COMMUNITY COMPREHENSIVE PLAN · COMMUNITY COMPREHENSIVE PLAN EDITION OF 2005 PREPARED FOR THE LINDSBORG CITY PLANNING COMMISSION BY RIGGS ASSOCIATES PLANNERS ⋅ LAND PLANNERS ⋅

CITY OF LINDSBORG, KANSAS

COMMUNITY COMPREHENSIVE PLAN

EDITION OF 2005

PREPARED FOR THE

LINDSBORG CITY PLANNING COMMISSION

BY

RIGGS ASSOCIATES PLANNERS ⋅ LAND PLANNERS ⋅ LANDSCAPE ARCHITECTS

Lindsborg, Kansas

Adopted as the Official Development Guide for the Community by Ordinance No. 4407

EFFECTIVE DATE: October 3, 2005

Public Officials City of Lindsborg, Kansas

MAYOR

John C. Magnuson

CITY COUNCIL Becky Anderson Gary Shogren Rick Martin Ken Branch Betty Nelson Brad Howe Lloyd Rohr Bill Taylor, Jr.

PLANNING COMMISSION Billy Hudson Toni Thompson Ed Griffiths Kathi Patterson Ken Peterson Krishan Bhatnagar Jeff Kurtz Bill Lambert Karmon Almquist

CITY ADMINISTRATOR

Greg DuMars

CITY CLERK

Jerry Lovett-Sperling

CITY ATTORNEY William E. Gusenius

BUILDING OFFICIAL Tim Dunn

PLANNING CONSULTANT

Riggs Associates Planners · Land Planners · Landscape Architects

Lindsborg, Kansas

TABLE OF CONTENTS

Page No. SECTION I – BACKGROUND FOR PLANNING

Planning and the Community ............................................................................................................................. 1

History................................................................................................................................................................ 2

Geographic Location .......................................................................................................................................... 2

Figure 1 – Regional Location, City of Lindsborg, Kansas............................................................. follows 2

Geologic and Topographic Characteristics......................................................................................................... 3

Figure 2 – Surface Geologic Features, City of Lindsborg, Kansas ................................................ follows 3

Climate ............................................................................................................................................................... 3

Soils.................................................................................................................................................................... 4

Table 1 – Engineering Properties of Area soils, City of Lindsborg, Kansas............................................... 5

Figure 3 – Planning Area soils, City of Lindsborg, Kansas ........................................................... follows 4

Water Resources................................................................................................................................................. 6

Minerals.............................................................................................................................................................. 6

SECTION II – GOALS AND OBJECTIVES

Introduction ........................................................................................................................................................ 7

Effect and Purpose of Goals and Objectives ...................................................................................................... 7

Definitions.......................................................................................................................................................... 8

Goals and Objectives for Planning ..................................................................................................................... 8

Community Growth and Development ....................................................................................................... 8

Environmental Quality ................................................................................................................................ 9

Economic Development .............................................................................................................................. 9

Housing ..................................................................................................................................................... 11

Transportation ........................................................................................................................................... 12

Open Space and Recreation....................................................................................................................... 13

Human Services ........................................................................................................................................ 13

Governmental Services ............................................................................................................................. 14

Planning Standards........................................................................................................................................... 14

Residential Neighborhoods ....................................................................................................................... 15

Commercial Development......................................................................................................................... 15

Industrial Expansion.................................................................................................................................. 16

Transportation ........................................................................................................................................... 16

Public Services .......................................................................................................................................... 17

I

Parks and Recreation................................................................................................................................. 19

Public Buildings ........................................................................................................................................ 21

Summary .......................................................................................................................................................... 21

SECTION III – POPULATION

Introduction ...................................................................................................................................................... 22

Factors of Demographic Change...................................................................................................................... 22

Historic Population Patterns............................................................................................................................. 22

Table 2 – Population of Kansas, Urban and Rural .................................................................................... 23

Table 3 – Historic Demographic Trend, McPherson County, Kansas 1890-2000 .................................... 24

Table 4 – Municipal Population Trends, 1890 – 2000, City of Lindsborg, Kansas .................................. 25

Table 5 – Comparison of City and County Population Trends, 2890 – 2000,

City of Lindsborg, McPherson County, Kansas ........................................................................ 26

Background Decennial Census Information..................................................................................................... 26

Table 6 – Demographic Composition of the Resident Population, McPherson County,

Kansas 1960 – 2000 .................................................................................................................. 27

Table 7 – Selected Components of the Municipal Population, City of Lindsborg, Kansas, 1980 – 2000. 28

Population Age Group Trends.......................................................................................................................... 28

Table 8 – Population Age Group Distribution, McPherson County, Kansas, 1970 – 2000 ...................... 29

Table 9 – Population Age Group Trends, City of Lindsborg, Kansas, 1970 – 2000................................. 29

Natural Increase Factors................................................................................................................................... 30

Table 10 – Patterns of natural Increase, Selected Years, 1965 – 2001 – City of Lindsborg, Kansas........ 30

Potential Future Population Levels .................................................................................................................. 31

Table 11 – Future Population Patterns, City of Lindsborg, Kansas .......................................................... 31

Summary .......................................................................................................................................................... 32

SECTION IV – LAND USE

Introduction ...................................................................................................................................................... 34

Land Use Methodology .................................................................................................................................... 34

Incorporated Area Land Use Characteristics.................................................................................................... 35

Figure 4 – Existing Land Use Patterns, 2003, City of Lindsborg, Kansas ................................... follows 36

Table 12 – Existing Land Use Summary, Incorporated Area Characteristics, 2003

City of Lindsborg, Kansas....................................................................................................... 36

Rural Area Development Patterns .................................................................................................................... 37

Figure 5 – Existing Land Use Patterns, Rural Planning Area, City of Lindsborg, Kansas 2003 . follows 38

Table 13 – Rural Area Development Patterns, 3-Mile Extraterritorial Planning Jurisdiction,

City of Lindsborg, Kansas....................................................................................................... 38

II

Potential Future Development Trends.............................................................................................................. 39

Land use Forecast............................................................................................................................................. 39

Table 14 – Land Use Forecast, City of Lindsborg, Kansas ....................................................................... 40

Land Use Ratio Comparison ............................................................................................................................ 41

Table 15 – Land Utilization Ratios, City of Lindsborg, Kansas ............................................................... 42

Long Range Development Patterns .................................................................................................................. 42

Figure 6 – Future Land Use Plan, City of Lindsborg, Kansas...................................................... follows 42

Residential Expansion ...................................................................................................................................... 43

