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General PlanChapter One Introduction Previous Master Plans Tremonton City adopted its first Master Plan in 1978, prior to that any earlier plans were written by Box Elder County and included a section for Tremonton. General goals as written in the 1978 plan have for the most part been met. Several elements have been amended to the master plan, they include, Down Town Redevelopment Plan; June 1981, Master Plan Update; July 1985, Waste Water Treatment Management Plan; May 1986, Freeway Interchange Development Plan; June 1990, Industrial Park Plan; April 1991, Retail Trade Plan; February 1992, General Plan Goals; October 1994, Tremonton City Parks Plan; 1995, Tremonton City Housing Plan; December 1998, and Tremonton City Water Management and Conservation Plan; July 1999. The 1978 Master Plan was completed in the context of that time (1978). As new and unforseen problems and opportunities would occur so would new solutions to those problems. The 1978 plan was never considered as an end product, as noted above it was amended on numerous occasions by the Planning Commission and City Council. Goals have been met to accommodate growth, economic development, and increased tax base. The Need for a New General Plan The basic elements of city planning - a comprehensive general plan, a comprehensive zoning ordinance, subdivision regulations, and capital improvement plans - have existed in Tremonton for many years. However, the city's master plan has become outdated, even though elements of the plan have been amended since 1978. Changes have occurred in Tremonton City since 1978, particularly in the last few years. Tremonton has experienced growth in population, large industrial corporations locating to Tremonton creating jobs and drawing people to Tremonton not only for employment but for a rural atmosphere to live and commute to employment in and around the area. In November 2000 the Planning Commission was given the task to create a new General Plan that will address new goals and change's Tremonton City will face in the new Century, and present this plan for consideration and adoption by the City Council. What is a General Plan? The term "General Plan" describes a general, comprehensive, long-range statement of goals and related policies to guide future growth and development of the City. The term "general plan" is often used synonymously with "comprehensive plan" and "master plan," although the term "master plan" usually denotes a specific physical plan for one or a small group of parcels. This plan is comprehensive in that it seeks to coordinate all the interrelated functions of the city and all properties within the city. Primarily it is a plan to guide physical development or non-development of the city. It will deal indirectly with social and political issues. Therefore, it is comprehensive in several areas. This plan is general in which it may not precisely locate every school, business, church, apartment building, or house in the city. The general plan acts as a guide, establishing policies and procedures for growth, land use, development, and conservation. Policies are based on an analysis of the population being served, the physical conditions of the land, the adequacy of public facilities, and the compatibility of land use. This plan emphasizes policies and goals. Maps may be used to show locations of land use activities, facilities, and physical characteristics. An official zoning map will become part of the general plan. Policies provide the need to maintain order and balance, with flexibility, to meet unforseen difficulties when allied with good faith and sound judgement. If a conflict occurs between the future land use map and adopted policies, then written policies are the controlling factors in decision making. If the City or any of its residents decide an adopted policy is no longer in the best interest for the community, amendments to the general plan may be initiated according to procedures set forth in the Administration Element, and ultimately approved or denied by the City Council, on recommendation of the Planning Commission. The Contents of the General Plan Utah State law requires general plans to include eight basic elements: Growth and Land Use; Transportation; Environment; Public Services and Facilities; Rehabilitation, Redevelopment, and Conservation; Economic; Moderate Income Housing; and Implementation. Other elements which the City deems appropriate to include in this general plan are: Administration; Population; other Housing; and Parks, Recreation, and Open Space. A chapter is devoted to each element, however, some elements may be combined in the same chapter, each chapter discussing current conditions and proposed changes, goals, policies, and implement procedures. The following sections provide brief descriptions of each element. Implementation Element Implementation includes a discussion of specific actions necessary to carry out the general plan. It includes changes in zoning and subdivision ordinances, plans for capital improvements, design, preservation and rehabilitation activities, etc. The Implementation Element ties the other elements together by presenting a comprehensive list of recommendations made in the general plan. Administration Element The general plan is a legal document. The general plan and future amendments thereto must be legally adopted. The Administration Element details procedures for amending the plan, including the frequency of amendment hearings, reviews, and updates. Population Element This element describes the population as enumerated in the latest census, historical, and housing figures. Population projections are given to provide information on the character and size of the population for which the city is planning. Housing Element The Housing Element anticipates the type and quantity of housing needed by the projected resident population. The Utah Legislature has mandated that each community general plan contain an affordable housing element. A strategy to provide housing for moderate income families is outlined. Growth and Land Use Element Land use refers to the activity taking place on a parcel of ground. It may be a school, farm, business, home, or a vacant lot. The Growth and Land Use element outlines how land is to be used to ensure wise, efficient land use, and complementary relationships between differing land uses. Land use patterns should not be interpreted precisely, but as indications of predominant land usage in each generalized area. Specific parcel boundaries for land uses are guided by written policies in the plan and set forth on the zoning map. The Growth and Land Use element does not automatically change zoning classifications or permitted uses of the land; it merely establishes policy for future change. Transportation Element Ensuring the efficient movement of people and goods throughout the city is the goal of the Transportation element. Plans are laid for automobiles, public transit (when needed), pedestrian, and bicycle circulation. These plans create a powerful link between the Growth and Land Use element and the Transportation element. Land use patterns developed creates the need to drive farther and more frequently, thus increasing congestion. In