HomeMy WebLinkAbout2016-05-31 Planning & Zoning Packet - Work SessionAGENDA
PLANNING & ZONING COMMISSION
WORK SESSION
MAY 31, 2016
6:00 P.M. – 9:00 P.M.
KENAI CITY COUNCIL CHAMBERS
210 FIDALGO AVE., KENAI, AK 99611
http://www.kenai.us/compplan2016
A. Call to Order
B. Introduction and Presentation of Chapters 1 – 5 for 2016 City of Kenai
Comprehensive Plan
(City Planner, Matt Kelley and Elizabeth Benson, Planning Consultant)
C. Public Comment (Public comment limited to three (3) minutes per speaker; thirty
(30) minutes aggregated)
D. Planning and Zoning Commission Discussion
E. Adjournment
All meetings are open to the public and participation is encouraged. Agendas and supporting documents
are posted on the City’s website at www.ci.kenai.ak.us. For additional information, please contact the
Planning and Zoning Division at 907-283-8235.
MEMORANDUM:
TO: Planning and Zoning Commission
FROM: Matt Kelley, City Planner
DATE: May 25, 2016
SUBJECT: May 31, 2016 Work Session
The purpose of this communication is to introduce draft Chapters 1 through 5 of the 2016
Comprehensive Plan Update to the Planning and Zoning Commission.
At the May 17, 2016 Work Session staff presented the Commission with Chapters 1 – 3 to the
Commission for review. Included in your packet are updated Chapters 1 -3 along with an updated
Chapter 4 (Background Information) and an updated Chapter 5 (Land Use Plan). These two
chapters have been updated to reflect comments received at the 4 Town Hall Meetings, as well
as to reflect comments received during the development of the 2013 Comprehensive Plan.
Throughout the chapters, the updated information has been highlighted in yellow and blue for
review by the Commission. Also for your consideration is a revised Table 14: Land Use Plan
Classification. We have expanded the definitions of the Residential, Commercial, and Industrial
Land Use Classifications to include appropriate elements from the 2003 Plan. Highlighted in
Yellow are considerations that we would like to discuss with the Commission based on public
comments received at the Town Hall Meetings. Additionally, we have removed the Mixed Use
Land Use Classification from Table 14. We have done this because we would like to discuss with
the Commission, based on public comments where this Land Use Classification should be applied
based on the Land Use Maps presented in the 2013 and the 2003 Plans, respectively. The Land
Use Plan Map found on page 52 of the 2013 Plan has been unaltered as it was approved by the
City Council in April, 2013. This has been done so as to allow the Commission to review the map
as it was previously approved. Staff will present this map, along with the maps found on pages
27 and 28 of the 2003 Comprehensive Plan at the Work Session in GIS. Staff will highlight the
areas where there are land use classifications which are in-consistent with current Zoning Districts
and will present recommendations for consideration. Staff will also present all of the remaining
maps from the 2013 Plan in GIS to help facilitate discussion for their update.
Thank you for your consideration.
210 Fidalgo Avenue, Kenai, Alaska 99611-7794
Telephone: 907-283-7535 / FAX: 907-283-3014
Page 1 of 92
Draft 2016 City Kenai Comprehensive Plan 1 May 2016 Rev1 The 2016 City of Kenai Comprehensive Plan (Plan) updates the City’s 2003 Plan, includes revisions adopted from 2011‐2013 and incorporates much of the information developed during the Draft 2013 Your City, Your Plan effort. The Plan guides development in the community and provides important information about the population, environment, economy, transportation, and land use. The City of Kenai1 is located within the Kenai Peninsula Borough on the west side of the Kenai Peninsula (Map 1). The City shares planning functions with the Kenai Peninsula Borough (Borough). While the Borough retains authority for ultimate planning powers, it has delegated authority to the City to adopt land use plans and to enact and enforce zoning and land use regulations. Zoning involves designation of different types of land use districts that govern how land can be used. The Plan must be adopted by both the City of Kenai and the Borough. The Kenai Peninsula Borough retains platting authority and record keeping, which includes approval of 1 Throughout the plan, the City of Kenai is referred to as Kenai or the City. Chapter 1: Introduction Page 2 of 92
Draft 2016 City Kenai Comprehensive Plan 2 May 2016 Rev1 plats that indicate the location, boundaries and ownership of properties.The remainder of this introduction explains the purpose of comprehensive planning followed by a description of how the 2016 Comprehensive Plan is organized. 1.1 Purpose of Comprehensive Planning The comprehensive plan serves several purposes. Fulfills Legal Obligations. Alaskan communities must have an adopted comprehensive plan before they may adopt land use regulations such as a zoning ordinance. Increasingly, state and federal agencies require a plan as a condition of receiving grants. Provides a Vision of the Future. The plan contains long‐range goals, objectives, and policies that describe how, where, and in what manner physical development of the community will occur. The plan contains a map depicting intended land use by both type and location. The plan also links together physical development with considerations about social needs and economic development. Serves As a Decision‐Making Tool. The plan is a guide for decision‐making by both appointed and elected officials. Promotes and Supports Economic Development. The process for creating, adopting, and implementing the comprehensive plan allows Kenai residents and decision‐makers to examine alternatives and choose courses of action that can promote employment and economic well‐being. Serves a Coordinating Function. The plan provides an opportunity to coordinate a wide range of municipal activities, such as land use, utilities, recreation, and transportation. 1.2 Goals of the Plan This section presents the 8 general goals of the plan that have been carried forward from the Draft 2013 Plan. Public participation helped shape the goals to reflect the vision and direction of the community’s residents (see Appendix X). Note: Any changes to the goals as a result of the P&Z work sessions will be inserted in the public hearing draft. Chapter 6 includes a full description of the goals and objectives. Goals are broad statements of the City’s long‐term desired outcomes. Objectives are “operational” guidelines used to determine whether a proposed project or program advances community values expressed in the goals. Goal 1 ‐ Quality of Life: Promote and encourage quality of life elements in Kenai. Page 3 of 92
Draft 2016 City Kenai Comprehensive Plan 3 May 2016 Rev1 Goal 2 ‐ Economic Development: Provide economic development elements to support the fiscal health of the community. Goal 3 ‐ Land Use: Use land use strategies to implement a forward‐looking approach to community growth and development. Goal 4 ‐ Public Improvements and Services: Provide adequate public improvements and services in Kenai. Goal 5 – Transportation: Provide transportation systems that are efficient and adequate to serve the regional needs of the community. Goal 6 – Parks and Recreation: Ensure that Kenai has excellent parks and recreational facilities and opportunities. Goal 7 ‐ Natural Hazards and Disasters: Prepare and protect the citizens of Kenai from natural hazards and disasters. Goal 8 – Environmental Resources: Protect and enhance the natural resources and environment of the community. 1.3 How to Use this Plan This plan provides a guide for implementation of the City of Kenai’s planning and zoning responsibilities and its role in improving the quality of life for its citizens. Flexibility in implementation of the plan is necessary to take advantage of new opportunities and unforeseen circumstances. Plan implementation means to take action to realize the proposed planning goals and objectives. Implementation measures can range from revised city land ordinances and regulations to broad policy initiatives to capital improvements and upgraded city services. The Plan is organized into six chapters. Chapters 1 – 4 provide introductory material and the context for the goals and objectives. Chapter 5 describes the land use classifications and includes the land use map. Chapter 6 describes the goals and objectives that form the basis for the land use plan and implementation. Chapter 7 describes how the plan will be implemented. The references at the end of the plan identify studies, reports and other sources of information, and the appendices provide useful additional information. Appendices to Be Determined Page 4 of 92
Draft 2016 City Kenai Comprehensive Plan 5 May 2016 Rev1 Kenai is located at the mouth of the Kenai River on the west side of the Kenai Peninsula. Kenai incorporated as a home rule city in 1960, and it became part of the Kenai Peninsula Borough when the Borough incorporated in 1964. The City of Kenai adopted the council‐manager form of government in 1963 and has been operating under this form since that time. The Council sets the overall policy for the City. The City Manager provides day‐to‐day management. The Council, which consists of the Mayor and six council members, is elected at large and on a non‐partisan basis. A Kenai Central High School student serves in an advisory capacity and casts an advisory vote. In addition to the City Manager’s office, other departments include Finance, Legal, Clerk, Public Works, Airport, Police, Fire, Animal Control, Parks and Recreation, Library, Senior Services, and Planning. The remainder of this Chapter provides information on city powers, the Planning and Zoning Commission, and the context for planning. 2.1 Powers of the City As a home‐rule city, Kenai may exercise all legislative powers not prohibited by law or charter as provided by Title 29 of the Alaska Statutes. Except as otherwise provided in the city’s Charter, all powers of the City, including determination of all matters of policy, are vested in the City Council. The City of Kenai provides a variety of services to its residents, including road construction and maintenance, port and harbor facilities, police and fire protection, emergency medical services, water and sewer utilities, airport, parks and recreation, library, senior services, and animal control. As a second‐class borough under Title 29 of the Alaska statutes, the Kenai Peninsula Borough provides for planning, platting, and land use regulation. Title 29 provides that the City of Kenai Mission Statement: To serve the citizens of Kenai through listening and leading; to promote growth and continually improve services by balancing the wishes of the community with responsible management. Chapter 2: City of Kenai – Mission, Powers, Identity Page 5 of 92
Draft 2016 City Kenai Comprehensive Plan 6 May 2016 Rev1 Borough may delegate any of its powers and duties to a city. In June 1984,2 the Kenai Peninsula Borough delegated zoning powers to the City of Kenai and in May 1990,3 the Borough delegated authority to the City to enact land use plan amendments to the comprehensive plan. With this delegation, the City of Kenai assumed the authority to enact and enforce zoning and land use regulations and to adopt a comprehensive plan. The Borough must adopt the city’s comprehensive plan and any major amendments to it. The Borough retains ultimate planning and platting authority (i.e., the approval of land subdivisions) after review and recommendation by the City of Kenai Planning and Zoning Commission. 2.2 Planning and Zoning Commission Title 14 of the Kenai Municipal Code assigns several key planning functions to the 7‐member Planning and Zoning Commission. Planning and Zoning Commission duties are to: Assist with preparation of, reviewing, and approving the City’s comprehensive plan and other local plans; and, Interpret and administer the zoning and subdivision code, which includes the approval/disapproval of conditional use permit and variance applications. 2 Kenai Peninsula Borough Ordinance 84‐40. The Commission advises the City Council on: Recommendations on plan adoption, plan amendments, and rezones to the City Council; Amendments to the Zoning Code and Map; Capital Improvement Plans; Petitions for lease or sale of city and airport land; and Propose plans for rehabilitation or redevelopment of areas within the city. The Commission advises the Kenai Peninsula Borough Planning Commission on: City of Kenai Comprehensive Plan amendments; Rezones of land; Proposed subdivision plats; and, Petitions for right‐of‐way and easement vacations. City staff supports the Planning and Zoning Commission by providing services in the areas of planning, zoning, historic preservation, code enforcement, land management, and geographic information services (GIS). Staff also acts as liaison to the Planning and Zoning Commission. 2.3 Context for Planning 3 Kenai Peninsula Borough Ordinance 90‐31. Page 6 of 92
Draft 2016 City Kenai Comprehensive Plan 7 May 2016 Rev1 The City of Kenai has a long history of planning its future development. The first Comprehensive Plan developed in 1962 has been updated or revised six times including the 2011‐2013 revision. Table 1 lists each plan revision since 1962, including efforts that were not adopted. Table 1: Previous Comprehensive Plans Year Main Features of the Plan 1962 Kenai’s first plan was prepared shortly after the City incorporated in 1960 with 778 residents. At that time, most development was clustered around Old Kenai. The oil and gas industry was in its infancy and optimism abounded. The City was growing rapidly, and population was forecast to reach 13,350 by 1980. The plan stressed land development and basic infrastructure and proposed Kenai’s first planning ordinances. 1965 The transfer of the airport from the federal government to City ownership in 1963 prompted an update of the 1962 plan. The new plan proposed development of a major new public office and commercial district on surplus airport property in central Kenai, creation of a historic district for Old Kenai, a Kenai River bridge, a new regional jetport south of the river, and a Northwest Coastal Highway to a Turnagain Arm Crossing. This plan assumed a scaled‐down forecast of 5,275 residents by 1980. 1980 Kenai saw several boom‐bust cycles during the 1960s and 1970s. The 1980s plan was prepared after the Trans‐Alaska Pipeline System (TAPS) construction boom and after several offshore oil and gas lease sales in Cook Inlet. It forecast 6,140 residents by 1990, plus another 4,530 persons if there were significant new oil and gas discoveries. In response to Kenai’s sprawling growth, the plan emphasized central business district development and the emergence of distinctive residential neighborhoods. Reflecting the spirit of its time, this plan presupposed an activist city government and stressed environmental considerations. 1992 (rev 1996) After the mid‐1980s recession, Kenai geared down its growth and development expectations. This plan assumed a year 2000 population of 8,150 persons. Reviving the local economy was a major planning goal. Ambitious development projects gave way to incremental improvements to city infrastructure, better planning administration and management of the City’s land base. 2003 The 2003 plan responded to a changing economy characterized by a period of slow growth, a diminishing role of commercial fisheries and a declining oil and gas industry. The plan included provisions to revitalize the city center and develop the Millennium Square property. The plan included an estimated growth rate of 25% by 2025. 2013 Draft Imagine Kenai 2030 prepared as an update to the 2003 plan. Plan included updated socioeconomic information, revised goals and objectives, and new land use recommendations. The plan was approved by the P&Z Commission and City council but was defeated by voters in a ballot measure in 2014. The 2016 plan builds upon information gathered from previous planning efforts by the city and borough (Table 2). To the extent feasible and appropriate, the 2016 plan uses the relevant information from the 2013 draft plan and existing 2003 plan. A full citation for the plans listed in Table 2 can be found in the references section. Page 7 of 92
Draft 2016 City Kenai Comprehensive Plan 8 May 2016 Rev1 There are a number of social, economic and geographic characteristics that make the city a desirable place to live, work and play. The City of Kenai lies within a rich natural setting above the Kenai River overlooking Cook Inlet, with views of Redoubt and Iliamna volcanoes and the distant Chigmit Mountains. Physical development patterns are logical, given physical constraints such as undevelopable wetlands. A variety of land types is available for future growth. The local economy is diversified, there is a well‐qualified work force, and wages are competitive. The city government is in excellent financial condition. Residents enjoy a choice of residential neighborhoods and lifestyles. Basic public facilities and services are in good condition and provided at levels acceptable to most residents. A variety of world‐class outdoor recreation opportunities are available to residents and visitors, including the Kenai River, Cook Inlet, State lands, and Kenai National Wildlife Refuge. Table 2: Documents Related to the Comprehensive Plan Planning Document Year Entity Kenai Municipal Airport Master Plan 2016 City of Kenai & Airport Commission Draft City of Kenai All Hazards Mitigation Plan 2016 City of Kenai Draft Parks and Recreation Study 2011 City of Kenai Draft City of Kenai Trails Plan 2011 City of Kenai, Casey Planning & Design City of Kenai Annex to the Kenai Peninsula Borough Local All Hazard Mitigation Plan 2010 City of Kenai Kenai Peninsula Borough Comprehensive Economic Development Strategy 2010 Kenai Peninsula Economic Development District Kenai Peninsula Borough Coastal Management Plan* 2008 Kenai Peninsula Borough Kenai Municipal Airport Supplemental Planning Assessment 2007 City of Kenai Kenai Economic Development Strategy 2006 City of Kenai with AmeriCorps VISTA Kenai Peninsula Borough Comprehensive Plan 2005 Kenai Peninsula Borough Kenai Wastewater Facility Master Plan 2004 City of Kenai Kenai Comprehensive Plan 2003 City of Kenai with Kevin Waring Associates Kenai Peninsula Borough Transportation Plan 2003 HDR Alaska, Inc. in association with Kittelson & Associates Kenai Area Plan 2001 Alaska Department of Natural Resources Kenai Peninsula Borough Trail Plan 1998 Kenai Peninsula Borough Kenai River Comprehensive Management Plan 1998 Alaska Department of Natural Resources Kenai Municipal Airport Master Plan 1997 City of Kenai Kenai Municipal Airport Master Plan Update ** 2016 City of Kenai City of Kenai All Hazard Mitigation Plan 2016 In‐progress *The Kenai Peninsula Borough Coastal Management Plan is no longer enforceable because the Alaska Coastal Management Plan terminated on July 1, 2011. **An update of the Airport Master Plan began in 2011. Page 8 of 92
Draft 2016 City Kenai Comprehensive Plan 9 May 2016 Rev1 2.4 Kenai’s Identity The City of Kenai’s name and City logo signify a unique and distinctive community with Dena’ina and Russian roots, world‐class recreational fishing, offshore energy resource development, and spectacular mountain vistas. Kenai earned status as an All‐America City in 1992 and 2011. As the City of Kenai has matured, its challenges have changed. In the 1960s, 1970s, and early 1980s, Kenai struggled to keep pace with headlong growth as it became the Kenai Peninsula’s most populous city. The development priority then was to develop new subdivisions and basic infrastructure for new residents. Kenai’s motto – “Village with a past – City with a future” – affirms the community’s appreciation for its colorful history and its ambitions for tomorrow. Today, more moderate growth of the population and economy provides an opportunity for the City to continue improving the quality of life for its citizens and a positive experience for its visitors. Following a national trend, the community’s demographics have resulted in a decrease in students and an increase in the numbers of senior citizens. An increase in education attainment and reasonable wages make Kenai a desirable location for new businesses. In recent years, the community has continued its role as a center for commerce with the addition of several large retail stores. While the local economy was affected by the closure of the Agrium fertilizer plant in 2008 and Lowes in 2011, the City is well‐positioned to take advantage of new opportunities that arise from the significant increases in the estimated reserves for oil and gas in the region. As well, the City’s location and services provide opportunities for growth as a center for the visitor industry. Page 9 of 92