Commercial Uses ............................................................................................................................................. 43

Industrial Expansion......................................................................................................................................... 43

Cultural, Entertainment, and Recreation .......................................................................................................... 43

Transportation, Communications, and Utilities................................................................................................ 44

Implementing the Land Use Plan ..................................................................................................................... 44

Municipal Development Policies ..................................................................................................................... 45

General Development Policies .................................................................................................................. 46

Residential Development Policies............................................................................................................. 46

Commercial and Industrial Policies .......................................................................................................... 47

General Environmental Policies................................................................................................................ 47

Summary ................................................................................................................................................................. 48

SECTION V – HOUSING

Introduction ...................................................................................................................................................... 49

Dwelling Unit Supply and Condition ............................................................................................................... 49

Background Housing Information.................................................................................................................... 49

Table 16 – General Housing Characteristics, City of Lindsborg, Kansas ................................................. 50

Housing Conditions From Field Survey........................................................................................................... 51

Table 17 – Municipal Housing Stock From Field Survey, City of Lindsborg,

Kansas, 1987 and 2003............................................................................................................ 51

Figure 7 – Generalized Locations of Substandard Dwelling Units, 2003, City of

Lindsborg, Kansas....................................................................................................... follows 51

Housing Unit Structural Types......................................................................................................................... 52

Table 18 – Comparison of Dwelling Unit Structural Types, City of Lindsborg, Kansas, 1987 and 2003 52

Rural Area Housing Patterns............................................................................................................................ 52

Table 19 – Rural Area Housing Conditions, Lindsborg – McPherson County ......................................... 53

Dwelling Unit Density...................................................................................................................................... 53

Figure 8 – Corporate Area Dwelling Unit Density, City o Lindsborg, Kansas, 2003 ................. follows 53

Estimated Future Housing Demand.................................................................................................................. 54

III

Table 20 – Future Dwelling Unit Demand, City of Lindsborg, Kansas, 2025 .......................................... 54

Future Housing Demand by Type of Unit ........................................................................................................ 55

Table 21 – Estimated Future Dwelling Unit Mix, City of Lindsborg, Kansas .......................................... 55

Housing Assistance Needs ............................................................................................................................... 55

Housing and Neighborhood Improvement Strategy ........................................................................................ 56

Summary .......................................................................................................................................................... 57

SECTION VI – TRANSPORTATION

Introduction ...................................................................................................................................................... 58

Air Transportation ............................................................................................................................................ 58

Rail Transportation........................................................................................................................................... 58

Area Highway System...................................................................................................................................... 59

Classification of Streets and Roads .................................................................................................................. 59

Existing Municipal Street System .................................................................................................................... 60

Figure 9 – Existing Major Street System, City of Lindsborg, Kansas.......................................... follows 61

Table 22 – Existing Street System Summary, City of Lindsborg, Kansas 2004 ....................................... 61

Street System Surfacing ................................................................................................................................... 62

Table 23 – Street System Surfacing, City of Lindsborg 2004................................................................... 62

Figure 10 – Street Surfacing, City of Lindsborg 2004 ................................................................. follows 63

Traffic Accidents.............................................................................................................................................. 62

Figure 11 – Traffic Accident Experience, City of Lindsborg 2003.............................................. follows 63

Traffic Volumes ............................................................................................................................................... 63

Table 24 – Traffic Volumes, Annual Average 24-hour Traffic, City of Lindsborg .................................. 63

Street Standards................................................................................................................................................ 64

Figure 12 – Street Standards, City of Lindsborg, Kansas ............................................................ follows 64

Future Community Transportation System ...................................................................................................... 65

Major Street and Transportation Plan............................................................................................................... 65

Figure 13 – Future Transportation Plan, City of Lindsborg, Kansas............................................ follows 65

Table 25 – Future Transportation System, City of Lindsborg, Kansas ..................................................... 66

Implementing the Transportation System......................................................................................................... 66

Summary .......................................................................................................................................................... 67

SECTION VII – ECONOMIC RESOURCES AND OPPORTUNITIES

Introduction ...................................................................................................................................................... 69

General Employment Patterns.......................................................................................................................... 69

Table 26 – Labor Force Characteristics, City of Lindsborg ...................................................................... 69

Table 27 – Industry of Employed Persons, City of Lindsborg .................................................................. 70

IV

Table 28 – Employment Occupational Classification, City of Lindsborg................................................. 71

Household Income Levels ................................................................................................................................ 71

Table 29 – Household Income, City of Lindsborg .................................................................................... 71

Low Income Families....................................................................................................................................... 72

Table 30 – Poverty Status of Families, City of Lindsborg ........................................................................ 72

Income Sources ................................................................................................................................................ 73

Table 31 – Household Income by Major Source, McPherson County ...................................................... 73

Retail Trade...................................................................................................................................................... 73

Table 32 – Retail Trade, City of Lindsborg .............................................................................................. 74

Wholesale Trade............................................................................................................................................... 74

Table 33 – Wholesale Trade, City of Lindsborg ....................................................................................... 75

Manufacturing .................................................................................................................................................. 75

Table 34 – Manufacturing, McPherson County ........................................................................................ 76

Service Business............................................................................................................................................... 76

Table 35 – Selected Services, City of Lindsborg ...................................................................................... 77

Agriculture ....................................................................................................................................................... 77

Table 36 – Economic Import of Agriculture, McPherson County ............................................................ 77

Mineral Production........................................................................................................................................... 78

Tourism and Travel .......................................................................................................................................... 78

Summary .......................................................................................................................................................... 78

SECTION VIII – COMMERCIAL AND INDUSTRIAL DEVELOPMENT

Introduction ...................................................................................................................................................... 80

Commercial and Industrial Development......................................................................................................... 80

Figure 14 – Commercial and Industrial Areas, City of Lindsborg, Kansas.................................. follows 80

Commercial Areas............................................................................................................................................ 80

The Central Business District.................................................................................................................... 80

Harrison-Cole Commercial District .......................................................................................................... 81

West Highway 4 Commercial District ...................................................................................................... 82

Industrial Development .................................................................................................................................... 82

North Harrison Industrial Area ................................................................................................................. 82

Railroad Vicinity Industrial District.......................................................................................................... 82

South K-4 Industrial Area ......................................................................................................................... 82

Existing Expansion Potential............................................................................................................................ 83

Principles of Commercial and Industrial Development.................................................................................... 83

Development Adjacent to Major Highway Intersection............................................................................ 83

Strip Commercial Development................................................................................................................ 84

V

Permitted Types of Commercial Development ......................................................................................... 84


