St. Clair County Master Plan. Technical Report

Transcription

1 St. Clair County Master Plan LAND USE Technical Report Land Use Environment Economy Transportation Public Services Alternatives Analysis March 2000 Prepared by the: St. Clair County Metropolitan Planning Commission

2 METROPOLITAN PLANNING COMMISSIONERS Existing Members Steven Cooper, Chair Martin Barnes Don Dodge David Haynes Daniel Lockwood Dorothea Knight Ken Reeves Frank Schoonover Robert Sheehy Robert Tansky Charles Williams Past Members Involved in the Project Frank Bacon Thomas Eder John Jones Patrick Quain METROPOLITAN PLANNING COMMISSION STAFF MEMBERS Existing Members Gordon Ruttan, Executive Director Peter Mallery, Planner III Bill Kauffman, Planner III Grant Bauman, Planner II Geoffrey Donaldson, Planner I Trevor Floyd, GIS Analyst Lori Eschenburg, GIS Technician Carol Backstrom, Secretary Dale Whitehead, Secretary Past Members Involved in the Project Joe Gallagher, Planner I Stuart Eddy, GIS Specialist PLANNING CONSULTANTS CONTRIBUTING GIS Data and Support & Build-Out Analysis Land Information Access Association Traverse City, MI Land Use and Change Management Report Planning and Zoning Center, Inc. Lansing, MI

3 TABLE OF CONTENTS Executive Summary... vi Community Character, Historic and Cultural Resources... 1 Introduction... 1 Regional Location and Characteristics... 1 Description of Resources... 1 Analysis of Findings... 8 Land Use/Cover... 9 Introduction... 9 Current Land Use... 9 Current Land Features Historic and Recent Trends Change in Land Use/Cover between 1985 and Land Uses with Regional Impacts Analysis and Findings Land Valuation/Parcel Analysis Introduction State Equalized Value by Use and Community Over Time Parcel Information Building Permits by Community Over Time Acreage in PA Analysis and Findings Projections of Land Use Needs Introduction Population-Current and Projected Housing Units-Current and Projected by Community Land Projected to Accommodate Residential Needs by Community Employment-Current and Projected Analysis and Findings Local Plans and Regulations Introduction Local Master Plans Local Zoning Regulations Local Plan Buildout The Results Analysis and Findings... 83

4 TABLE OF CONTENTS (CONT D) Governmental Relations and Responsibilities Introduction Planning and Zoning and its Relationship to Quality of Life Complex Set of Actors in County and Local Government Gaps in the Relationship of Planning to Implementation Gaps in the Existing Statutory Structure Impacts of Sprawl on the Current Institutional Structure Analysis and Findings Conclusions/Goals/Recommendations Introduction Definitions Summary of Findings Listing of Goals/Recommendations by Issue/Policy Statement Community Character Prime Farmland Residential Development Nonresidential Land Uses Surface Drainage and Flooding Surface Water Quality Transportation Systems as Relates to Land Use Change Efficient Public Facilities and Services Recreation Goal Coordination of Planning Efforts to Manage Land Use Change Leadership in Managing Land Use Change

5 APPENDICES A. Plat Maps Land Division in the Blaine Area Land Division in the China Township Area Land Division in the Goodells Area Land Division in the Kimball Area Land Division in the North Street Area Land Division in the St. Clair Area Land Division in the Starville Area Land Division in the Yale Area B: Calculation of Future Land Needs Residential Land Needs C: Smart Growth If Your Community Wants Smart Growth Then

6 LIST OF TABLES 1-1: St. Clair County Historical Sites : St. Clair County Land Use/Cover, : St. Clair County Land Use/Cover, : Total Real and Personal State Equalized Valuation, : St. Clair County Assessed Parcels by Type as a Percentage of Total Real Property, : Change in St. Clair County Assessed Parcels by Type, : Building Permits for Single Family Units, : Building Permits for Two- and Multi-Family Units, : Total New Residential Units, : Net Residential Units, : Total Residential Demolitions Units, : PA 116 Lands in St. Clair County Jurisdictions, : Population of St. Clair County Communities, : St. Clair County Population Estimates, : Population in St. Clair County, : St. Clair County Total Population, : St. Clair County Total Households, : Projected Change in Residential, Commercial and Industrial Land, : St. Clair County Farmland Loss, : St. Clair County Farmland, Forested and Non-forested Land Change, : Employment in St. Clair County, : Projected Employment in St. Clair County, : Employment Land Area in St. Clair County, 1995 and : Master Plans and Zoning Ordinances Adoption Dates for St. Clair County Communities : Lot Size Comparisons in St. Clair County : St. Clair County Buildout Population... 82