Draft 2016 City Kenai Comprehensive Plan 10 May 2016 Rev1 Note: Edits to this chapter may come about after City’s meeting with local Native entities. Alaska Natives have lived on the Kenai Peninsula long before written history. Today, Alaskan Native people continue to practice their rich cultural traditions and provide considerable economic and social benefits to the region. The federally‐recognized Kenaitze and Salamatof tribes are governed by separate Tribal Councils, and both Tribes maintain offices in the City of Kenai. In addition to the Tribes, the Kenai Natives Association and the Salamatof Native Corporation, organized under the 1971 Alaska Native Claims Settlement Act (ANCSA), operate in the City. Both the Salamatof and Kenaitze people are Dena’ina, a branch of Athabascan Indians that occupy Southcentral Alaska. Unlike other Athabascans, the Dena’ina traditionally lived close to marine waters, and their name for Cook Inlet is Tikahtnu ("Big Water River") or Nuti ("Saltwater"). The traditional language, also called Dena’ina, is one of eleven Athabascan languages in 4 The Kenaitze Indian Tribe is on the list of federally‐recognized tribes which means it is recognized as having a government‐to‐government relationship with the United States and that it is eligible to receive funding Alaska. Today the Kenaitze Tribe is undertaking efforts to revitalize the Dena’ina language. Kenaitze Indian Tribe: The Kenaitze Indian Tribe is recognized by the federal government under the Indian Reorganization Act (IRA) of 1934 (as amended for Alaska in 1936).4 Many of the Tribe’s 1,236 members live on the Kenai Peninsula. An elected Executive Council governs the Tribe in accordance with the Tribe’s constitution, bylaws, ordinances, and resolutions. As the tenth largest employer in the region, with over 100 employees, the Tribe generates a significant part of the local economy. It manages and services from the Bureau of Indian Affairs (Bureau of Indian Affairs 2010 and 2012). Chapter 3: Kenai’s Native Community Page 10 of 92
Draft 2016 City Kenai Comprehensive Plan 11 May 2016 Rev1 environmental, health, social, cultural, and educational programs. It manages the Dena’ina Health Clinic, the Dena’ina Dental Clinic and the Nakenu Family Center in Kenai. During 2012, the Tribe began construction of a health and wellness center in Old Town that will consolidate health programs at one site. In addition to health, educational and cultural programs, the Kenaitze Tribe operates a subsistence fishing net and distributes salmon among tribal members. The Kenaitze Indian Tribe operates a Tribal Court under its sovereign authority and under the oversight of the elected Tribal Council. The Court consists of a panel of judges appointed by the Tribal Council, and the Court selects a Chief Judge. The Tribal Court Code outlines the structure and procedures of the Court. 5 A 13th corporation exists for Alaska Native people living outside of Alaska when ANCSA was passed. During meetings on the Comprehensive Plan revision, representatives from the Kenaitze Indian Tribe expressed an interest in developing maps and signage to reflect traditional place names. The Kenaitze Indian Tribe is investigating ways to fund this initiative. Salamatof Tribe: The Salamatof Tribal Council maintains an office in Kenai. The Council represents the federally‐recognized Salamatof Tribe. The unincorporated village of Salamatof is located just north of the City of Kenai. Native Corporations: The Alaska Native Claims Settlement Act (ANCSA) of 1971 established regional and local Native Corporations which received entitlement to 44 million acres of land and $963 million. The Cook Inlet Regional Corporation (CIRI) is one of the 12 land‐based regional Native corporations established by ANCSA.5 CIRI has over 7,300 shareholders and has business operations and investments in energy and resource development, oilfield and construction Page 11 of 92
Draft 2016 City Kenai Comprehensive Plan 12 May 2016 Rev1 services, environmental and remediation services, real estate, tourism, telecommunications, and private equity and venture capital investments. The Corporation manages land granted under ANCSA, and it retains subsurface rights for lands granted to local corporations in the region. The Kenai Natives Association (KNA), designated as an urban Native corporation under ANCSA, had 560 members in February 2012. KNA received entitlement to 23,000 acres of land which included 4,000 acres of land at the former Wildwood Air Force Base and land within the Kenai National Wildlife Refuge. About 400 acres of land were sold to the State of Alaska in 1992 for the Wildwood Correctional Center. In the late 1990s, KNA received 5 acres in Old Town Kenai which was the site of the original headquarters for the Kenai National Moose Range.6 Also in the late 1990s, the Exxon Valdez Oil Spill Trustee Council purchased land along the Kenai River for protection, and the boundaries of the Kenai Wildlife Refuge were moved to exclude KNA lands. Amendments to the refuge boundaries allowed KNA land to be developed. Today, KNA sells sand and gravel and manages its real estate. The Salamatof Native Corporation is the village corporation for the Salamatof people established under ANCSA. The 6 The Kenai National Moose Range eventually became the Kenai National Wildlife Refuge. majority of shareholders of the corporation reside on the Kenai Peninsula including in the unincorporated village of Salamatof. The corporation received money under ANCSA but no land. Today, its business ventures consist of real estate and land development. Native Allotments: The Alaska Native Allotment Act of 1906 provided Alaska Natives with the ability to obtain title of land up to 160 acres. There are a few Native allotments in the City of Kenai, and uses within these allotments are generally not subject to the City’s land use regulations and zoning. Page 12 of 92
Draft 2016 City Kenai Comprehensive Plan 13 May 2016 Rev1 The information in this chapter provides background for the land use plan (Chapter 5) and the goals and objectives (Chapter 6). The chapter begins with a summary of the community’s history and setting. It continues with information about socioeconomic conditions and city facilities and services. The chapter concludes with a forecast of future population and demands for housing and services. 4.1 Settlement History Kenai’s motto, “Village with a past, City with a future,” reflects the link between the community’s long and rich history and its opportunities for sustainable growth and development. Kenai’s past has shaped its present. Its settlement history provides a strong cultural foundation and the physical pattern of growth that remains today. The Dena’ina people lived in the region long before the first Russian explorers arrived in Alaska in 1741. While they do not measure their history in years, the Dena’ina consider they have lived in the area since time immemorial, a period that is beyond the reach of memory or record. When the first Russians arrived, there was a thriving Dena’ina Athabascan Indian Village on the high bluff overlooking Cook Inlet near the mouth of the Kenai River. At that time, about 1,500 Dena’ina lived in the Kenai River drainage with several Chapter 4: Background Information Buildings at Historic Townsite from the Early Community Building Era Page 13 of 92
Draft 2016 City Kenai Comprehensive Plan 14 May 2016 Rev1 hundred in the village of Shk’ituk’t on the bluff above the Kenai River mouth. The local Dena’ina people originally called themselves Kahtnuht’ana ‐ “People of the Kenai River” (Kahtnu). The Russians, however, called them Kenaitze from the Dena’ina stem “ken,” which refers to flat land meaning the wave cut terrace Kenai is built on, and the Russian “‐itze,” which means “people of.” So, Kenaitze means “people of the flat land.” The Dena’ina called the Russians “Tahdna” which means “underwater people” from the image of their ships coming up Cook Inlet which, viewed from afar, looked like the ship was emerging from underwater. The Russians built Fort (Redoubt) St. Nicholas at Kenai in 1791, the fifth Russian post in Alaska. The fort was an outpost for trading fish and furs. The log wall and blockhouses were built by the Russians as part of Redoubt St. Nicholas. By the time British explorer Captain George Vancouver visited in 1794, about 40 Russians occupied the outpost. The Russian Orthodox religion took root, and Kenai’s oldest buildings are Orthodox‐related: A log rectory (1886), the Holy Assumption of the Virgin Mary Russian Orthodox Church (1895), and the nearby log chapel (1906). The United States established Fort Kenay in 1869 two years after the Alaska purchase. Most of the Russian buildings were in disrepair by the time the American Army took over, and the post was abandoned in 1871. Commercial salmon canneries became a significant economic factor in the late 1800s. The first cannery at Kenai, the Northern Packing Company, was established in 1888. From then on at least one and often two or three canneries operated at the Kenai River mouth. As the community evolved, residents constructed new infrastructure and adapted to a changing economy. A post office was established in 1899. During the 1920s, commercial fishing and fish processing became important local industries. Opportunities for homesteading in the 1940s led to further development. The first road connecting Anchorage and Kenai, opened in 1951, provided access that helped expand the community. The Wildwood Army Base, built north of Kenai in 1953, was later converted to an Air Force base. During the Cold War, it served as a communications and Russian surveillance base. With Alaska’s first major oil strike in 1957 at the nearby Swanson River, a new economy took root. The City of Kenai Assumption of the Virgin Mary Russian Orthodox Church Page 14 of 92
Draft 2016 City Kenai Comprehensive Plan 15 May 2016 Rev1 incorporated in 1960, and offshore oil was discovered in Cook Inlet in 1965. Today’s economy reflects the importance of the fishing, oil and gas, tourism, and service industries. 4.2 Setting Kenai is centrally located on the western Kenai Peninsula in Southcentral Alaska, about 65 air miles (160 miles by road) southwest of Anchorage and 1,350 miles northwest of Seattle. Kenai is as far west as Hawaii and about the same latitude as Oslo, Norway or Stockholm, Sweden. The original community has expanded with commercial development along the Kenai Spur Highway and residential neighborhoods throughout the developable areas of the City. The city center is located about 11 miles west of Soldotna and the Sterling Highway, Kenai’s overland link to Anchorage and Homer. Most persons and goods travel to and from Kenai over these two state‐maintained highways. The Kenai Municipal Airport, the Kenai Peninsula’s only major airport, provides regional passenger and air cargo service with connecting service through Anchorage to other cities in Alaska and beyond. 7 The Anadromous Fish Catalog may be viewed at the following website: http://www.adfg.alaska.gov/sf/SARR/AWC/index.cfm?adfg=maps.interactive Kenai’s scenic setting amid diverse natural resources is a pervasive part of local daily life and an important economic and recreational asset. The Kenai River is a world‐famous sport fishing destination that is especially known for its king salmon and river recreation opportunities. The Kenai River estuary, wetlands, and nearby uplands provide vital habitat for diverse fish and wildlife. A number of rivers in the City support anadromous fish (Alaska Department of Fish and Game 2012).7 Cook Inlet also supports important recreational and commercial fisheries, abundant marine life, and important oil and gas resources. The nearby Kenai National Wildlife Refuge offers year‐round recreational opportunities. 4.2.1 Climate and Environment Kenai’s northern climate is tempered by Cook Inlet to the west and the Kenai Mountain Range to the south and east. Summer temperatures typically range from 46 to 65 degrees Fahrenheit (°F), and winter temperatures from 4 to 22 °F. Average annual precipitation is 20 inches. A drying trend has accelerated since the 1970’s resulting in some drying of wetlands and muskegs and the disappearance of kettle ponds and lower lake levels (U.S. Fish and Wildlife Page 15 of 92
Draft 2016 City Kenai Comprehensive Plan 16 May 2016 Rev1 Service 2012a and 2012b). In addition, trees are now growing at higher altitudes. 4.2.2 Natural Hazards Natural hazards are natural events that could cause injury, property damage, business disruption, or environmental impact. They can include geological and meteorological phenomena such as earthquakes, coastal erosion, and volcanic eruption. Biological hazards can refer to a diverse array of disease and infestation. Other natural hazards such as floods and wildfires can result from a combination of geological, hydrological, and climatic factors. There are natural hazards that may affect the City of Kenai to various degrees. In 2010, the City of Kenai completed an Annex to the Kenai Peninsula Borough Local All Hazard Mitigation Plan. This plan was approved by the Federal Emergency Management Agency in 2011.8 In March‐April 2016, the City of Kenai administration made revisions to the plan and submitted the updated version for review to the Planning & Zoning Commission and was approved the plan by Resolution PZ16‐06 on April 13, 2016. 8 The Disaster Mitigation Act of 2000 requires local governments to adopt a hazard mitigation plans as a condition for receiving federal disaster This document describes risks of hazards, facilities vulnerable to a disaster and a mitigation strategy to reduce potential losses. Hazards with high risks include flooding, wildfire, earthquake, weather, and erosion. Hazards with medium risks include volcanoes, and hazards with low risks include tsunamis. The plan includes a vulnerability assessment for city facilities and infrastructure. Table XXX (2016 All‐Hazard Plan Annex) lists whether or not the hazard is present in Kenai (identification) and gives a probability of occurrence (risk). Table XXX: Hazard Identification & Risk Matrix Flood Wildland Fire Earthquake Volcano Snow Avalanche Tsunami & Seiche Y/H Y/H Y/H Y/M N Y/L Weather Landslide Erosion Drought Technological Economic Y/H N/L Y/H U/L U/L U/L Hazard Identification: Y: Hazard is present in jurisdiction but probability unknown N: Hazard is not present U: Unknown if the hazard occurs in the jurisdiction Risk: L: Hazard is present with a low probability of occurrence M: Hazard is present with a moderate probability of occurrence H: Hazard is present with a high probability of occurrence mitigation funds including elevation, acquisition, and relocation of hazard threatened structures. Page 16 of 92
Draft 2016 City Kenai Comprehensive Plan 17 May 2016 Rev1 Flooding: Like other communities in the Kenai Peninsula Borough, the city is susceptible to different types of flood hazards. With about 2,840 acres of the Kenai River basin considered as floodplain, low lying areas within the City are susceptible to flood and erosion hazards. Floodplain is defined by the Federal Emergency Management Agency (FEMA) as land adjacent to a lake, river, stream, estuary, or other water body that is subject to flooding. There are parcels inside the city limits that have been designated by the FEMA Flood Insurance Rate Maps (FIRM) in zones A and V. FIRM refers to the official maps adopted by the FEMA on which the flood insurance administration has delineated both the areas of special flood hazard and the risk premium zones applicable to the community. The City does not regulate development in the floodplain and does not participate in the National Flood Insurance Program (NFIP). Insert wording re river 50‐foot setback Most of the floodplain inside the city limits is publicly owned and few structures have been built there. The 2016 KPB All‐Hazard Mitigation Plan (2016 HMP) locates the City of Kenai in the plan’s North Zone and Central Zone. Critical areas and facilities susceptible to flooding in North Zone communities include docking facilities and bridges, such as the City Dock, the North Kenai refinery dock, private mooring facilities, and the Warren Ames Bridge (Kenai River Mile 5) and Swanson River Bridge (Mile 38.4 Kenai Spur Highway). According to the 2016 HMP, there are a total of 296 (tax) parcels valued at over $70million, which are within or intersect the lower 12.5 miles of the Kenai River’s mapped 100‐year floodplain located inside the city. The total assessed value of homes and other improvements on the 137 developed parcels is over $33million. Add something re NFIP benefit v. long‐term “risk” to city (cost, loss of property, lives). Erosion: In addition to riverine flood hazards, property located adjacent to Cook Inlet is susceptible to erosion, high tides, and storm surge‐wave run up. Riverine and coastal erosion occur in Kenai. Coastal erosion encompasses bluff and beach erosion while riverine erosion will be considered synonymous for stream erosion, stream bank erosion and riverbank erosion. The 2016 HMP discusses the differences between erosion and coastal erosion in more detail. Eroding bluffs along the Kenai River and Cook Inlet pose the greatest erosion risk to the community (City of Kenai 2010). Bluff erosion above the Kenai River threatens housing and facilities such as the Kenai Senior Center and Congregate Housing (Vintage Pointe Manor). An average erosion rate of 3 feet per year has been estimated after comparing aerial photographs over a 50‐year period (Figure 1). Page 17 of 92
Draft 2016 City Kenai Comprehensive Plan 18 May 2016 Rev1 Erosion damage can be costly. For example, relocation of the sewer line and road work along Mission Avenue in 2000 cost over $300,000. Erosion has also resulted in the abandonment of roads and sewer mains. The Senior Center, Congregate Housing (Vintage Pointe Manor) and Wastewater Treatment Plant are more vulnerable to erosion damage than the remainder of City facilities. After years of studies, the City of Kenai is planning a Bluff Stabilization Project that will stop the erosion process along the Kenai River in the downtown area. The US Army Corps of Engineers (Corps) is completing a multi‐million‐dollar study and the engineering for this project. The City of Kenai has received appropriations in the amount approximately $4,000,000 from the State of Alaska for this project. On May 4th and 5th, 2016 the Corps held a two‐day Planning Charrette to reevaluate the scope and costs of the proposed Kenai Bluffs Stabilization Section 116 Feasibility Study. The City has appropriated $585,000 thus far for the project in funding to the Corps to complete the study. It is anticipated that the Corps will finish the final feasibility study by August 2017. Natural bank erosion along the Kenai River is aggravated by boat wakes. A 1997 study found that areas of the river without boat traffic resulted in about 75% less erosion than in areas of the river with high boat traffic (Dorava and Moore 1997). The Kenai Peninsula Borough Don E. Gilman River Center (River Center) houses multiple agencies that regulate activities and development in and along the Kenai River. Working together, these agencies have made great strides towards addressing erosion. Publications by the River Center provide guidance for addressing riverine erosion (Czarnezki and Yaeger 2007) and coastal erosion (Smith and Williams 2010). Plus, the 2008 Kenai Peninsula Borough Coastal Management Plan included designations for erosion‐prone areas in the City of Kenai along the river (Kenai Peninsula Borough 2008a). Coastal Storms: From the fall through the spring, low pressure systems either develop in the Bering Sea or Gulf of Alaska or are brought to the region by wind systems in the upper atmosphere that tend to steer storms in the north Pacific Ocean toward Alaska. When these storms impact the coastal areas and shoreline, they often bring wide swathes of high winds and occasionally cause coastal flooding and erosion. Figure 1: Past and Future Projected Erosion Rates Source: U.S. Army Corps of Engineers 2011 Page 18 of 92
Draft 2016 City Kenai Comprehensive Plan 19 May 2016 Rev1 Fierce storm conditions do not have to be present to cause damage. According to the 2016 HMP, the City of Kenai community suffers from “Silent Storms” where high‐water storm surges erode and undercut river and shoreline banks, melting the permafrost. This “wearing away” of land results in the loss of beach, shoreline, and dunes. Coastal erosion occurs over the area roughly from the top of the bluff out into the near‐shore region to about the 30 foot water depth. It is measured as the rate of change in the position or horizontal displacement of a shoreline over a period of time. Bluff recession is the most visible aspect of coastal erosion because of the dramatic change it causes in the landscape. As a result, this aspect of coastal erosion usually receives the most attention. Coastal erosion also may be from multi‐year impacts and long‐term climatic change such as sea‐level rise, lack of sediment supply, subsidence or long‐term human factors such as the construction of shore protection structures and dams or aquifer depletion. Attempts to control erosion through shoreline protective measures such as groins, jetties, seawalls, or revetments, can actually lead to increased erosion activity. These shoreline structures can eliminate the natural wave run‐up and sand deposition processes and can increase reflected wave action and currents at the waterline. The increased wave action can cause localized scour both in front of and behind structures and prevent the settlement of suspended sediment. Fortunately in Alaska, erosion is hindered by bottomfast ice, which is present on much of the Arctic coastline during the winter. These areas are fairly vulnerable while the ice is forming. The winds from a fall storm can push sea ice into the shorefast ice, driving it onto the beach. The ice will then gouge the beach and cause other damage. In 2009, the City of Kenai added permanent fencing to the north beach dunes to help ensure this natural barrier will adequately prevent bluff erosion. The fencing will help ensure that man‐made destruction of vegetation does not compromise the integrity of the dunes. A similar fencing project was completed in the summer of 2010 on the south beach. The dunes were at risk of destruction from the annual personal use dipnet fishery if the fencing was not installed. In 2014, a subdivision consisting of multiple phases and 48 lots at full build‐out has recently been recorded within the City of Kenai. The subdivision is located along the bluffs has bluff‐top lots which overlook the Cook Inlet. To further combat erosion the City of Kenai and the Kenai Peninsula Borough required the identification of a setback of 50 feet from the top of the slop for septic systems. This setback will help to ensure that effluent does not discharge into Cook Inlet in the event of further bluff erosion in this area. Wildland Fires: Wildland fires pose a risk to the community, especially as a result of an increase in dead spruce trees Page 19 of 92
