7.3 Comp Plan CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/004:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
7 PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO. 3, 3a
BY: ZDA BY:~
Item
Consider possible changes to the city's Primary Growth Area boundaries.
Back.qround
In the past year staff has received inquiries from several parties asking about the development
potential or developability of property along Markley Road north of Magnolia, particularly along
the east side of Markley. Due to this interest, staff believes this is an opportune time for the
Planning Commission and the City Commission to reexamine the future land use plan and
growth area boundaries in this area. The last time these maps and policies were looked at
comprehensively was in 1995 when the proposed plat of the Highland Meadows Hamlet
development on the south side of Magnolia Road was being considered. At that time the City
Commission made several changes to the city's growth area/service area maps in the areas
east and southeast of the existing city limits. An attached map shows the existing growth area
boundaries in this area.
Salina's Existin.q Comprehensive Plan Framework
The city's existing Comprehensive Plan, as adopted in 1992, delineates future growth areas
for new development based on proximity to existing municipal facilities and services and the
city's ability to economically extend such facilities and services to support urban development.
Support includes not only the basic requirements of paved roads and municipal water and
sewer but also includes fire and police protection, schools and parks and recreation services
among others.
The unincorporated area of Saline County located outside the current city limits, but expected
to receive future urban development, is divided into primary and secondary service areas.
Primary service areas are the preferred locations for initial urban development due to their
close proximity to existing development and the ability to economically provide public services
concurrently with the extension of municipal boundaries. Secondary service areas, which
represent the next tier of future growth, are intended to receive urban development only after
the primary service areas have been substantially developed. The comprehensive plan
anticipates that all or a substantial part of the primary and secondary service areas will be
annexed into the city during the next 10-15 years. The remainder of the planning area is
designated as the rural service area which is not expected to receive urban development
during the current planning period. The rural area is suitable for very Iow density residential
development (3 or more acres per dwelling unit).
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO.
AGENDA:
PLANNING & DEVELOPMENT
ITEM
NO. DEAN ANDREW
Page 2 BY: BY:
PublicFacilities and Services
^ key element of the city's Comprehensive Plan is the establishment of urban service
standards for defining the adequacy of municipal facilities and services. They set the
minimum levels of public services needed to meet the demands of concentrated population
in an urbanized setting.
Paved Streets - New urban development must be served by paved streets which meet
standard specifications for new street construction. Typically, lots within new subdivisions will
be served with streets constructed to city standards. Upon completion the streets will be
accepted for public maintenance (pothole repair, resurfacing, sweeping etc.) At times, a new
subdivision will be located adjacent to a county road which has not been improved to city
standards. In this case, the lot owners are required to accept responsibility for upgrading one-
half of the road to city local street standards.
In the incorporated area east of the city, Magnolia and Markley are paved, Holmes Road has
not been paved. Portions of these roads may have been constructed with adequate base
material and heavy asphalt surfacing to meet city standards. Other sections have only been
constructed with light asphalt paving and will need future improvement as traffic volume
increases. Holmes Road will need to be completely rebuilt and paved before it can provide
access to any urban development in this area.
Public Water - New Iow density, residential development must be served by at least a 6"
looped water main providing fire flow of 1,000 gal./min, at each fire hydrant. For multi-family
development and institutional uses such as schools and churches the requirement is 1,500
gal./min. As the city expands at the periphery this becomes more difficult to achieve. Major
water main extensions will be necessary to enable continued expansion of future subdivisions
proposed in the eastern primary growth area. Property owners and development in these
areas will be responsible for their proportional share of the costs of water main extensions
installed to meet required standards.
In 1994, a new water tower (at Cloud and Markley) and a new water line (from the water
tower along Markley and Magnolia to Ohio) was put into service. This system improvement
has enhanced pressure and flows to existing development along Magnolia and provides a
source for the completion of the needed main extensions to serve new development in the
primary growth area. Realistically, the Markley/Magnolia water line serves as an attraction
for future development outside the current primary growth area particularly the northeast
corner of Magnolia and Markley.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
Page 3 BY: BY:
In addition, the Ottawa Rural Water District #2 operates a public water supply system
consisting of 4" lines that runs through this area. This system is designed to serve rural homes
on larger tracts of land. It does not have the capacity to serve denser urban development on
standard city lots.
