Annexation Policy Plan of the City of Logan, Utah

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1 Annexation Policy Plan of the City of Logan, Utah July 2007 In order to provide a geographical boundary to permit long term, comprehensive planning and growth for the City of Logan, this plan establishes a system that will accommodate growth and support municipal services being delivered. The City of Logan ANNEXATION POLICY PLAN is hereby adopted pursuant to the Utah Code Annotated Annexation Policy Plan. This is a planning document to be consulted when petitions for annexation are proposed to the City; this policy establishes the basis by which the Municipal Council will consider petitions for annexation. Used in conjunction with the Logan Municipal Code, the City of Logan General Plan, and the Land Development Code, the Annexation Policy Plan is to provide for orderly growth and expansion of the City of Logan to meet its future population, housing, recreation, resource conservation, and economic needs. This plan will be amended when the need to do so is justified to accommodate demands for growth and conservation of land. The ANNEXATION POLICY PLAN consists of three parts: Background, Specific Criteria For Annexation, and the Annexation Policy Plan Map by which the City of Logan will consider a petition for annexation. I. BACKGROUND The Annexation Policy Plan considers cohesive service delivery goals in concert with the City of Logan General Plan, the Cache Countywide Comprehensive Plan and the Utah Code by using the following guidelines and policies to develop this annexation plan: A. Eliminate islands and peninsulas of unincorporated territory within or adjacent to Logan; B. Facilitate the consolidation of overlapping functions of local government; C. Promote service delivery efficiencies; D. Encourage the equitable distribution of community resources and obligations; E. Attempt to avoid gaps between or overlaps with the expansion areas of other municipalities; F. Consider population growth projections for the municipality and adjoining areas for the next 20 years; G. Consider current and projected costs of infrastructure, urban services, and public fa- ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 1

2 cilities; H. Consider the need over the next 50 years for additional land suitable for community development consistent with the General Plan; I. Consider the reasons for including agricultural lands, recreational areas, conservation lands and other lands sensitive to development; J. The requirements for annexation petitions set forth in the Utah Municipal Code Part 4; The objective in preparation of this plan was to come to agreement with other communities about common boundaries. All affected communities were invited to preannexation policy plan meetings initiated by Logan City planning staff. Some common understandings were achieved with those who responded to the invitation. Some entities did not take advantage of the invitation. These meetings were typically attended by staff and some elected officials. The outcome of meetings only established a beginning point and potential common boundaries. The development of each community s Annexation Policy Plan saw some deviations in boundaries from the original meetings based on public input, Planning Commission recommendations, and City Council modifications when adopted. Overlapping annexation areas have occurred and are expected with several communities. II. SPECIFIC CRITERIA TO EVALUATE ANNEXATIONS The policy of the Municipal Council is to ensure that proposals to annex territory to the City are based on compliance with Utah law, the General Plan, and the development policies as may be amended from time to time by the Council. The City of Logan will work with adjoining communities, to the extent possible, to define mutually acceptable and logical urban service boundaries between communities to ensure that areas annexed may be served by City services provided from the annexing jurisdiction. The following criteria will be used to evaluate annexation proposals: A. Conformance to Utah Law and legislative policy 1. A petition is to be submitted requesting annexation meeting the requirements established by the State Legislature. 2. The territory proposed for annexation shall be contiguous to corporate boundaries of Logan. 3. The plat of the territory shall be drawn by a surveyor licensed to practice in the State of Utah. 4. Action to approve, approve with modifications, or deny an annexation shall be made in conformance with the provisions of Utah Code Title 10, Part 4. ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 2

