HomeMy WebLinkAbout08771ORDINANCE NO. 8771
AN ORDINANCE APPROVING AND ADOPTING A 2014
ADDENDUM TO THE COMPREHENSIVE MASTER PLAN
FOR THE PHYSICAL DEVELOPMENT OF PUEBLO, A
MUNICIPAL CORPORATION
WHERERAS, the City Planning and Zoning Commission is authorized to prepare
and submit to the City Council for its approval a 2014 Addendum to the Comprehensive
Master Plan for the physical development of the City; and,
WHEREAS, the City Planning and Zoning Commission, after a public hearing
thereon conducted after due publication, has approved said addendum and submitted
same to City Council for its approval. NOW THEREFORE,
BE IT ORDAINED BY THE CITY COUNCIL OF PUEBLO, that:
SECTION 1.
The 2014 Addendum to the Comprehensive Master Plan for the Physical
Development of Pueblo, heretofore approved by the City Planning and Zoning
Commission and submitted to the City Council for approval, copies of which are
attached hereto, is hereby approved and adopted as the Master Plan for the Physical
Development of the City with the changes thereto recommended by the City Planning
and Zoning Commission.
SECTION 2.
The 2014 Addendum to the Comprehensive Master Plan for the Physical
Development of Pueblo, does not repeal or rescind, the Pueblo Regional
Comprehensive Development Plan-2002. The physical development of the City after
the effective date of this Ordinance shall be in conformity with the 2014 Addendum to
the Comprehensive Master Plan for the Physical Development of Pueblo and the
Pueblo Regional Comprehensive Development Plan-2002, hereby adopted, except
insofar as any such physical development has been heretofore approved by Ordinance
of the City Council.
SECTION 3.
The 2014 Addendum to the Comprehensive Master Plan for the Physical
Development of Pueblo hereby adopted as the 2014 Addendum to the Master Plan of
the City shall also be known as the City of Pueblo “Master Plan Addendum” or the “City
of Pueblo Comprehensive Plan Addendum.”
SECTION 4.
The officers and staff of the City are directed and authorized to perform any and
all acts consistent with the intent of the Ordinance to effectuate the policies and
procedures described herein.
SECTION 5.
This Ordinance shall become effective upon final approval and passage.
INTRODUCED: August 25, 2014
BY: Ed Brown
COUNCILPERSON
PASSED AND APPROVED: September 8, 2014
City Clerk’s Office Item # R-2
BACKGROUND PAPER FOR PROPOSED
ORDINANCE
COUNCIL MEETING DATE:
August 25, 2014
TO: President Sandra K. Daff and Members of City Council
CC: Sam Azad, City Manager
VIA: Gina Dutcher, City Clerk
FROM: Steven Meier, Director of Planning and Community Development
SUBJECT: AN ORDINANCE APPROVING AND ADOPTING A 2014 ADDENDUM TO
THE COMPREHENSIVE MASTER PLAN FOR THE PHYSICAL
DEVELOPMENT OF PUEBLO, A MUNICIPAL CORPORATION
SUMMARY:
Attached for consideration is the 2014 Addendum to the Comprehensive Master Plan
for the Physical Development of Pueblo, a Municipal Corporation, otherwise known as
“Pueblo’s Comprehensive Plan, Pueblo Regional Development Plan, Addendum,
August 2014.”
PREVIOUS COUNCIL ACTION:
None.