Public Sewer- New urban residential development must be served by a sanitary sewer
collection system with lines of at least 8" in size and designed to accept projected flows. Until
recently, all sewage flows from east Salina had to utilize an existing interceptor running east
along Crawford to Seitz and then north to the sewage treatment plant. This interceptor now
has excess capacity to accommodate sewage flows from future development (such as
Woodland Hills Estates) due to construction of the East Dry Creek Sewer Interceptor which
was placed into service in 1994 (see Map 4). This line operates as a force main (FM) along
Magnolia Road to a point between Markley and Holmes Roads where it becomes a gravity line
(GL) for the remainder of its length. This interceptor also serves as a potential attracter of
development to areas located outside the current primary growth area.
Fire Protection - New urban residential development should be located within close proximity
of a fire station occupied 24 hours per day with firefighters trained in fire suppression and
emergency medical service. The Insurance Standards Office (ISO) defines close proximity as
1.5 miles while a more general definition is within a 5 minute response time or about 2.5 miles.
East Salina is served primarily by Fire Station ~h~ located at Marymount and Crawford.
Secondary response is provided by Station #3 located on south Belmont. This area is located
within both service standards. Currently, Salina carries an ISO rating of Level 3 and is in the
process of applying for an upgrade to Level 2. It appears that if new residential subdivisions
are established outside the 1.5 mile zone, the ISO upgrade would not be jeopardized.
However, if residential development accelerates in the fringe areas, Fire Station #4 may need
to be relocated in the future to improve overall response times.
The rural area east of the city is served by Rural Fire District #5 which has two unstaffed
stations on Simpson Road. Volunteers are paged at home or work and then drive to the
station to get pumper and tanker trucks to take to the fire scene. Because a fire doubles every
14 seconds, arrival during the early stages of a fire is very important. When this is not possible
due to longer travel times, other precautions should be taken such as sprinklers, separation
of structures, fire-resistive construction, etc.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
Page 4 BY: BY:
Police Protection - New urban development should be located so that police patrol units can
arrive at the location of an emergency within three minutes of a call to the dispatch center. The
east area of Salina is located within two city patrol beats. Beat #3 is bounded by Crawford,
Santa Fe and Iron and Beat #5 is bounded by Crawford, Ninth and Magnolia. Each beat is
staffed by one officer in a patrol car 24 hours a day. If either patrol unit is located in east
Salina at the time of an emergency (Priority I) call, response within three minutes is probably.
However, if both units happen to be west of the river when the call comes in, a somewhat
longer response is likely.
If development occurs in remote locations, the response time will naturally increase. However,
residents of outlying areas may still expect a level of service similar to more close-in locations.
This would only be achieved by adding or realigning patrol beats. The first option would have
a budge impact while the latter would reduce service in another area of the community.
In the rural area, police protection is provided by the Sheriff's Department. One patrol unit
covers the east half and one covers the west half of the county 24 hours per day. Due to the
size of the area covered, the response time to a call can vary considerably.
Parks and Recreation - New residential developments should provide land for public park
purposes where the Comprehensive Plan indicates a need for a neighborhood park site. In
east Salina, a future park site is shown in two locations - a neighborhood park in an area north
of Crawford and east of Seitz and near the Smoky Hill River southwest of the Elks Club. East
Salina has several large recreation facilities (golf courses and ball fields) but no neighborhood
parks with other facilities (playground, picnic shelter, tennis court, basketball court, etc.). The
demand and need for a neighborhood park increases as population density increases.
Compact urban growth makes it more feasible to develop a neighborhood park whereas
scattered growth disperses potential users reducing the cost-benefit ratio of a potential park
project.
Schools - New residential development should be located within one mile of an elementary
school and 1.5 miles of a junior high school so that students may walk or bike to and from
school. In east Salina, the vast majority of residential areas are located within one mile of
Meadowlark Elementary School.