Industrial Areas ......................................................................................................................................... 85

Future Growth Directions................................................................................................................................. 85

Future Commercial and Industrial Growth Patterns......................................................................................... 85

Figure 15 – Future Commercial and Industrial Expansion, City of Lindsborg, KS ..................... follows 85


Commercial Areas Outside the Central Business District......................................................................... 86

Industrial Development ............................................................................................................................. 86

Implementation................................................................................................................................................. 87

Summary .......................................................................................................................................................... 87

SECTION IX – COMMUNITY FACILITIES

Introduction ...................................................................................................................................................... 89

Inventory .......................................................................................................................................................... 89

Figure 16 – Community Facilities, City of Lindsborg, Kansas................................................... follows 89

Facility Assessments ........................................................................................................................................ 89

Table 37 – Community Opinion Survey Results, City of Lindsborg, Kansas........................................... 90

Community Hospital ........................................................................................................................................ 94

Nursing Home .................................................................................................................................................. 94

Public Schools .................................................................................................................................................. 95

Table 38 – Unified School District 400 Enrollment Patterns, City of Lindsborg, Kansas ........................ 96

Public Library................................................................................................................................................... 96

Table 39 – Public Library Requirements, City of Lindsborg, Kansas....................................................... 97

Public Safety Facilities..................................................................................................................................... 97

Law Enforcement ............................................................................................................................................. 97

Fire Protection .................................................................................................................................................. 98

Emergency Medical Service............................................................................................................................. 98

City Hall Complex ........................................................................................................................................... 99

City Shops (Water, Electric) ............................................................................................................................ 99

City Shops (Street) ......................................................................................................................................... 100

Recycling Center ............................................................................................................................................ 100

Tree Station .................................................................................................................................................... 100

Municipal Water Supply ................................................................................................................................ 100

Sanitary Sewer System................................................................................................................................... 101

Electric Power ................................................................................................................................................ 102

Solid Waste Generation.................................................................................................................................. 102

VI

Table 40 – Estimated Solid Waste Generation, City of Lindsborg, Kansas............................................ 103

Parks and Recreation...................................................................................................................................... 103

Existing Park and Recreation Facilities.......................................................................................................... 103

Assessment of Park and Recreation Needs..................................................................................................... 106

Future Park and Recreation Plan .................................................................................................................... 106

Figure 17 – Future Park and Recreation Plan, City of Lindsborg, Kansas................................. follows 106

Implementing the Plan.................................................................................................................................... 107

SECTION X – GENERAL DEVELOPMENT PLAN

Introduction .................................................................................................................................................... 108

Background for Planning................................................................................................................................ 108

Goals and Objectives...................................................................................................................................... 108

Figure 18 – General Development Plan 2005, City of Lindsborg, Kansas ................................ follows 109

Population ...................................................................................................................................................... 109

Land Use ........................................................................................................................................................ 109

Housing .......................................................................................................................................................... 110

Transportation ................................................................................................................................................ 110

Economic Resources and Opportunities......................................................................................................... 111

Commercial and Industrial Development....................................................................................................... 111

Community Facilities ..................................................................................................................................... 112

The Future Community .................................................................................................................................. 112

SECTION XI – IMPLEMENTING THE COMPREHENSIVE PLAN

Introduction .................................................................................................................................................... 114

The Collaborative Process.............................................................................................................................. 114

Administrative Processes and Procedures ...................................................................................................... 114

Zoning Ordinance.................................................................................................................................... 115

Subdivision Regulations.......................................................................................................................... 116

Capital Improvement Program................................................................................................................ 116

Housing Codes ........................................................................................................................................ 116

Building Codes........................................................................................................................................ 116

Action Plan..................................................................................................................................................... 116

Table 41 – Action Plan, Comprehensive Planning Recommendations, City of Lindsborg,

Kansas, 2005 – 2025 ................................................................................................. follows 116

Implementing and Maintaining the Planning Documents .............................................................................. 117

Adopting the Comprehensive Plan.......................................................................................................... 117

Adopting the Zoning Ordinance.............................................................................................................. 118

VII

Amendments to the Zoning Ordinance and Official Maps...................................................................... 119

Special Use Permits (Exceptions) ........................................................................................................... 121

Appeals and Variances ............................................................................................................................ 121

Planned Unit Development ..................................................................................................................... 122

Floodplain Areas ..................................................................................................................................... 123

Administering the Subdivision Regulations............................................................................................ 123

Amendments to the Text ......................................................................................................................... 124

Review of Subdivision Proposals............................................................................................................ 124

Lot Splits ................................................................................................................................................. 125

The Continuing Planning Process .................................................................................................................. 125

Role of the Planning Commission.................................................................................................................. 126

Administrative Aids ....................................................................................................................................... 126

VIII

ABSTRACT

TITLE: City of Lindsborg, Kansas, Comprehensive Community Plan Update, Edition of

2005 PLANNING CONSULTANT: Riggs Associates, Planners, Land Planners, Landscape Architects, Lindsborg, Kansas AUTHOR: John W. Riggs, R.L.A., Certified Planner SUBJECT: Selected Comprehensive Community Plan Elements::

I. Background for Planning II. Goals and Objectives III. Population IV. Land Use V. Housing VI. Transportation VII. Economic Resources and Opportunities VIII. Commercial and Industrial Development IX. Community Facilities X. General Development Plan XI. Implementing the Comprehensive Plane

DATE: September, 2005 LOCAL PLANNING AUTHORITY: City of Lindsborg Planning Commission SOURCE OF COPIES: City of Lindsborg City Hall 101 S. Main Lindsborg, Kansas 67456 FUTURE GROWTH DIRECTIONS: The updated Comprehensive Plan for the City of Lindsborg builds upon previous

planning studies to develop new directions, guidelines and procedures for guiding continuing community development patterns through a 20-year period reaching to the year 2005. the content and specific topics included in the updating process were those identified by the City as being of primary and immediate importance to the process of building the future community. In this context, the updated plan acknowledges the emerging urban pattern and current extraterritorial fringe area development trends which together provide the basis for assessment of a range of current and future infrastructure needs.