developed areas of the city transportation will not see much change. However, in developing areas, where transportation routes are not set, emphasis should be placed on linking housing with shopping and places of employment, and increasing the safety of pedestrian and bicycle traffic in neighborhoods and commercial districts. Parks, Recreation, and Open Space Element Quality of life distinguishes "livable" communities from an otherwise hurried, and often synthetic environment. Manmade recreational spaces designed for outdoor sports and activities, as well as natural scenic areas near rivers, trails, and parkways contribute to the quality of life. The Parks, Recreation, and Open Space Element propose the maintenance and improvement of existing and proposed park system throughout the City, improvement of organized activities in the recreation and events program, and the protection of our amenities in the community for the enjoyment of the residents and visitors to the City. Public Services and Facilities Element The Public Services and Facilities Element addresses the need for maintenance and expansion of public facilities. Water must be provided; storm water must be drained away; sewage must be collected and treated; solid waste must be collected and disposed; educational facilities must be maintained and made available; communication systems must be maintained with growth; power must be maintained with growth; fire protection must be provided and maintained to meet future needs as well as police protection. This element compares existing facilities to the needs of the projected growth and sets forth plans to upgrade facilities to meet future needs. Economic Element This element is composed of an economic development plan, including review of municipal revenue and expenditures, revenue sources, identification of base and residential, industry, primary and secondary market areas, employment, and retail sales activity. It includes a cost/revenue analysis of the implementation of this general plan. Environment Element This element addresses the protection, conservation, development, and use of natural resources, including air quality, soils, rivers, wildlife, minerals, and other natural resources. Recommendations are made regarding the regulation of land use on hillsides, and protection of water quality, including watersheds, wetlands, pollution control, potential flood hazard, and problems related to geological hazards. Rehabilitation, Redevelopment, and Conservation This element includes a plan for preservation of the downtown business district as well as other portions of the city. Recommendations are made concerning the elimination of blight and the redevelopment of housing, business, industrial, and public facilities. Comprehensive Plan Process and Design The planning process involves determining reasons for existing problems, taking corrective actions to avoid or reduce problems in the future, looking for opportunities, and devising means to take advantage of opportunities in ways which promote the public good. Planning is a process, not an event. It is an ongoing process of evaluating what has been done and what is being done, and making appropriate changes to accomplish desired objectives according to the general plan. Value Statements Values, Goals, and Objectives I. The Safety and Security for all Citizens. Within our homes and throughout Our Community. 1.1 Goal: Create and Maintain Safe Neighborhoods 1.1.1 Objective: Establish and strengthen neighborhood watch programs throughout the City. 1.1.2 Objective: Encourage neighborhood-based emergency preparedness programs. 1.1.3 Objective: Promote zero tolerance of drug and alcohol abuse, violence, gangs, and gang activity. 1.2 Goal: Promote Public Education about Local, State, and Federal Laws. 1.2.1 Objective: Review, maintain, and establish laws and ordinances for the protection of all residents. 1.2.2 Objective: Provide public education about Tremonton City ordinances on a regular, on going basis. 1.2.3 Objective: Provide hands-on service opportunities to the public as part of the education process. 1.3 Goal: Promote Safety through Design 1.3.1 Objective: Promote a safe walker-friendly community through, maintained walkways and sidewalks, adequate lighting, crosswalks, etc. II. Business Development 2.1 Goal: Promote the Downtown Business District 2.1.1 Objective: Maintain a strong and vibrant downtown, provide incentives for business expansion and development in the downtown district. 2.1.2 Objective: Plan and provide adequate parking for downtown customers and employees. 2.1.3 Objective: Create a vibrant mix of business and cultural opportunities in the downtown area. 2.2 Goal: Expansion and Development of Business and Industrial Parks. 2.2.1 Objective: Plan and develop additional Business Parks to accommodate both small and large business, and attract those businesses to fill the community's needs. 2.2.2 Objective: Expand or create additional Industrial Park space. 2.3 Goal: Provide a "Business Friendly" Tremonton 2.3.1 Objective: Provide opportunities for local businesses to participate in the affairs of the community, and interaction with city government. 2.3.2 Objective: Seek and entice environmentally friendly businesses to locate in our community. 2.3.3 Objective: Support Economic Development initiatives the aid local business and business development. 2.3.4 Objective: Encourage and seek development of a new Airport facility. III. Orderly Growth 3.1 Goal: Empower Citizens 3.1.1 Objective: Involve citizens and neighborhoods to ensure orderly growth. 3.1.2 Objective: Address all concerns from each part of the city on an on-going basis. 3.2 Goal: Develop Quality Residential Developments 3.2.1 Objective: Encourage gradual land use transitions, when zoning amendments and annexation's take place. 3.2.2 Objective: Protect residential neighborhoods by discouraging "down zoning." 3.2.3 Objective: Identify properties for additional Multi-Family residential zoning. 3.2.4 Objective: Promote safety through design. 3.2.5 Objective: Require landscaping around perimeters of residential developments to soften development. 3.2.6 Objective: Design open space first in all future residential developments. 3.2.7 Objective: Size utilities consistent with anticipated growth and ensure all residential and business developments connect to municipal systems. 3.2.8 Objective: Actively assist developers with future development, and maintain a health balance between the "Public Good" and the "Private Rights." 3.2.9 Objective: Continue to require developments to pay their fair share of infrastructures. 3.3 Goal: Require Quality Commercial Development 3.3.1 Objective: Encourage performance standards for commercial developments. 3.3.2 Objective: Accommodate and attract shopping in Tremonton. 3.3.3 Objective: Design the open space first in future large-scale commercial developments. 3.3.4 Objective: Require landscaping around perimeters of commercial developments to soften development. 3.3.5 Objective: Encourage site specific designs for the area and surroundings. 3.3.6 Objective: Attract suitable business replacement for the declining agribusiness. 3.4 Goal: Provide Quality Housing and Services that are Accessible to All users 3.4.1 Objective: Encourage housing of diverse design in order to adequately accommodate all types of users. 