Under state law, if a student lives more than 2.5 miles from a school (front door to front door
by the most direct route), the school district is required to provide transportation. In east
Salina, students receiving bus service from U.S.D. 305 are taken to Roosevelt-Lincoln Middle
School, and Central High. At the present time, no students are bused to Meadowlark.
Approximately 40% of the cost of providing transportation is reimbursed by the state with the
remaining 60% absorbed by local school districts.
CITY OF SALINA
REQUEST FOR CiTY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
AGENDA:
NO. PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
Page 5 BY: BY:
If new residential growth were to occur more than 2.5 miles for Meadowlark Elementary,
several possibilities would exist. First, under current practice, students would be assigned and
provided bus service to the previously mentioned schools. Secondly, U.S.D. 305 could assign
students to a school within 2.5 miles such as Stewart Elementary and not provide bus service.
Finally, parents could enroll their children in their school of choice and provide their own
transportation.
At the present time, Meadowlark and Stewart Elementary Schools are at or approaching
capacity. Additional enrollment could be met by adding on to Meadowlark and Stewart,
assigning students to another elementary school or constructing a new elementary school.
Plans are in the works for additions to both of these school facilities. Although USD #305 had
an option on a site at the south end of the old airport runway, they have no plans to build a new
elementary school in that location. The school district is currently exploring the possibility of
purchasing land along the Magnolia corridor as a site for a new elementary school in the
southeast growth area.
Another factor could complicate school assignments. On the south side of Magnolia Road east
of Markley, U.S.D. #306 (Southeast of Saline) lies in close proximity to the city. It is
conceivable that students in the same neighborhood could attend different school districts.
Boundary line changes must be approved by the State Board of Education and both districts
have a policy prohibiting buses of other district from entering their jurisdiction. Consequently,
city utilities could serve residential areas housing students that would attend both U.S.D. 305
and 306.
Utilities - For electricity, the City of Salina is currently served by Kansas Power and Light.
However, an area located southeast of the city limits is currently served by the DS&O Rural
Electric Cooperative out of Solomon (see attached map). The area just east of the Smoky Hill
River south of Cloud Street is within the DS&O service territory. DS&O does not have a
franchise agreement with the City of Salina and therefore cannot supply electricity within the
city limits. Once any portion of this area is annexed into the city the site becomes part of KPL's
service territory, however, state law provides a 180 waiting period during which DS&O may
attempt to obtain a franchise agreement with the City of Salina or challenge the loss of territory
to the Kansas Corporation Commission. DS&O has formally requested that the City of Salina
approve a franchise agreement to allow it to serve property within the city limits. The City
Commission will be briefed on this issue by the City Manager on Monday, October 16, 2000
and a hearing to consider DS&O's franchise request has been set for Monday October 23.
This area is served by Kansas Gas Service for natural gas. There is an existing gas line along
the west side of Markley Road.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
Page 6 BY: BY:
Growth Management Tools Available to the City
Subdivision Regulations
The majority of land outside of the eastern city limits is zoned agricultural and unplatted. For
residential development to occur a tract would have to be rezoned to residential and
subdivided into building lots. Under the terms of our Interlocal Agreement with Saline County,
if the tract were located within one mile of the city limits, the subdivision would require approval
by the city. If annexation was requested, the rezoning of the property would also require city
approval.
State statutes provide that local subdivision regulations may make subdivision plat approval
conditional upon conformance with the comprehensive plan. Accordingly, the city's subdivision
regulations declare it the policy of the city to consider the subdivision of land and the
subsequent development of the platted area as subject to control of the city pursuant to the
comprehensive plan for orderly, planned, efficient and harmonious physical and economic
development of the community.
In accordance with the above policy, for development to occur a subject property would need
to already be designated as a primary or secondary residential growth area or the
comprehensive plan service area map would need to be amended to reflect this new
designation.
