Key issues identified for Stevensville growth policy update

By Michael Howell

The Town of Stevensville is updating its growth policy and several residents showed up to participate in the process at a meeting last week hosted by John Kellogg of Professional Consultants, Inc. and Matthew Rohrbach of Land Solutions, who are spearheading the effort. Attendees got a chance to help identify Stevensville’s assets and strengths, as well as its weaknesses and key issues. Then they were able to identify specific opportunities for capitalizing on the town’s assets and addressing its weaknesses and key issues.

The town’s Growth Policy was adopted in 2009 and amended in 2010 and 2012. It is a comprehensive plan addressing land use, natural resources, the economy, public infrastructure, housing and other topics identified by the community. The consultants working on the update have published an Existing Conditions and Key Issues Report that is available online at www.planstevensville.com.

The existing conditions section documents past trends, current conditions, and (where available) future projections in Stevensville, with respect to population, the economy, land use, public infrastructure, and a host of other topics. The key issues section identifies just that: the key issues facing Stevensville that have implications for the future of the town. For each key issue a brief description is provided along with a preliminary series of goals and objectives. While the growth policy will cover a wide range of topics required by state law and identified by the community, the key issues are intended to focus the growth policy on the topics of priority interest to the Town of Stevensville.

Over the last 24 years Stevensville’s population has grown by 59% increasing from 1,221 residents in 1999 to 1,944 in 2014. The town grew fairly rapidly between 2002 and 2007 and employment increased by 12%. The average earnings in Ravalli County grew by 19%.

Then came the recession and between 2007 and 2010, employment fell by 11% and the average earnings in the county rose by only 2%. Businesses hit hardest by the recession included construction which shrank by 51%, retail trade down by 33% and accommodation and food decreased by 21%.

From 2010 to 2014, however, the town’s economy rebounded and employment went up by 12%. The average earnings in the county increased by 9%. The highest growth is being seen in retail trade, health and social assistance, and construction. Other businesses have shown a decrease over the same time period, however. Technical services were down by 27%, finance and insurance decreased by 32% and wholesale trade was down by 28%.

Another interesting statistic is that most of the people residing in Stevensville do not work in town, they commute to Missoula or elsewhere in the county. Conversely, most of the people who work in Stevensville don’t live there.

Non-resident expenditures in Ravalli County doubled during this period. Estimated at around $15,540,000 in 2010 they reached $32,432,000 in 2014.

There are 877 homes in town and 819 are occupied. Fifty-one percent are occupied by their owners and 49% are occupied by renters. The median home value is $160,400. That’s a 63% increase since 2000. The median rent in 2014 was $690 a month, a 38% increase from 2000.

Housing cost is considered a “cost burden” if it takes more than 30 percent of the household income. In Stevensville, in 2014, 44% of the homeowners were cost burdened and 60% of the renters.

Stevensville’s age demographics are also changing. The percentage of 65 and older population is expected to grow by 49% over the next 20 years, while the number of 34- to 64-year-olds is projected to decrease by 17% over the same period.

After researching and compiling historical data on Stevensville, and meeting with various stakeholders, such as government officials and community groups, the consultants have put together a list of key issues, with goals and objectives for each key issue. The following information is taken from the initial report.

 

Key Issue: Diversifying Stevensville’s Tax Base

To keep the water flowing, bills paid, and maintain infrastructure the Town of Stevensville requires stable revenue sources. Currently, property taxes account for nearly half of Stevensville’s total revenue. Commercial and industrial properties in Stevensville account for just over a quarter of property tax revenues yet account for under 10% of total land area in Town. Residential properties, by comparison, account for two-thirds of tax revenues and cover just under a quarter of total land area in town. Commercial and industrial properties are an important component of a town’s tax base as the majority of these enterprises pay higher property tax rates than residential uses. To provide for sustainable revenue generation going forward, Stevensville needs to examine how the town can diversify its tax base to rely less on residential property taxes and increase the number of tax paying commercial and industrial uses.

Goal: Retain Existing Commercial and Industrial Enterprises

Objective: Continue to work with the Ravalli County Economic Development Authority on identifying and implementing public infrastructure improvements needed for existing businesses to remain in place and grow.