Comprehensive Community Plan City of Lindsborg, Kansas

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SECTION I

BACKGROUND FOR PLANNING

PLANNING AND THE COMMUNITY The unique spatial phenomenon known as a community was defined by the 1963 Yearbook of Agriculture as -- “people who have common laws, interests and hopes, but not necessarily the same viewpoints, resources or awareness of change and needs.” Because of these strong bonds of common interest, people have historically banded into communities to avail themselves of opportunities for protection, trade and industry. Throughout history, cities have originated, prospered and grown where there was a natural resource capable of being exploited to sustain the population. In Kansas and across the west, this resource was most often land and the associated economic opportunity for establishment of farms and ranches and points of supply for needed commodities. Although economic opportunity was the primary factor in the founding of most western communities, it is the natural setting which is directly responsible for the observable patterns of physical development. Accordingly, in order to understand long-range community potential, it is first necessary to know something of the history and sociology of the population, as well as the physical circumstances which have shaped present development patterns, and which will continue to profoundly affect community expansion opportunity in the future. In any location, as the community, with its myriad interrelated elements, continues to grow and expand, and mature socially, there is an accompanying need for establishment of some sort of common direction by which the good of all the people can be welded into an established direction and course of action. The basic and most immediate means to achieve this end is through a community planning process which will result in a realistic and workable comprehensive plan. A comprehensive plan is an essential instrument for influencing efficient and orderly patterns of community growth and development. Almost every day some community official or group must make decisions that will impact the community and its people at some point in the future. Such decisions plan the future, to some extent, for someone or something. The impact of these decisions may either be immediately apparent, or may emerge gradually over a period of years. Whether the planning in such instances is haphazard or sound will depend upon the criteria available to the official or group at the time the decision is required. The comprehensive planning process, and preparation of the associated detailed studies, establishes a solid foundation for long-range planning, with a direct benefit to the decision making process. The Comprehensive Plan, as a statement of policy, sets forth the kind of a community desired in the future. It is the objective of the Plan to achieve a healthful, wholesome and attractive community environment in which to live, work and rear a family. Planning must, by its nature, deal with every facet of community activity, hence the term “Comprehensive Plan.” The broad range of diversity of activities is approached through a series of studies, the results of which are expressed in general terms. These studies, together with the accompanying explanatory notes and implementation procedures, form the body and detail of the Comprehensive Plan. In this context, it is the purpose of this element of the plan to review selected aspects of the community setting, including history, geography, geology, topography, climate, soils, water and minerals. These are the considerations of primary importance to an understanding of the present community and its potential for physical growth and development.


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HISTORY The modern history of the Lindsborg community dates from the post-Civil War period when the Central Plains including the state of Kansas was undergoing massive and rapid settlement by immigrants from many nations in response to the several Federal land bills which opened most regions of formerly Indian land to homesteading. What is now the City of Lindsborg was located by the Swedish Agricultural Colony in 1868 and 80 families from Varmland, Sweden arrived in the spring of 1869, the same year that the first post office was established and the first church, Lutheran, was built in 1890. The first railroad, the Union Pacific also arrived in 1869, with the Missouri-Pacific locating in the valley a few years later. The Lindsborg townsite was surveyed in 1871 and the town was incorporated as a city of the third class in 1879. a public grade school was opened in 1879 and Bethany Academy, now Bethany College, was established in 1881. By 1884 the community of 650 had three grain elevators and two flour mills, one of which, a water powered mill located on the Smoky Hill River, has been restored as part of the present McPherson County Old Mill Museum property. The first bank opened in 1882, the same year the well-known Messiah Chorus was organized. As early as 1902 the town had five churches, three newspapers, two banks, a foundry, a broom factory and a brick plant in addition to numerous retail stores and shops. By 1927 Lindsborg had paved streets, municipal water and electric systems, and a public park, as well as a one-of-a-kind stencil company (Malm), and a large machine and manufacturing company (Lungstrom). Although retail merchandising and industry have always been important aspects of the local economy, the community from its earliest times has been closely tied to agriculture which has been, and continues to represent, a stable and continuing factor. With the discovery of oil in the 1930’s and the subsequent opening of the Lindsborg Oil Field, petroleum production has also been a factor, although of decreasing significance in recent years. Today, Lindsborg enjoys a diverse economy grounded in agriculture, education, trade, services and industry with economic activity generated by tourism representing an increasingly important factor. Of the many festivals and activities centered around celebration of the Swedish ancestry of the community, the biennial Svensk Hyllningsfest celebration began in 1941 is perhaps best known. The community enjoys quality schools, excellent public facilities and is home to an increasingly diverse population having a wide range of national ancestry in addition to Swedish. The community has always been very proactive with regard to planned growth and through the comprehensive planning process maintains a vision of the future to guide all aspects of future development. GEOGRAPHIC LOCATION The City of Lindsborg is located in the central region of the State of Kansas approximately 100 miles south of the Kansas-Nebraska border; 165 miles west of the Kansas-Missouri border; and 115 miles north of the Kansas-Oklahoma border. The community is situated in the valley of the Smoky Hill River about 15 miles south of Salina and 12 miles north of McPherson along the original north-south US 81 Highway corridor. In addition to the Old US 81 highway, the City is served by K-4 Highway, one of the state’s oldest vehicular travelways, which reaches from Topeka on the east to western Kansas and, by connection with K-96, on to the Colorado border. The community is also within four miles of access to Interstate Highway I-135 on the east, one of the nation’s major north-south traffic corridors, which, through connection with other major highways north and south, provides an international route through the United States from Monterrey, Mexico to Winnipeg, Canada. This available highway network assures that the City of Lindsborg is within one to three days travel of all major metropolitan market areas in the continental United States. The location of Lindsborg, with respect to the surrounding region is illustrated on the following figure.


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GEOLOGIC AND TOPOGRAPHIC CHARACTERISTICS The present location of the City of Lindsborg is on the north bank of the Smoky Hill River on the benchlevels above the immediate floodplain of the river. The terrain is relatively flat with little relief and can be subject to flooding at the lower elevations. As shown on the following figure, the land surface rises sharply toward the west and northwest culminating in the hill and butte terrain of the Smoky Hills which are believed to represent the hazy northeastern mountains reportedly sighted by the Spanish explorers of the Coronado expedition of 1541. Of these buttes, the most widely known is “Coronado Heights” located about two miles northwest of the City. This prominence rises well over 200 feet above the valley floor and is the dominant geologic and topographic feature in the area. Deposits of brown to light brown sandstone and limestone associated with this range of hills were utilized as building material for many of the original constructions in the area. The dominant surface geologic feature in the planning area is the Smoky Hill River which generally traverses the area from southwest to northeast and skirts the City of Lindsborg on the south. The river has a large floodplain which has materially affected development patterns of the City and its environs. Because the Lindsborg area has long been subject to petroleum production, it is also subject to areas of land subsidence where underground structure has been subject to dissolution or collapse causing sinking of surface terrain leaving un-drained depressions. Although several of these geologic features have occurred near Lindsborg, none have occurred within the boundaries of the immediate City. Concerning general topographic characteristics, the surface geologic feature map shows that the land surface declines from northwest to southeast with the lowest elevations occurring northeast of Lindsborg near the river with elevations of around 1300. Elevations over much of the incorporated portion of the City range from about 1320 at the southeast corner to as much as 1340 at the far northwest corner. Elevations of the Smoky Hill Buttes toward the west and northwest range upward to as high as about 1610, an elevational difference of nearly 300 feet above the elevations associated with the river area. CLIMATE General climate features of the Lindsborg area as summarized in the Soil Survey of McPherson County, Kansas, prepared by the USDA Soil Conservation Service are as follows:

“The Climate of McPherson County is typical continental, as can be expected of a location in the interior of a large land mass in the middle latitudes. It is characterized by large daily and annual variations in temperature. Winter is cold because of frequent outbreaks of polar air, but it lasts only from December through February. Warm summer temperatures prevail for about 6 months every year. They provide a long growing season for the crops commonly grown in the county. Spring and fall generally are short. The County generally is along the western edge of the flow of moisture-laden air from the Gulf of Mexico. Shifts in this current result in a somewhat wide range in the annual amount of precipitation. The precipitation is heaviest during the period May through September. A large part of it falls during late-evening or nighttime thunderstorms. In dry years the amount is marginal for farming. Even in wet years, prolonged periods without rain commonly result in reduced productivity. Tornadoes and severe thunderstorms strike occasionally, but they usually are local in extent and of short duration, so that the risk of crop damage is small. Hail falls during the warmer part of the year. The hailstorms are infrequent, however, and of local extent. They cause less crop damage than the hailstorms in the western part of the state.


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In winter the average temperature is 32.9 degrees F. and the average daily minimum temperature is 22 degrees. The lowest temperature on record, which occurred at McPherson on February 12, 1899, is -27 degrees. In summer the average temperature is 78.5 degrees, and the average daily maximum temperature is 91.4 degrees. The highest recorded temperature, which occurred at McPherson on several dates, the last being August 12, 1936, is 117 degrees. The total annual precipitation is 28.93 inches. Of this, 21.33 inches, or 74 percent, usually falls in April through September, which includes the growing season for most crops. In 2 years out of 10, the rainfall in April through September is less than 14.93 inches. The heaviest 1-day rainfall was 11.39 inches at Lindsborg on October 20, 1941. Average seasonal snowfall is 19.1 inches. The greatest snowfall, 57.3 inches, occurred at Lindsborg during the winter of 1959-60. On an average of 17 days, at least 1 inch of snow is on the ground. The number of such days varies greatly from year to year. The sun shines 75 percent of the time possible in summer and 63 percent in winter. The prevailing wind is from the south. Average windspeed is highest, 13.5 miles per hour, in April.”

SOILS The previously cited Soil Survey of McPherson County, Kansas prepared by the USDA Soil Conservation Service indicates that the City of Lindsborg is located in an area which is predominantly blanketed by soils of the Hord-Tobin-Bridgeport Association, which are described as deep, nearly level, well drained and moderately well drained soils that have a silty subsoil occurring on flood plains and terraces. These soils are further described as follows:

“This association is on flood plains and terraces dissected by major streams in the county. Slope is dominantly 0 to 1 percent. This association makes up about 9 percent of the county. It is about 25 percent Hord soils, 21 percent Tobin soils, 17 percent Bridgeport soils, and 37 percent minor soils. The well drained Hord soils formed in silty alluvium on terraces. Typically, the surface layer is dark grayish brown silt loam about 6 inches thick. The subsurface layer is dark grayish brown, friable silty clay loam and 7 inches thick. The subsoil is friable silty clay loam about 30 inches thick. The upper part is dark grayish brown, and the lower part is brown. The substratum to a depth of about 60 inches is brown silty clay loan. The moderately well drained Tobin soils formed in silty alluvium on flood plains. Typically, the surface soil is very dark grayish brown silt loam about 24 inches thick. The substratum to a depth of about 60 inches is dark grayish brown and grayish brown silt loam. It is mottled in the lower part. The well drained Bridgeport soils formed in calcareous alluvium on terraces. Typically, the surface layer is dark grayish brown silt loam about 7 inches thick. The subsurface layer is dark grayish brown, friable silt loam about 7 inches thick. The subsoil is light brownish gray, friable silt loam about 12 inches thick. The upper part of the substratum is light brownish gray silt loam. The lower part to a depth of about 60 inches is very pale brown loam.”

Concerning soil properties with respect to urban types of uses, limitations for a range of development types are summarized in the following table.


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TABLE 1

ENGINEERING PROPERTIES OF AREA SOILS* City of Lindsborg, Kansas

DEGREE OF LIMITATION BY SOIL TYPE

Use

Bridgeport

Crete

Detroit

Hord

McCook

Roxbury New

Cambria Building Site Development Shallow Excavations Slight Moderate4 Moderate4 Slight Slight Slight Moderate4 Dwellings with Basements Severe1 Severe5 Severe1 Severe1 Severe1 Severe1 Severe6 Local Road and Streets Severe2 Severe3 Severe3 Severe2 Moderate7 Severe2 Severe3 Sanitary Facilities Septic Tank Absorption Moderate1 Severe9 Severe9 Moderate1 Moderate1 Moderate1 Severe9 Sewage Lagoons Moderate10 Moderate11 Slight Moderate10 Severe12 Moderate10 Slight Recreational Development Camp Areas Severe1 Slight Severe1 Severe1 Severe1 Severe1 Severe1 Playgrounds Slight Moderate8 Slight Slight Slight Slight Moderate4 Construction Material Road Fill Poor2 Poor3 Poor2 Poor2 Good Poor2 Poor5 Top Soil Good Poor13 Poor13 Good Good Fair4 Poor4 *Source: Soil Survey of McPherson County, Kansas, 1983 1. Flooding 8. Slope 2. Low Strength 9. Percs slowly 3. Low Strength, Shrink Swell 10. Seepage 4. Too Clayey 11. Seepage, slope 5. Shrink-Swell 12. Seepage, Flooding 6. Flooding, Shrink-Swell 13. Thin Layer 7. Flooding, Frost Action

The table shows that area soils exhibit moderate to severe limitations for most types of developed uses. Limitations are typically due to flooding and soil structure having a high clay content which results in low strength, high shrink-swell and slow percolation. These limitations are an indication that most developed uses, particularly those involving foundation support, road construction and septic tank absorption fields will require careful design to assure location compatibility. While native soils condition indicate that continued community growth will be affected by a range of limitations, the long history of development in the area shows that such limitations need not present major impediments provided proper precautions are developed as part of the individual project design process. Locations of the various types of native soils in and around the Lindsborg community are illustrated graphically on the following figure.