3.4.2 Objective: Encourage affordable housing throughout the city. 3.4.3 Objective: Encourage development patterns that reduce land and development costs. IV. Rehabilitation, Redevelopment, and Conservation of Existing Neighborhood and Commercial Developments 4.1 Goal: Attract and Encourage Shopping in Tremonton 4.1.1 Objective: Improve and beautify the appearance of downtown shopping. 4.1.2 Objective: Provide public restroom facilities and drinking water fountains. 4.1.3 Objective: Improve and develop downtown parking. 4.1.4 Objective: Create and maintain a walker-friendly downtown area. Provide adequate, decorative lighting. 4.1.5 Objective: Attract business and cultural activities that will attract shoppers to the downtown area. 4.1.6 Objective: Encourage cooperation of local government, merchants, and community organizations to encourage and promote a wholesome, friendly, and safe experience while shopping in Tremonton. 4.2 Goal: Conserve and Protect the Integrity of Neighborhoods 4.2.1 Objective: Encourage reinvestment in, beautification, and restoration of established neighborhoods. 4.2.2 Objective: Maintain and upgrade neighborhood infrastructures. 4.2.3 Objective: Revitalize blighted and dilapidated neighborhoods. 4.3 Goal: Preserve Public Facilities, Parks, and Schools in all Neighborhoods. V. Convenient Access to All Parts of our City with well-planned Streets and Neighborhoods. 5.1 Goal: Provide an Efficient and Integrated Transportation System 5.1.1 Objective: Evaluate existing traffic and the current transportation system. Review annually and adapt changes as necessary. 5.1.2 Objective: Encourage a truck route through the city using existing streets, plan a truck route with the installation of future roads. Establish weight limits on certain streets. 5.1.3 Objective: Encourage well-placed signs in the city to inform those of the many things Tremonton has to offer. 5.1.4 Objective: Review, plan, and maintain efficient snow removal and street repair. 5.1.5 Objective: Reevaluate master road plan and review annually. 5.2 Goal: Alternate Modes of Transportation 5.2.1 Objective: Develop a plan on securing future public transportation. Including street design, right-of-ways, and locations for all types of transportation systems. VI. A Healthy and Livable Community 6.1 Goal: Provide Clean Air and Water 6.1.1 Objective: Maintain and improve the quality of our water through constantly updating and modernizing our treatment plants and protecting our water supply. 6.1.2 Objective: Conserve water through educating citizens, and encouraging secondary irrigation sources into existing and future developments. 6.1.3 Objective: Acquire additional water sources. 6.1.4 Objective: Monitor air quality and enforce standards not to exceed those set by the Environmental Protection Agency (EPA). 6.1.5 Objective: Develop and implement a city wide storm water and surface drainage system. 6.2 Goal: Require Clean Business and Industry 6.2.1 Objective: Encourage non-polluting business and industry to locate to Tremonton. 6.2.2 Objective: Ensure all bio-hazard, radioactive, and other hazardous wastes generated are cared for to avoid accidental spills or releases and disposal is done in an approved manner. 6.3 Goal: Enhance City Park System 6.3.1 Objective: Improve the maintenance and appearance of our current parks. 6.3.2 Objective: Develop new neighborhood parks within future developments. 6.3.3 Objective: Develop and maintain regional parks in accordance with growth. 6.4 Goal: Enhance Recreational Programs and Facilities 6.4.1 Objective: Develop a plan and financing for upgraded and new recreational facilities for youth, adults, and families for both summer and winter use. 6.4.2 Objective: Develop a plan that would increase recreational programs for citizens of all ages. 6.4.3 Objective: Plan for future expansion of the city golf course to 18 holes. 6.5 Goal: Preserve Natural Resources 6.5.1 Objective: Encourage open space in association with parks, walking paths, Malad River, etc. Including neighborhood parks close to residential areas. 6.5.2 Objective: Implement Malad river parkway plan. Protect the destruction of our natural ecosystems. VII. A Beautiful and Well-Kept City 7.1 Goal: A Clean and Healthy Environment 7.1.1 Objective: Enhance ordinances, incentives, and penalties that would encourage the cleaning up of properties by removal of trash, junk, weeds, and the repair of deteriorating facilities. 7.1.2 Objective: Encourage Beautification, cleanliness, and safety of the downtown district, and extending to all gateways of the city. 7.1.3 Objective: Develop and encourage an ongoing city wide cleanup and removal and disposal of all trash, junk, weeds, etc., on all properties and streets. 7.1.4 Objective: Develop and maintain a plan to control noxious weeds and growth at all public owned roadsides, right-of-ways, and properties. Enforce compliance with the "Utah Noxious Weed Act." 7.1.5 Objective: Ensure continuance of removal of noncompliant underground and aboveground storage tanks. VIII. Quality Education for all Citizens 8.1 Goal: Support Quality Education 8.1.1 Objective: Cooperate with Box Elder School District in planning for and anticipating growth. 8.1.2 Objective: Continue and improve the partnership with the school district on use of community and school parks. 8.1.3 Objective: Continue support on expanding higher education programs in Box Elder County. 8.2 Goal: Continue and Enhance the Quality of the Arts and Community Events in the Community. 8.3 Goal: A Quality City Library 8.3.1 Objective: Enhance library facilities and library programs. Problems and Conflicts Part of the purpose of the plan is to identify problems and find solutions. However, with the many diverse interests in the city, sometimes there are competing interests. Consider the following examples: 1. We want less traffic, but we also want low density neighborhoods with an almost complete segregation of residential and non-residential land uses. The latter goal actually guarantees the former goal will not be met because it forces people to make more frequent and lengthier vehicle trips. 