Draft 2016 City Kenai Comprehensive Plan 20 May 2016 Rev1 resulting from the spruce bark beetle infestation (City of Kenai 2010, Parson et al. 2009). The City annually experiences small wildland fires throughout the summer months. The City of Kenai Fire Department and State Forestry responded to cooperatively to these fires. According to the 2016 HMP, all areas within the City of Kenai have equal risk of Wildland fires. The City maintains a defensible space around all City facilities as a preventative measure for wildland fires. This risk has been greatly reduced by the City of Kenai’s initiative to proactively pursue a fire mitigation plan that resulted in the clearing of dead and dying spruce from approximately 700 acres of public and private land. Funding for these projects was facilitated through the Kenai Peninsula Borough Spruce Bark Beetle Mitigation program. The Kenai Peninsula Borough and the City of Kenai worked cooperatively to identify high hazard areas. Local contractors provided hazard mitigation under the Borough funded program (which is no longer active). Logistically, the reduction in fuels within the City has enabled State Forestry resources to free themselves to patrol other nearby communities, and has reduced wildfire activity within the City. The City in cooperation with the KPB and State Forestry continue to provide Firewise Communities educational material to homeowners to enable them to prepare their homes in the event of a wildfire. Damage from fallen trees during heavy wind storms has dropped drastically within the City. Homer Electric Association has attributed this reduction directly to the City’s pro Firewise actions. Historically significant fires within the City included the 1969 Swanson River Fire and the Swires Road fire in the mid1980’s. More recently, the Central Kenai Peninsula experienced significant wildfires in 2014 and 2015; however, neither of these fires burned inside the City limits of Kenai. City of Kenai Firefighters provided mutual aid to Central Emergency Services (CES). Volcanoes and Fallout: According to the 2016 HMP, all areas within the City of Kenai have equal risk of effects from volcanic activity. Eruptions from volcanoes on the west side of Cook Inlet can result in the deposition of ash, which can cause damage to structures and equipment. (insert more details on the impacts here). Eruptions can cause delays in air service. Earthquakes: Alaska is one of the most seismically active regions in the world. Three of the ten largest earthquakes ever recorded have been in Alaska. Earthquakes of magnitude 7 or greater occur in Alaska on average of about once a year; magnitude 8 earthquakes average about 13 years between events. Although southcentral Alaska is in a high seismic risk zone, Kenai is relatively well protected from earthquake‐generated tsunami danger due to the high bluffs; and the relatively shallow depth of upper Cook Inlet results in a low tsunami risk. Kenai was relatively undamaged in the1964 Page 20 of 92
Draft 2016 City Kenai Comprehensive Plan 21 May 2016 Rev1 earthquake; however, the potential for seismic events remains high. More recently, on January 24, 2016 at 1:30am a 7.1 magnitude quake occurred 53 miles west of Anchor Point. The City of Kenai felt the greatest impact when a gas line broke on Lilac Lane. There were two house explosions, and a total of four homes on Lilac Lane were completely destroyed. The dangers associated with earthquakes include ground shaking, surface faulting, ground failures, snow avalanches, seiches and tsunamis. The extent of damage from an earthquake is dependent on the magnitude of the quake, the geology of the area, the nature of the earthquake (surface faulting, ground failure, liquefaction, etc.), distance from the epicenter and structure design and construction. City of Kenai continues to enforce building codes and construction standards. 4.3 Population, Education and Housing The purpose of this section is to provide background information about population, education and housing trends that may influence private and public investment decisions and public policy decisions at the local and regional levels. 4.3.1 Population For the first half of the 1900s, the community of Kenai’s population stayed around 300 people. After discovery of the Swanson River oil field in 1957, Kenai grew eight‐fold from 778 people in 1960 to 6,327 in 1990 becoming the Kenai Peninsula’s most populous city. During the statewide economic slowdown in the 1990s, Kenai’s population grew from 6,327 (1990) to 6,942 (2000) or about 9.7%, adding fewer residents than in any decade since the 1950s. Between 1990 and 2000, nearby small rural settlements (Cohoe, Clam Gulch, Kasilof, Nikiski, Ridgeway, and Salamatof) grew by an average of 34%. This trend may reflect the preference to work, shop, and recreate in the cities but live in the rural countryside. Kenai’s population growth slowed between 2000 and 2010 with an increase of about 2.3%. This trend continued between 2010 and 2015. By 2015, Kenai’s population grew from 7,100 (2010) to 7,167 (2014) or about 0.8% (KPEDD, May 2016). The median age of Kenai’s residents rose from 28.6 years in 1990 to 32.3 years in 2000, 34.7 years in 2010 and . Kenai’s 2010 population is somewhat less diverse than Alaska and the United States as a whole and less diverse than it was in 2000. Insert KPEDD analysis re trends in aging. Effects on land use Talk about the older person working, housing, energy costs, transit, health care, other services, income needs (mortgage not paid off). The aging of Kenai’s population is consistent with national trends as the “baby boomers” reach retirement age. While the City’s population is increasing, there has been a greater increase in people older than 45 and a decline of people under Page 21 of 92
Draft 2016 City Kenai Comprehensive Plan 22 May 2016 Rev1 that age between 2000 and 2010. Kenai’s median age in 2010 was lower than the national median age and slightly higher than that of Alaska. Table XXX. Population Change by Age Group City of Kenai, 1990‐2010 Age Group 1990 2000 2010 Change 1990‐2000 Change 2000‐2010 Under 18 yrs 2,074 2,277 1,971 +9.8% ‐13.4% 18‐44 yrs 2,989 2,707 2,513 ‐9.4% ‐7.2% 45 to 64 yrs 1,005 1,515 1,921 +50.7% +26.8% 65 yrs+ 259 443 695 +71.0% +56.9% Total 6,327 6,942 7,100 +9.7% + 2.3% Source: U.S. Census and Alaska Dept Labor & Workforce Development Table XXX. Population Change by Age Group City of Kenai, 2010 ‐ 2015 Age Group 2010 Census 2015 DOLWFD Estimate Change 2010‐2015 Under 19 2,219 2,202 Age 20‐44 2,277 2,270 Age 45‐64 1,921 1,872 Age 65‐79 572 721 Age 80+ 123 164 9 For cities with a population the size of Kenai, the American Community Survey uses five year averages for some survey data such as education. Since 1990, the average household size in Kenai has continued to decline. As shown in Table 4, Kenai’s average household size in 2010 was smaller than the Alaska and national average. Over the long run, these trends signify slower population growth, a steadily aging population with more seniors, a shift in housing demand mix, and a shift in local priorities for public facilities and services to meet changing needs of a changing population. 4.3.2 Education U.S. Census Bureau information for the period 2006‐2010 provides information about educational trends.9 As shown in Table 5, there has been decreased enrollment in high school and younger and increased enrollment in college since 2000. The average estimated percent of high school graduates and people with a bachelor’s degree or higher increased for the period 2006‐2010. For the same period, the percentage of high school graduates or higher in the City of Kenai was 91.6% which was higher than for United States percentage (85.0%) and slightly higher than for Alaska as a whole (90.7%). The Page 22 of 92
Draft 2016 City Kenai Comprehensive Plan 23 May 2016 Rev1 percentage of people with a bachelor’s degree or higher in the City of Kenai was 18%, lower than that for the United States (27.9%) and for Alaska (27.0%). Increase KPEDD analysis re trends in education and effects on land use planning. 4.3.3 Housing Although Kenai is one of Alaska’s oldest settlements, its housing stock is relatively new and in good condition because most homes were built after 1980. The 2010 census counted 3,166 housing units in Kenai, an increase of 13 housing units since 2000 and an increase of 335 units since 1990. In 2010, about 60% of housing units were owner‐occupied, single‐family homes. Most new dwellings built since 1990 were single‐family homes. Most homes are on public water supply and sewage disposal systems and use natural gas. Table 6 provides additional housing information. Housing costs for both owner‐occupied and rentals are lower in Kenai than in most Alaska localities. In 2010, the average sale price for a single family home in the Kenai Peninsula Borough was $225,975 compared to the $278,836 statewide 10 The survey includes Anchorage, Fairbanks North Star Borough, City and Borough of Juneau, Kenai Peninsula Borough, Ketchikan Gateway Borough, Kodiak Island Borough, City and Borough of Sitka, Valdez‐Cordova Census Area, and the Wrangell Borough‐Petersburg Census Area. average. In 2010, rentals in the Kenai Peninsula Borough were Annual Rental Market Survey (Alaska Department of Labor lower than in all but one of the areas included in the 2010 and Workforce Development 2010).10 4.3.4 Energy Costs Energy costs – per KPEDD 4.4 Economy Recent trends and prospects in several key industries, suggest Kenai will continue to experience modest economic growth for the foreseeable future. Events, such as significant new oil and gas discoveries in Cook Inlet and the Alaska LNG Project, could lead to more rapid growth of the economy than estimated. This section provides a snapshot of the some of the most important sectors of the economy from information available in May 2016. It includes information from the U.S. Census Bureau, the Kenai Peninsula Borough and Kenai Peninsula Economic Development District (KPEDD).11 KPEDD updated its Comprehensive Economic Development Strategy and Gap 11 The Kenai Peninsula Borough no longer publishes its annual Situation and Prospects report. Page 23 of 92
Draft 2016 City Kenai Comprehensive Plan 24 May 2016 Rev1 Analysis in 2016. Appendix B provides more specific information about economic indicators. Unlike the rest of the country, Alaska did not experience a sharp recession in 2009. The KPEDD found that the Kenai Peninsula’s resource‐based economy slowly weakened as a result of fewer tourists, a decline in oil drilling, poor fish prices, and a decrease in consumer confidence (KPEDD 2010). Since the 2010 KPEDD report, there have been increased in oil and gas exploration in the area. The Kenai Peninsula Borough has one of the most diverse economies in Alaska, and this diversity has softened negative impacts to the regional economy. The City of Kenai’s economic well‐being is closely tied to general economic conditions in the Kenai/Soldotna area. This area continues to be the trade and service center for the western Kenai Peninsula and a local government center. The area has an industrial base and a healthy visitor industry centered on the recreational fisheries of the Kenai River and Cook Inlet. Future updates to the 2006 Kenai Economic Development Strategy will provide more current economic information for the City. The report includes a work plan that addresses five 12 During August 2011, the Lowes Improvement Center closed unexpectedly. topic areas: Education and workforce development, quality of life, business development, infrastructure, and tourism. For each topic, the work plan identifies goals, objectives, strategies and who will be responsible to implement the strategies. The work plan was considered when developing the current comprehensive plan revision. Since the 2003 Comprehensive Plan, the City of Kenai has expanded its role as a regional commercial center. Despite the closure of the Kmart store in 2003 and Lowes Improvement Center in XXXX, a number of new box stores opened in Kenai, including Home Depot (2004)and WalMart Supercenter (2010).12 In 2008, the 78‐room Aspen Extended Stay Suites opened for business. In addition to providing local jobs, these businesses generate tax revenue for the City. Insert KPEDD updates from 2016 S&P The remainder of this section provides more details about economic indicators, including employment and income, sales, retail trade, retail space, permits, and business licenses. 4.4.1 Employment and Income The City of Kenai has a diverse economy and an educated and mobile workforce. The community has competitive wages placing the community’s residents in a good position for Page 24 of 92
Draft 2016 City Kenai Comprehensive Plan 25 May 2016 Rev1 access to the region’s job pool. The U.S. Census Bureau’s American Community Survey for the period 2005‐2009 estimates that 69.9% of the City of Kenai’s population over the age of 16 is in the labor force, 62.0% are employed, and there is an 11.2% unemployment rate. The top employers for community residents include the Kenai Peninsula Borough School District, ASRC Energy Services, State of Alaska, Central Peninsula Hospital, Walmart, and the Kenaitze Indian Tribe (Kenai Peninsula Borough 2010). Between 2000 and 2009, there was 26.1% increase in employment while the population only increased 17.2% (Table 7). During this period, employment increased in the following categories: Sales and office, management, construction, service, and farming. Employment decreased, however, in the production category. Table 8 delineates the number of workers by type of industry. Using U.S. Census survey data from 2005‐2009, 3,036 people (84.2% of the workforce) were in the private sector with 2,784 of them in wage and salary positions, 234 self‐employed, and 18 unpaid family workers (Figure 3). Government workers included 569 people or 15.8% of the workforce. Tables 8 and 9 provide information about occupation by type and by industry. Kenai is a relatively low‐cost labor area. The estimated 2009 annual income for City of Kenai households of $54,054 was about 18.8% lower than that for Alaska, and the estimated per capita income of $27,597 was about 6.1% lower than that for Alaska. Historically, unemployment rates in the Kenai Peninsula Borough have been above statewide averages. The estimated unemployment rate in the City of Kenai for the period 2005‐2009 was 11.2%, about 2.5% higher than the unemployment rate for the entire state and 2.1% higher than for the Kenai Peninsula Borough. 4.4.2 Business Indicators This section provides a brief overview of some business indicators. City Finance to update Sales: The amount of annual sales can fluctuate from year‐to‐year. For 2009, taxable sales were $175.7 million (Eubank pers. comm. 2012). The sales business category in 2009 represented over 40% of all sales followed by wholesale, services and manufacturing (Kenai Peninsula Borough 2010). The City of Kenai represented an average of 17.5% of the entire share of all sales in the Borough for the years 2004‐ 2009. Retail sales in 2000 totaled $136.3 million, about 48% of total sales. Retail Space: In 2008, the retail space increased by 41% from 2000 to 822,853 square feet, representing 27% of the Borough’s retail space and 19% of the number of retail buildings. Page 25 of 92
Draft 2016 City Kenai Comprehensive Plan 26 May 2016 Rev1 Building Permits: While the Kenai Peninsula Borough does not issue building permits, the communities of Kenai, Homer, Seldovia, Seward, and Soldotna issue permits. For the five‐year period between 2005 and 2009, the average annual value of all types of construction permits issued by the City of Kenai was $19.0 million with a high of $46.5 million in 2008 (Kenai Peninsula Borough 2010). Business Licenses: As of July 2011, there were 1,137 licensed businesses with an address in the City of Kenai (DCCED 2011). A better measure of business activity may be the number of businesses reporting sales within the City of Kenai: 1,441 (2010), 1,510 (2009), 1,573 (2008), 1,582 (2007), and 1,556 (2006) (Eubank pers. comm. 2012). 4.4.3 Oil and Gas Industry The Cook Inlet area has been one of the nation’s most productive oil and natural gas regions. While considerable challenges exist in the short term, a significant increase in the estimate of undiscovered reserves in the region provides reason to be optimistic about the future for this industry. Production to date amounts to 1.3 billion barrels of oil, 7.8 trillion cubic feet of natural gas and 12,000 barrels of natural gas liquids. Oil production peaked in 1970 at 82.4 million barrels, and has fallen steadily since. Cook Inlet natural gas production peaked in 1994 with 311 billion cubic feet (USGS 2011), but production has declined to 111.3 billion cubic feet in 2011 (Alaska Oil and Gas Conservation Commission 2012). While the easiest to develop oil and gas resources have been found, considerable resources are estimated to remain in the region. In 2009, the Alaska Department of Natural Resources estimated there were 109 million barrels of oil and 1.56 trillion cubic feet of gas from known accumulations. In 2011, however, new geologic information boosted the estimates of undiscovered technically recoverable reserves for the Cook Inlet region to include 19 trillion cubic feet of natural gas, 600 million barrels of oil and 46 million barrels of natural gas liquids (USGS 2011). Since the 2003 Comprehensive Plan and the Draft 2013 Plan, some changes have occurred in the oil and gas sector. As a result of a shortage of natural gas supply, Agrium, Inc. closed the ammonia‐urea plant at Nikiski in 2007. In March 2011, ConocoPhillips and Marathon announced plans to place the Nikiski liquefied natural gas (LNG) in warm storage because of declining natural gas supplies in Cook Inlet. The plant remains active due to the new oil and gas exploration, and LNG shipments to Asia. Oil and gas resources continue to be an important economic influence for the region. Tesoro Alaska’s refinery in Nikiski has the capability to process up to 72,000 barrels per day. The refinery processes oil from Cook Inlet sources as well as oil Page 26 of 92
Draft 2016 City Kenai Comprehensive Plan 27 May 2016 Rev1 delivered by tanker from the TransAlaska Pipeline terminal. The refinery produces ultra‐low sulfur gasoline and diesel, jet fuel, heating oil, heavy fuel oils, propane and asphalt. Cook Inlet provides Southcentral Alaska with natural gas. The four largest fields produce 86% of the gas reserves. A 2011 study found that Cook Inlet is capable of supplying the gas needs for Southcentral Alaska at a more inexpensive rate than other alternatives until 2018‐2020 as long as investments in infrastructure continue (Alaska Department of Natural Resources 2011). The study also emphasized the importance of natural gas storage facilities in leveling the supplies. Interest in Cook Inlet oil and gas has been increasing in recent years. Since the State of Alaska implemented its annual areawide oil and gas lease sale program in 2009, the two most successful sales occurred in 2011 and 2012 ($11.3 and $6.9 million respectively). During 2011, the Alaska Oil and Gas Conservation Commission permitted 4 new exploration wells (Alaska Economic Development Corporation 2012). The following bullets summarize oil and gas activity in and near Kenai. Small independent oil and gas companies have increased their activities in the region. Linc Energy acquired leases in Cook Inlet in 2010, and while no commercial hydrocarbons were found, it plans to focus future efforts on coal gasification projects in the region. NordAq drilled a gas well in the Kenai National Wildlife Refuge in 2011, and it plans to drill 6 additional gas wells from the Shadura discovery. Armstrong Cook Inlet began producing gas from the onshore North Fork Unit in 2011. Cook Inlet Energy LLC brought the offshore Osprey platform back into production in 2011. Insert cook inlet LLC gas project In July 2011, the Alaska Department of Natural Resources approved a plan for the Cook Inlet Natural Gas Storage Project. Located in the City of Kenai near the intersection of the Bridge Access Road and Beaver Loop Road, this project includes a compression gas/gas conditioning facility on a 40‐acre parcel, and it involves a 6‐acre pad with injection wells for storage of natural gas during summer months when there is excess capacity. The stored gas will meet the peak demands for natural gas during the winter months for the Kenai Peninsula and Anchorage markets. Buccaneer Alaska Operations, LLC, a new independent company operating in Alaska, drilled two wells at its Kenai Loop project in 2011, including a successful well that was brought into production in 2012. The company plans to bring a jack‐up rig to Cook Inlet in Page 27 of 92