Objective: Work with local commercial and industrial businesses to identify how the town can support their needs and enable them to remain in Stevensville.

Goal: Work to Attract New Commercial and Industrial Enterprises

Objective: Provide incentives for commercial and industrial businesses to locate in Stevensville.

Objective: Market vacant commercial and industrial properties in key regional and out of state markets.

Objective: Identify locations with capacity for additional commercial and industrial uses and evaluate whether these locations need additional amenities and/or infrastructure improvements to attract businesses.

Key Issue: Water

As Stevensville transitions its water over from the infiltration gallery up Middle Burnt Fork to the well field adjacent to Twin Creeks development, there are a few important issues that come to the forefront:

• There is a continuing need for more water storage capacity. The existing tank on Middle Burnt Fork Road needs to be supplemented to ease the strain of peak demand for water.
• While leakage has been greatly reduced recently with replacement of some of the old cast iron mains, there is a continuing need to identify and eliminate other leaking pipes.
• The Town’s water rights are currently being transitioned over from the old sources, such as the infiltration gallery, to the new well field. This is happening at the same time that Montana is going through an extended process of adjudicating water rights throughout the State. That process has resulted in the Bitterroot Valley being designated a “closed basin”, which means no new water rights are being permitted. So the only way to obtain a water right is to transfer and apply an existing right. This can be a lengthy and expensive process. It will probably mean that any new annexations of land into the Town will be required to bring a water right that will be adequate to serve the demands of the people or businesses being annexed.

 

Goal: Increase Stevensville’s Water Storage Capacity

Objective: Identify a location for new storage that is appropriate for demands of the system.

Objective: Apply for funding to complete the new storage facility.

Goal: Reduce Water Leakage within the Town’s System of Water Mains.

Objective: Analyze water flows throughout the Town to determine where leakage is occurring.

Objective: Determine funding sources and replace the mains that are leaking.

Goal: Transition the Town’s Water Rights Over to the New Deep Well Field

Objective: Continue the ongoing process through application to the Montana Department of Natural Resources and Conservation (DNRC).

Goal: Assure that Stevensville has Adequate Water Rights to Serve its Present and Future Residents and Businesses.

Objective: Continue to monitor Montana’s water right adjudication process.

Objective: Project Stevensville’s need for water rights into the future (20 years).

Key Issue: Housing

Like much of western Montana, the cost of both rental and for sale housing in Stevensville is increasing. While increasing home prices can be a sign of an improving economy, they can also serve to limit options for people in need of housing. As Missoula home prices continue to increase, there is a need to evaluate how this will impact Stevensville’s local housing market. Additionally, as Stevensville’s population continues to age, this will likely alter the demand for different housing types and locations. As a result, Stevensville needs to gain an understanding of the need for affordable both and market rate in terms of demand among different demographic groups and demand for different housing types.

Goal: Provide for a Mix of Housing Options in Stevensville

Objective: Continue to support the Human Resource Council’s efforts to develop below market rate housing options in Stevensville.

Objective: Work with the Human Resource Council and other regional partners to promote first time home buyer programs in Stevensville.

Objective: Evaluate Stevensville’s development code for potential impacts on the development of affordable housing.

Objective: Identify areas for additional residential development, plan for infrastructure expansion and work with developers to make infrastructure capacity available to facilitate development.

Key Issue: Non-Motorized Transportation

Stevensville has done well to develop a relatively well-connected and safe bicycle and pedestrian network. However, there are areas where Stevensville can improve its non-motorized transportation network, thereby providing safe bicycling and walking options for residents and capitalizing on the growing bicycle tourism market in the Bitterroot Valley. Specific items that have been addressed include:

• Creating safer bicycle connections to the Lee Metcalf Wildlife Refuge.
• Developing bicycle and pedestrian infrastructure along Park Avenue between Middle Burnt Fork Road and Phillips Street – a route used heavily by school aged children walking and biking to school.
• Traffic calming on Main Street as vehicles enter town from the north.
• Sidewalk installation and repair in residential neighborhoods.
• Completing sidewalks on the south end of town.

 

Goal: Develop a Complete and Safe Network of Pedestrian and Bicycle Infrastructure

Objective: Develop safe walking and biking options to and from Stevensville’s schools.

Objective: Adopt a complete streets policy.