7 LIST OF MAPS LU-1: Surface Topology... 3 LU-2: 1995 Land Use/Land Cover LU-3: 1995 Wetlands & Water Bodies LU-4: Flood Hazard Areas based On Soils and FEMA Data LU-5: Prime Farmlands by Type LU-6: Wooded Areas LU-7: Potential & Existing Greenway Corridors Vision LU-8: Commercial Growth Areas LU-9: Regional Impact Land Uses LU-10: Change in Population Density 1995 to LU-11: Generalized Master Plans LU-12: Generalized Composite Zoning... 77

8 LAND USE AND CHANGE MANAGEMENT EXECUTIVE SUMMARY St. Clair County is fast becoming what its citizens don t want, a formerly rural County. Strip residential development is becoming the dominant scene along county roads. The county s relatively flat landscape, its history, open fields, low land prices, local community plans and zoning ordinances, and State enabling legislation all contribute to this settlement pattern and the lose of rural character. While the County cannot affect many of the factors that contributing to existing patterns, the County can take steps that may influence future patterns. Through a series of public meetings and workshops the St. Clair County Metropolitan Planning Commission has been told that citizens want to preserve the county s unique features and rural character. While the County has little statutory authority that can directly impact land use patterns, there are many avenues for influence and a few that allow direct intervention. With this citizen direction and legal constraints in mind, the County intends to pursue a number of goals pertaining to managing land use change. These goals include: Preserve and Enhance the Rural Character of the County. Valued and Productive Farmland Will Be Protected from Change to Other Uses. Provide for a Broad Range of Housing Opportunities That Respond to the Varying Economic, Family and Lifestyle Needs of Residents While Maintaining Consistency with the Character of Existing Residential Areas. Encourage the Development of Nonresidential Land Uses in Appropriate Locations That Serve the Needs of Visitors and Tourists, Create Jobs and Increases the Overall Economic Vitality of the County. Land Development and County Drains Will Be Managed to Adequately Drain Lands and Minimize Flooding. Preserve and Protect the Surface Water Resources of the County. Traffic Congestion and Hazards Are Minimized by Coordinating Land Use Development and Highway Improvements. Provide a Range of Public Facilities and Services in an Efficient Manner. Private and Public Park and Recreational Facilities Serve Present and Future Needs. Encourage Cooperation and Coordination Between the County and Local Jurisdictions on Subjects of Mutual Interest and Mutual Benefit in an Effort to Improve the Well Being and Quality of Life for Present and Future County Residents. The County Will Provide Direction and Coordination of Land Use Change. This Technical Report summarizes a range of characteristics that must be understood if the County is going to be effective at influencing future land use patterns as expressed within citizen goals. Those factors that are explored include:

9 Community Character, Historic and Cultural Resources Land Use/Cover Land Valuation/Parcel Analysis Projections of Land Use Needs Local Plans and Regulations Governmental Relations and Responsibilities COMMUNITY CHARACTER, HISTORIC AND CULTURAL RESOURCES History is important to citizens because it fosters a sense of belonging and enhances personal commitments to the community. History is not just in the buildings on the state or national historic registry. It is also in the preservation of settlement centers, land use patterns and an economic way of life. A sense of history and community identity can also be fostered through architectural design of new structures that reflect the styles of important past periods and existing community character. While there are historic sites, a sense of history needs continual protection. The number of historic places on State and National registries is small for a county the size and historic importance of St. Clair County. Additional structures and sites, if present, should be identified and protected. LAND USE/COVER It is important to look at both existing land use/cover and how that has changed over time. Each land use or cover requires special services or consideration when planning for the future. For example, if an area has been industrial and is being considered for another use, such as a park or housing, remediation of contaminated soils may be necessary. If an area of forest is being considered for a use that would remove the forest, consideration will have to be made for an increase in storm water runoff. There is rapid growth of strip residential development and a correspondingly rapid decline in farmland. St. Clair County has become a bedroom community for Detroit and suburban Detroit communities. Strip residential development as opposed to new subdivisions contiguous to existing developed areas may be due to the following: Low land prices and low taxes Large lots are required to provide for very large mounded septic systems in much of the County Persons subdividing land are unwilling to build access roads to cluster developments; instead they rely on existing public roads Site development costs are already high due to the high cost of mounded septic systems Many have to bring in bottled water due to poor well capacity or poor well water quality Most residential platting is done by land owners, not developers