3 5. The Council may add or delete territory from the annexation proposal to ensure that there are no islands or unincorporated peninsulas created by the annexation. 6. The annexation shall be in conformance with the provisions of the Annexation Policy and any future Annexation Elements of the General Plan and the Annexation Policy Plan. 7. The Council shall consider the fiscal impacts of development within the territory proposed for annexation, including both the cost of delivering services and the revenue stream generated by new development. 8. The annexation shall be consistent with the infrastructure and capital improvement plans of the City. B. Conformance to Municipal Council policy The Municipal Council establishes policies to ensure that annexations are added to the City in a systematic pattern that provides for logical expansion of City boundaries. The Municipal Council recognizes that the Legislature from time to time may enact laws that are contrary to established practice and such laws shall supersede Council policy if conflict exists. Policies of the Municipal Council follow: 1. The Council may accept territory proposed for annexation when the petitioned lands are located within a Township in order to protect the City s future growth options and programs. 2. Annexed territory shall be assessed to ensure that boundaries follow ownership, topography, natural features, and other readily defined boundaries. 3. To ensure efficient street and utility maintenance, the annexed area shall, whenever possible, include both sides of a street or proposed street to at least one lot depth. 4. Arterial and collector roads should remain within one community for as great a distance as possible to ensure efficient street layout, control, and maintenance. 5. All major streets shall be as defined in the Cache Metropolitan Planning Organization (CMPO) Transportation Plan and shall be consistent with the City of Logan General Plan and Transportation Master Plan. 6. The petitioners shall provide the following information: a) Accurate map showing the territory as proposed for annexation. The Council may direct the Administration to require additional mapping information with submittal of petitions for annexation. b) The Council may require that a feasibility report be prepared by city staff ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 3

4 when time and resources are available with costs paid by petitioners, or be submitted by a consultant of the city with costs paid by petitioner for the following: (1) Existing and proposed population density; (2) Geology, geography, and topography of the area and its surroundings; (3) Determination of islands or peninsulas remaining in the unincorporated area; (4) Fiscal impact of the proposed annexation on the remaining unincorporated, other municipalities, other government entities, special districts, and school districts; (5) Current and five year projections of demographic and economic base for the proposed annexation area and surrounding unincorporated area; (6) Projected five year growth for the proposed annexation area and surrounding unincorporated area; (7) Current and five year projections of the cost of government services for the proposed annexation area; (8) Present and five year projection of revenue to be received by the city resulting from the annexation; (9) Projected tax impact the annexation will have for the next five years on affected property owners; C. Logan Community Character The City of Logan has been and will continue to be Cache Valley's center of commerce, industry, education, and government. The community has taken the initiative to provide the services for supportive land uses. In addition, the City has taken the lead in providing diversified housing to meet the needs of all people without regard for social or economic status. Housing development needs to be supported by adequate commercial and industrial development to allow a city revenue base that is broad and diverse. Future annexations should be considered from this perspective. Agriculture and open spaces, especially on the community's periphery, are important community pursuits. Community separation that exists between communities is a tradition in Cache Valley. This separation has great value and results from a conscious management of growth agricultural land and open space have great value to property owners and citizens of the community. The City of Logan reserves the right ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 4

5 to maintain agricultural land and/or open space between its self and other municipalities and to protect agricultural lands and lands containing natural hazards where it is in the best interest of the community. Annexations that can help preserve open space will be considered, as will annexations that can provide a developed setting that is consistent with community goals. The City has adopted a General Plan with Land Use, Open Space, Parks, and Recreation, and Transportation elements. This Plan identifies and defines community and neighborhood character. Logan is a City of neighborhoods, and newly annexed areas are to be developed to either mesh with established neighborhoods or to create new neighborhoods. D. Growth for 50 years The General Plan and the Cache Countywide Comprehensive Plan encourage urbanization on lands that are suitable for development within urban growth areas. As Logan continues to grow, it has less and less land available for urban uses within the existing city limits. There are lands surrounding the City that can serve the needs of future residents for both housing and economic growth. The population of Logan has steadily increased since the 1890 census. The Utah State Governors Office of Planning and Budget (GOPB) using the 2000 U.S. Census data has projected Cache County population to be at 138,403 by the end of 2022 (20 years). The annual average rate of change (AARC) for Cache County and the City of Logan have paralleled each other at 2.7% since The projected population of Cache County will slow to an AARC of 2.1% for the next twenty years. The City of Logan has attained an AARC of 2.7 for the last 10 years. The population forecast for the City is based on 2.1 % AARC which sets the population to exceed 120,000 by 2057 (50 years). The City has updated build-out projections for four key land uses. The City s capacity to provide for its own residential growth is at risk, particularly beyond the year The table below shows the outcome of build-out projections for the key Land Uses: Attached residential 2006 Detached residential 2008 Commercial 2020 Industrial 2053 By far, the greatest need for future land is for residential growth. There is a significant need for a strong residential growth component within the city. The City of Logan must decide if new residential growth will be accomplished by redevelopment and infill or by expansion of city boundaries at the periphery. A prudent planning approach is to use a variety of solutions to meet the need for future residents. New growth will be accommodated within the existing corporate limits through a ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 5