Annexation Policies
The Comprehensive Plan embraces a strategy of planned growth and orderly expansion of the
city. To implement this strategy, the plan recommends that there be no annexation beyond
the primary and secondary growth areas. This usually means that only tracts contiguous to
the city are annexed. Two exceptions to this practice were the island annexations of the Flying
J Travel Plaza at 1-70 and Ohio and Highland Meadows Hamlet on the south side of Magnolia.
The Flying J exception was made for the following reasons: the development may not have
occurred without city utilities, few locations exist where truck stops are economically feasible
to construct, commercial development generates new jobs and net additions to local tax
revenue, including both property and sales taxes, and it is unlikely that the city will grow out to
the interchange due to an intervening floodway area.
The Highland Meadows Hamlet exception involved a change to the 1992 Comprehensive Plan
approved by the Planning Commission and City Commission. Both bodies believed that due
to the availability of City utilities and paved roads that this area should be a Secondary Growth
Area instead of being designated as rural on the plan.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
Page 7 BY: BY:
The present policy of the city is that annexation will be required before facilities and services
are provided to any site, except for industrial uses which shall consent in writing to future
annexation. Except for industrial uses and rural water districts the city has had a long
established policy of not allowing uses located outside the city limits to connect to its water and
sewer system. Industrial uses create significant economic benefits and there are a limited
number of sites near the city both large enough and sufficiently separated from residential
areas to meet the needs of new industry. The city also supplies water to some rural water
districts. The agreement limits the uses of city water to tracts of land of 20 acres or more. The
clear intent is to only serve agricultural uses and rural farm homes and not new residential
subdivisions.
It should be noted that island (non-contiguous) annexations must be requested by or
consented to by the land owner and approved by Saline County. The County Commission,
upon receiving an annexation petition from the city, must find that the annexation will not
hinder or prevent the proper growth and development of the area.
Special Assessment Financinp
In 1995, when approval of Highland Meadows Hamlet was being considered, the Planning
Commission and City Commission approved a change to the Growth and Development Policy
section of the Comprehensive Plan. The policy was amended as follows:
Deleted. - Seconday Service Areas may receive urban development only when the Primary
Service Area has been substantially completed.
Added - Secondary Service Areas should not ordinarily receive urban development until
Primary Service Areas have been substantially completed. However, development may be
allowed in the Secondary Area provided: 1) adequate public facilities and services are
provided; 2) the area is annexed into the city; 3) capital costs for city facilities are recovered
on an equitable basis; 4) appropriate building restrictions are imposed to protect public health
and safety; and 5) no financial assistance is provided by the city for completion of public
improvements such as streets and utilities.
The effect of condition number 5 was to make residential subdivisions located in the city's
secondary growth area ineligible to use special assessment financing for street and utility
improvements. This policy was intended to serve as a disincentive for developing in the
secondary growth area.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
Page 8 BY: BY:
Amendment of the Comprehensive Plan
Subject to a public hearing, review and recommendation of the Planning Commission, the City
Commission may adopt proposed amendments to the comprehensive plan. The land use plan
may be amended upon finding that each of the following criteria are met:
a. The proposed change is consistent with the goals, objectives and policies of the overall
plan.
b. The proposed amendment does not affect the adequacy of existing or planned facilities
and services of the city.
c. The proposed change does not materially alter planned capital improvements.
In regards to these factors or findings, the following information and observations are provided.
First, when the current Comprehensive Plan was adopted in 1992 about 1,800 acres of vacant
land in and around the city was identified as suitable for residential development and placed
in the Primary Growth Area on the plan. Since the plan was adopted, the City has approved
18 new residential subdivisions. These subdivisions have consumed about 412 acres of land
within the Primary Growth Area. One of these 18 subdivisions, Highland Meadows Hamlet on
the south side of East Magnolia, covers 58 acres but is outside of the city's Primary Growth
Area. Highland Meadows Hamlet is the only residential development located in the city's
Secondary Growth Area and therefore not eligible to use special assessment financing. Lot
owners in the other 17 subdivisions have incurred substantial costs for the installation of new
streets and utilities which are being financed by the city with special assessment bonding,
subjectto repayment over a ten or fifteen year period.