Draft 2016 City Kenai Comprehensive Plan 28 May 2016 Rev1 2012 to drill wells in the Cosmopolitan, Northern Cook Inlet and Southern Cross units.13 Using the first jack‐up rig in Cook Inlet in many years, Furie Operating Alaska drilled a well in 2011 in the Kitchen Lights Unit.14 The company announced it had made a commercial gas discovery and plans to continue drilling in 2012. Aurora Gas continues to produce gas in Cook Inlet, and it has plans to drill new wells. In late 2012, Hilcorp Alaska was in the process of acquiring Marathon Oil Company's Cook Inlet assets and bringing the Drift River tank storage facility back online. Construction of a North Slope natural gas pipeline with a spur pipeline to Cook Inlet, or a stand‐alone natural gas pipeline, could revitalize the role of local gas‐based industrial facilities. At the date of this Comprehensive Plan, plans for a natural gas pipeline were not finalized. In February 2016, AKLNG reported project delays (KDLL, 2‐28‐16) that could also mean delays on decisions that would have major impacts to the Kenai Peninsula, including rerouting the Kenai Spur Highway to accommodate the new plant and associated traffic increase. The highway reroute is 13 Buccaneer plans to complete the first exploration project in deeper waters of Cook Inlet using a jack‐up rig since the 1980s. currently penciled in to be completed by the end of 2018, with construction of the LNG plant estimated to begin in 2019. Insert info on potential land use impacts from some of these uses. 4.4.4 Fisheries and Seafood Processing Four different fisheries take place within the City’s boundaries: commercial, sport, personal use, and educational fisheries (KPEDD 2016). The commercial fishing and the seafood processing industries, while cyclical, are still the foundation of Kenai’s economy and still a driving economic force (Kenai Chamber of Commerce 2012). In addition to some year round and many seasonal employment opportunities, the local commercial fishing and processing industry rely upon numerous local vendors to supply and support their business year round. Seafood processing continues to contribute to the local economy. Companies process salmon, herring, halibut, pacific and black cod and razor clams, including locally caught seafood as well as fish caught in other areas of the state such as Bristol Bay, Prince William Sound and Kodiak. While the seafood industry in Cook Inlet originally focused on production of high quantities of canned salmon, Kenai no longer has a true 14 Furie Operating Alaska formerly called Escopeta Oil and Gas. Page 28 of 92
Draft 2016 City Kenai Comprehensive Plan 29 May 2016 Rev1 “salmon cannery.” Local seafood processors now focus on predominantly fresh, high‐quality seafood delivered across the United States during the salmon and halibut season as well as fresh frozen products that are distributed to markets worldwide after the season. The Alaska Seafood Marketing Institute lists 7 businesses in Kenai that supply seafood, and the Kenai Peninsula Borough recognized the importance of the area by designating it as seafood processing area in its 2008 Coastal Management Plan. In 2009, Kenai was ranked as one of the top 50 U.S. ports for volume of seafood deliveries with a landed value of $11.5 million (DCCED 2011). While not a complete picture, Table 10 provides a snapshot of salmon and halibut harvests and permit holders between 2000 and 2008. The personal use dipnet fishery has grown rapidly. The City is responsible for the management of the fishery: administering the no‐wake zone and access controls at the beach and dock, police patrols, and waste management (solid and pit toilets). The costs for management equal revenue derived from the boat launch and parking fees collected during the fishery (KPEDD 2016). 4.4.5 Visitor Industry Update with KPEDD findings The Alaska Department of Commerce, Community and Economic Development estimates that about 500,000 people visit the Kenai Peninsula each summer. While tourism has been one of the fastest growing sectors in the Borough, visits declined from their peak in 2007. Visitor patterns are highly seasonal with outdoor recreation and sport fishing Kenai Visitors and Cultural Center Table 10: Salmon and Halibut Harvests in Kenai Salmon 2000 2008 Kenai Permit Holders 208 with 155 fished 208 with 154 fished Pounds Landed in Port 3,583,932 5,310,054 Gross Earnings $2.1 million $4.8 million Halibut 2000 2007 Kenai Permit Holders 49 with 16 fished 35 with 31 fished Pounds Landed in Port 153,560 351,304 Gross Earnings *** $1.5 million SKiPilBh2000 2009Page 29 of 92
Draft 2016 City Kenai Comprehensive Plan 30 May 2016 Rev1 representing the major visitor activities, and the historic Kenai Old Town is an important attraction. Alaska residents represent the largest group of visitors to the Kenai Peninsula. The region’s visitor industry directly supports a variety of local businesses in Kenai. In 2008, there were 1,207 visitor‐related businesses licensed in the City of Kenai which represented 18.3% of all visitor‐related businesses in the Borough. Accommodations, food and beverage sales accounted for an average of $14.2 million per year for the years 2001‐2008 in the City of Kenai, representing an average of 11.7% of sales within the borough (KPB 2009). Visitors to the City of Kenai have decreased in recent years with a high of 45,769 in 1999 to 36,524 in 2007 (for the period June‐August of each year) (KPB 2009). These summer months account for over two‐thirds of annual visits. The Kenai River provides a major recreation destination for both residents and visitors. The charter fishing industry provides economic benefits to the City of Kenai through employment and through local spending by clients. Ten percent of the businesses on the Kenai River Professional Guide Association’s membership list have a Kenai address; although it should be noted that some Kenai addresses are actually outside the city boundaries (Kenai River Professional Guide Association 2011). The Kenai Chamber of Commerce and Visitors Center promotes Kenai as a destination, and it operates the Kenai Visitors and Cultural Center. The Center provides information to visitors and it includes exhibits and a gift shop. The Kenai Peninsula Tourism Marketing Council markets the peninsula as a tourist destination. 4.5 Public Facilities and Services The City of Kenai provides a variety of facilities and services to its residents, local businesses and industries. These include: water and sewer public safety fire and EMS library seniors transportation parks and recreation The areas of Kenai now served by city roads and water and sewer utilities are shown in Maps 2 and 3. The continued provision and expansion of these services will depend on the willingness of Kenai citizens to pay for them or through other funding sources. Page 30 of 92
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Draft 2016 City Kenai Comprehensive Plan 33 May 2016 Rev1 4.5.1 Water and Sewer Systems About 1,680 homes and businesses (4,000‐5,000 users), or 70% of the city’s population, are connected to the water and sewer system. Kenai currently has 3 operational well houses. Wells 1 and 3 each produce approximately 5% of Kenai’s water. Well 2 produces approximately 90% of Kenai’s water and is located near the intersection of Kenai Spur Highway and Beaver Loop Road on Shotgun Road. A water treatment facility that removes harmless color began operating in 2012. An additional well has been drilled nearby well 2 and will be brought online in 2013. After the new well is brought online, wells 1 and 3 will be taken out of operation. At least 1 additional well is planned to be drilled near well 2. The wastewater treatment plant, constructed in 1982, was designed for a population of 11,650 people and an average wastewater flow of 1.3 million gallons per day, and operates between 50% and 70% total capacity. The updated 2004 Wastewater Facility Master Plan identified a number of improvements that could increase the plant’s efficiency. An Investment Grade Audit is underway to determine the benefits of various upgrades. Improvements that are identified as having a payback time of 15 years or less in energy savings will likely be implemented in 2012 or 2013. 4.5.2 Public Safety The Police, Fire and Emergency Medical Services (EMS) departments are housed in the Public Safety Building on Main Street Loop and Willow Street. The police department facility was expanded and renovated in 1984‐85. The fire department serves approximately 7,100 people within the boundaries of the community. The fire department is responsible for all fire suppression, airport crash fire rescue, hazardous materials, EMS, fire prevention programs, enforcement of city and state fire safety and prevention codes, and fire investigations. The City has a mutual aid and automatic aid agreements with Central Emergency Services and the Nikiski Fire Department. 4.5.3 Transportation A safe, affordable, accessible, and efficient road, trail, marine, and aviation transportation system is essential for community development and expansion in Kenai. Coordinated transportation and land use policies reduce congestion, improve safety, and help move people, vehicles, and goods more efficiently. Limited public transportation is available through CARTS (Central Area Rural Transit System). Page 33 of 92
Draft 2016 City Kenai Comprehensive Plan 34 May 2016 Rev1 Roads: Of the 99 miles of roads in Kenai, the City of Kenai maintains approximately 60 miles, including approximately 15 miles of gravel surfaced roads (Map 4). About 31% of city roadways are unpaved, and many roads are 20‐30 years old (City of Kenai 2009). The Public Works Department maintains these roads year‐round and is responsible for snow plowing and road grading, shoulder maintenance, drainage ditches and culverts, and rights‐of‐way and easements. City road construction is funded with municipal revenue, state‐shared revenue, and by property owners in Local Improvement Districts (LIDs). Maintenance is funded on an annual basis using revenue from sales tax and property taxes. The City requires road rights‐of‐way dedications in new subdivisions. The construction of the Bridge Access Road, residential growth at Kalifornsky Beach Road area and employment growth in the vicinity of Willow Street and Main Street Loop have funneled more traffic into the central area. These trends are positive for the long‐term commercial viability of the city center and for future development of Millennium Square. Traffic at intersections along the Kenai Spur Highway has increased an average of 15% between 2000 and 2010 (Figure 4). The greatest increase in traffic occurred at the intersections of Swires Drive (26%), Main Street (26%) and Airport Way (18%). The local and state road system plays an important role in the growth and expansion of residential, commercial and industrial development in Kenai. The proper location of future roads and trails necessary to meet the demand of residents and commercial developers will be important to minimize maintenance costs to the City. While Kenai’s road system is adequate in many respects, improvements to connectivity between where people live, shop and work will continue to be an issue as the community grows. Future transportation planning, including a local roads and trails inventory, will be important to managing the flow of people and goods within Kenai and addressing potential industrial growth in the region. Road improvements such as paving more streets, constructing sidewalks, creating trail linkages and expanding road shoulders could go a long way in attracting more traffic within the city center and improving the convenience and safety of doing business along parts of the Kenai Spur Highway corridor.Page 34 of 92
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Draft 2016 City Kenai Comprehensive Plan 36 May 2016 Rev1 Kenai Municipal Airport: The Kenai Municipal Airport is the largest of nine airports in the region and serves as a primary collection and distribution center for scheduled passengers, cargo, and mail service (KPEDDCEDS 2016). The primary mission of the Kenai Municipal Airport is to be the commercial air transportation gateway to the Kenai Peninsula Borough and West Cook Inlet. The city‐owned and operated airport is centrally located on approximately 1,458 acres of land near downtown Kenai. The airport property encompasses the airfield, a major portion of central Kenai, and several undeveloped areas. The Federal Aviation Administration (FAA) transferred the original airport tract to the City in 1963. Today, the Kenai Municipal Airport and related airport properties are a major economic and land asset for the City. The airport supports a variety of economic activities with potential for growth. The City is currently developing a 42‐acre industrial park to the northeast along Marathon Road which will provide a center for future industrial activity. Additionally, the Airport is developing hangar lease lots with associated taxiways and roads adjacent to the floatplane taxiway/slip area at the southern end of the water taxiway. These lots will be suitable for commercial hangars as well as T‐hangars. The FAA classifies the airport as a Commercial Service‐Primary Airport; commercial service airports are defined as those airports having 2, 500 or more annual enplanements with primary airports defined as commercial service airports having 10,000 or more annual enplanements. The designated role of the Kenai Airport is to serve short‐haul air carrier routes of less than 500 miles. The airport consists of three runways; grooved 7,830‐foot asphalt runway, 2,000 foot gravel runway, and 4,600‐foot water runway, two helipads, and numerous taxiways. The asphalt runway is equipped with an instrument landing system (ILS). Southwest of the terminal building are 40 long‐term paved tiedowns of which 10 have electricity. At the float plane basin there are 25 long‐ Plane Displayed at the Kenai Municipal Airport Page 36 of 92
Draft 2016 City Kenai Comprehensive Plan 37 May 2016 Rev1 term tiedown slips and 10 transient slips which can accommodate aircraft with up to a 48‐foot wing span. There are 5 commercial slips which can accommodate aircraft with a wingspan up to 65 feet. Both long‐term and transient tiedowns are available at the gravel runway. Fly‐in camp sites are available at the float plane basin and gravel runway apron. Fuel is available for both wheeled and float planes with 24‐hour credit card machines. Two commuter airlines offer scheduled service between Kenai and Anchorage. Charter services are also available. An FAA Regional Flight Service Station is located at the Kenai Municipal Airport and is open 24 hours a day. An Air Traffic Control Tower is operated at the airport. A restaurant, lounge, car rentals, and taxis are available in the terminal. Short and long‐term vehicle parking is available at the terminal. Hotel accommodations are located nearby. The 1963 deed for the airport requires airport lands to be managed for use and support of the airport. Airport lands are identified on the Airport Layout Plan (ALP). Title 21 of the Kenai Municipal Code provides guidance for lease, sale, and use of airport‐owned properties to ensure there is an adequate supply of land to support operation of the airport and to reduce incompatible uses in the airport proper. The current conservation zoning designation of airport lands does not support this requirement. The City should consider rezoning these lands to an industrial zone within the Airport Reserve Boundary to provide for development to highest and best uses for the airport. Such uses include support for airport‐related services, revenue‐generating leases, other private development, or public improvements. Map 5 illustrates current land use at the airport. The airport leases a number of developed parcels including the Beacon Occupational Health and Safety Services, City Animal Control Shelter, City shop, the Flight Service Station, and numerous aviation and non‐aviation properties. These leases provide funding for airport operations. The most recent Kenai Municipal Airport Master Plan was developed in 1997, and a Supplemental Planning Assessment was completed in 2007. Funding for new master plan was secured in 2010 and the update to the Master Plan got underway in 2011 and was completed in 2015. The 1997 Airport Master Plan developed local aircraft noise exposure maps as of 1995 (actual) and estimated aircraft noise exposure by 2015. The footprint of the projected 2015 65 dB DNL is slightly smaller than for 1995 due to proposed airport improvements. In 2001, an updated noise exposure map showed no change to the projected 2015 noise contours. Map 6 depicts current aircraft noise levels. An updated noise study is planned with the 2012 master plan. Page 37 of 92
Draft 2016 City Kenai Comprehensive Plan 38 May 2016 Rev1 Update Figure 5 illustrates the enplanements reported to the City between 2000 and 2011 with a high of 103,180 enplanements in 2000 and a low of 76,729 in 2003. There are enplanements that are not necessarily reported to the City that are reported to the FAA.Page 38 of 92
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Draft 2016 City Kenai Comprehensive Plan 41 May 2016 Rev1 A study completed in association with the 2005 Kenai Municipal Airport Supplemental Planning Assessment found that the airport had a considerable impact to the local economy (City of Kenai 2005b). This study estimated that the airport generated 533 full time jobs in 2004, including 318 direct jobs and 215 indirect and induced jobs.15 Also during 2004, the airport and generated a payroll of nearly $25 million and $44 million in business revenue (direct, indirect and induced payroll and revenue). 15 The jobs, payroll and business revenue figures include those generated by the airport as well as by visitors who travel to and from Kenai by plane. Impacts to aviation‐related businesses result in direct economic impacts, re‐spending in the local economy by local airport related business results Kenai Boating Facility: The City has authority to plan for waterfront development; own, lease or manage waterfront property; raise funds; and exercise financial control over the port. The Department of Public Works operates the Kenai Boating Facility and coordinates its use by fish processors/ leaseholders, independent fish processors, public users, and commercial, recreational and dipnet fishermen. The dock is mainly leased for commercial fishing vessel use, while the boat launching ramp is one of the area’s most popular launching facilities during the dipnet fishery. In addition to the boat launch ramps, there are public restrooms and fresh water available. The City leases a fueling facility and gasoline and diesel are available. 4.5.4 Parks and Recreation in indirect impacts, and re‐spending of wages from airport‐related income results in induced economic impacts. Source: City of Kenai 020,00040,00060,00080,000100,000120,0002000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011Figure 5: Enplanements Kenai Municipal Airport 2000 ‐2011Page 41 of 92
Draft 2016 City Kenai Comprehensive Plan 42 May 2016 Rev1 The Parks and Recreation Department manages over 358 acres in its park and open space system (City of Kenai 2011a). Other than the neighborhood parks category, the City far exceeds the National Recreation and Park Association guidelines for parks and open space acreage. The goal of the Parks and Recreation Department is: To enhance the quality of life for all citizens through park facilities, programs, and community services. The Department’s goals and objectives are outlined in the 2010 5‐year plan which was prepared with assistance from the Parks and Recreation Commission. The plan includes core principles and priorities for maintenance, safety upgrades, park development, and creation of a tent campground (City of Kenai 2011). The Parks and Recreation Department provides a wide array of services, including seasonal recreation programs, city parks, beautification of city streets and parks, 3.2 miles of groomed Nordic ski trails and 2.5 miles of pedestrian trails (See Table 11). The City leases 120 acres for an 18‐hole golf course that is privately operated. Through a partnership with the City, the Boys and Girls Club operates a 17,700 square foot recreation center which provides numerous activities for the citizens of Kenai as listed in Table 11. In addition, the Department provides support for the annual personal use fishery, provides an area for community gardens, and manages volunteer programs, such as the Adopt‐a‐Park program. Erik Hansen Scout Park Page 42 of 92
Draft 2016 City Kenai Comprehensive Plan 43 May 2016 Rev1 A 7‐member Parks and Recreation Commission and a 7‐member Beautification Committee provides advice to the Department. The Department also maintains landscaping for street and highway rights‐of‐way. Gazebo at Leif Hansen Memorial Park Page 43 of 92