BACKGROUND:
Pueblo’s Comprehensive Plan was adopted by City Council in June of 2002 and was
based on data provided by the 2000 U.S. Census. The demographics of Pueblo have
altered in the last 14 years prompting an update based on 2010 U.S. Census data. The
approval of an updated plan will aid the City in its redevelopment efforts by including the
most recent data and a Future Land Use Map that reflects more current development
patterns. In addition to having more current statistical information regarding
employment, population, and housing, the Pueblo Metropolitan Planning Organization
(MPO) is required by Federal law to update the existing Long Range Transportation
Plan (LRTP) to forecast transportation needs every five years. The Pueblo MPO must
have an updated Long Range Transportation Plan, forecasting transportation needs to
2040 completed by the end of 2014. Much of the transportation modeling contained
within the LRTP is based upon the demographic information provided by the
Comprehensive Plan and the Future Land Use Map, contained within the
Comprehensive Plan; therefore, prompting an update to the Plan. The resulting
document is the 2014 Pueblo’s Comprehensive Plan Addendum, which updates the
Factual Foundation portion of the Plan and makes minor amendments to the Future
Land Use Map based on updated population, housing, and employment figures. The
2014 Addendum, does not replace the existing Comprehensive Plan, rather it updates
certain sections with current data and trends. All of the information provided within the
Addendum utilizes the same methodology used in 2000 with current Census data.
FINANCIAL IMPLICATIONS:
There are no financial implications for the City.
BOARD/COMMISSION RECOMMENDATION:
The Planning and Zoning Commission, at their August 13, 2014 Regular Meeting, voted
5-0 to recommend approval with two vacant Commissioner seats.
STAKEHOLDER PROCESS:
A Notice of Public Hearing was published in the Pueblo Chieftain and a Public Hearing
was held before the Planning and Zoning Commission on August 13, 2014.
ALTERNATIVES:
None.
RECOMMENDATION:
Approval of the Ordinance.
Attachments: Minutes of the Planning and Zoning Commission August 13, 2014
Regular Meeting
Staff Report for Text Amendment CP-14-01 and Exhibits
Notice of Public Hearing
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Table of Contents
Factual Foundation 1
Land Demand Analysis 1
Population Trends 2
Housing Trends 3
Employment Trends 4
Future Land Demand Summary .5
Land Capacity Analysis 6
Current Growth Capacity 6
Comparing Capacity with Demand 7
Location of Growth Capacity 7
Regional Development Plan 8
Future Land Use 8
Defining Future Regional Land Uses, Amendments 8
Employment Center-Light Industry Mixed Use 8
Special Development Areas 9
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Factual Foundation
Land Demand Analysis
The Land Demand Analysis for the "Pueblo Area Council of Governments, Pueblo's Comprehensive Plan,
July 25,2002"estimates the amount of land that is needed for new residential, commercial, industrial,
and public uses to accommodate a population of 200,000 in the year 2030. This Addendum updates the
analysis performed in 2001 based on 2010 census figures to provide land demand figures for a
population of 228,300 in 2040.
This analysis estimates future land demand in three categories:
® Residential uses, including single-family houses,duplexes/townhouse and multi-family units
needed to accommodate future household growth.
® Nonresidential uses,such as retail stores,office and industries needed to accommodate future
employment growth.
• Public sector land needs for parks and schools.
The Demand Analysis projects an "excess"of more land for future land uses than the market will
actually absorb. This provides a sufficient number of development sites. The information contained
within Pueblo's Comprehensive Plan Addendum,2014, has been excerpted from Pueblo's
Comprehensive Plan,July 25, 2002,and The Burnham Group's Memorandum,April 9, 1999. All
projections and information has been updated utilizing data from the 2010 U.S.Census and other data
sources, but maintains the same methodology utilized in the 1999 memorandum. A revised Future Land
Use Map is also included in the Addendum to reflect preferred land uses for developed and
undeveloped land within the County. Primary changes to the Future Land Use Map have occurred in
newly annexed lands in the southern and northern portions of the City of Pueblo. Changes have also
been made to the commercial corridor adjacent to Highway 50 within the Pueblo West Metro District.