Secondly, it is well established that compact urban growth is more cost-efficient in terms of
public service delivery. Scattered residential growth occurring in a sprawl or leap-frog pattern
increases public service costs and raises pressure for higher taxes. Because there is only so
much demand for new housing, the same number of new homes are likely to be built within a
local housing market. Under sprawl, houses are built on more remote tracts with lower land
costs and thus lower lot prices. This may provide a direct benefit for the new home buyer
attracted to the development but it is offset by higher costs to remaining taxpayers in providing
the development with public services. To avoid adverse fiscal impacts, urban growth
boundaries should be carefully drawn and if amended done so with caution.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
Page 9 BY: BY:
Alternatives
Staff has identified several alternatives for the City Commission's consideration:
1. Reaffirm the existing comprehensive plan - This alternative would maintain the current
primary/secondary growth boundaries.
2. Amend the comprehensive plan by expanding the primary growth area - Under this
alternative, the primary residential growth area would be extended south and east to
encompass additional tracts of land adjacent to the new city water and sewer lines (see
attached annexation request). Development meeting city standards would be permitted
anywhere within this expanded area subject to certain conditions. Connection to city
utilities would be required as well as annexation into the city even as an island
subdivision.
3. Allow county subdivisions to connect to the city's water and sewer lines - This
alternative involves use of the city's utility systems without requiring annexation. The
subdivisions would be developed to county standards and receive services from Saline
County. Although a surcharge would be added to utility bills, the development would
not pay any city taxes. This option would require addressing other important issues
such as fire protection.
Planning Commission Recommendation
The Planning Commission found that inclusion of the Oliver Hagg tract and the Norton tract
in the city's primary growth area would not be inconsistent with the goals and objectives of the
city's Comprehensive Plan.
The Planning Commission recommended Alternative 2, that the Salina Service Areas Map be
amended to show the area south and east of the old city airport as described in Annexation
Applications #A00-3 and #A00-4 changed from a Secondary Service Area to a Pdmary Service
Area for the extension of City utilities and services.
City Commission Action
If the City Commission concurs with the recommendation of the Planning Commission the
attached ordinance amending the Salina Services Area Map on Page 172 of the
Comprehensive Plan should be approved on first reading. Second reading would be
scheduled for October 23.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
10/16/00 4:00 P.M.
AGENDA SECTION: ORIGINATING DEPARTMENT: APPROVED FOR
NO. AGENDA:
PLANNING & DEVELOPMENT
ITEM DEAN ANDREW
NO.
BY: BY:
Enclosures: Growth Area Map
Sewer Interceptor Map
KPL/DS&O Service Territory Map
Ordinance No. 00 -;[0003
cc: Frank Norton
Tom Williamson
Bob Wasko
P.C. Meeting Date October 3, 2000 Application No... MO0-1
Date Filed September 19~ 2000 Filing Fee .N/A ·
Reviewed By DA Receipt No.
GENERAL APPLICATION TO THE
SALINA CITY PLANNING COMMISSION
The undersigned, being residents of the City of Salina, Kansas, do hereby apply
to the Salina City Planning Commission for an amendment to the Salina Comprehen~iye
Plan
Amendment of the boundaries of the city's Primary G~ow~h Area to ~n~l~,dm:
(1)The Ha~ Tract - a 101 acre tract located south and eam~ nf ~hm mlH
airport runway and
(2) The West 1/2 of the Norton Tract located at the NE corner of Ma~nnl~m Rm~d
and Markle¥ Road. '
Applicant's Name (Print) Salina City Planning Commission
Address 3OO w. Ash ~ (Phone) 826-7260
Signature Dean Andrew, Secretary
Attach additional signature sheets if necessary. Be sure to include name, address,
phone and signature of each applicant on the additional sheets.
If the applicant(s) is to be represented by legal counsel or an authorized agent,
please complete the following in order that correspondence and communications per-
taining to this application may be forwarded to the authorized individual.
Name of Representative
Address
Telephone (Business)
!
36 31 3_~2 33
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