WATER RESOURCES Historic use patterns show that generally abundant groundwater supplies are available in the immediate Smoky Hill River Valley, with declining quantities available as the elevation increases on the valley sideslopes. Additional water supplies are available from the surface flows of the river which are largely dependent upon downstream releases of water from Kanopolis Reservoir located about 16 miles west of Lindsborg. Releases of reservoir water are governed by the amount of annual rainfall and baseline requirements for minimum downstream flowage volume. Water from local sources is typically highly mineralized and very hard, with the degree of hardness increasing at the higher elevations. Although the City of Lindsborg is several miles north of the northern extremity of the Equus Beds, a source of very high quality water, there are small fingers of the Equus Beds which approach the river valley rim on the southwest. Water from this source is presently utilized by the City. Other than these water sources, only very limited quantities of water are available from bedrock locations at the higher elevations on the most west and northwest. Water from such sources is not only limited, but very high in mineralization and overall hardness. MINERALS At the present time, minerals produced in the Lindsborg vicinity include sand and gravel, and petroleum. Although there are deposits of building quality sandstone in the Smoky Hill buttes, this resource has not been produced commercially in recent times. It is likely that current mineral production levels will continue more or less the same throughout the course of the 20-year planning period and beyond.


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SECTION II

GOALS AND OBJECTIVES

INTRODUCTION Although the general process of structuring long-range planning around established goals and objectives has long been practiced at the federal level, setting goals to guide local community development has only recently become a working part of community planning practice. Through the process of establishing goals and objectives a series of formal statements are developed that are intended to provide levels of attainment to be realized through the planning process As the practices and procedures of community development have become more diverse and sophisticated so too have the processes of establishing results expected from the planning effort. Experience has shown that the planning process is most successful where the effort is guided by formally adopted goals and objectives oriented toward definition of quality standards, particularly as those standards help to identify the type of community environment desired for the future. Where the goal statements provide a definition of general quality, the planning standards provide the yardstick by which long-range physical development needs can be gauged and sized. For the purposes of the Comprehensive Plan, it will be important that adopted goals and objectives identify conditions and qualify parameters for application throughout the community, although the quality parameters identified can also be tailored for specific application in identified regions within the community. The formulation of goals and objectives to guide community development should involve people having diverse interests coupled with an awareness of need for sound community development practice. When formalized, the goals and objectives statements then provide the framework for guiding the long-range planning studies within the context of a cohesive comprehensive plan. Accompanying the goals and objectives are general development standards which provide the technical guidelines for physical development, based on the intent of the established goals and objectives. Where the goals statements provide a definition of general quality, the planning standards provide the yardstick whereby long-range physical development needs can be gauged and scaled. EFFECT AND PURPOSE OF GOALS AND OBJECTIVES The community plan is intended as a basis for formulating public policy which will aid in guiding the growth and development of the municipality. Establishing goals is a means of involving people in community affairs, developing a community attitude toward planning and promoting informed leadership in all areas of civic activity. Adopted goals and objectives provide community leaders with:

• An expressed guide regarding future community development which answers the question, “what kind of community do we want to build?”

• A basis for future planning of physical, social and fiscal policies and programs leading to sound

community development, and

• A sound basis for decision making and developing the strategy for community development by ordering goals in terms of their priority. For example, housing may be a goal of highest priority, but to achieve this, the development of other systems, such as water and sanitary facilities, must also receive equally high priority.


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The broad goal of the comprehensive plan is to foster the creation of a community where people may live in a safe, convenient and healthful environment. The community must be an enjoyable place in which to live and raise families, to conduct business and to find educational and employment opportunities. The community planning process provides the framework in which this goal may be approached. DEFINITIONS Goals are broad statements dealing with all aspects of community development which indicate the state or condition that the community wishes to attain over a given time span. Goals are usually established for long periods of time. Objectives help to define more fully the meaning of goals. An objective is a necessary achievement to be accomplished as a step toward fulfilling a goal. Objectives are subparts of the goal, and are accomplished in shorter periods of time. GOALS AND OBJECTIVES FOR PLANNING Utilization of defined goals and objectives as a guide to the comprehensive planning process has long been a facet of planning procedure in the Lindsborg community. The Comprehensive Plan of 1988 contained a series of such values which for the most part remain valid today. Where applicable, previously adopted goals and objectives statements have been incorporated for reuse in the current planning program together with a range of new considerations dealing with all aspects of community development. In this context, the following goals and objectives set out ideals, standards and values to be achieved over the course of the 20-year planning program. COMMUNITY GROWTH AND DEVELOPMENT GOAL: PROMOTE BALANCED AND EFFICIENT FUTURE EXPANSION PATTERNS IN ALL

CATEGORIES OF COMMUNITY LAND USE. Objectives:

• Develop and implement a Future Land Use Plan that maximizes the efficiency of the existing community with new development areas located in the most advantageous relationship.

• Maintain effective zoning and subdivision controls to minimize conflicts of incompatible land uses and

influence appropriate design of future development.

• Work closely with area developers to influence continuity of transportation and utility systems through appropriate design of future community expansion.

• Utilize annexation authority as a means to achieve a balanced growth pattern.

• Develop and adopt specific land use and community growth policy statements as an aid to the decision

making process.

• Encourage full utilization of facilities, public and private, to avoid unnecessary duplication of costs thereby conserving tax dollars.

• Maintain a continuing planning program which will monitor new trends and emerging community

needs in both the short- and long-term frame.


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ENVIRONMENTAL QUALITY GOAL: PROMOTE A SAFE, SANITARY AND PLEASING COMMUNITY ENVIRONMENT WITH

REGARD FOR THE SURROUNDING NATURAL SETTING. Objectives:

• Develop and implement land use regulations that are based on sound environmental principles.

• Develop a system and process for weighing community development decisions with regard to resultant environmental consequences.

• Encourage the elimination of wasteful practices and promote recycling and reduction of solid waste

volume.

• Promote opportunities for public education with regard to environmental issues of community development through maximum use of available aids such as workshops and dissemination of printed material available from state and federal sources.

• Enforce floodplain regulations to prevent development in flood hazard areas.

• Encourage tree planting and landscaping of all lots and tracts, public or private.