6 combination of infill and redevelopment projects. New annexations will accommodate primarily additional residential, recreational, and conservation to the west of the city. Some limited, high quality, commercial expansion will occur to the south along Highway 89/91 and new commercial and industrial growth will occur in annexation areas around the airport to the north. E. The need for municipal services in developed and undeveloped unincorporated areas Areas within the proposed annexation policy boundary currently receive municipal services or will in the future receive one or more of Logan s municipal services. In considering proposed annexations, the City of Logan will assess the existing capacity of the services, along with the additional demand for services that will be required of the City as a result of the annexation. Additional service demands from unincorporated areas will be weighed against potential revenues and other benefits that can be expected to accrue to the City as a result of the proposed annexation. The potential revenue and benefits may include: 1. Property tax 2. Sales tax 3. Utility hookup fees 4. Service revenue 5. Impact fees 6. Intangible benefits that accomplish a stated goal of the General Plan or other City planning document The Municipal Council will use this assessment in determining whether or not to grant a petition for annexation. F. Plan for the extension of municipal services In planning for extension of municipal services, individual master plans for each type of service will be expanded to include all future lands proposed for municipal expansion. The City of Logan intends to extend the municipal services as follows: 1. Culinary Water. The development, storage, treatment and delivery of culinary water is the responsibility of Logan City. No additional municipalities are served by Logan City water. A water master plan was prepared in This plan is incorporated by reference to the General Plan of the City of Logan. The culinary water master plan contains recommendations and conclusions for water supply, storage, and distribution. Future water impact fees will be used to subsidize the cost to construct water supply, storage, distribution, and treatment to support annexations. Those items pertinent to annexation are summarized below: ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 6

7 a) Supply. Logan's culinary water supply consists of a spring supply and four deep wells. The City will acquire water rights for development at the time of urban development. The current water supply system can support 27,840 Equivalent Residential Units (ERU). Ultimately there will be a need to supply culinary water for 34,000 ERU at population 96,647. The City is developing or planning to develop the following additional certified culinary water sources to increase system wide capacity and to enable future expansion: (1) River Park Well (2) Jens Johansen Park Well b) New extensions. Extensions into new developing areas, excluding interiors of existing subdivision, will be made under one of the following methods: (1) The city will budget, on a yearly basis, for anticipated water main extensions to bridge areas between developments. The City will establish special improvement districts to recover costs. (2) Extensions will be governed by Rule R Facility Design and Operation: minimum sizing requirements of the Utah Administrative Code. c) Storage. Reservoirs, pumps, and treatment are installed by Logan City under the budgeting process. New storage capacity was recently constructed to provide 2,650,000 gallons of additional storage. Total city-wide storage amounts to 11,600,000 gallons. Additional storage capacity required to support future annexations will be constructed under the budgeting process. The developer will pay for development above the 4950 elevation which requires a pump booster station without payback from the City. d) Water source protection. The City will work with appropriate entities to establish a water source protection ordinance for water sources outside of the city boundary. 2. Sanitary Sewer. Extensions of the existing sewer system to any new area or development will be by those requiring the service or by the creation of a special improvement district as provided for by law. When a sewer lift station is required, it may be installed by the developer, unless the lift station will service more than just the wastewater generated by the proposed development project. The developer may be required by Logan City to size sewer mains and lift stations for an area larger than the proposed development. Design, installation, location, and sizing shall be approved by the City Engineer. When facilities are oversized, proportional sharing of costs may be assessed in conformance with Council policies and State law. The Logan City sewer system currently serves the entire City and additional municipalities of Providence, River Heights, Nibley, North Logan, Hyde Park, and Smithfield. A master plan for sanitary sewer was last updated in This plan is incorporated by reference into the General Plan. The sanitary sewer master ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 7