2. We want to conserve water, but we want larger landscaped yards to beautify the development. The conflict here is obvious. Sound judgement must be made concerning the proper balance between competing interests. Limited financial resources may force choices about which projects and initiatives can be funded. Priorities established in the comprehensive plan helps the city make fiscal decisions in their annual budgets and capital improvement programs. Analyzing the Cause and Effect Solving problems is not easy, and it requires great political will. Having to make the right decision is only half of the problem. Having an open mind, integrity, and courage are also needed to evaluate the cause and effect of the problems and finding their solutions. Without proper information people often jump to the wrong conclusions, or perhaps because it is popular, and therefore, correct. Without proper understanding of the cause and effect and community support to help resolve them, we are only prolonging the problem, without finding the best solution. It is important that our judgements are made on verifiable evidence and research data. Chapter Two Implementation Introduction As the general plan was written, careful attention was given to ensure it was in harmony with the values, goal, and objectives compiled through the planning process. The general plan is most influential when specific implementation polices are written and abided by. Implementation polices can also involve additions or changes to current zoning, ordinances, and policy. Tremonton City department heads were given a copy of the values, goal, and objectives and asked to help determine ways to implement them. From their input, combined with the Planning Commission, City Council, and Citizens is the basis for implementation strategies of the general plan. Active participants and time guidelines may be given in some cases, to place responsibility on the departments who are to carry out the implementation process of the general plan. In some cases, the priority for addressing implementation measures is left to the City Council for consideration during future goal setting sessions. Implementation Chapter One - Introduction - No implementation measures. Chapter Two - Administration Amendment Process 2.2.1 Help facilitate and accommodate general plan amendments by providing user-friendly application forms and procedures. 2.2.2 Provide flexibility into the amendment process to accommodate those special cases where "fast track" processing is necessary. 2.2.3 Conduct an annual self-evaluation to determine how well the city is following the general plan guidelines. Comprehensive Update 2.2.4 Budget staff resources to provide for comprehensive update of the general plan every ten years. Consistent Zoning 2.2.5 Review existing zoning and compare to the new general plan land use designations. Conduct public hearings as needed, to consider zoning map amendments that reflect general plan use designations. Planning and Zoning Hearings 2.2.6 Provide training sessions and materials to planners and staff to promote fairness, equity, and due process in Tremonton's review of land use requests. 2.2.7 Maintain accurate and complete records and files of all meetings and hearings. Zoning Enforcement 2.2.8 Continue code enforcement to maintain neighborhood quality of life. Include cooperation of the City Attorney's office and the Police Department as needed. Chapter Three - Population Demographics and Population Projections 2.3.1 Collect and maintain demographic data and population projection figures available periodically from the U.S. Census, and generated by private utilities, government agencies, and other sources for use in long range planning and ten-year update of the general plan. Determine whether the basis for the general plan land needs remain valid. Chapter Four - Housing Neighborhood Preservation 2.4.1 Maintain and provide zoning areas for multi-family housing to serve as a buffer or transitional use between non-residential areas and low density residential areas. Affordable or Moderate Income Housing 2.4.2 Encourage a broad range of housing choices for all income levels, without sacrificing neighborhood quality or property values. 2.4.3 Encourage development, in select areas, housing types that cost less per square foot to construct (i.e., manufactured and modular homes). 2.4.4 Encourage cluster development patterns that would conserve land, provide open space, and require less linear footage of infrastructure. 2.4.5 Maintain relationships with housing agencies, both public and private, so that Tremonton can be informed of and involved with housing projects proposed for this area. Chapter Five - Land Use & Growth 2.5.1 Evaluate development ordinances. Amend as necessary to avoid future problems that may be incurred, i.e., fire protection, storm drainage, hillside development, etc. 2.5.2 Encourage multi-family development on collector and arterial streets, with direct access to these streets without going through single family developments. 2.5.3 Approve only within the means of adequate public services. If a development project is shown to exceed available services, it would not be approved until either the developer of the city made improvements that would raise service levels to accommodate. 2.5.4 Encourage an incentive program to attract additional higher wage companies to locate to Tremonton. 2.5.5 Continue efforts to attract revenue producing commercial and industrial companies. Provide zoning and infrastructure to accommodate these companies. Chapter Six - Transportation Parking 2.6.1 Educate the public on locations of underutilized public parking in the downtown area. 2.6.2 Promote cooperative parking methods with current businesses in the downtown area, where parking limits could be set for those business surrounding the parking area. 2.6.3 Enforce parking standards for all new and renovated developments within the city. Street System 2.6.4 Encourage connectivity in the development of street systems by utilizing a grid system of streets, while discouraging excessive use of cul-de-sacs. Land Use 2.6.5 Discourage high density development where transportation facilities cannot provide an acceptable level of service. 2.6.6Study the amendment of zoning regulations to encourage new development and redevelopment in the downtown and regional areas of the city more user friendly to bicyclists and pedestrians. Air Transportation 2.6.7 Support Brigham City in their continuing efforts to become a regional airport facility. Chapter Seven - Parks and Recreation, Open Space 2.7.1 Pursue available local, state, and federal funding, grants for further acquisition and improvement of our parks and recreation. 2.7.2 Purchase property for future parks in appropriate locations. 2.7.3 Continue efforts to create a city wide trail and bike path system. Encourage paths in open space developments that could be connected to a city wide system. 2.7.4 Require larger developments to create open spaces and recreation areas to service the needs of the individuals who occupy these developments. 2.7.5 Explore the feasibility of creating a indoor/outdoor, city wide-regional, recreation/cultural center to provide a venue for entertainment, sports events, swimming, exercise, general gathering, etc. Chapter Eight - Public Services and Facilities 2.8.1 Explore the feasibility of building or expanding facilities for the Police Department, Library, and Senior Center. Utilize existing facilities to their full potential, while maintaining public access to those facilities. Fire Department 2.8.2 Continue apparatus replacement program established to replace or upgrade engines every 10 years and ambulances on a 3-5 year basis. 2.8.3 Establish programs to educate the community concerning local, state, and federal ordinances and local code enforcement through an annual fire inspection program. Police 2.8.4 Work in progress Water Resources 2.8.5 Pursue additional water sources and storage facilities for future culinary water supply. 2.8.6 Formalize all Public Works plans and goals into one document. 