Draft 2016 City Kenai Comprehensive Plan 44 May 2016 Rev1 Table 11: City of Kenai Parks and Open Space Community Parks & Schools Acres Description Kenai Municipal Park 45.7 Picnic tables, 2 large shelters, BBQ grills, basketball & volleyball courts, ball fields, picnic shelter, observation deck, beach access trail, and restroom facilities Kenai Park Strip 18.9 4 sports fields with bleachers, dugouts, concession, playground, shelter, picnic tables, BBQ grills, volleyball court, community garden area, and restroom facilities Beaver Creek Park 5.2 Shelter, picnic table, BBQ grill, basketball court, playground ball field, and restroom facilities Daubenspeck Family Park 7.5 Beach/swimming area, 2 shelters, picnic tables, trails, horseshoe pit, winter ice skating, dog retrieval area, and restroom facilities Kenai Middle School n/a Kenai Central High School n/a Subtotal 77.3 Neighborhood Parks & Schools Acres Description Elson Rest Stop 0.7 Picnic area and rest stop donated to the City in 2005 Old Town Park 0.4 Playground, shelter, basketball court, turf areas & BBQ grill Fourth Avenue Park 3.8 Playground, basketball court, shelter, baseball field, & BBQ grill Aurora Borealis Charter School n / a16 Kaleidoscope School n/a Mt. View Elementary School n/a Subtotal 4.9 Open Space and Natural Areas Acres Description 16 Acreage is not provided for school facilities because they are not managed by the Parks and Recreation Department. Page 44 of 92
Draft 2016 City Kenai Comprehensive Plan 45 May 2016 Rev1 Table 11: City of Kenai Parks and Open Space Blue Star Memorial Greenstrip 1.0 Picnic table and memorial Airport Triangle Greenstrip 0.8 Vintage Air Force jet and flag poles Benco Building Greenstrip 0.3 Open space natural area Scenic Bluff Overlook 1.0 Gazebo and picnic tables Millennium Square FAA Fields 6.3 2 soccer fields Bernie Huss Trail 3.8 Wooded area with 0.4 mile trail, footbridge & 9‐hole disc golf course Kenai Flats Wildlife Viewing Area 17.9 Boardwalk, viewing scope and interpretive display adjacent to the Bridge Access Road Bird Viewing Platform Area 4.8 Elevated viewing platform off of Boat Launch Road North Beach Dunes 20.0 2 elevated stairways with post/chain fence to protect dunes and restroom facilities South Beach Dunes 20.0 Post‐chain fence to protect dunes on south side of River Subtotal 75.8 Special Purpose Areas Acres Description East Kenai Park Trails 15.5 18‐hole disc golf course. 0.75 mile trails, bench Leif Hansen Memorial Park 3.5 Community memorial park with a gazebo, benches, water fountain, veteran’s and mariner’s memorial, town clock, gardens, and picnic tables Erik Hansen Scout Park 6.4 Benches, viewing scope, memorial & interpretive displays Kenai Sports Complex 24.0 Picnic tables, BBQ grills and 4 regulation size soccer fields Kenai Cemetery 3.5 Gazebo and benches Multi‐Purpose Facility 7.3 Bleachers, vendor space, 5 warming shacks, ice (October – March), & ice resurfacer Kenai Recreation Center 1.7 Gymnasium, bleacher, 3 racquetball courts & teen center (operated by the Boys and Girls Club) Cunningham Park 2.2 Bank fishing, boardwalk, benches, picnic table and restroom facilities Kenai Golf Course 119.7 Full service 18‐hole golf course (privately operated) Oiler Baseball Field 10.0 Baseball field and complex leased from the City Public Dock 12.1 170’ dock, gangways, float, 4 launch ramps, cranes, and restroom facilities and showers Subtotal 200.0 Page 45 of 92
Draft 2016 City Kenai Comprehensive Plan 46 May 2016 Rev1 Table 11: City of Kenai Parks and Open Space Total Acreage 358 Acreage managed by the Parks & Recreation Department Page 46 of 92
Draft 2016 City Kenai Comprehensive Plan 47 May 2016 Rev1 4.5.5 Senior Citizen Facilities and Services In response to a growing senior population, the City has actively sought to address the needs of its older residents. The City owns and operates the very successful and popular Kenai Senior Center and Kenai Senior Congregate Housing complex. Staffing for the facilities is provided by 11 employees. A 7‐ member Council on Aging provides advice to the City Council on senior issues. The Senior Center is a community focal point where older adults come together for fellowship and enjoy activities with their peers. The Senior Citizens Department provides senior services, including congregate meals, transportation, personal advocacy, activities, and housing assistance. Under the Title III program, the Center serves the City of Kenai, Salamatof, Kalifornsky Beach, Cohoe, Kasilof, and Clam Gulch. The programs provided serve seniors aged 60 and older from all walks of life. The Center’s service area serves 26% of the total population aged 60 and above in the Kenai Peninsula Borough. The Congregate Housing Facility complex comprises the core of an emergent “area of opportunity” for more senior‐oriented facilities and services. The 40‐unit 40,450 square foot facility was built in 1992 with additions in 1996. The City established an enterprise fund to account for the financing of the Congregate Housing Facility. The Alaska Department of Labor and Workforce Development (ADOLWD) projects continued increases in the senior population on the Kenai Peninsula. By 2045, the percentage of people age 65 or older is projected at 21% of the borough’s population. The number of seniors living in Kenai is likely to increase at the same rate. Cache near Senior Center Kenai Congregate Housing Page 47 of 92
Draft 2016 City Kenai Comprehensive Plan 48 May 2016 Rev1 The American Association of Retired Persons (AARP) concludes that older adults will stay longer in the workforce, continue to be consumers, volunteer, are entrepreneurs in our communities, homeowners, and investors. This means that planning for seniors is critical: housing, transportation, health, public safety, arts and education, parks and recreation, and economic development/fiscal impacts. Kenai values its seniors – not just as an age cohort on a graph, but as contributing members of the community – as workers, consumers, volunteers, investors, entrepreneurs, family, and leaders. Meeting the needs of seniors is a matter of community concern so long‐term residents can continue to live comfortably in Kenai. Seniors have a broad range of housing and service needs. Some need ready access to health care and some cope with mobility limitations. Of particular interest to Kenai’s senior population is improved pedestrian circulation (safer walk signals, separated walking paths, snow‐cleared walkways) in the central area of town. While the City itself has limited resources to dedicate to programs for seniors, it can, play a decisive role by advocating and facilitating initiatives by other public and private entities. Funding for the Senior Center is provided through the City of Kenai, State of Alaska Department of Senior and Disabilities Services, Kenai Peninsula Borough, United Way, USDA, program income, private donations, center rentals and fundraising. At the end of 2012, two assisted living housing facilities were being developed in Kenai. One, located on Forest Drive, was under construction and was expected to open in early 2013. The facility at the former Anchor Trailer Park was in the early planning stage. 4.5.6 Kenai Community Library The Kenai Community Library has continually responded to public needs since its humble beginnings in the halls of the Territorial School Building in 1949. The construction of a new 5,000 square foot facility located on Main Street Loop in 1976 made the library more visible, easier to use and a more pleasant place to visit. In 1986, an additional, 5,000 square foot addition added four sound proof rooms, a closed stack area and activity room. The library catalog and circulation system were automated in 1987, and in 2000 the library website was created allowing users to access the library catalog from home (http://www.kenailibrary.org). The June 2011 completion of the library expansion doubled the size of the building to approximately 20,000 square feet. The new facility includes more seating for adults, a fireplace, a separate children’s room, study rooms, a conference room, and two meeting rooms. With two entrances, the library now provides access to more parking spaces and better access to City Hall. Library staff and volunteers provide a variety of programs of interest to patrons of all ages. Of interest to adults with children are the weekly story times, summer reading program, Page 48 of 92
Draft 2016 City Kenai Comprehensive Plan 49 May 2016 Rev1 and monthly Tween Book Club meetings. The library now has a dedicated area with teen‐oriented activities. Adult programming includes a Book Club, the Writer’s Group, and the Totem Tracers Genealogical Society group. The library collection includes approximately 80,000 books, periodicals, videos, audiotapes, music CDs, DVDs and reference materials. Several special collections include Alaskana, Alaska State documents, genealogy, core collections of mental health and consumer health information, large print books, and books on tape. Several Alaska newspapers are received on a daily basis including the Wall Street Journal, and Sunday editions of the New York Times and the Seattle Times. The Alaska Digital Pipeline link provides access to full‐text newspapers, journal articles, TV and radio transcripts, reference materials, live homework help and access to an online language learning program. The library provides access to the Listen Alaska Plus program allowing patrons to download audio books, music and e‐books. The library is open 60 hours per week with 5 full‐time and 7 part‐time employees that assist the 14,000 registered users. Eight computers are available for patrons to access the internet, electronic databases, the City of Kenai municipal 17 In 2012, the Kenai Convention and Visitors Bureau and the Kenai Chamber of Commerce merged into a single entity called the Kenai Chamber of Commerce and Visitors Center, Inc. code and government sites. A grant from the Rasmuson Foundation enabled the library to offer in‐house lending of laptops to reduce waiting time for computer use and provide more flexibility. The library is a dedicated Rosetta Stone station for the study of foreign languages. 4.5.7 Other Services The City’s Building Department maintains city buildings and performs several administrative functions, including plan review, inspection, record keeping, and permit issuance. The City built a visitor and cultural center in 1992 to encourage tourism in Kenai. The 10,000 square foot facility is operated by Kenai Chamber of Commerce and Visitors Center, Inc. through a facilities‐management agreement with the City.17 The Center houses a permanent collection of historic artifacts, wildlife exhibits and a gift shop. The City leases land for a nominal fee to support organizations such as the Kenai Chamber of Commerce and Visitors Center Inc., the Peninsula Art Guild, the Kenai Historic Society, Peninsula Oilers Baseball Club, Inc., Women’s Resource and Crisis Center, and the Alaska Challenger Center. Page 49 of 92
Draft 2016 City Kenai Comprehensive Plan 50 May 2016 Rev1 The City, along with state and federal agencies and nonprofit organizations, provide many community services. The City supports multiple agencies and public activities through grants including the Kenai Watershed Forum, Oilers Baseball, the Chamber of Commerce and Visitors Center, Industry Appreciation Day, Central Area Rural Transit System (CARTS), Boys & Girls Club, the Economic Outlook Forum, to name a few. Coordinating services to ensure cost‐effective and efficient delivery will be important as public dollars decline. Opportunities to combine services or otherwise improve efficiency, cost‐effectiveness, and quality should be identified, explored, and implemented with the appropriate providers. By state law, the Kenai Peninsula Borough is responsible for local education and property tax assessment and tax collection. The Borough also provides areawide solid waste disposal and emergency management services. The State of Alaska operates and maintains a number of facilities in Kenai. State roads within the City include the Kenai Spur Highway, Beaver Loop Road, Bridge Access Road, Strawberry Road, and Kalifornsky Beach Road. Other state facilities include the State of Alaska Courthouse, District Attorneys’ Office, and Public Defender Agency, Army National Guard Armory, the Kenai Health Center, other social services and employment offices, and, abutting the City, the Wildwood Correctional Facility. There are numerous public recreational lands and facilities owned and operated by the borough, state and federal governments in and near Kenai. Non‐city public and private utilities provide electric power, natural gas, solid waste collection, telecommunications, and satellite and cable providers. Page 50 of 92
Draft 2016 City Kenai Comprehensive Plan 51 May 2016 Rev1 4.6 City of Kenai Finances The City of Kenai continues to maintain an excellent financial condition. The current (FY12) budget projects year‐end balances of $12.0 million (general fund) and $30.5 million (other governmental funds). Kenai’s per capita bonded debt ($271.13 as of June 30, 2011) is one of the lowest of all Alaskan cities with debt, and well below the statewide municipal average ($3,957). Kenai’s low bonded indebtedness partly reflects a long‐standing reluctance to bond for local capital improvements, relying instead on local tax revenues and federal and state grants to fund capital projects. 4.6.1 Expenditures Development, expansion and maintenance of community facilities and services are fundamental to Kenai’s quality of life and to assure positive future growth and a healthy economy. Logical and cost‐effective growth requires adequate infrastructure. The budget planning tool for providing facilities and services, the Capital Improvements Plan (CIP), is one tool to implement the Comprehensive Plan’s goals, objectives and strategies. Existing and future business and residential development will be supported and promoted with adequate infrastructure when fiscally responsible. Well‐planned community facilities and services improve the quality of community life. For FY 2012, the City’s general fund operating expenditures of $13.6 million were allocated as follows: Public safety (46.9%), general government (21.7%), public works (17.1%), and parks, recreation and cultural services (14.3%). Special revenue funds of $6.8 million went for the Airport Fund (39.4%), Water and Sewer Fund (32.1%), Airport Land Sales Permanent Fund (15.2%), the Senior Citizen Fund (11.5 %), and General Land Sales Permanent Fund (1.8%). 4.6.2 Revenues Kenai levies a sales tax (3% in FY 2012) and property tax (3.85 mills in FY 2012). In FY 2011, sales taxes accounted for 70.4% of city‐levied revenues, and property taxes for 29.6%. Several city services (water and sewer, airport) are funded wholly or partly by user revenues. 4.7 Forecast of Economy, Population and Housing Demand Based on the previous two decades, modest population and economic growth for the City can be expected. After the preceding decades of rapid growth, the City of Kenai’s population growth rate slowed to less than one percent yearly after 1990. Similar to population trends, the region’s basic economic sectors – energy industry, fishing/fish processing, and tourism – have experienced moderate growth. As the region grows, Kenai can be expected to continue its role as a trade and services center for the western Kenai Peninsula. Consistent with these economic assumptions, the modest population Page 51 of 92
Draft 2016 City Kenai Comprehensive Plan 52 May 2016 Rev1 growth that the City of Kenai has seen in recent years will most likely continue for the foreseeable future. It should be recognized that a significant discovery of oil and gas reserves could improve the economic outlook of the region. This prospect is possible considering the increase in estimated oil and gas reserves in the Cook Inlet Basin and recent gas development wells within the city boundaries. Increased interest in mining and exploration could also stimulate the local economy. The population of the Kenai Peninsula Borough is estimated to grow by 19.5% between 2009 and 2034, or 0.7% annually (Alaska Department of Labor and Workforce Development 2010). Assuming the same rate of growth for the City of Kenai, the population would be 8,484 in 2030. This growth rate is significantly less than what was estimated in the 2003 comprehensive plan.18 For planning purposes, the estimate of the City of Kenai’s future population and net housing demand uses the 2009 estimated annual growth rate of 0.7% through the year 2035. This growth rate could change with new economic opportunities such as significant discoveries of oil and gas in 18 In the 2003 Comprehensive Plan, the population of the City of Kenai was estimated to grow by about 35% between 2000 and 2020. the Cook Inlet and industrial activities to support an Alaska LNG project. NEED to insert newer tables using KPEDD and DOLWD information – and review estimates for growth – rate, etc. Specifically, it is estimated that Kenai will add about 1,088 new residents by the year 2035 for a total of 8,485 residents, and about 965 additional dwelling units (Table 12 and Figure 6). If actual growth substantially exceeds or lags estimated growth, then population‐based decisions about city development priorities can be adjusted accordingly. Table 12: Estimated Population and Future Housing Needs City of Kenai, 2010 – 20351 2010 (Actual) 2015 2020 2025 2030 2035 Change 2010 ‐ 2035 Population 7100 7358 7624 7901 8188 8485 Net Increase 258 266 277 287 297 1385 Housing Units 3166 3090 3202 3318 3439 3564 Net Increase ‐76 112 116 121 125 398 Page 52 of 92
Draft 2016 City Kenai Comprehensive Plan 53 May 2016 Rev1 Future demand for additional private land development for residential, commercial, and industrial purposes was estimated, based on Kenai’s current population and current land use patterns. By this method, 285 additional acres will be needed to accommodate these future uses. This estimate does not include other private uses or public uses. Table 13 provides a comparison of the estimated demand for residential, commercial, and industrial land uses to the availability of vacant land zoned for each of these uses. The Land Use Plan and its Planning and Zoning Code work together to help promote an orderly overall pattern of land. The Land Use Plan provides for the suitable location of a variety of uses, separates incompatible uses, maintains the quality of existing development, provides a consistent level of services, and creates a stable, predictable setting for future investment. Table 13: Current and Future Demand for Commercial, Industrial, Residential, and Mixed Use Land Type of Use 2012 Acreage 2030 Estimated Acreage In Use Vacant Additional Needed In Use Vacant Commercial 214 178 27 241 151 Industrial 232 209 29 262 179 Residential 1,769 2,740 223 1,992 2,518 Mixed Use 44 49 6 50 44 Note: The estimated future demand was calculated assuming an annual growth rate of 0.7%. The commercial category includes Central Commercial, General Commercial, and Central Mixed Use zones. The industrial category includes Light Industrial and Heavy Industrial. Mixed Use includes Limited Commercial and Townsite Historic zones. These figures represent developable land and exclude acreage that cannot be developed, such as wetlands. The projected demands in the table are based on existing zoning. Page 53 of 92
Draft 2016 City Kenai Comprehensive Plan 49 May 2016 Rev1 The Comprehensive Plan and its subset, the Land Use Plan, provide the City of Kenai with the ability to frame future planning choices that support the community’s vision. The broad purpose of the Land Use Plan is to ensure an adequate supply of land that: Offers a reasonable choice of suitable locations for all essential uses. Separates incompatible uses. Can be efficiently served with public roads, utilities and services. Maintains the quality of existing development. Creates a stable, predictable setting for future investment. With sound land use planning, Kenai can meet the needs of settlement, accommodate new growth, and improve the quality of the already‐built community without compromising its natural setting. The land use plan designations, the land use map, land use patterns and ownership and how this information is used in planning decisions is described in the following sections. 5.1 Land Use Classifications and Land Use Maps The Land Use Plan describes the City’s vision of a generalized desirable pattern of land uses. The Land Use Plan defines the variety of land use types and maps the pattern or distribution of the types. The Land Use Plan does not regulate land use; it is not a zoning ordinance. The Land Use Plan Maps (Maps XX and XX) are generalized descriptions of the spatial distribution of land uses. The Land Use Maps are not the Official Zoning Map. Any changes to the Official Zoning Ordinance or Official Map, future comprehensive plan amendments, and subdivision approvals are to be consistent with the Land Use Plan and Land Use Map per state law. In 2011, the Planning and Zoning Commission reviewed the land use classifications for all areas in the City of Kenai and a revised land use map was approved as an update to the Comprehensive Plan. This 2011 map forms the basis for the 2016 updated Maps XX and XX. Table 14 defines the intent for each of the land use classifications. Each classification describes the types of land Chapter 5: Land Use Plan Page 54 of 92
Draft 2016 City Kenai Comprehensive Plan 50 May 2016 Rev1 use considered generally appropriate or compatible. The land use classifications are not zoning designations. Map XXX depicts the spatial distribution of land uses. MAPS to be updated and renumbered Page 55 of 92