8 plan is schematic and general in content and assumes future use densities will be consistent with present city densities. A summary of conclusions and recommendations of the sanitary sewer master plan is outlined below: a) The plan projects 215,000 Equivalent Residential Units (ERU) by the year The City currently serves 61,000 ERU within the City and 29,000 ERU to other municipalities. b) An estimate of 3.3 persons per residential unit and 70 gallons per day per person average daily discharge is used in the Sewer Master Plan. c) The existing sewer system is currently being expanded to improve out flow quality and capacity. The projected capacity will accommodate 104,000 ERU. d) Lift stations are in use within the system, several are planned for construction, and more will be necessary to accommodate development The following formula will be used to determine ERU: Projected annual sewer flow in gallons =Total ERU 3.3 persons/ resid.unit X 70 gpd/persons X 365 days/ yr e) Sewer connection fees are planned to be converted to sewer impact fees and should be calculated on a per ERU basis to equalize residential, commercial, and industrial uses. f) Inter-local agreements with other municipalities will be updated and fees will be adjusted appropriately. Impact fees will also be incorporated. 3. Power. The City of Logan owns its own electrical system and provides power to all customers of the City. Power is generated internally, or transmitted into the City via transmission lines from other sources. Logan City has ownership, allocations, or contracts in other generating facilities to meet most of its load, and fills the remaining electrical demand from other market sources available at the time of need. Petitioners will be expected to pay for costs of transfer of any electric facilities from Rocky Mountain Power and extension of distribution systems consistent with current City policy about providing electrical service to new annexations. Power is extended to customers upon request and upon proper filing of permit applications and payment of fees. New customers pay fees for new services based upon approved City of Logan schedules. There currently are impact fees associated with connection to Logan City Power. 4. Transportation. All new streets in developing areas shall be constructed by the developer to the requirements of the Public Works Standards and Specifications. Existing rights-of-way for streets may be developed by Logan City or in some ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 8

9 cases jointly with the developers. A new transportation master plan is being completed and will provide a framework for new roads and the upgrading of existing roads. The master plan will be consistent with Cache Metropolitan Planning Organization (CMPO) plans and requirements. The Logan Transit District provides mass transit buss service throughout the City. Additional, valley wide transit is available to surrounding communities. Future extension of mass transit into the proposed annexation areas will occur if future populations and demands for transit are warranted. 5. Storm Water. A storm water master plan was completed The plan recommends storm water management which includes storage and collection systems, and infrastructure to accommodate existing and future land uses. The recommendations included in the plan pertinent to annexations are summarized below: (a) (b) (c) (d) Continue to use existing irrigation canal and ditches to collect storm water Continue to require all new developments to perform full on-site retention or strictly controlled detention. Retrofit parks and public open space with area-wide detention basins Acquire new sites to construct new regional detention. Currently a Best Management Practices plan is being completed to ensure implementation and on-going management consistent with State and Federal standards for storm water systems. Storm drainage in newly annexed areas will be constructed by the developer to the requirements of federal, state and local entities. 6. Police Department. The Logan City Police Department is a full service police department providing community police services within the corporate boundaries of the city. Upon request, additional police services are provided to surrounding communities and Cache County. The Logan City Police Department participates in many joint law enforcement operations and enjoys a high degree of cooperation with all the public safety organizations of Cache County and the State of Utah. 7. Fire and Emergency Medical Services. The Logan City Fire Department provides both fire protection and emergency medical services through contract arrangement to unincorporated areas within the Annexation Policy Plan area. Additional full emergency services are contracted with many other surrounding communities. Upon annexation these services will become benefits of municipal services resulting from being annexed. Emergency medical services are provided under license from the State of Utah to areas within the annexation policy plan boundaries. ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 9