2.8.7 Continue efforts to establish a secondary water system. Solid Waste Disposal 2.8.8 Enhance community awareness on taking green waste to the city compost site. Storm Drainage 2.8.9 Enhance and further develop a city wide storm drainage system. Chapter Nine - Economic 2.9.1 Encourage the development of the downtown area into a mixed use development pattern including housing, office, retail, etc. 2.9.2 Develop additional areas for business and industrial parks to encourage new business growth and job formation. Attract those business with jobs paying higher than average wages. 2.9.3 Utilize redevelopment programs and incentives to encourage revitalization and new business attraction to the downtown area. Chapter Ten - Environment 2.10.1 Enforce and maintain watershed and source protection ordinances. 2.10.2 Enforce ordinances that would support efforts to keep Tremonton City clean. Through nuisance abatement of noxious weeds, trash, junk, and repair of deteriorating facilities and buildings. 2.10.3 Provide educational materials reminding the public of the importance of proper disposal of chemicals. Chapter Eleven - Redevelopment, Rehabilitation, and Conservation 2.11.1 Continue and encourage further redevelopment in the downtown area, through redevelopment agency programs. 2.11.2 Target areas for infrastructure upgrades, such as curb & gutter, sidewalks, street lighting, etc. 2.11.3 Explore the feasibility to offer incentives, such as low interest loans, for property owners to repair sidewalks in poor condition. 2.11.4 Ensure areas of proper zoning, eliminate where possible, creating "legal non- conforming" zones and zone them appropriate to existing and potential development areas. Tools for Plan Implementation The general plan details development goals and polices which promote land use patterns adopted by the City Council. General guidelines required to carry out the objectives of the plan are given. However, in the end, the impacts of the general plan are dependant upon its usage in day-to-day planning decisions related to land use and development. The general plan is carried out by tools designed to help the City Council, Planning Commission, and the Planning staff. These tools include zoning ordinances, subdivision regulations, capital improvement, and timely amendments to the plan. Zoning Ordinances Zoning ordinances are adopted and enacted for the purpose of promoting health, safety, prosperity, morals, convenience, and the general welfare of the present and future inhabitants of Tremonton City. The purpose of the zoning ordinance is to: 1. Encourage and facilitate the orderly growth and development of the city; 2. Provide adequate open space for air quality, to prevent overcrowding, and to lessen congestion on the streets; 3. Secure economy in municipal expenditures, to provide adequate provisions for pubic water, sewer, schools, parks, landscaping, transportation, and other pubic services and facilities; 4. Increase the security of home life and create and preserve a more favorable environment for the citizens and visitors of Tremonton; 5. Secure safety from fire, and other dangers; 6. Stabilize and improve property values; 7. Enhance the well being of the inhabitants of Tremonton; 8. Provide the necessary tools for a more serviceable, wholesome, and attractive city resulting from a well-planned use of resources. These elements are achieved through proper regulation and control of the various types of land uses, growth in residential areas, densities in commercial and industrial areas, and the placement of those buildings through height and setback regulations. The zoning ordinance needs to be reviewed and revised if needed, to assure agreement with the general plan. And both should be used as tools for achieving the objectives of the general plan. Subdivision Regulations Where zoning regulates the use off land, subdivision regulations control the subdivision of land. Subdivision regulation is the key to providing the minimum design standards for lot size, streets, and infrastructure. It requires the developer to construct those streets and infrastructures in accordance with community design standards. Subdivision regulations are an important part of the general plan because of the regulation of development and requirements on vacant land that can be developed. Subdivisions must meet these requirements or they cannot be developed. The Planning Commission plays an instrumental role in the subdivision review process. It has been given the authority and responsibility to meet and guide the developer throughout the review process, to provide an adequate public hearing, and to present its recommendations of either approval or disapproval to the city council. Capital Improvement Capital improvement is one of the most important tools in completing the development objectives of the general plan. Its use is funding construction of major community facilities such as streets, utilities, public buildings, and land acquisition, etc. The community's financial capability determines the financial reality of capital improvement projects. Goals and objectives must be carefully planned, the reality of implementation may be based upon what is really needed to provide adequate and necessary service to the public, or just a wish list. We must obtain the greatest value from the expenditures of public funds. We must ensure financial ability to meet future demands for public service, and devote the time to the study and development of all capital improvement projects for the good of the community. Amendments Amendments to the General Plan may be made quarterly by citizens, developers, landowners, the city and other interested persons. The Planning Commission will hear all proposals, who will then make recommendations to the City Council. (See Administration Chapter Two for specific dates and instructions.) Public Cooperation Tremonton City residents have the opportunity, as well as the responsibility, to provide comments and discussion regarding development in the City. As representatives of the citizens, the City Council and Planning Commission welcome input from the public. Prior to making any major land use changes or modifications to this plan, a public hearing will be held to allow all interested and affected citizens to express their opinions and have their interests considered by the decision-making body. The City should work and cooperate with all surrounding cities and towns to help ensure compatible, neighboring land uses for the betterment of the entire community. The city should also provide copies of this plan to interested parties and welcome input concerning its implementation. The general plan will be most successful if city residents are involved in the drafting of the plan and support its goals and recommendations. This involvement must also be encouraged during the implementation of the plan. An informed and supportive community may be the link to the successful implementation of this plan. Maintaining the Plan It is important that the plan be used in the daily decision-making process of the City. In order to be a functional, decision-making tool, the plan must remain current. By recording land use activities on a regular basis, the plan can be continually updated to reflect current conditions. This will also help identify development trends that are not in accordance with the objectives of the plan and may identify concepts that may need to be incorporated into the plan. Constant records of development and land