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Population Trends
Table 1-Regional Population Growth, 1970-2040
1970 1980 1990 2000 2010 2020 2030 2035 2040
Pueblo County 118,732 126,077 123,056 139,923 159,258 180,321 206,306 218,026 228,300
141,472 159,063
City of Pueblo 97,774 101,686 98,640 103,296 110,063 110,761 128,664 132,453 136,241
102,121 106,595
City% 82% 81% 80% 74% 69% 61% 62% 61% 60%
72% 67%
Source:Demand Analysis Technical Memorandum and CO State Demography Office,Pueblo City Dept.
of Planning&Development
BOLD Num iar9/per antages'[ndicate,Actual Census'numbers,notknown if Vine Of 2002 plan
development
Pueblo County's total population is projected to increase by approximately 69,237 people between the
years 2010 and 2040, based on forecasted trends. The percent of County population that is projected to
reside within the City of Pueblo through year 2040 is shown in Table 1. Throughout the 1990's,the
City's share of the County's population remained around 80-82%. According to the 2002 Pueblo
Comprehensive plan the large percentage of the County's population residing within the City of Pueblo
was due to "new housing development occurring within the City of Pueblo" (Pueblo Area Council of
Governments, Pueblo's Comprehensive Plan,July 25,2002, p. 17). The urban population trend began to
shift in 2000, because of a significant change in development within Pueblo West and other regions of
unincorporated Pueblo County.
The percentage of Pueblo County's population residing within the City of Pueblo is projected to
gradually decline to approximately 60-percent or 136,241 residents by the year 2040(Table 1). This
decline is attributed to the amount of available land for residential development, less expensive public
infrastructure requirements, less restrictive land-use regulations,and the availability of large lot
development within the unincorporated portions of the County,which include Pueblo West.
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Housing Trends:
Table 2- Pueblo Regional Housing Growth, 1998-2040
2011— 2021- 2031- - Total Units
2020 2030 2040
Pueblo County
Single-Family Units 8,379 8,360 7,793 24,532
Duplex/Townhouse Units
923 732 682 2,337
Multi-Family Units
1,404 1,359 1,266 4,029
Total Units 10,706 10,451 9.741 30,898
Source:Demand Analysis Technical Memorandum;Regional Building Dept.,TELUM economic model run
The populations projections presented in Table 1, Regional Population Growth,1998-2040, provides a
foundation to forecast the demand for new residential development through year 2040. Table 2
summarizes this housing trend analysis. The methodology for projecting new residential growth by
housing type is contained in the Demand Analysis Technical Memorandum (The Burnham Group 1999,
p.15).
Based on the information in the table above,79%of the 30,898 new residential units,expected to be
developed during between 2011 and 2040, are projected to be single-family units. These projections
are based on current development trends and may change as buyer preferences and or demographics
change within Pueblo County. Utilizing information from the population projections shown in Table 1, it
can be assumed that unincorporated Pueblo County will continue to experience a little more than half of
all residential development.
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Employment Trends:
Table 3—Pueblo Regional Job Growth, 2010—2040
2010 2040 2010—2040
increase
Total % Total % Total
Services 30,578 44 47,202 50 16,624 54
Retail Trade 7,865 11 10,710 11 2,845 36
Government 12,595 18 15,578 16 2,983 24
Manufacturing 3,786 6 3,050 3 (736) (19)
Construction 3,406 5 5,823 6 2,417 71
Finance/Ins./Real Estate 5,289 8 6,842 7 1,553 29
Transp./Comm./Utilities 3,179 5 3,699 4 520 16
Wholesale Trade 1,262 2 1,688 2 426 34
Agriculture/Mining 492 1 494 1 2 --
68,452 100% 95,086 100% 26,634
Source:State Demography Office,Woods&Poole Econometrics
Changes in the economy and employment are analyzed to develop projections of future demand for
non-residential land and major transportation infrastructure within Pueblo County. Table 3, Pueblo
Regional Job Growth,2010-2040 provides a projection of future employment growth within Pueblo
County. Based on previous employment trends, as presented in Pueblo's Comprehensive Plan, 2002,
major growth will most likely occur in the Service trade comprising 50-percent of private sector
employment. Government employment ranked second at 16-percent and Retail came in third at 11-
percent of the total number of jobs held within Pueblo County. Overall, it is projected there will be an
increase of approximately 26,634 jobs within the County between the years of 2010 and 2040. The total
number of Pueblo County jobs is based on 2010 U.S. Census Data, projections by the Colorado
Department of Local Affairs, and are, in turn, disaggregated by industry group based on forecasts
developed by Woods and Poole Econometrics in 2011 that show each industry group's proportionate
share of the total jobs.