10 8. Waste Disposal. The City of Logan owns and maintains a county-wide land fill and collection system. The current land fill has a remaining capacity of 20 years. Plans are underway to select a new site and to relocate waste disposal within this time frame. Costs to operate the facilities are distributed to those using the service. As expansion of the landfill is necessary, growth of waste disposal will be paid proportionately by those who benefit. Recycling is a major component of the operations. This practice will expand and be improved with time. When the landfill moves to a more remote location, transportation costs will increase and recycling will become more necessary. 9. Parks and Recreation. The City of Logan provides excellent parks, recreational facilities, and recreational programs for the citizens of Logan. Many of these facilities are also available to surrounding residents from other municipalities and the unincorporated area of the county. Presently the system is composed of active and passive parks, trails, formal recreational field and facilities, golf courses, some riparian areas and wetlands, undeveloped land staged for development, and open lands possessing hazards for intense development. In the future all of these uses will expand, become more diverse, and will likely be used more intensely as population pressure increases. New recreational lands will be acquired as demand increases and funds are developed. Agricultural lands may well be a future method to maintain community open space and continue the vital role of farming within the city and within future annexation areas. The amount of recreation park land needed in communities is measured against standards recommended by the National Recreation and Parks Association (NPRA). By the year 2007, the City of Logan will be below national standards unless additional park land is acquired. A Parks and Recreation Master plan was prepared in 1998 and updated in This plan is incorporated by reference to the General Plan of the City of Logan. The Parks and Recreation Master Plan contains recommendations and conclusions for existing facilities and expansion of recreation to meet future demands. Future park impact fees will be considered in the future as a means to subsidize the cost to acquire and develop park and recreation facilities to support annexations. Those items pertinent to annexation are summarized below: a) Neighborhood parks are a major priority. Major annexations or a collective series of annexations will require portions of new projects to be developed as parks, recreation, open space, and/or preservation to be a component of development. New development must not only participate in local parks but must also contribute to the entire park system to participate on a fair-share basis. Park and recreation impact fees should be established to ensure that all residents, existing and future, are being treated the same. b) Potential annexed areas should be planned with enough depth to understand the physical resources of property for future recreation use. ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 10

11 Funding to acquire land and construct facilities will come from the annual budget process, grants, impact fees, user fees, voluntary developer participation, and land and facilities resulting from development incentives. 10. Community Development Services. The City of Logan provides planning services through the staff of the Community Development Department. Approvals and support will be obtained by the Planning Commission. Access to these services will be available to all property owners annexed into the corporate limits of the City of Logan. The Building Division provide inspection to insure compliance of all construction with the adopted International Building Code. New annexation will be served by Logan City Inspector. 11. Economic Development Services. The City of Logan promotes and accomplishes economic development through the office of Economic Development. The city cooperates extensively with the Cache Chamber of Commerce to bring significant new business and industry. This economic growth increase the tax base, freedom of choice, and more jobs with higher pay. Access to these services will be available to all property owners annexed into the corporate limits of the City of Logan. 12. Public Works Services. The Public Works Department manages the bulk of the infrastructure for the City. Maintenance of roads, utilities, and public health services are on an annual rotation which ensures dependability in these systems. Planning for future expansion and enhancement of these critical services is ongoing. Access to these services will be available to all property owners annexed into the corporate limits of the City of Logan. 13. Library Services. The Logan City Library serves the residents of the City with free library services. Residents of Cache County pay a fee for library access. The inclusion of any property into the City will provide the same library services as all residents. G. Plans to finance municipal services into expansion areas Financing of services in the expansion area will be accomplished in the same manner as financing of infrastructure and services within the corporate limits. Infrastructure needed to service developed properties is installed at the expense of developers. Upon dedication to, and acceptance of the infrastructure by the City, maintenance is provided by the City with costs of operation and maintenance offset by a combination of property tax and sales tax revenues, class B and C road funds, and utility use fees. In addition the City will impose impact fees to offset the impact of offsite infrastructure systems needed for new development. H. Estimate of Tax Consequences The current property tax rate for the City of Logan is The rate currently assessed on properties in the unincorporated area of Cache County is Annexing into any municipality will increase the tax liability for property owners. The added ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 11