10 Subdivisions are only being built where public sewer is available, which is close to existing cities and a few villages The ramifications of these growth trends include: Continued substantial loss of farmland and open space throughout the County Congested roads A proliferation of private drives More access conflicts Loss of community/rural character Additional strain on public services in rural areas Additional declines in road maintenance (which can hardly keep up now) Rural and suburban schools bonded to the maximum but still need to expand Expanded drainage problems Increased discharge of raw sewage being discharged into County drains Continued drainage of old septic systems into surface waters Uncertain groundwater quality when mounded systems outlive their useful life (Average life span of mound septic systems is only about 15 years) LAND VALUATION/PARCEL ANALYSIS Land investment, development and conversion activity is occurring at alarmingly different rates throughout the county. Identifying these trends can be helpful in determining where opportunities for influencing change may exist. A review of building permit activity reveals that residential development is expanding in St. Clair County. Most of this residential activity is occurring in those Townships surrounding the more densely populated communities of Port Huron and Marysville as well as those Townships bordering Macomb County. While residential land values and activities are increasing, agriculture uses are down and values are inflated. Manufacturing land values continue to decline and a moderate amount of commercial activity is maintaining a relatively constant level of valuation. Residential development provides some level of expansion of the local tax base, but what is uncertain is the cost of expansion of public services compared to the increase in taxes. Since anecdotal reports from the Road Commission and other agencies suggest there is not sufficient funding to service the expanded residential development, the trend toward increasing residential land use suggests fiscal troubles for the County and local government. PROJECTIONS OF LAND USE NEEDS By projecting current trends in land use patterns, we can predict changes in those patterns. Additionally, such an exercise allows us to anticipate changes on the land if the County and local jurisdictions adopt a business as usual approach to land use change.

11 These projections can then be compared to the future as expressed in the goals and resulting vision. (See St. Clair County Draft Visions and Policies.) If current trends continue, by 2020 up to 65,565 acres of St. Clair County land that was undeveloped in 1995 will be converted to more urban uses, primarily residential. This is nearly the equivalent of three townships, and would forever alter the character and manner in which the County functions. The affect of this level of development would be noticed over an even larger land area. Because so much of the recent pattern of development is strip residential, the visual effect and the affect on roads will be even greater. In many areas, the density at which residential development has been occurring, although of a relatively low density, is still at a density that may create pollution and health problems due to the difficult soils for placement of septic systems. LOCAL PLANS AND REGULATIONS While the County can have a leadership role in how land is used, it is the local unit of government that has the most immediate influence on land use change. Exceptions occur with the location of schools and major county, state and federal facilities. There are also many policy and subsidy roles state government plays that influence land use change. Because a person may live in one city, village or township, send their children to school in another, work in a third and shop in a fourth all over a period of one year, communities find that they function with one another, as interdependent entities. When communities act independently and at cross purposes, their citizens suffer and costs to provide public services may unnecessarily increase. What is happening in one community often relates to what happens in others. While local plans and regulations across St. Clair County are strong in public interest values, they are generally weak in provisions to match or realize those values. Recommended changes in local plans include: Coordination with and approval of a set of County-wide goals and policies Adoption of policies that effectively protect community character, such as conservation subdivisions, cluster development, design guidelines and agricultural land preservation programs The potential eventual population as calculated through the build out analysis suggests populations way in excess of those that would fit the concept of rural character, communities should therefore adjust land use plans and zoning ordinances accordingly Development regulations that require coordination and review of proposed development with appropriate County agencies, such as the Road Commission, Drain Commissioner and Health Department Zoning density that is appropriate for adequate waste disposal (this may require a lower density than currently is typical in a few places)