Draft 2016 City Kenai Comprehensive Plan 51 May 2016 Rev1 Table 14: Land Use Plan Classifications Suburban Residential Land Use Classification Suburban Residential is intended for single‐family and multi‐family residential uses that are urban or suburban in character. The area will typically be developed at a higher density; lots are typically smaller; and, public water and sewer services are required or planned. Streets should/ shall be developed to a paved standard and larger subdivisions should/shall provide sidewalks and public areas (parks, open space – included definition in plan). Rural Residential Land Use Classification Rural Residential, because of location or poor site conditions, is intended for large‐lot single‐family low‐density residential development. The area will typically be developed with individual on‐site water supply and wastewater disposal systems. Streets will typically be constructed to rural street standards (i.e., gravel) and sidewalks will not be typically included in the subdivision design. Commercial Land Use Classifications Consider creating two classifications to address potential multiple city center developments and the linear pattern currently evolving. General Commercial is intended for retail, service, and office businesses that serve Kenai and the larger region. General Commercial is appropriate for location along the arterial road system. It is also intended to support smaller‐scale businesses. Central Commercial is intended for retail, service, and office businesses at a more compact and denser scale; locations are accessible and convenient to both motorists and pedestrians. Residences may be appropriate among commercial uses in these central areas. Non‐commercial uses such as public offices, institutional uses and residences may be appropriate among commercial uses. Industrial Land Use Classification Industrial is intended for a variety of light and heavy industrial uses such as: warehousing, trucking, packaging, distribution, production, manufacturing, processing, marine‐related industry and storage, and similar industrial activities. Public water and sewer; utilities; and safe, convenient vehicular access are required or planned. Because uses generate noise, odors and emissions typically at a higher level than other land uses, measures should be taken to minimize conflicts with adjacent non‐industrial uses. Buffers between industrial uses and adjacent non‐industrial uses are desirable. The Kenai Municipal Airport and lands reserved for the airport and its future expansion are included in this classification. Should residential uses (other than dwellings required for facility) be considered appropriate? Institutional Land Use Classification The institutional district provides an area in which government and tax exempt institutions can offer social and cultural amenities to the citizens of the community. The primary use is public, non‐profit, and quasi‐public uses including government offices and facilities, schools, churches, and other community‐service oriented facilities. Consider eliminating and including institutional uses as appropriate in Suburban Residential, Rural Residential and Commercial areas? Parks, Recreation and Open Space Land Use Classification This classification includes public recreation facilities, as well as undeveloped lands intended to provide for conservation of natural or scenic resources. These areas can be used for a variety of passive and active outdoor and indoor sports and recreational activities. Areas that may provide future natural resource development should be included in this category. Page 56 of 92
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Draft 2016 City Kenai Comprehensive Plan 53 May 2016 Rev1 5.3 Existing Land Use and Ownership Patterns This section describes the major land uses and ownership patterns in the City and some of the opportunities and challenges for these areas. This discussion provides background for the issues, goals and objectives in Chapter 6. History, natural features, land ownership, and transportation improvements have shaped Kenai’s development and land use patterns. The historic townsite was constructed in a strategic area overlooking the mouth of the Kenai River. As the town developed, wetland and floodplain conditions strongly influenced the location of road corridors and settlement areas. War‐time construction of the airport just north of the original townsite limited opportunities to expand what would be a logical expansion of the city center. As a result, Kenai’s core business area developed east and west along the Kenai Spur Highway. Later construction of the Warren Ames Memorial Bridge/Bridge Access Road gave the Kalifornsky Beach area south of the Kenai River a road connection to the rest of the City and spurred its development. Maps XX through XX (Aerial Imagery, Wetlands and Floodplains, and Existing Land Use) illustrate the land use patterns that have resulted from the interplay of Kenai’s site characteristics and development history. 18 For purposes of determining development, parcels with improvements valued at $10,000 or more were considered developed parcels. Kenai is fortunate to have an ample inventory of privately owned, vacant land suited for future demands. Kenai encompasses about 28.5 square miles and includes 18,231 acres of land and water. As of 2012, 20% (3,624 acres) of land inside the city was either privately or publicly developed. Approximately 14,607 acres lie undeveloped, or in some cases, vacant.18 Much of the vacant land is either unsuitable for development (wetlands or floodplains) or is publicly owned (city or State of Alaska) and not available for private development. The publicly‐owned lands have significant habitat, scenic, recreational and natural open space values. Some key features of Kenai’s development pattern are: The main road routes (Kenai Spur Highway, Beaver Loop Road, and Kalifornsky Beach Road) follow well‐drained developable upland corridors. The city’s dominant spatial land use pattern has been linear growth along the Kenai Spur Highway and the Bridge Access Road. The configuration of developable land and road corridors has produced a linear city form with a very high ratio of highway road frontage to settled area. Page 58 of 92
Draft 2016 City Kenai Comprehensive Plan 54 May 2016 Rev1 Residential development is dispersed along the main road routes in several urban and semi‐suburban neighborhoods defined by natural features and transportation access. Small‐scale commercial development has emerged at several spots along the highway and secondary state roads. Developing residential neighborhoods where underused facilities such as roads, water and sewer, fire/EMS, are already in place or nearby makes full use of existing infrastructure and avoid the cost of new facilities. Similarly, commercial and industrial uses require supporting infrastructure. Highway‐oriented, auto‐dependent commercial development along the highway uses large amounts of land spread out in linear form over long distances. The Kenai Spur Highway is built primarily to carry traffic between cities and through regions. As Kenai spreads out, more local traffic ends up using the Kenai Spur Highway. This increased traffic congestion is not consistent with the “through” function of the highway where traffic should move at moderate to high speeds. The congestion makes it difficult for people and goods to move through the areas to get to their destinations. The spread‐out, linear pattern of development also makes it unsafe and inconvenient to move among businesses without driving from one business to another. Commercial services, organized in this fashion, are very difficult, if not impossible, to access by foot. People that do not drive, including younger and older populations and lower‐income residents, have very limited means to get to these services. Where feasible, infill and the reuse of vacant or underused commercial and industrial properties with existing infrastructure is generally more economical than development that requires new infrastructure. Contiguous development costs less to serve than dispersed development. For example, utility costs increase as the separation between developments increases. Costs likewise increase as the distance from the existing service hook‐ups increases. Contiguous development near existing services makes best use of public development expenditures. Depending on the particular financing arrangement, such as a Local Improvement District, residents in compact, more contiguous developments may subsidize sewer and water service for those in less developed areas. Most undeveloped land in the City is wetlands or floodplains, with low development potential but high value as habitat, natural areas, or open space.Page 59 of 92
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Draft 2016 City Kenai Comprehensive Plan 57 May 2016 Rev1 5.3.1 Land Ownership Over 66% of the land in the City of Kenai is government owned, about 30% is in private ownership and 4.5% is in Native ownership. Table 16 and Map XX illustrate land ownership patterns in the City. 5.3.2 Suitability for Development Local natural features have greatly influenced the settlement patterns in the community with most development occurring on well‐drained sites along highway corridors. Kenai has a variety of lands that are appropriate for development. Of Kenai’s 18,231 acres, about 3,624 acres are already developed.19 Another 3,671 acres are vacant. Approximately 51% of vacant land is in private ownership, outside of wetlands and floodplains, and may be suitable for development (Map 10). Access may limit development in some areas. Much of Kenai’s land base, about 10,600 acres, is publicly owned and classified as wetlands or floodplains. The wetlands are concentrated north of the developed Kenai Spur Highway corridor, north and south of Beaver Loop Road and along the Kenai River. The floodplains are situated along the Kenai River and minimal development 19 Developed acreage was calculated for entire parcels with development valued at $10,000 or more. has occurred in these areas. While floodplains have limited potential for future development, they have a high value as natural areas and may support some low‐impact, low density uses. Kenai is fortunate to have an ample inventory of privately owned, vacant land suitable for development. Based on existing development (residential, commercial, and industrial), and the gross supply of undeveloped, privately‐owned land, there appears to more than adequate land available for development through 2030. Table 16. Land Ownership Owner Acres Percent Private 5,485 30.4 State 6,424 35.3 City 4,829 26.2 Borough 852 4.7 Federal 3 0.0 Native 458 2.5 Native Allotments 180 2.0 Total 18,231 100.0 Source: Alaska MapCo (Kenai Peninsula Borough GIS) Page 62 of 92
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Draft 2016 City Kenai Comprehensive Plan 59 May 2016 Rev1 5.3.3 Business District The business district (Map 13) encompasses an area of commercial development along the Kenai Spur Highway and the mostly undeveloped area adjacent to the Bridge Access Road and the Spur Highway known as Millennium Square. The City’s dominant spatial pattern – linear growth along the Kenai Spur Highway – suits local ground conditions, but it results in a weak, poorly defined city center. The commercial areas in the business district include aging businesses as well as large, new retail outlets. The development of the Millennium Square (Map 14) could be an integral part of redefining the business district. This area, formerly known as the Daubenspeck Tract, encompasses several irregularly shaped parcels totaling over 21 acres. Millennium Square is the last large city‐owned parcel of undeveloped land in the city’s business district overlooking the Kenai River. This site provides multiple opportunities for development. The Kenai Economic Develop Strategy (KEDS) Committee developed one vision of the future development of Millennium Square as shown in the artist’s conceptual drawing (Appendix C). Page 64 of 92
Draft 2016 City Kenai Comprehensive Plan 60 May 2016 Rev1 5.3.4 Kenai Townsite Historic District The City of Kenai created the Kenai Townsite Historic District in 1993 (Map 15), comprised of 34 properties in the traditional townsite located on the bluff above the Kenai River. While locally significant, the townsite does not meet the standards for a National Register Historic District (Elliott 1996). The Church of the Assumption of the Virgin Mary, however, is listed on the National Register of Historic Places, and other properties in the Historic District may qualify for listing. The district’s buildings span Kenai’s evolution from its origin as a Dena’ina village through the Russian settlement Page 65 of 92
Draft 2016 City Kenai Comprehensive Plan 61 May 2016 Rev1 period to today’s mix of old and new buildings. Unfortunately, many of the district’s oldest, most historic buildings were lost due to fire, demolition, or neglect before the City created a special zoning district and ordinance to conserve the old townsite. The purpose of the historic district is to manage new development and building alterations to protect and enhance the district’s historic character. All construction in the district is reviewed for compliance with development criteria established by the 1993 ordinance. Residential and business uses are regarded as desirable and compatible mixed uses in this district. During development of the revision to this Comprehensive Plan, the Kenaitze Indian Tribe expressed an interest in developing a program to document the Dena’ina place names in the Historic District and other areas of the community. Such an initiative would provide a valuable addition to the Historic District. The Kenaitze Indian Tribe broke ground on a new facility in the historic townsite during 2012. The 52,000 square foot Dena’ina Health and Wellness Center will be located on approximately four acres of land owned by the Tribe (Figure 7). St. Nikolai Memorial Chapel in the Historic District Page 66 of 92
Draft 2016 City Kenai Comprehensive Plan 62 May 2016 Rev1 As the uses in the Townsite Historic District evolve, a review of the zoning requirements may be useful. New guidelines may be needed to encourage development while protecting the historic qualities of the district. It may be also desirable to revisit the standards to determine if the district now meets the guidelines for the National Register of Historic District. 5.3.5 Residential Neighborhoods The natural terrain, early settlement, and a single highway route shaped the pattern of early residential development in Kenai. Today residential development has expanded beyond the highway and main arterial roads. Figure 7: Conceptual Design of Dena'ina Wellness Center Residence in Central Commercial District Page 67 of 92
Draft 2016 City Kenai Comprehensive Plan 63 May 2016 Rev1 Kenai has a large inventory of vacant residential‐zoned tracts that provides an opportunity to plan for subdivision and development. Many of these tracts are already served with improved roads, water and sewer, and other utilities. Some of the residential lots have gone undeveloped because they are smaller than preferred. It may be possible to consolidate and replat some of the smaller lots to make them more marketable. As noted earlier, promoting infill development on vacant improved lots is a desirable goal to achieve efficient land use and optimal use of city infrastructure. Some of Kenai’s residential subdivisions lack desired amenities such as neighborhood parks, better neighborhood access by foot to local schools and play areas, paved streets, city water and sewer, street lighting and landscaped buffers from incompatible uses and traffic. Beaver Loop Road is a rural area with scenic vistas, natural open space, and a low‐density residential lifestyle with a short drive to city services. The City is seeking funding to widen the road shoulders and develop bike paths in this area. This proposed development and the phased expansion of the water and sewer infrastructure, including expansion of the water treatment facility, may encourage growth in this area. Much of the vacant property in the Beaver Loop area is affected by wetland or floodplain conditions, and may not be suitable for uses more intense than rural residential development. In the late 1970’s, construction of Bridge Access Road and Warren Ames Memorial Bridge opened the Kalifornsky Beach Road area for semi‐urban settlement. Better access has fostered development of attractive, low‐density housing with onsite water and sewer facilities. Kenai residents place a high value on residential neighborhoods that are safe for all ages and located near important community facilities such as schools, recreational facilities, the library, parks, government services, and commercial areas. 5.3.6 Commercial Land Use Kenai’s role as a major trade and services center for the Kenai Peninsula generates local investment, employment, and sales tax revenue. In addition to providing local citizens a varied mix of shopping opportunities, much of the market base lives outside Kenai. Commercial development has occurred in several places within the community with the major development corridor along Kenai Spur Highway, Bridge Access Road, and in the Business District (Map 13). Businesses prefer to locate in areas where they will be highly visible to motorists. Page 68 of 92
Draft 2016 City Kenai Comprehensive Plan 64 May 2016 Rev1 As the City of Kenai business district has shifted east, some of Kenai’s older business areas are presented with economic challenges. Retail marketing trends, particularly the trend towards big‐box retail stores, have weakened some established businesses and forced others to adapt. This trend poses challenges to the success of Kenai’s business sector and the community’s appearance. Local residents have expressed a strong desire for increased occupancy and improvements to the appearance of older commercial buildings. 5.3.7 Industrial Land Use Existing industrial land uses in Kenai total about 433 acres, and another 720 acres are vacant and zoned for industrial uses. While the current economic outlook does not indicate a demand for large industrial sites in the near future, maintaining the viability of existing industry is a land use and economic priority. Currently, the chief industrial uses are marine‐oriented (e.g., fish processing, upland storage, fuel storage, marine repair, and recreational fishing), aviation‐related (e.g., aviation support services and cargo storage and transfer), oil field support services (e.g., welding, training, and fabrication), and gravel extraction. The decline of the commercial fishing industry has affected operations of some fish processing plants. Some processors have adapted by producing fresh fish products (Alaska Wild) rather than canned fish. In 2011, the City of Kenai received a legislative appropriation of $761,650 to pursue development of an industrial park adjacent to Marathon Road. An engineering firm developed a conceptual layout for the 42‐acre industrial park which will encompass 20‐25 lots. During April 2012, the preliminary plat was approved for the site and construction is expected to begin during the summer of 2013. The majority of companies expressing interest in the facility represent the oil and gas industry which demonstrates a revitalization of this industry on the Kenai Peninsula. While industry is expected to remain a minor land use, Kenai should reserve its best‐located industrial‐zoned tracts for future industrial uses that would not be suitable for residential or commercial zones. Such a strategic outlook to the future will allow Kenai to take advantage of opportunities for future development. The availability of local gravel sources plays an important role in the encouragement of development. Historically, gravel extraction has been allowed as a conditional use in rural areas, particularly off Beaver Loop Road. Local sources of gravel and fill materials are economically advantageous, but there is potential for conflicts between Page 69 of 92
Draft 2016 City Kenai Comprehensive Plan 65 May 2016 Rev1 gravel extraction and transport and other nearby uses, particularly in residential areas. The City’s conditional use and subdivision review processes can be effective tools to require site reclamation and minimize negative impacts from gravel operations. Mitigation plans that accompany permits address impacts such as dust, noise, road safety hazards, drainage, groundwater degradation, and other impacts related to the surrounding environment. 5.3.8 Parks, Recreation and Open Space Land Uses There are 358 acres designated by the City for parks, recreation and open space, which far exceeds the National Recreation and Park Association guidelines for parks and open space acreage (see Section 4.5.4 for a description of areas managed by the Kenai Parks and Recreation Department). In addition, state and federal lands in and near the City have also been designated for these purposes, including areas adjacent to the Kenai River. The term “open space” includes those areas managed for parks and recreation, areas zoned for conservation, and undevelopable areas. These areas provide outdoor recreation opportunities, visual and sound buffers and habitats for fish and wildlife. For example, in addition to its habitat functions, wetlands provide flood control and they act as a natural water purification system. Establishing corridors between designated open space areas is important for wildlife migration and to retain options for future trail expansion. In addition to the aforementioned values, open space can enhance nearby property values. In addition to areas designated for recreation and open space, some areas provide de facto open space because of incompatibility with other uses. For example, wetlands, stream corridors, and utility corridors are not suitable for development and can provide a form of “buffering”. Page 70 of 92
Rich Koch opened meeting with introductions and overview of today’s meeting agenda.