12 tax for the owner of a home valued at $100,000 would be $125 annually. The added tax for a business valued at $500,000 would be $1,138 annually. The City of Logan does not anticipate raising property taxes for the entire city as a result of annexation of any specific properties within the proposed annexation area. I. Interests of affected entities Cache County. The effect of annexation on the tax base of the County will be either neutral or positive. Annexed properties will continue to pay Cache County property tax assessments. It is likely that the value of these properties will increase when improved by municipal services resulting in a net increase in tax revenue to Cache County. Cache County government will also benefit from reductions in cost of service to annexed properties. Cache County School. Cache County School District serves all unincorporated areas of the County. Whenever Logan City annexes property the Cache County School District is remains the service provider for schools for the newly annexed land. It also benefits by receiving additional tax revenue as property values increase. New residential development obligates the District to educate new students. New commercial and industrial development will be a windfall increase in tax revenue to the District. Logan City School District. The Logan City School District will be invited to all pre-annexation meetings to allow early notice of the intent to annex. The Logan School District will then negotiate with the Cache County School District to determine how school district boundaries may be modified. This process to determine school district boundaries operates separately from the municipal annexation process and is not expected to adversely affect annexation petitions. J. Statements and comments by affected entities During the adoption of the 2002 Annexation Policy Plan, representatives of River Heights and Millville attended the workshop at the Planning Commission on November 14, Mayor Jensen of River Heights expressed concern that his community has no area to expand but he recognized that the proposed plan does not affect any land that can be annexed to Logan. A member of the Millville Planning Commission asked about the proposed plan on 1700 South and Highway 165. No negative comments were received. At the public hearing held on June 28th, 2007 by the Planning Commission, no written comments were received. At the public hearing held on July 7th, 2007 by the Planning Commission, tno comments, written or oral, where received. At the public hearing held on July 17th, 2007 by the Municipal Council, the following comments were received: ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 12

13 III. ANNEXATION POLICY PLAN BOUNDARIES There is hereby incorporated by reference an Annexation Policy Plan Boundaries map, to illustrate the boundaries of the City of Logan at the time of adoption and to show the unincorporated area proposed for potential future inclusion into the City. The areas shown on the map provide for annexation into one of three classifications. A. Urban Service Area. This portion of the Annexation Map includes lands within the unincorporated County of Cache that are intended for urban development and economic growth. This area is intended for short and intermediate term annexations to occur for purposes of urban development. Commercial, industrial, and residential development in this area will be intended for urban densities. B. Rural Reserve Area. This portion of the Annexation Map identifies lands within the unincorporated County of Cache that are intended to remain in agricultural use, for very low density residential development open space, or low intensity recreation. Much of this area contains agricultural soils of state and national significance. All development in this area will be required to preserve, to a large extent, the agricultural and natural qualities of properties. New development will be required to recognize and plan to protect existing rural residential properties. Where this area boarders existing arterials, vehicular access will be extremely limited and urban development will be required to preserve open space and group development away from total arterial frontage. The purpose of this area is to provide a rural separation between the City of Logan and other incorporated communities. These primarily agricultural lands will be retained in larger parcels. New development will be compact and at lower densities to maintain a separation between the City of Logan and other urban areas in the County. Some commercial, high quality, development will occur to the south along Highway 89/91. Maintaining limited highway access in this area must occur to ensure safe and efficient movement of goods and people on this corridor. Commercial development will be concentrated around locations designated in the Corridor Preservation Agreement with UDOT, Cache County, Logan City, Nibley City, and Wellsville City. New commercial and industrial growth will occur in annexation areas around the airport. C. Resource Conservation Area. This portion of the Annexation Map identifies lands where urban development will not be allowed. Much of the land in this area is highly productive agricultural or sensitive natural resources with recreational value. The Resource Conservation Area is intended to protect critical agricultural, visual, recreational, and environmental resources. The purpose of the classification is to preserve, to the greatest extent, the existing resources and qualities of the area. The City of Logan will take all steps necessary to protect resources within the Resource Conservation Area, including special zoning requirements, methods to purchase or transfer development rights, conservation easements, and special development standards. ANNEXATION POLICY PLAN CITY OF LOGAN 2007 Revision 7.0 Page 13