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Future Land Demand Summary:
Table 4- Pueblo Regional New Development Acres Demand-2040*
New Net land Efficiency Market Gross Land
Demand Demand Multiplier Choice Demand
(Acres) Multiplier (Acres)
Single-Family 24,532 units 8,177 20% 2 19,630
Duplex/Townhse. 2,336 units 467 20% 2 1,100
Multi-Family 4,029 units 403 10% 2 900
Commercial 3,123,445 sf 390 20% 2 940
Office 4,076,420 sf 340 25% 3 1,300
Industrial 1,213,212 sf 121 50% 3 540
Gov't.Adm. 1,023,300 sf 102 10% 0 113
Park Land 532 0% 0 830
Schools 490 0% 0 490
Total Acres 11,022 25,840
*From 2010 base year.
Source:Demand Analysis Technical Memorandum for methodology
The preceding sections provided population and employment projections for year 2040. Table 4, Pueblo
Regional New Development Acres Demand-2040,summarizes the projected land demand needed to
accommodate an additional 69,237 residents and 26,634 jobs by 2040. The net acres shown in the first
column are actual acres needed to accommodate future growth. In order to account for"inefficiencies"
in the land development process an efficiency multiplier is applied to reflect that during the land
development process,some lands are vacant but irrevocably dedicated to development in a certain land
use category. Examples include a single-family subdivision that will contain vacant lots throughout
development until the subdivision is 100-percent built out. A shopping center may contain spin sites
and an industrial park may contain pad sites,all graded and ready for development, but vacant
nonetheless. The efficiency multiplier accounts for these lands that have been included within a land
development project, but have not yet been used to satisfy actual market demand. The efficiency
multiplier also recognizes that some land use developments, such as industrial parks, are generally built
with comparatively more vacant sites with respect to residential developments(Pueblo Regional
Development Plan, 2002, p.22-23; Demand Analysis Technical Memorandum,The Burnham Group
1999,p.21).
In order to address development uncertainty of particular properties, a"market choice" multiplier has
been utilized to present a more accurate picture of future development demands. "Market choice"
multiplier relates directly to the uncertainty of a particular property to develop,compared to other
similar properties. For an example,a particular area may contain 1,000 acres designated for commercial
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development, but only 400 are expected to develop within the planning horizon. Unfortunately no one
knows for sure which land will be developed therefore the "market choice" multiplier is utilized to
provide a better estimate of the land that will be needed for future commercial development. Market
demand will ultimately decide which areas and how many areas will be developed first(Pueblo Regional
Development Plan, 2002, p. 22-23).
The result of applying the"efficiency"and the"market choice" multipliers, increases the total net land
demand from 11,022 acres to 25,840 gross land demand acres. Land use types use the gross land
demand acres to ensure that the Plan has sufficient land designated for future growth(Demand Analysis
Technical Memorandum,The Burnham Group 1999, p.36-37).
Land Capacity Analysis
Land capacity analysis examines the capacity of the Region's vacant land to accommodate this additional
development. This analysis of the Region's available land (vacant land) is based on how the land is
currently zoned. This determines how much future development can be built on existing vacant land as
it is currently zoned.
The "Growth Capacity Analysis" is not where future growth will occur; it is a window into how much
development can be handled under current land development regulations(zoning). A demand forecast,
coupled with a capacity analysis, provides elected officials, citizens and planners with data necessary to
discuss future policy matters concerning such issues as development densities and location, availability
of land and impact on water, sewer and schools, as well as a host of other policies that affect the quality
of life in the Region.