Elizabeth Benson presented purpose of meeting and the proposed approach (guide to how to update
Chapters 1-4) for updating the plan. Also gave an overview of the role of planning.
Participants offered comments on the proposed approach (guide handed out) and proposed schedule.
These were recorded digitally and on flip charts.
Participants’ comments from the flip charts are organized below by commenter, topic, and comment.
TOPIC COMMENTER COMMENT
Proposed Approach/Guide to Creating a 2016 Plan
Elizabeth Benson Reviewed guide for proposed approach to creating 2016 plan.
2013 plan data Henry Knackstedt Use 2013 data. City Council specifically directed that the 2013 data be used in
the new plan. EB confirmed that yes we would be using the 2013 data.
2013 plan comments Tim Navarre Use comments from 2013 plan process. Everyone participating in update
should get a copy of the draft 2013 plan. EB and MK confirmed that yes we
have these comments and handed out copies of the 2013 plan (draft/not
adopted).
History about 2013 plan
effort
Bob McIntosh City Council decision not unanimous to used 2013 for update. Public rejected
2013 by referendum.
Ken Peterson Some residents have stated they want Kenai to remain static. We need to
move forward. We need to keep this perspective in mind from the 2003 plan
to the 2011 and 2013 updates, which were moving to the future-ahead. If
majority wants to stay static then we need to know.
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TOPIC COMMENTER COMMENT
Attendance at Town Hall (TH)
#1
Richard Kelso People not here today because in the past they participated and the plan
didn’t address their concerns. They do not trust the process. Concerned that
past TH meeting comments and information doesn’t get lost in the 2016
update process.
Use of 2013 Plan Table of
Contents (TOC).
Tim Navarre Need to clarify that we are using the TOC from the 2013 plan and not the 2003
plan. Yes we are using 2013 TOC.
Title of new plan – clarify. Tim Navarre Clarify title of new plan – should it be called “Kenai Plan 2016”? Update?
Ken Peterson Call it 2016 Plan
Henry Knackstedt Call it 2016 Plan. Clarify that today’s meeting purpose is to review Ch. 1-4 from
the 2013 Plan – not on the agenda. Make sure public knows what is being
discussed. (Note: public notice did state that Ch. 1-4 2013 Plan would be
reviewed).
Brian Gabriel Keep title simple – is it to be called 2016 Plan or 2030 Plan? Confusing title.
Do we refer to a date in the future like 2030? Or 2025, for example? Agree on
a clear title.
Use 2013 background except for goals.
Bob McIntosh Public interested in general concepts – title should reflect people’s/City
Council’s preference and legal input. Concentrate on substance so that it’s not
confusing.
Response to Ken P.re remaining static: People want the atmosphere in Kenai to
be retained. How do we develop economically – e.g. marijuana store?
Likes 2013 TOC. Focus on public input.
Using 2013 Plan & Previous Katie Quinn (KSRM) There were issues with the land use plan in 2013. MAPTS subdivision the
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TOPIC COMMENTER COMMENT
Neighborhood Concerns center of controversy. Plan well and good but what about neighborhood
concerns? How are these managed in a plan?
EB and MK respond – there are a lot of ways to manage land use. The land use
table in a plan is a guide for long term planning. Even if current land uses do
not match with proposed uses for that lot/area, a rezone is not forced on that
property.
2013 Plan Process & using
goals from that plan
Richard Kelso 2013 goal Quality of Life very specific – not so in 2003 plan. EB respond – we
will look at 2013 goals and 2003 goals at next TH meeting.
Jeff Twait Will look at both sets of goals at next meeting. Get back on track and review
Chapters 1-4 now.
Getting word out to public Tim Navarre Advertise next meeting and invite public to help develop goals.
City Council wants both documents here for participants to refer to.
Today’s agenda and review
of background Chapters 1-4.
Tim Navarre EB asks – should we agree to the proposed table/guide approach (heads nod)?
What about going through the Chapters 1-4 in detail today? Should we do
that?
Yes – participants want to go through Chapters 1-4 in 2013 Plan today.
Chapters 1-4 2013 Plan – review by section and sub-section
Chapter 1 Introduction
1.1 Purpose of the
Comprehensive Plan
Elizabeth Benson Referred to Tim’s comment about combining “Kenai’s Community Identity”
with Mission Statement sections.
1.2 Goals of the Plan Elizabeth Benson Reviewed this section which summarizes the plan goals. Chapter 6 provides
more details on goals. Suggested that goals are broad, that group should look
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TOPIC COMMENTER COMMENT
at 2003 and 2013 goals side by side. Land use goals have to be reviewed again
with the public. Add more specifics about public facilities and services.
Describe difference between transportation and transit. Describe services city
provides and those provided by others such as state, federal government,
borough. Describe services city provides and ones they do not (e.g. provided
by others such as State, Feds, KBP).
Transportation Goal Bob McIntosh City does not have transit system. Senior Center provides some transit. There
are CARTS/cabs for local transportation.
City can do more to develop regional transportation.
Parks & Recreation Goal No comments
Natural Hazards Goal Elizabeth Benson &
Matt Kelley
Integrate new Hazard Mitigation Plan information – new HMP will be available
by mid-July 2016.
Environmental Resources
Goal
No comments.
General comments on
Chapter 1 Introduction
Tim Navarre Page 2 and page 5 need to be rewritten/combined to address these two similar
topics (e.g. mission statement)
Henry Knackstedt 8 goals – do we need any other goals? Broader goals? Are they listed in order
of importance?
Brian Gabriel Possibility of revisiting this after 2013 Plan Chapter 6 (Goals and Objectives)
revised. EB suggest that we consider moving the goals and objectives up in the
plan TOC; ahead of Chapter 4 and Land Use.
Tim Navarre Page 2 and page 5 need to be rewritten/combined to address these two similar
topics (e.g. mission statement)
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TOPIC COMMENTER COMMENT
1.3 How to use this Plan This section will be adjusted as the plan TOC is changed.
Section 2 City of Kenai
2.1 Powers of the City Elizabeth Benson Powers of the City – comments on the planning and zoning commission
section. Verify with administration re any changes.
Tim Navarre Suggested combining “Kenai’s Community Identity” with Mission Statement
sections (pages 1 and 5).
2.2 Planning and Zoning
Commission
Bob McIntosh Add more information about P&Z responsibilities and how comments by the
public are addressed in their decisions. Do neighbors have chance to affect
decision? For example, pot store in neighborhood and how should P&Z handle
this action?
Elizabeth Benson Caution that because P&Z and CC members are here today, we should not
discuss project. It is still in the review process and there are individual
property rights in question. Jeff –
Jeff Twait P&Z apples conditions of approval to address potential impacts/concerns.
Ken Peterson There is an appeal process of 15 days to the City Board of Adjustment.
Bob McIntosh Commissioner comments reflect the need for public input on the Plan. Public
needs to know the importance of the plan.
2.3 Context for Planning Tim Navarre Assumes if the City Administration wants changes they would be presented.
Elizabeth Benson Land use table will be updated to reflect public input and previous plans.
Henry Knackstedt Airport Master Plan to be completed soon – need to incorporate that
information.
Elizabeth Benson We will use Airport Master Plan, new Millennium Square Feasibility Study,
HMP and other documents to update the table. The 2013 plan will be added
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to the list of plans to provide historical context to readers.
Chapter 3 Native Community
Elizabeth Benson EB and MK to coordinate with local Native community, both for-profit and non-
profit, to confirm contents in this chapter. Basic background not changed.
Chapter 4 Background Information
Elizabeth Benson Statistical information needs to be updated. Setting description
confirmed/reworded. MK – make HMP appendix to the new plan – been
updates on bluff erosion project. EB – background information drives goals and
policies/the foundation upon which they are built.
4.1 Settlement History
4.2 Setting Elizabeth Benson Setting needs to be reworded/updated as appropriate.
4.2.1 Climate &
Environment
No comments.
4.2.2 Natural Hazards Matt Kelley HMP will available mid-July 2016 and we can use that data for this section.
There have been updates on bluff erosion for example.
4.3 Population, Education,
Housing
Elizabeth Benson Proposing to use state agency Department of Commerce, Community &
Economic Development (DCCED) data for population, housing, economy. 2010
census used in 2013 and it won’t be updated until 2020. Confirm data with
local Kenai Peninsula Economic Development District (KPEDD).
Jim Glendenning Need to recognize employment and economic opportunities that will come
from the Alaska LNG Project (AKLNG).
4.5 Economy
4.5.1 Employment & Elizabeth Benson Going to use state agency Department of Commerce, Community & Economic
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TOPIC COMMENTER COMMENT
Income Development (DCCED) data for population, housing, economy.
4.5.2 Business Indicators Elizabeth Benson Need to consult with local Chamber, KPEDD, and other groups (realtors, etc.)
to update indicators.
4.5.3 Oil & Gas Industry Elizabeth Benson
Jim Glendenning
Describe potential employment and economic impacts that could result from
the Alaska LNG Project (AKLNG).
4.5.4 Commercial
Fisheries & Seafood
Processing
Elizabeth Benson Update as appropriate describing local activities. Review state and KPEED and
other sources for information and forecasts.
4.5.5 Visitor Industry Henry Knackstedt Update as appropriate describing local activities. Review Kenai Peninsula
Tourism Marketing Council, Chamber of Commerce, KPEED, and other sources
for information and forecasts. Refer to City’s Dipnet Fishery Report for latest
information and forecasts for personal use fishery, city dock use.
Tables Brian Gabriel Streamline tables so that occupational type matches the actual occupation.
With new types of agriculture (e.g., marijuana), it may be important to address
this as an economic occupation.
EB - Census uses standardized categories that don’t necessarily make sense.
4.5 Public Facilities &
Services
Elizabeth Benson Describe facilities and services provided by the city and those not provided.
Update descriptions as needed. Highlight those services the city provides that
are used by non-residents. E.g., animal control, senior center, library.
Consult with city administration/public works for background information,
issues.
Include maps of existing services.
4.5.1 Water & Sewer
Systems
4.5.2 Public Safety
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TOPIC COMMENTER COMMENT
4.5.3 Transportation Elizabeth Benson Describe transportation facilities and services and transit.
Henry Knackstedt Include information from latest Airport Master Plan.
Jeff Twait Airport is a very important economic engine to the city.
Mary Bondurant City present the 2016 Plan process to the Airport Commission – April 14, 2016?
4.5.4 Parks & Recreation Rachael Craig Not enough emphasis on Kenai services provided – such as library, parks, etc.
Matt Kelley We will use the latest Millennium Square feasibility study from KOOL in the
2016 plan.
4.5.5 Senior Citizen
Facilities & Services
Rachael Craig Important to remember that the Peninsula is becoming a “retirement” area.
Families are bringing their parents here. It’s a growing population. Senior
center service not just Kenai seniors but those in the region.
Bob McIntosh Seniors made their contribution to this community. Senior very important and
the community is what it is today because of the work of seniors.
4.5.6 Kenai Community
Library
Rachael Craig Library services not just city residents, but the entire area.
4.5.7 Other Services No comments. Add as identified.
4.6 City of Kenai Finances Elizabeth Benson Update with city administration.
4.6.1 Expenditures
4.6.2 Revenues
4.7 Forecast of Economy,
Population & Housing
Demand
Elizabeth Benson Work with P&Z commission, City Council, administration to develop
assumptions about growth and how to measure/forecast it.
Talk to local experts re housing growth/decline, issues, forecasts.
Jeff Twait If AKLNG comes, it could create potential to benefit city.
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TOPIC COMMENTER COMMENT
Elizabeth Benson Land ownership can drive economic development – owners decide when they
want to develop their land, assemble parcels, sell, etc.
Proposed Plan Development Schedule
Plan Schedule Matt Kelley Reviewed proposed schedule for next TH meeting on April 16, 2016. Go over
next sections in plan – at this time considering discussing land use but may do
goals and objectives.
Future THs schedule is TBD. Likely there will be a third TH.
P&Z commission worksessions likely to occur in May.
P&Z commission public hearings likely to occur in June-July.
Be sure to fill out comment sheet.
Use city’s email address to comment as well.
Getting the word out to
involve the public in future
meetings/planning process.
Ken Peterson Good advertising for this meeting. KSRM did good job. Like to see mail out.
Matt Kelley Working with local Postmaster to create bulk mailer to not just land owners
but all residents (i.e. apartments, businesses).
Richard Kelso Like to see information from public from 2013 used in this plan. People in his
neighborhood feel like they weren’t heard last time and won’t be heard this
time. People drop away. Please listen to the people.
Elizabeth Benson Asked Richard for suggestions on getting them involved.
Richard Kelso Act in a trustworthy fashion – e.g. Walker Lane Rezone
Henry Knackstedt Be careful with airport property – it has a distinct purpose and obligation to
the Federal Aviation Administration (FAA).
Bob McIntosh Need to build trust. Administration, City Council, P&Z Commission encourage
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TOPIC COMMENTER COMMENT
public input. Provide commitment up front. Listen to people because they
have the final say (i.e. voter approval). Should all work together.
Matt Kelley City Council has the final say on whether to commit to a voter approval of the
plan. Possibly go to the Borough Assembly as well.
Citizen committee can be formed by anyone and they can come to City Council
and P&Z meetings. Committee would be independent of the city and cannot
rely on city staff for administrative support.
Jeff Twait Hopefully get to a place of community trust. Get people engaged to make it
work.
Richard Kelso People need to be part of the solution. Hard to get involved. Lack of trust.
Commission appointments are political and hard to get. Wants to go in the
right direction.
Henry Knackstedt Mayor does not appoint commissioners. Council votes to confirm new
members.
Jim Glendenning Title 29 outlines appointment process. Appointed by the council but not their
“minions”.
Closed Meeting at approximately 12 noon
Matt Kelley and Elizabeth Benson
Thanked everyone for their participation and comments.
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Matt Kelley opened the meeting with introductions and presented a matrix that included 2003 and 2013
Planning Goals and Objectives.
Elizabeth Benson gave an overview of the definition of a goal v. objective v. policy. Elizabeth assisted
Matt with a facilitated discussion of the matrix.
Participants offered comments and suggestions on the 2003 and 2013 goals and objectives. These were
recorded digitally. Melissa Kelley recorded comments on flip charts and Kayla Feldman assisted with
audience participation.