Objective: Require that newly developed roads in Stevensville be connected to the existing street network where feasible.

Objective: Prioritize areas for sidewalk improvements and work with property owners to repair or replace sidewalks in these areas.

Objective: Provide for safe walking and biking connections from Stevensville to the Lee Metcalf Wildlife Refuge.

Objective: Develop traffic calming measures where the Eastside Highway and Highway 93 cutoff road enter Stevensville.

Goal: Capitalize on the Growing Bicycle Tourism Market in the Bitterroot Valley

Objective: Work with local and regional partners to promote Stevensville as a preferred destination for touring cyclists.

Objective: Work with the Stevensville Main Street Association and local businesses on developing programs that encourage cyclists to patronize local Stevensville’s businesses.

Objective: Work with local and regional partners to develop bicycling informational resources targeted to Stevensville and the Bitterroot Valley

Key Issue: Permitting and Enforcement of Existing Regulations

Stevensville has benefitted over the years from having many well-qualified elected and appointed officials who have stepped in and filled the numerous roles needed to keep the town working. Land use planning and zoning, and the regulations adopted pursuant to the plans, are particularly difficult to enforce and complex to administer. As a result of the work of elected and appointed officials, Stevensville has been able to keep pace with changes in state law, and by and large, been able to respond to the numerous requests from landowners and residents for interpretation of the town’s regulations.

When major subdivision proposals were submitted, the town contracted with attorneys and civil engineers to help review the submittals and make recommendations to the Planning and Zoning Board and the Town Council. A large part of the processing and administration of these major proposals, including required mailings, fell on the Town Clerk.

The future of land use rules and regulations in Montana only looks to become more complex and challenging. The demands from landowners for interpretation of these rules grow as Stevensville gradually expands. Because Stevensville does not currently have a staff planner, these demands by default fall on the Town Clerk. This arrangement benefits the Town’s budget, but may not be beneficial to the efficiency of the administration if it draws staff from completing other duties. Furthermore, enforcement of zoning, building, and land use regulations is severely limited without a designated staff position.

Stevensville should consider options for staffing, or contracting to fill a planner position, orexpanding the assigned duties of existing staff to fulfill this task. In any case, it would be beneficial to formalize a process for accepting and reviewing zoning requests and land use planning interpretations.

Goal: Provide a Clear and Easily Followed Process for Reviewing Zoning, Building and Land Use Proposals.

Objective: Identify list of potential land use requests presented to the town.

Objective: Create a path for review of each potential land use request.

Goal: Provide Consistency in Review of Land Use and Zoning Requests.

Objective: Identify staff assigned to respond to each request, based on applicable regulation.

Objective: Create forms necessary to complete all potential land use and zoning requests.

Key Issue: Guiding Development Patterns South of Town

Stevensville’s Development Code has, for a couple of decades, anticipated growth to occur south of town along both sides of the Eastside Highway. Landowners in this area had requested that the town implement zoning in a manner that would permit continued residential development throughout most of the area, while also accommodating and generally controlling commercial development along the highway frontage. In addition, the development code includes specific requirements for any subdivisions proposed in the zoned area south of town, with the intent to assure that development would follow a pattern that would facilitate the extension of town services, including sewer, water and streets. Since the implementation of these requirements, there has been some “leapfrog” pattern of residential development to lands that are not contiguous to the town. This has caused a little difficulty in, for instance, applying the Street Master Plan to roads built in the area. Nevertheless, the intention of the Development Code is clear and would benefit from occasional review.

Goal: Facilitate the Extension of Municipal Services to Areas that are Planned for Growth.

Objective: Define how the road system can be laid out to connect with Town streets.

Objective: Identify locations for a sewer lift station that would serve areas to be annexed.

Objective: Provide standards for water and sewer mains that would extend into areas to be annexed.

Goal: Protect Residential Development from Adverse Impacts of Commercial Corridors.

Objective: Continue to enforce current zoning regulations.

Objective: Review standards within Zoning Regulations to make sure they are appropriate.

Objective: Evaluate enforcement of current Zoning Regulations to see if it is effective.

Goal: Encourage Commercial Development within the Corridor Along Eastside Highway.

Objective: Simplify zoning permitting process.