use must be kept in order to keep the plan current, an annual summery of these activities should be prepared and reviewed to assess its compliance with the general plan. If necessary, the modifications should be made to the plan. Every 10 years, the plan should be reviewed in its entirety to compare the development that has occurred with the policies of the plan. If necessary, the plan should be modified to reflect the current character of the community. The goals and objectives of the city should also be reassessed in the light of changed conditions. Chapter Three Administration A Legal Document The Tremonton City General Plan, as approved by the City Council, is a legal document. It contains legal parameters within which Planners, Planning Commissioners, Citizens, and Developers can affect the future growth and development of the City. The plan should reflect the current values and desires of the citizens and planners, for future growth and development of Tremonton City. However, it may be unrealistic at times to believe the values and desires upon which this plan is based, will remain totally unchanged for the duration of the general plan period. Thus, the plan allows for amendments as the values and desires of the community change. Amendment Process Proposed amendments will be heard on a quarterly basis with a comprehensive update every ten years. Hearings will be held once in January, once in April, once in July, and once in October as needed. Developers, citizens, land owners, and others who wish to amend the plan must file their proposals by November 30; for the January hearing. February 28; for the April hearing. May 31; for the July hearing. August 31; for the October hearing. Proposals will be reviewed by the staff, then heard by the Planning Commission who will recommend approval or denial to the City Council. The City Council will then hear the proposed amendments, which they may approve or deny. Applicants proposing general plan amendments shall do the survey and analysis work necessary to justify the proposed change. To ensure the Planning Commission and City Council have sufficient information to review each request, the applicant shall submit the following: For Text Amendments: 1. A written statement why the existing general plan language is no longer appropriate. 2. A written statement with the desired language change. 3. Study of potential impacts of the change. 4. Map showing the affected areas, the change would affect. For Map Amendments: 1. 8-1/2" x 11" map showing the area of proposed change. 2. Copy of current County Assessor's Parcel Map. 3. Mapped inventory of existing land uses within ½ mile of the proposed change. 4. Correct property addresses of parcels affected in the proposed change. 5. A Written statement specifying the potential use of the property. 6. A written statement why the existing general plan designation is no longer appropriate. 7. Study of potential impacts of the change on existing infrastructure and public services (water, sewer, storm drains, electrical power, fire protection, streets, traffic, etc.) On a yearly basis the Planning Commission will review and evaluate the general plan to determine how well the city is adhering to the general plan guidelines Comprehensive Update Every 10 years the plan will undergo a comprehensive update, and in line with capital improvements budget. This update will include amendments added to the plan since the last comprehensive update. Consistency of Zoning with General Plan Before the Planning Commission recommends an amendment to the zoning ordinance or zoning map, it must be shown that the amendment is in the public interest and is consistent with the goals and policies of the Tremonton City General Plan. Recommendations made by the Planning Commission must include the findings with respect to the following: 1. Public purpose for the change in question. 2. Confirmation that the public purpose is best served by the change. 3. Compatibility of the proposed change with general plan goals and objectives. 4. Consistency of proposed change with the general plan's timing and sequencing provisions on changes of use, insofar as they are articulated. 5. Potential for hindrance or obstruction of accomplishing the plan's written policies by the proposed change. 6. Adverse impacts on adjacent land owners. 7. Verification of correctness in the original zoning or general plan for the area in question. Planning and Zoning Hearings Public hearings play a vital role in receiving input from citizens concerning the various proposals that are heard by the Planning Commission. The following procedures help ensure that citizens and other interested parties are informed and have an opportunity to be heard. Public Notice Adequate and timely notice of hearings of proposed decision-making or rule-making processes must be made available to interested persons. All meetings will be conducted in adherence to the Open and Public Meetings Act (Title 52, Chapter 4, Utah Code). All legislative and administrative hearings involving decisions on zoning amendments, subdivisions, conditional use permits, annexations, street and plat vacations, and project plan approvals will be noticed to the public in several or all the following ways: 1. Legal notice placed in a newspaper of general circulation at least fourteen days in advance of the meeting. 2. Copy of agenda posted in three public locations. 3. Mailed notice shall be sent to all property owners of record as outlined by the Tremonton City Zoning Ordinance. 4. Signs may be posted in the vicinity of the proposed property by the Planning Commission staff. Opportunity to be Heard All persons interested in a decision or rule making process should be given an opportunity to be heard. Disclosure An opportunity to see, hear, and know all instruments, facts and evidence that are considered by the decision-making body must be provided. Any private communication to individual decision-makers must be made known at the meeting. Findings of Fact When a administrative decision is involved, the findings or reasons for the decision are an essential aspect of due process. Explicit and careful findings of fact enable all interested persons to know exactly what has been decided. Records of all findings shall be kept and maintained. Conflicts of Interest or Impropriety When an individual decision-maker has a direct or indirect financial interest in the decision, or a close familial relationship with a participant, the decision could be infected with potential bias. Such persons should be dismissed from participation in the discussion and decision. Prompt Decisions Adequate, timely notice, and a complete fair public hearing do not guarantee due process unless a decision is made in a prompt manner. Records of Proceedings Complete and accurate records of the proceedings must be kept. All exhibits must be preserved and a record kept of all testimony and statements made. Legislative and Administrative Approvals It shall be the policy of Tremonton City to separate the reviews of legislative decisions so that any zoning amendments, general plan amendments, or annexations are heard and decided prior to any application submission or approval for conditional use permits, subdivisions, development plan approval, or