Current Growth Capacity
In 2000,the Pueblo Region had a growth capacity of 1,225,550 vacant, developable acres(1,915 square
miles of the Region's 2,400 square miles). This is vacant land unconstrained by environmental factors
such as steep slopes,arroyos,flood plains, rivers or land in public ownership,which included but was
not limited to right-of-ways, parks, depots, national forest,etc. (Methodology for Growth Capacity
Analysis, provided in Technical Memorandum,The Burnham Group, 1999, utilizing 2010 U.S.Census
Data). Because there are few limitations on urban development of agricultural lands, the Growth
Capacity Analysis also included undeveloped active agricultural land in the sum of available developable
land.
Due to the "Great Recession" in 2007, much of the anticipated residential,commercial, and industrial
development did not occur. Therefore,the 2014 Addendum utilizes the same growth capacity figures
that were presented in the 2002"Pueblo's Comprehensive Plan"for a general analysis and projection of
capacity up to the year 2040.
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Comparing Capacity with Demand
Table 5-2010 Capacity Versus 2040 Demand
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Table 5 compares available land capacity with the demand for land to accommodate projected growth.
In 2010,based on existing zoning and typical development densities(Methodology,Growth Capacity
Analysis Technical Memorandum p.36),the Pueblo Region's vacant land had the growth capacity to
accommodate 89,443 new dwelling units and 72,025 new jobs. Clearly there is more than adequate
vacant,developable land for future dwelling units and sufficient land to accommodate most of the
growth in employment throughout the Region through year 2040.
Location of Growth Capacity
Table 6-Location of Available Capacity
Capacity Residential Capacity Employment
for New Capacity for New Capacity
Location Dwellings Percent Jobs Percent
City of Pueblo 19,800 units 22% 30,651 jobs 43%
Pueblo West Metro 17,000 units 19% 18,300 jobs 25%
Colorado City Metro 13,800 units 15% 3,600 jobs 5%
Unincorporated Areas/Small 38,900 units 44% 19,449 jobs 27%
Towns
TOTAL 89,500 100% 72,000 jobs 100%
units
Note:The dwelling and employment capacity figures shown for the City of Pueblo are very conservative
given two reasons.As the City annexes new land,it expands its development capacity.Source:Growth
Capacity Analysis Technical Memorandum
As illustrated in Table 6, in 2010,there was sufficient capacity in the Region to accommodate 89,443
new residential units and 72,025 new jobs.
7
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Regional Development Plan
Future Land Use
Local Governments are tasked,by Colorado State Statute,with the responsibility of providing a
comprehensive plan for future uses of land to protect the public health,safety and welfare of the
community. Utilizing the previous analysis and historic trends of Pueblo's population, land
development,and employment,a revised land use map has been created to guide development in a
sustainable manner. The locations of the Future Regional Land Use districts have been altered slightly to
reflect current and preferred growth patterns within the Future Land Use Map. The updated Future
Land Use Map is also intended to protect the public and preserve quality of life,to encourage economic
development,and to facilitate decision making by the local governing bodies regarding zoning and other
land use regulations.
Please refer to Exhibit A, Future Land Use Map,to use as a guide for making decisions concerning the
appropriateness of planned development with respect to land use.
Thirteen of the 15 Future Regional Land Uses,developed by the 2002, Pueblo's Comprehensive Plan,
remain unchanged in definition; however,Employment Center-Light Industry and Special Development
Area definitions have been amended by previous actions of the Pueblo City Council and Pueblo County
Planning Commission. The amended definitions are highlighted below as well as the Ordinances that
officially amended these definitions. Please refer to"Pueblo's Comprehensive Plan,July 25, 2002,
Defining Future Regional Land Uses(p.41)" for the definitions of the 13 non-amended definitions of the
Future Land Use Categories.
