Comprehensive Plan and would be processed as per the procedures in the next section. If a development proposal is not in conformance or consistent with the policies developed in the UNANTICIPATED OPPORTUNITIES Comprehensive Plan, serious consideration should be If major new, innovative development and/or given to making modifications to the proposal or the redevelopment opportunities arise which impact any following criteria should be used to determine if a number of elements of the Plan and which are Comprehensive Plan amendment would be justified: determined to be of importance, a Plan amendment • the character of the adjacent area may by proposed and considered separate from the • the zoning and uses on nearby properties Annual Review and other proposed Comprehensive • the suitability of the property for the uses allowed Plan amendments. The Comprehensive Plan under the current zoning designation amendment process should adhere to the adoption • the type and extent of positive or detrimental process specified by Nebraska law and provide for impact that may affect adjacent properties, or the organized participation and involvement of the City at large, if the request is approved citizens. • the impact of the proposal on public utilities and facilities Plan Amendment Procedures • the length of time that the subject and adjacent It is anticipated during each year individuals and properties have been utilized for their current uses groups may come forward with proposals to amend • the benefits of the proposal to the public health, the Comprehensive Plan. We would recommend safety, and welfare compared to the hardship that those proposals be compiled and reviewed imposed on the applicant if the request is not once a year at the Annual Review, unless the plan approved needs to be amended to allow compliance with a • comparison between the Existing Land Use Plan requested zoning amendment. and the proposed change regarding the relative conformance to the goals and policies Reviewing all proposed amendments at one time • consideration of staff recommendations allows for the effects of each proposal can be evaluated for impacts on other proposals and all
80 Franklin, Nebraska Comprehensive Development Plan 2019