• Encourage public participation in all aspects of community development planning, particularly in those

processes and actions which involve environmental evaluation of development alternatives. ECONOMIC DEVELOPMENT GOAL: ENCOURAGE DIVERSIFIED COMMERCIAL AND INDUSTRIAL DEVELOPMENT AS A

MEANS TO PROMOTE ECONOMIC STABILITY, INCREASE THE LOCAL TAX BASE AND IMPROVE LOCAL EMPLOYMENT OPPORTUNITY FOR CITIZENS OF THE COMMUNITY.

Objectives:

• Maintain efforts to attract businesses and industries that will utilize locally available raw materials and merchandise on a regional and national basis.

• Plan for continued growth of commerce and industry based on sound land development practices that

comply with the comprehensive plan.

• Encourage diversified retail merchandising of goods and services within appropriately planned areas, while protecting the vitality and historical integrity of the central core area.

• Strengthen efforts to promote the City as a tourist destination and encourage business offering goods

and services to the traveling public.

• Foster an atmosphere in that business and industry may grow and prosper; thereby encouraging enterprises that will provide needed goods and services to the community and region and livelihood for its citizens.


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GOAL: PROTECT AND STRENGTHEN EXISTING COMMERCIAL DISTRICTS.

Objectives:

• Maintain and enhance the present Central Business District.

• Provide for continuing aesthetic improvement of the Central Business District consistent with practical needs and budgetary limitations.

• Promote continuing development of the Harrison-Cole commercial district for tourist travel oriented

businesses.

• Encourage application of common aesthetic standards for all commercial districts.

• Encourage a broad diversification in retail goods and services with appropriately planned areas for future expansion.

• Continue to promote facilities and activities which will attract outside visitors on a continuing basis,

particularly with respect to the interim periods between major festival dates.

• Maintain an economic improvement strategy oriented toward strengthening market position of the commercial district businesses.

GOAL: PROMOTE ATTRACTION AND RETENTION OF NEW INDUSTRIES TO STRENGTHEN

LOCAL EMPLOYMENT OPPORTUNITY AND PAYROLL LEVELS. Objectives:

• Prepare and formalize an industrial development strategy to guide promotional efforts and maximize the benefits of available resources.

• Provide ample space for industrial development with convenient access to major transportation

systems.

• Develop an incentive package to aid in attraction of new industrial businesses.

• Maintain an aggressive recruitment program for new industrial businesses. GOAL: MAINTAIN AN EFFECTIVE ECONOMIC DEVELOPMENT STRATEGY. Objectives

• Target and solicit businesses and industries which will maximize use of available local resources.

• Provide funding adequate to allow external travel and promotional effort.

• Foster continued cooperation between the private and public sectors in all aspects of finance, real estate, taxation, planning and provision of public and private services, particularly with regard to promotion of economic expansion and business diversification.


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HOUSING GOAL: ASSURE SAFE, DECENT AND SANITARY HOUSING FOR ALL CITIZENS OF THE

COMMUNITY. Objectives:

• Provide housing with adequate living space for all citizens.

• Plan for diversification in housing to meet the needs of individual user groups.

• Provide for multiple family dwellings, retirement housing and other specialized housing as required to meet the needs of defined user groups within the community.

• Encourage maintenance of older residential structures in good condition and replacement of obsolete

structures with new units.

• Promote a safe and sanitary living environment, controlled to avoid undue pollution of land, air or water.

• Provide every living unit with City water and sewer services.

• Support innovative planning and utilization of new technology in the design of new neighborhood

units as well as restoration of existing units.

• Utilize participating funding grants and other sources of technical and financial aid to assist low income families with housing improvement.

• Maintain housing codes as a means to establish minimum quality expectations for the local housing

stock. GOAL: ENCOURAGE DEVELOPMENT OF PLANNED NEIGHBORHOOD EXPANSIONS. Objectives:

• Work with area developers to initiate new neighborhoods through the Planned Unit Development process.

• Strengthen and enhance the image of the City as a location for suburban residence in a high quality

living environment.

• Maintain an ongoing strategy for marketing the City as a place of suburban residence as a facet of the economic development program.

• Maintain formal procedures and standards including appropriate zoning and subdivision regulations to

guide future neighborhood development toward established quality parameters. GOAL: MAINTAIN HARMONIOUS AND ENVIRONMENTALLY SAFE NEIGHBORHOODS. Objectives:

• Maintain older neighborhoods in sound condition.

• Encourage compatible uses, such as schools, parks and churches in residential neighborhoods.


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• Design residential neighborhoods to discourage through traffic.

• Plan for residential development densities that would encourage economic and efficient spatial relationships between structures, between public and private use of land, between vehicular and pedestrian circulation and between services, utility, and aesthetic enjoyment of the dwelling and its environment.

• Designate and implement future neighborhood expansions in accordance with the directions

established through the comprehensive community planning process. GOAL: ASSURE EQUAL OPPORTUNITY IN CHOICE OF HOUSING FOR ALL PEOPLE REGARDLESS

OF RACE, RELIGION, AGE OR SEX. Objectives:

• Maximize the opportunity for each family to rent or purchase safe, sanitary and decent housing within their economic means.

• Investigate participating grant funding sources as a means to finance housing improvement programs.

TRANSPORTATION GOAL: PROVIDE AND MAINTAIN AN EFFICIENT AND SAFE NETWORK OF VEHICULAR

TRAVELWAYS PROVIDING EQUITABLE ACCESS TO, THROUGH AND AROUND ALL AREAS OF THE PRESENT AND FUTURE COMMUNITY.

Objectives:

• Utilize appropriate design standards and sound policies for various classes of streets and roads that are keyed to vehicular traffic types and anticipated traffic volumes..

• Adopt and follow a plan for development of the street system, including appropriate traffic controls, to

enhance the function and safety of the system.

• Develop a plan to assure logical continuation of the existing street system into and through newly developing areas.

• Provide for adequate parking as a consideration of the transportation system. Maximize utilization of

all available resources, including alley side spaces in commercial areas where appropriate.

• Plan for aesthetic enhancement of major traffic corridors consistent with the historical heritage of the Community.

• Provide pleasant appearing entrances to the community as an integral aspect of municipal maintenance

procedures. GOAL: PROMOTE DEVELOPMENT OF ALTERNATIVE TRANSPORTATION SYSTEMS TO REDUCE

AUTOMOBILE USE AND CONSERVE FOSSIL FUEL. Objectives:

• Develop and maintain a major pedestrian corridor circulation plan to allow access to major public amenities from all areas of the community.


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• Maintain a safe and efficient sidewalk system.

• Develop a system of defined bicycle routes with secure storage areas throughout the City.