Defining Future Regional Land Uses Amendments
Employment Center-Light Industry Mixed Use
Employment Center-Light Industry Mixed Use, such as manufacturing,assembling, research and
development, provide tax revenues and jobs for the Region. These uses will be continued and expanded
upon in a planned manner so as to minimize the impact on the public infrastructure. Employment
Center-Light Industry Mixed Use areas include the Airport Industrial Park and its environs, Pueblo West
Industrial Park,an area east of Runyon Park near the Arkansas River and in the south of Pueblo along I-
25.
Employment Center-Light Industry Mixed Use includes governmental purpose as a recognized
use and authorized activity. "Governmental purpose" means and includes any use or activity which is
reasonably necessary in the discharge of a public or governmental function whether it is performed by a
governmental entity or another person for or on behalf of a governmental entity.'
1 Ordinance No. 7124,approved by the Pueblo City Council on March 22,2004,amended the definition
Employment Center-Light Industry,by inserting this paragraph. The Pueblo County Planning Commission voted to
approve the Employment Center-Light Industry, definition change at their August 26,2014,Planning Commission
Meeting.
8
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Employment Center-Light Industry Mixed Use will be located within the planned industrial parks
and will offer some commercial and office services. This use will not include industrial processes that
emit significant smoke, noise or odors or handle hazardous materials. Wherever possible,this use will
be located away from residential uses. When potential conflicts between land uses occur, buffering and
landscaping will be provided to minimize the impacts. Like residential growth,new industrial growth
should be located in areas to best preserve surrounding agricultural uses and the natural environment
(Pueblo's Comprehensive Plan,July 25,2002,p.48).
Special Development Areas
Special Development Areas have been identified on the Future Land Use Map. These are areas
where there appear to be multiple possibilities for development as well as significant care to be taken
with the development. These areas are lands with significant development, redevelopment and/or
open space potential in strategic locations that suggest the need for careful,location-specific plans for
infrastructure and private development. Master plans should be prepared prior to development or
redevelopment occurring.
Most of these areas will be developed through Master Development Plans or PUD Development
Plans created by the developer or, in cases of publicly owned land, by the City and/or the County. A
Master Development Plan for those Special Development Areas eligible for Annexation or a PUD
Development Plan for concurrently annexing and zoning a Special Development Areas shall be prepared
in such a manner as to provide for:(1)the orderly growth and development of the municipality and
region through the logical extension of municipal government services and facilities; (2)areas which are
urban or will be urbanized in the near future and areas which share both a community of interest and
are integrated or are capable of being integrated with the City;and (3)the fair and equitable distribution
of the costs of municipal government services and facilities among the persons who benefit thereform
including the cost for the extension,development,operation,and maintenance of municipal
government facilities and services. When eligible,owners of parcels within Special Development Areas
which meet the above criteria, shall petition the municipality for annexation2(Pueblo's Comprehensive
Plan,July 25, 2002, p.50).
2 Ordinance No.7672,approved by the Pueblo City Council on October 9,2007 amended the definition of Special
Development Areas. The Pueblo County Planning Commission voted to approve the Special Development Area,
definition change at their October 24,2007,Planning Commission Meeting.
9
Proposed Pueblo City and County
Future Land Use Update Map
June, 2014 Attachment B
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k1,7Legend
Future Land Use
f:,1 Arterial Commercial Mixed Use
JOIN
Center•Office Park O Rural Ranch
=-_I Country Residential tai High Density Residential ICS Special Development Area
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® Employment Center-Industry ;10- ! Large Parks,Open Space,8 River Corridors Wm Urban Mixed Use
f i Employment Center-Light Industry Mixed - Production Agriculture Urban Residential
rL? Pueblo City Limits 0 Main Update Areas Fri Pueblo West District Boundary
Attachment D
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Attachment A
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