variances when such applications pertain to the same property. Zoning Enforcement and Community Standards Tremonton City is composed of agricultural, residential, public, commercial, and industrial uses. Within the city, a variety of zoning designations allow land uses that are appropriate to and compatible with a particular zone. In any zoning designation, some land uses are permitted, while others are conditional or not permitted. Whether the owner or a renter uses the property, each enjoys certain property rights. However, the enjoyment of property rights is accompanied by a certain degree of responsibility. Property owners do not have the right to use land in any way which may be contrary to the adopted zoning ordinance. Conflicts and violations will arise, requiring the city to enforce adopted zoning ordinances. In Tremonton City, the intent of zoning enforcement is to seek compliance with established land use laws. The Tremonton City Zoning Ordinance is intended to regulate and restrict " for the purpose of promoting the health, safety, and general welfare while promoting convenience and prosperity to the present and future citizens of Tremonton City." Existing enforcement must be based on maintaining and supporting community standards. Zoning enforcement is not intended to harass, impugn, or punish, but is intended to seek compliance with community standards. Compliance should always be the first line of action. Then, in working to resolve the violation, if it becomes evident the individual or group is not willing to comply with city standards, the city will pursue compliance to the full extent the law will allow. Most of the zoning enforcement in Tremonton City results from complaints received from citizens and city departments. However, the city also enforces zoning ordinances as zoning officials and nuisance officers become aware of violations. Chapter Four Population Introduction When the 1978 Master plan was adopted, Tremonton's population was shown as 3000. As of January 1, 2001, the population was approximately 5800. During the twenty-two years since the master plan was adopted, Tremonton's population has grown by 51.7% (2800 people) and the number of housing units has grown by 45.5% (1953 units). The average annual population growth rate from 1978 to 2000 was 4.54%, and an average increase of 129.9 persons every year. An average of 48.3 housing units (4.43%) were constructed. Based on the historical increase alone, Tremonton's population would increase at a rate of 2.21% annually. And will reach population milestones shown in table 4.1 TABLE 4.1 POPULATION BY YEAR Year Ending Dec. 31 Population (Historical Increase) Population (Housing Units) Population (BRAG Projections) 2000 5835 5592 - (2000 Census) 5859 5309 2001 5967 6003 5452 2005 6483 6435 6152 2010 7128 7155 7604 2015 7773 7875 8466 2020 8418 8595 9329 2030 9708 10,035 10,852 Historical increase of 2.21% Annually Housing Units Built average three persons per Household BRAG - Bear River Association of Governments Racial Diversity Table 4.2 is a quick look at Tremonton's racial diversity. TABLE 4.2 ETHNIC DIVERSITY Caucasian 87.7% Hispanic or Latino 9.7% Asian / Islander 1.1% African American 0.2% Alaska Native / Indian 0.4% Two or more races/other 0.9% Total 100% Data from 2000 U.S. Census Only 12.3% of the population consists of racial minorities. This should suggest an even greater sensitivity to racial issues. Every effort should be made to include minority populations in the workings of government and community involvement. Income The Median Family Income (MFI) of family households in Tremonton City in 1990 was $36,591. MFI is the level of income 50% of the families are above and 50% of the families are below. Chapter Five Housing Introduction The term housing is defined as a dwelling in which people live. In analyzing and projecting future housing needs for Tremonton City, we must not forget that every family or individual needs a place to live. In Tremonton housing is an important concern because of low vacancy rates, rising housing costs, varying densities, and a growing population. All of these factors make it difficult to provide sufficient, affordable housing without two incomes. The number of housing units will increase with the population. This must also include multi-family housing units. From 1998 to 2000 Tremonton City experienced a 28.4% increase in multi-family units above existing units that were available in 1997. Housing quality should be adequate to support the health, safety, and welfare of the public. Tremonton City's goal is to provide safe, adequate, and affordable housing for all residents. Current Housing While the majority of land for housing is zoned single family residential and the majority of housing units in Tremonton are single family. Current land use, broken down by dwelling type, can be seen in Table 5.1. Single family dwellings currently make up the largest portion of the total land zoned residential at 63.35%. Current land zoned for multi-family is 4.01%, 33% of existing multi-family units built are legal non-conforming buildings in other zoning districts, with 66% built in the RM zoning districts. Single family dwellings make up 84.4% of all residential units, with multi-family at 15.6%. TABLE 5.1 LAND USE BREAKDOWN BY RESIDENCE TYPES (2000) One Family 1545 79% Apartments - Low Rise 272 13.9% Elderly 20 .1% Two - Family 12 .6% Manufactured Homes 83 4.2% Mobile Homes 22 1.1% Data from City data base, building permits, and staff Evaluation of Housing Needs Housing costs in Tremonton City and the surrounding area are increasing in part due to population growth, economy, and land development costs. Housing costs in Tremonton will continue to increase. Current land use policies, regulations and Zoning will limit the population to between 5800 and 17,035 people. Without special provisions, many people may not be able to qualify for current housing costs, even in Tremonton. Policies The following two sections address policies to encourage neighborhood preservation and affordable housing. A special recommendation is made to meet the housing needs of the elderly. Policy sections are outlined in Table 5.2 TABLE 5.2 POLICY SECTION Neighborhood Preservation Affordable Housing 1. Residential Buffers 1. Multi-Family 2. Zoning 2. Manufactured Home Parks 3. Cluster Development Patterns 4. Special Housing - Elderly, Disabled, Etc. Neighborhood Preservation Neighborhood preservation can be implemented through two primary policies: Residential buffers and Zoning. Residential Buffers Residential Buffers help preserve neighborhoods and encourage diverse housing design to accommodate various housing needs. Residential buffers include churches, parks, roads, higher density uses, such as apartments, condominiums, and townhouses which could smooth the transition between non-residential areas and low density residential areas. Buffers in appropriate undeveloped areas would preserve the privacy of nearby low density residential areas. Since higher density dwellings are typically inhabited by single people or young families, buffers would also serve diverse housing needs. In addition, such developments would contribute to the affordable housing in the City. Zoning Current zoning permits moderate