12 Better inventories of natural resources and provisions to protect them, including programs to purchase the most sensitive lands Programs to purchase open space lands for future generations (land fragmentation is rapidly making that more difficult) Adoption of policies by the County Planning Commission to oppose local rezoning inconsistent with the local plan, unless the local master plan is first amended, and is consistent with the County Plan. GOVERNMENTAL RELATIONS AND RESPONSIBILITIES Because government at different levels sets policy that influences land development, it is valuable to examine the roles and responsibilities of government and the results in St. Clair County. General and specific observations were made regarding the following: Planning and Zoning and its relationship to quality of life Complete set of actors in county and local governments Gaps in the relationship of planning to implementation General inconsistencies and gaps Impacts of sprawl on the current institutional structure. The current sprawl land use pattern is the result of a combination of factors, including market driven forces, municipal regulations and public investment (that serves in some cases to encourage new development, and in other cases to follow it). The act of planning presumes that it is in the public interest to make land use change more predictable and to protect broad public health, safety and general welfare interests. Well integrated and coordinated planning has the potential to achieve these public purposes while still allowing major market forces and individual preferences to work freely. Partly, sprawl results because some of the basic structural elements of the community decision-making process work at cross-purposes. For example: Local government officials want to maximize the tax base of their jurisdiction to keep property taxes low and public services as high as can be afforded. This process fosters competition for tax base among local units of government. Home rule/local control emphasizes independence not interdependence. Individuals want open space around them and low taxes, so they build new homes on large lots in the country. But as their numbers increase, these new homes often do not pay their own way. In most parts of Michigan, a person can move to the country and enjoy a rural lifestyle, while still having ready access to urban services (like park and recreation programs, libraries, stadiums, airports, etc.), without always having to pay the associated costs. The pricing system for services often separates the beneficiary from the cost provider. Also the service provider often has no input or control over the land use decision that creates the service need.

13 Farmers often want protection from residential neighbors in order to enjoy the right to farm, until they want to sell their property. At that point farmers often want the highest development value for the property, which is usually not for farming. The end result is that in the long term, public interests are lost to short term considerations (both public and private). Renewable resources, and the continuing economic income stream they represent are sacrificed in favor of low-density rural residential development. For the most part, studies elsewhere suggest that unless such housing is of high value (over $250,000 per dwelling) it probably does not pay its own way when all public services are considered. Local infrastructure costs resulting from many land use decisions are often not easily funded. New infrastructure is hard to fund because of scarce financial resources at all levels of government. Developments generating the need for new infrastructure usually only have to pay the direct costs of on-site infrastructure, not the costs of most off-site infrastructure. To a very great extent sprawl is due to local zoning policies that have accommodated rural residential development as a use by right in farm and forest zones. Over-zoning for residential development in is very common. It results in scattered strip development that is slow to generate major new service needs, but expensive to provide once those needs have been identified. While inter-jurisdictional cooperation and coordination is encouraged in most enabling legislation (e.g. inter-municipal study committees, inter-county study committees, intermunicipal agreements, etc.), and mandated in most of the planning enabling acts, there is no mechanism to ensure that it happens. The challenges for achieving integrated and coordinated land use planning and development regulation in St. Clair County are much greater than the problems associated with coordinating the large number of local planning and zoning decision bodies. They are much greater than the deficiencies in existing local zoning regulations that, if implemented as currently adopted, provide for a build out population of over 1 million persons (6.4 times the current population). They are much greater than the market forces for new homes that are perceived as requiring a large lot in the country to be satiated. They extend to serious deficiencies in enabling legislation and the lack of any statutory method to achieve coordination among the plethora of bodies, boards, commissions and agencies with responsibilities that impact on land use both within and outside St. Clair County. While the solution to deficiencies in the institutional structure lie largely inside the State Legislature, the St. Clair County Metropolitan Planning Commission can take several actions to improve the lack of integrated and coordinated planning in the county. For example, it can: Educate all local units about the findings of its working papers.

14 Provide technical assistance and guidelines on alternative approaches to deal with identified problems. Join efforts outside the County to modernize enabling legislation. Exercise its review authority in ways to improve local decisions by guiding decisions toward integrated and coordinated solutions based on an adopted set of land use planning principles. Monitor local and County agency decisions and periodically inform local governments and the County Board of Commissioners on the status of efforts to improve land use decision-making in St. Clair County.