Participants’ comments from the flip charts are organized below by commenter, topic, and comment.
TOPIC COMMENTER COMMENT
Introductions, Purpose of Meeting
Agenda Matt Kelley Reviewed the agenda and purpose of the meeting.
Handout: Matrix of 2003
and 2013 goals, objectives
and policies
Matt Kelley Described the handout and explained how it was organized.
Definition of terms – goals,
objectives, policies Elizabeth
Benson
Reviewed definition of goals, objectives and policies, their purpose, and how they
differ
Goals
Goal order Glenese Pettey Are goals listed in order of priority in the plans?
Broad v specific goals Kellie Kelso 2013 goals are broad – would like clarification and more specificity e.g. 2003
goals 1 and 2
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TOPIC COMMENTER COMMENT
Broad v specific goals Mike Christian Prefers specificity in goals – 2003 plan gives direction
Broad v specific goals Christine
Hutchison
Prefers some broadness in goals so new things/imagination can work
City center Henry Knackstedt There are a number of city centers – use 2013 goal #1 and clarify city centers
City center Matt Kelley Specific goals developed for areas in the city that were “city centers”
City center Mayor Pat Porter Lief Hanson Memorial Park is a center spoke/city center
Broad v specific goals Laura Sievert 2013 goals 1 and 2 too broad; 2003 goal 2 necessary; prefers specificity
Broad v specific goals Matt Kelley Need to define what is meant by “quality of life” (2013 goal 1)
2013 and 2003 plan goals Glenese Pettey Combine goals 1 of 2003 with 2013 plan
2013 and 2003 plan goals Rachel Craig Agreed – see her notes on what goals to combine between the 2003 and 2013
plan
Objectives, Policies
Definitions Christine
Hutchison
Need definitions of what is a goal, objective, policy
City center Ken Peterson Map needed that describes city center – boundary to boundary
City center Mike Christian There is no single “city center” – there are 3
City center Shawna Norton Specific city centers need connectivity between them; how can they work
together to utilize connections. Should city encourage more city centers – by high
school, Beaver Loop, etc.?
Old Town Kenai Barbara Ruckman Old Town Kenai – need to keep heritage; maintain historic cabins and other
buildings. Keep and maintain historic area/district.
City center Richard Kelso Focus and develop city center – it’s unique; draw tourists; limit sprawl
Millennium Square Pete Hanson Millennium Square development – tourism and convention center draws
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TOPIC COMMENTER COMMENT
meetings from all over Alaska for meetings. We have abundant activities for all
ages. Tourism brings jobs.
Airport Barbara Ruckman Airport – need to protect/expand. Loss of airport would be detrimental.
City centers Tim Navarre Multiple city centers – define and describe what development city needs/wants in
each city center. E.g. Millennium Square and connectivity to other city centers.
Definitions Christine
Hutchison
Are definitions incorporated into the plan or a separate document?
Annual Report – Plan Carol Baumer Is there an Annual Report published describing the progress made on planning
goals, objectives, and policies?
Commercial v. Residential Richard Aber No distinct commercial zones. Preserve sanctity of residential areas. Limit
commercial take-over of residential areas. Prioritize residential areas as
protected. Keep commercial from “creeping in”.
Comprehensive Plan
requirements
Glenese Pettey Originally thought a comprehensive plan was arbitrary but has since learned it is
mandated by state law.
Residential and office Debbie Adamson Business office next to residential areas is a problem – sets a precedent and
neighborhoods can disintegrate. Limit business offices in residential areas.
Business in a residence not the same as residences and offices.
Neighborhoods Kellie Kelso Neighborhood should have limited commercial development. Have focus of
commercial development in city centers.
Industrial parks Richard Kelso Consider creating/allowing industrial parks off highway where there is
infrastructure.
Economy drives uses Christine
Hutchison
Boom-bust economy a factor in development.
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TOPIC COMMENTER COMMENT
Public lands – city legacy Richard Kelso What is city’s legacy? Repercussions will result from what is preserved or
developed. Public land (i.e. city ownership) preserved for future use and
enjoyment. What about where commercial meets residential uses? Is that mixed
use?
Parks Barbara Ruckman Parks important – Lief Hanson Memorial and the bluff.
Commercial on major
streets
Driveway access
Tim Navarre DOT has certain rules about driveway access to major roads (sometimes it’s first-
come-first-serve). Take more proactive role in regulating strip development?
Consider creating/requiring dual entrances between neighboring parcels. If
parcels are 5 acres or larger, they can ask for their own zone.
Residential properties – there are no restrictions on tree-cutting; no buffering
requirements or restrictions/regulations re tree-cutting or clear-cutting one’s own
lot. Consider buffer requirements where residential backs up to commercial and
industrial.
Airport lands Richard Aber Airport land – city sold land with buffer strip/trees. Concerned with clear cutting
buffer strips between residential and commercial.
Buffer strips Christine
Hutchison
How are buffers enforced and monitored? Through permitting/building permits.
PINK Pat Faulkenberg PINK zone – Protect Individual Neighborhoods in Kenai. Neighborhoods need a
say on development.
Required v Preferred? Howard Hill Objectives/policies should require not say preferred
Buffer zones? Allowable
uses
Mayor Pat Porter “Encourage buffers” too weak – consider requiring it.
Clear cutting trees Pat Faulkenberg Concerned about duplexes next to where land was clear-cut for building were not
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TOPIC COMMENTER COMMENT
completed.
Residential and commercial Tim Navarre Comprehensive Plan does not set the rules – it’s a plan to move the city in a
direction. Provides ideas that inform ordinances and rules.
Residential and commercial Kit Hill Neighborhood Residential, Neighborhood Commercial, and Neighborhood
Institutional: need design guidelines. Concerned with parcels being rezoned.
Comprehensive plan
requirements
Christine
Hutchison
Comprehensive Plan – is it an enforceable document? City Council and P&Z are
enforcement.
Public lands Richard Kelso Public improvements - city-owned lands: things dedicated to conservation need
to remain protected.
Airport, dock Christine
Hutchison
Is there a new Airport Master Plan? Yes – we are using it for the comprehensive
plan. There is an updated Airport Layout Plan. Re docks – does the plan identify
policy re docks and include definition?
Dock Matt Kelley Tidelands - city owns tidelands; leased out; not addressed in comp plan presently
Educational zones? Mayor Pat Porter Educational zones? Where should zones be?
Bike path connections Glenese Pettey Need bike path connection across Bridge Access Road – designated as path.
Trails Henry Knackstedt Unity Trail – completed
Tim Navarre Trail is a city and state project.
Natural setting Richard Aber Natural setting- want these open spaces and conservation areas to be kept.
Christine
Hutchison
Land use meeting – will we see this include?
Matt & Elizabeth Incorporation of this information gathering will be used to create draft land use
map
Land use v zoning Henry Knackstedt Difference between land use and land zoning – conservation within the airport is
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TOPIC COMMENTER COMMENT
different type of conservation than thought of. Airport conservation is conserved
for airport uses. Need to clarify differences in terminology?
2013 and 2003 plans Mayor Pat Porter Clarify 2013 to be used as a draft.
Pete Hanson 2003 Plan more direct; 2013 Plan lays out strategies.
Tim Navarre 2013 Plan includes information not available in 2003 Plan
Christine
Hutchison
Terminology has changed.
Closed Meeting at approximately 12 noon
Matt Kelley and Elizabeth Benson
Thanked everyone for their participation and comments.
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Matt Kelley opened the meeting with introductions and purpose of the meeting. He explained that he would be displaying the City’s Geographical Information System (GIS) data to support the discussion of land use classifications. Elizabeth Benson gave an overview of the difference between land use classifications and zoning designations. Elizabeth led the participants through a matrix/table that described the current 2003 (adopted) land use classifications and the draft classifications from the proposed 2013 plan. Matt used GIS to display and compare the land use maps from both plans. Participants asked questions and offered comments about the 2003 and 2013 land use maps, the land use classifications, and uses allowed within each. Participants’ comments were recorded on flip charts by Melissa Kelley as well as digitally. Willie Anderson, City Planning Technician, assisted with audience participation. Participants’ comments from the flip charts are organized in the table below. The table has been developed in the same format as the Land Use Matrix discussed at the Town Hall.
Town Hall #3 Comment & Commenter 2003 Plan Land Use Classification 2013 Proposed Land Use Classification
Residential Land Use Classifications
Elizabeth Benson presented definitions of neighborhood and
suburban residential and asked about institutional uses and
neighborhood commercial.
Matt Kelley displayed the 2003 and 2013 classification in GIS.
Neighborhood Residential Suburban Residential
1. Jeff Twait - Keys Point and Shoreline Heights are examples of Rural Residential subdivisions 2. Glenese Pettey - Clarify that neighborhood residential intended for areas that have public water and sewer or it is planned, smaller lots, paved streets and that rural residential intended for areas with larger lots, no public water and sewer available (yet), and gravel streets. 3. Kellie Kelso - Neighborhood commercial uses should not be allowed in neighborhoods.
The Rural Residential district includes areas that, due to location or site conditions, are best suited for large-lot single-family residential development. Homes in this district typically rely on individual on-site water supply and wastewater disposal systems. Compatible institutional uses such as churches, schools, and daycare facilities may be intermixed if they comply with zoning design guidelines. Small home- based businesses may be accommodated within certain design guidelines.
The Suburban Residential district consists of single-family and multi-family residential areas that are urban or suburban in character. The area is higher density, lots are typically smaller and public water and sewer services are required or planned. Streets should be developed to a paved standard and larger subdivisions should provide sidewalks and public areas.
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Town Hall #3 Comment & Commenter 2003 Plan Land Use Classification 2013 Proposed Land Use Classification 4. Sandy Ashbrook - There is inconsistency in Neighborhood Residential –clarify wording re having public sewer and water planned and instead include terminology “would be planned” or “could be planned”. E.g. Wildwood subdivision. 5. Russell Sonberg– MAPS area – how will it be affected by plan? There is no proposal to change from Neighborhood Residential 6. Laura Sievert– do not allow change in plan classification to allow small scale commercial – it’s not allowed now. 7. Glenese Pettey– need to define small scale commercial – does it include home-based businesses like photography, midwife?
Elizabeth and Matt described the rural residential
classification from the 2013 and 2003 plan and in GIS. Asked
for input on the intent and location of the classification using
the 2003 and 2013 GIS.
Rural Residential Rural Residential
1. Laura Sievert - what about conditional use permit process for institutional and home businesses in Rural Residential 2. Sandy Lashbrook – should not include mobile home parks – should be classified as mixed use; be designated as it is; get rid of the “non-conforming” designation. Kenai Peninsula Borough designates mobile homes as commercial. Should not include mobile home parks – should be classified as mixed use; be designated as it is; get rid of the “non-conforming” designation. Kenai Peninsula Borough designates mobile homes as commercial.
The Rural Residential district includes areas that, due to location or site conditions, are best suited for large-lot single-family residential development. Homes in this district typically rely on individual on-site water supply and wastewater disposal systems. Compatible institutional uses such as churches, schools, and daycare facilities may be intermixed if they comply with zoning design guidelines. Small home- based businesses may be accommodated within certain design guidelines.
The Rural Residential district includes areas that, due to location or site conditions, are best suited for large-lot single-family low-density residential development. Homes in this district typically rely on individual on-site water supply and wastewater disposal systems. Streets typically are gravel and subdivisions do not include sidewalks.
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Town Hall #3 Comment & Commenter 2003 Plan Land Use Classification 2013 Proposed Land Use Classification
Commercial Land Use Classifications
Elizabeth and Matt described the central and commercial
classifications from the 2013 and 2003 plan and in GIS. Central Commercial Commercial 1. Kellie Kelso – keep buffer between Three Bears and neighborhood residential. Suggest open space designation buffer. 2. Henry Knackstedt – land is city-owned and has deed restrictions 3. Jim Glendenning– re commercial along arterials - have arterials been identified? 4. Kellie Kelso – are arterial and other road classifications different? 5. Henry Knackstedt – identified same 6. Kellie Kelso – is neighborhood commercial along arterials? 7. Sandy Lashbrook – land use should match what is existing. Neighborhood commercial should not be pushed into commercial? Mixed use does not go all along the highway. Booths Landscaping should be mixed use. Should not include mobile home parks – should be classified as mixed use; be designated as it is; get rid of the “non-conforming” designation. Kenai Peninsula Borough designates mobile homes as commercial. 8. Jim Glendenning– rural residential allows for multi-family. 9. Sandy Lashbrook – rural residential includes terminology “low density” – should have low density
The Central Commercial district supports retail, service, and office businesses that serve all of Kenai and the larger region. It is the Kenai sub-region’s main commercial district. Retail, service, office, and public uses predominate. Non-commercial uses, such as public offices, institutional uses, and dwellings may be appropriate among commercial uses within mixed use areas.
The Commercial district is intended to create a concentrated, vibrant, and attractive downtown business district which is convenient to both motorists and pedestrians. The district is designed to attract commerce from within and beyond the community itself.
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Town Hall #3 Comment & Commenter 2003 Plan Land Use Classification 2013 Proposed Land Use Classification removed. 10. Matt Kelley– replied that city could consider mobile home park land use classification.
Elizabeth and Matt described neighborhood commercial
classification from the 2013 and 2003 plan and in GIS –
continued discussion of commercial uses in residential areas.
Neighborhood Commercial Neighborhood Commercial – not a specific
classification The Neighborhood Commercial district applies to areas along the arterial road system that are suitable for small-scale neighborhood-serving retail, service, and office uses. No other commercial land use classifications included in 2013 draft.
Elizabeth and Matt described the mixed use classifications
from the 2013 and 2003 plan and in GIS. Asked about the
purpose of the mixed use and where it should be located,
using the 2013 and 2003 GIS.
Mixed Use Mixed Use
The Mixed Use district fosters a compatible mix of retail, service, office, public, institutional recreational and multi-family residential uses. The district does not prescribe specific proportions for these uses, only that all these uses are desirable within the district. Mixed uses are particularly desirable in the Townsite Historic District and City Center overlay zone.
The Mixed Use district fosters a compatible mix of retail, service, office, public, institutional, recreational and residential uses. The district does not prescribe specific proportions for these uses, only that all these uses are desirable within the district. The Mixed Use classification should accommodate existing similarly developed areas and areas along corridors to provide transitions between the corridor and residential zones.
Elizabeth and Matt described the institutional classification
from the 2013 and 2003 plan and in GIS. Asked about
whether these uses should be incorporated into existing
classes or have a separate one as suggested by the 2013 draft.
Institutional – not specific classification Institutional
1. Jeff Twait – see the 2003 map for location of institutional classification. Institutional land uses were not separated out – they were identified as potentially acceptable in residential and commercial classifications provided they are compatible and The institutional district provides an area in which government and tax exempt institutions can offer social and cultural amenities to the citizens of the community. The
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Town Hall #3 Comment & Commenter 2003 Plan Land Use Classification 2013 Proposed Land Use Classification meet design standards. City uses zoning regulations to address actual location, siting and design of institutional uses. primary use is public, non-profit, and quasi-public uses including government offices and facilities, schools, churches, and other community-service oriented facilities.
Industrial Land Use Classification
Elizabeth and Matt described the industrial classifications
from the 2013 and 2003 plan and in GIS. Asked if additional
industrial classes should be added.
Industrial Industrial
No specific comments on industrial classification. The Industrial district identifies areas reserved for manufacturing, warehousing, trucking, marine-related industry and storage, and similar industrial activities. City utilities and safe, convenient vehicular access is critical. Buffers between industrial uses and adjacent non-industrial uses are desirable.
The institutional district provides an area in which government and tax exempt institutions can offer social and cultural amenities to the citizens of the community. The primary use is public, non-profit, and quasi-public uses including government offices and facilities, schools, churches, and other community-service oriented facilities.
Matt discussed recent adoption of a Light Airport Industrial
Zoning Classification to implement the recommendations and
land use map from the 2003 Comprehensive Plan.
Airport Industrial Airport Industrial – not specific classification
No specific comments on airport industrial classification. The Airport Industrial district identifies airport lands reserved for the Kenai Municipal Airport and its future expansion, and tracts needed for present and future aviation-related uses and activities.
Airport-specific industrial land use classification not included in 2013 draft plan.
Conservation – Parks, Recreation - Open Space
Elizabeth Benson – explained what is included in the
proposed 2013 and existing 2003 plan. Asked if both are
needed or if definitions need to be retained, updated, etc.
Conservation Parks, Recreation, Open Space
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Town Hall #3 Comment & Commenter 2003 Plan Land Use Classification 2013 Proposed Land Use Classification 1. Richard Aber – keep conservation as it is currently classified. Different than parks, recreation, open space – people bought parcels that were near conservation lands – and believed they would never be developed. Don’t want these parcels to be developed. 2. Glenese Pettey– conservation definition – land was meant to be reserved for future use not yet determined. Need distinction between conservation (2003) and parks, recreation, open space (2013). 3. Kellie Kelso – wants a land use designation for “leave this alone” – no development of conservation classification. 4. Jeff Twait – land use classifications need to be match with zoning – consider possibly changing naming conventions for conservation.
The Conservation district applies to public lands whose primary use is open space, recreation, fish and wildlife habitat, drainage ways, floodplain, and wetlands. Some public improvements may be appropriate within appropriate design guidelines.
This classification includes public recreation facilities, as well as undeveloped lands intended to provide for conservation of natural or scenic resources. These areas can be used for a variety of passive and active outdoor and indoor sports and recreational activities. Areas that may provide future natural resource development should be included in this category.
Matt Kelley reviewed the plan development process. There is a meeting with the Kenai Chamber of Commerce on May 11. There will be 2-3 Planning & Zoning Commission Work Sessions in May with public hearings in June. The plan will likely go to the City Council in July. Meeting Adjourned at around 8:55 p.m.
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