densities in neighborhoods and areas comprised mainly of single family residences. Up-zoning in some areas would allow for the creation of multiple-family housing units. Other zoning areas in the City allow residential housing by a Conditional use Permit, this area is in the Commercial zoning. Zoning should be continually evaluated to ensure uniformity throughout the City and preservation of existing neighborhoods and developments. Affordable Housing Affordable housing could be encouraged by using apartments, manufactured homes, cluster developments, and the possibility of renovating old town blocks into housing for the elderly and other special needs. An affordable housing project was constructed in 1999. This development includes an 8-lot CROWN project, nine affordable conventional lots. Phase two will include a 18 to 24-multi-family apartment units. TABLE 5.3 HOUSING OCCUPANCY Year Owner Renter* 1992 1245 176 1997 1425 217 2000 1649 304 Utility data and Building Permits * Rentals may include single family dwellings and basements which are considered single family dwellings. Those numbers may not be listed. Manufactured Homes Manufactured homes are factory built, single family dwellings which are built on a permanent chassis for transportation to the building site. They are designed to be used as a dwelling with or without a permanent foundation (all manufactured homes set up outside a manufactured home park are required to be put on a permanent foundation). Manufactured homes shall be connected to all required utilities. Tremonton City considers manufactured homes to be single family dwellings. Since manufactured homes and even modular homes are less expensive than site-built single family homes, they could be encouraged as an affordable housing option in a park setting. They may also be placed on any lot within a zone where single family units are permitted. At present, manufactured home placement is subject to the approval of the building official insuring all code requirements are met. Cluster Development Patterns To reduce the costs of single family homes, land needs to be developed economically. One way to develop land economically is through efficiency. Cluster housing on smaller lots with common driveways are one way to accomplish this. The liner feet of roads, asphalt, concrete, water lines, and sewer lines are reduced, thereby lowering development costs and the maintenance cost burden to the tax payer. These types of development patterns could create and maintain open/green space in a rural setting. Innovative pattens need to become the norm, not the exception. Ordinances regulating land development need to make such innovations as simple and low risk as possible. Land consumption patterns with high improvement costs must be made more difficult to approve. Special Housing - Elderly Housing, Disabled Housing, etc. Elderly housing is considered to be housing units that can be afforded by older or retired persons living on fixed incomes or may need assisted living accommodations. The number of elderly housing units in Tremonton will not satisfy future demand. Rising housing costs cause the elderly's fixed income(s) to become more and more inadequate for their housing needs. Federally subsidized housing is in great demand. Tremonton City currently has 48 units, and those are not all available to the elderly. Those permitted to inhabit this type of housing must have an income below 50% of the median household income range, which would be far less than $22,285. Over the next 10 to 20 years the number of retired elderly people will have a great increase, and the demand for low cost housing will also increase. Steps should be taken to build and develop additional low cost housing units for the elderly. An alternative would be to establish a committee to create a nonprofit organization that would accumulate funds for the construction of new low cost affordable housing developments. As more elderly housing becomes available and inhabited by qualifying elderly person(s), private housing units currently occupied by the elderly will be vacated, increasing the housing supply, and creating some additional affordable single family housing units. Moderate Income Housing Plan The Utah State Code requires each municipality to adopt a plan for moderate income housing as part of the general plan. The Moderate Income Housing Plan must contain the following: 1. An estimate of the existing supply of moderate income housing located within the Municipality. 2. An estimate of the need for moderate income housing in the municipality for the next five years and revised annually. 3. A survey of total residential zoning. 4. An evaluation of how existing zoning densities affect opportunities for moderate income housing. 5. A description of the municipality's program to encourage and adequate supply of moderate income housing. The following Moderate Income Housing Plan will contain a definition of "moderate income housing," evaluate the current need for moderate income housing, examine each of the five points above, and discuss policies and techniques designed to meet the estimated needs touched upon in the five points noted above. Definition of Moderate Income Housing As defined above in the Utah State Code, "moderate income housing," is "housing occupied or reserved for occupancy by households with a gross household income of less than 80% of the median gross income of the rural statistical area for households of the same size." Existing Supply of Moderate Income Housing There is a supply of housing within the city that will accommodate those incomes of 80% or greater of the median gross income. However, as defined above there is 20% or more of the population of the city who fall at or below 50% of the median gross income and cannot afford to purchase housing. Therefore, rental housing is the main alternative. As the population increases, so will the demand for, and ultimately the cost of housing in Tremonton. In order to accommodate moderate income families and their housing needs, the amount of housing units in higher density zones of the city must be maintained, and built at or near capacity permitted by the Tremonton City Zoning Ordinance. Table 5.4 gives a breakdown of current rental prices in Tremonton. A family not wanting to pay more than 30% of their monthly income for housing would need to have a combined monthly income of at least $1400.00 after taxes to be able to rent a two-bedroom apartment in Tremonton or $2000.00 a month to rent a home. TABLE 5.4 AVERAGE RENTAL PRICE FOR HOUSING Type of Unit Dollars per Month Studio 250-400 Two Bedroom (apartment) 400-550 Two Bedroom (duplex) 450-550 Two Bedroom (condo) 500-600 Single Home 500-700 Single Home (luxury) 600-1000 Data from a survey of Tremonton Realtors. Over the past five years, considerable residential growth has occurred in Tremonton. This growth has occurred mainly in the medium to higher density single family dwelling zoning. The highest current zoning in Tremonton for single family dwellings is R1-8 (eight units per acre), and RM-15 (fifteen units per acre) for multi-family units. Table 5.5 shows the total acreage used in each density area for the years shown. TABLE 4.5 RESIDEN |
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