Objective: Identify access and advertising standards that will promote commercial enterprises.

Key Issue: Annexation

Montana State Codes provide for annexation of land to a town through a number of methods. While some of these can be initiated by the town, the most commonly used by Stevensville is through a petition from the landowner. Creekside Meadows and Twin Creeks subdivisions were annexed to Stevensville through the landowner/developer’s petition and zoned appropriately at the same time. The recent North Stevensville TIFID and the Airport TEDD Districts are exceptions to this, in that they were initiated by the town, but with concurrence of the landowners or leaseholders.

An important requirement of the annexation process is that the town certify that it can extend municipal services to the property owners in the annexed land. At the same time, the town must be assured that any improvements to be built within the annexed lands will meet the standards set by the town for being incorporated into the town’s infrastructure. This assures an or­derly and manageable connection from the existing town to the newly annexed area.

For annexation to be successful, it needs to be done so that there is a mutually beneficial outcome for both the town and the landown­ers. Of critical importance is the need to verify that infrastructure (streets, sewer, water) and services (police, fire protection) are ade­quate to serve the new area, with­out straining those services for the existing residents. Stevensville has been working diligently in recent years to make sure that their water and sewer facilities are adequate for the demands of the future.

Goal: Enable Annexation of Lands Adjacent to Town in a Way that is Beneficial to Both the Town and the Landowners.

Objective: Assure that the town’s infrastructure and municipal services are adequate for added lands.

Objective: Provide clear direction and standards for landowners who want to annex.

Goal: Facilitate Annexation of Lands where Development can be Done Without Adverse Impacts on the Community and the Environment.

Objective: Identify areas of floodplain, high groundwater, wildlife habitat protection, or other community and environmental constraints where more intense development may be unwanted.

Objective: Identify areas where there are minimal constraints to development.

Key Issue: Downtown

By all accounts, Stevensville’s Main Street is a well-functioning downtown. There are a diverse array of shops and businesses, buildings are well kept, there is uniformity in building form and character, and there are relatively few vacancies. Preserving the quality of and strengthening downtown requires ongoing work on the part of the Town and partnering organizations, notably the Stevensville Main Street Association. There are a variety of tools and strategies available for achieving this aim, including:

• Utilizing existing guidelines or standards to guide building form and design in downtown
• Developing sign regulations
• Gateway and signage improvements to attract motorists and bicyclists from Highway 93

 

Goal: Preserve and Enhance the Aesthetic Qualities of Downtown Stevensville and the Town as a Whole.

Objective: Develop regulatory and voluntary measures that guide the form and design of new construction, signage, and major building rehabilitation.

Goal: Proactively Work to Ensure the Continued Success of Downtown Stevensville

Objective: Work with the Stevensville Main Street Association and local businesses on identifying the needs of existing businesses and how the Town can assist in addressing those needs.

Objective: Actively work to retain existing businesses in downtown and attract new enterprises.

Objective: Develop a downtown master plan

Goal: Provide for Adequate Access and Mobility for all Modes of Transportation in Downtown Stevensville

Objective: Assess parking availability and demand in downtown Stevensville to evaluate whether parking management strategies are needed.

Objective: Develop safe biking options through downtown.

Key Issue: Access to Bitterroot River

The Bitterroot River is a treasured asset for many Ravalli County residents. Stevensville residents in particular, currently enjoy a high degree of access to the Bitterroot River through Stevensville’s Bitterroot River Park northwest of town. The Bitterroot River Park is a popular destination for anglers, boaters, swimmers, and people simply coming to enjoy the peace of the river. However, to access the Bitterroot River Park residents must cross through a portion of private land, which many people currently use as a swimming hole and location to launch their boats. As a result, long-term access to the river and Bitterroot River Park is not guaranteed.

Goal: Ensure Continued Access to the Bitterroot River for Stevensville Residents

Objective: Provide for long-term legal and physical access to Stevensville’s Bitterroot River Park.

Objective: Identify additional locations for river access close to Stevensville.

A draft of proposed changes in the Growth Policy will be completed in late September or early October. Another public meeting is planned for later this summer.

The complete draft report on Existing Conditions and Key Issues can be found on the town’s website at www.townofstevensville.com, click on Growth Policy Update and then on Documents.