• Plan and implement a hike and bike trail system designed to connect public institutions, recreational facilities and primary neighborhood areas.

• Promote use of bio-fuel rather than fossil fuel.

• Public transportation enhancements for general public use.

OPEN SPACE AND RECREATION GOAL: PROMOTE CONSERVATION AND IMPROVEMENT OF EXISTING OUTDOOR

RECREATIONAL SPACE IN THE COMMUNITY. Objectives:

• Continue an aggressive program of open space and facility maintenance, repair and replacement.

• Maintain an ongoing recreation planning program that is responsive to trends and needs for changes and modifications of recreational offerings.

GOAL: PROVIDE ADEQUATE RECREATIONAL OPPORTUNITY FOR ALL CITIZENS, PRESENT

AND FUTURE. Objectives:

• Adopt and maintain a plan for recreation and open space which is keyed to the overall needs of the entire community based on accepted standards for recreational opportunity.

• Provide recreational facilities oriented toward the specialized needs of tourists, as well as the resident

population.

• Retain and improve public river access.

• Preserve and enhance historic sites and associated recreational development.

• Develop recreational play areas for small children in all neighborhood areas.

• Upgrade and expand existing recreational services. HUMAN SERVICES GOAL: PROVIDE CONTINUED DIVERSIFICATION AND IMPROVEMENT OF AVAILABLE HUMAN

SERVICES. Objectives:

• Continue and intensify participation in State and Federal grant programs as a vehicle for improvement of human services for the elderly, low and moderate income families, and the physically mentally handicapped.


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• Promote local access to health care facilities and professionals through subsidized transportation and other means.

• Continue to maximize community access to available public educational and cultural programs and

seminars. Provide for churches, schools and other institutions as desired and needed.

• Continue to encourage maintenance of a quality school system, which will encourage and support excellence in education.

• Promote education/cultural stimulation and growth from preschool to senior citizens.

• Encourage full utilization of facilities, public and private, to avoid unnecessary duplication costs.

GOVERNMENTAL SERVICES GOAL: MAINTAIN EFFECTIVE, CONVENIENT AND ORDERLY DISTRIBUTION OF SERVICES AND

FACILITIES INCLUDING UTILITIES, PUBLIC SAFETY AND ADMINISTRATION. PROMOTE EQUITABLE AVAILABILITY OF ALL SERVICES TO ALL EXISTING AND FUTURE AREAS OF THE COMMUNITY.

Objectives:

• Maintain general standards and policies for utility systems and service extensions. Identify needs for detailed engineering studies of present demands and potential future areas of demand in regard to changing land use and population distribution.

• Develop long-range plans and institute public improvement programs to assure adequate and effective

volume and distribution of community services.

• Assure an adequate supply of potable water and an expandable distribution system, suitable for present and future consumption and for fire protection.

• Provide storm drains and protection works where needed to prevent flood damage, unsanitary

conditions or hazards to travel.

• Provide sewage treatment, refuse collection and disposal, street cleaning and similar environmental control processes.

• Assure high-quality fire and police protection.

• Provide functional and attractive civic buildings and related facilities conveniently located for public

access, operational efficiency, and preservation of the rich history of the Community.

• Promote planned and efficient future expansion of governmental services through adoption and maintenance of a Comprehensive Plan and associated measures for the present community and its future growth area.

PLANNING STANDARDS The goals and objectives statements outline a framework of quality thresholds to guide planning and maintenance of a quality living environment. However, they do not provide standards of measurement by themselves. Because of this, it is important that the goals and objectives be supported with quantifiable standards and guidelines for all aspects of community development in order to gauge current and future needs.


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Based on values, concepts, and methods developed from planning theory and years of experience with many other similar communities across the high plains, the following guidelines and standards are intended as a means of assessing minimum values for community development. RESIDENTIAL NEIGHBORHOODS Residential neighborhood development standards are based on the walking distance from the farthest point in the neighborhood. The following are recommended standards for major community and neighborhood facilities: Nursery School ¼ mile Kindergarten ¼ to ½ mile Elementary School ¼ to ½ mile Junior High School ¾ to 1 mile High School 1 to ½ miles Playgrounds ¼ to ½ mile Neighborhood Park ¼ to ½ mile Shopping Center ¼ to ½ mile Indoor Social, Cultural and Recreational Center ½ mile Health Center ½ mile Fire Station (Residential Areas) 1 ½ miles Fire Station (Industrial Areas) ¾ mile In this context, planning for future community expansion and neighborhood development should include consideration of the following:

• Neighborhoods should be planned for a mix of housing units at costs which will permit access by low and moderate income groups.

• Amenities paralleling residential need should be incorporated into the neighborhood unit, such as

neighborhood convenience shopping, school site, park sites, and locations for churches.

• All residential areas should be served with a complete compliment of utilities including water, sewer, electrical power, natural gas, telephone, and solid waste disposal.

• Utilities should be located to serve each land use while taking into account the specific design criteria

of each utility. Whenever possible, utilities should be placed underground.

• Environmental constraints should be carefully weighed in the approval process for any subdivision for residential uses. Among these constraints are soil capability, subsurface geology, slope conditions, water table, vegetative cover, surface drainage, historic and archaeological sites, potential for flooding, and displacement of plant and animal life.

COMMERCIAL DEVELOPMENT Planning for continued development of commercial uses must include consideration of the unique characteristics of the downtown core area while acknowledging the diverse requirements of commercial experience in other locations. General guidelines include the following:

• Expansion of the Central Business District should occur through careful redevelopment of adjacent transition areas, maintaining the same basis concepts and development patterns which have been traditional in the downtown area.

• Strip commercial developments should have lots 200 to 400 feet deep and be provided with frontage

roads parallel to the major street with adequate traffic separation, one- or two-way street operation with access to the arterial limited to defined points.


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• Control of allowable types of uses in areas outside the central core should be provided through exercise of appropriate zoning regulations.

• Continued commercial expansion should be carefully evaluated with respect to conformance with the

adopted Future Land Use Plan. INDUSTRIAL EXPANSION As industrial uses typically have intensified needs for large site areas, high volume transportation systems, extra capacity utility services, and environmental protection, it is important that expansion proposal be carefully evaluated for compatibility with the existing community. General guidelines for industrial expansion include:

• To the extent possible, industrial expansion should occur in planned industrial park areas.

• Industrial development planning should include allowance for:

− Streets designed for heavy truck traffic.

− Adequate building setback and height allowances.

− Appropriate building density ratios

− Aesthetic controls, including landscape provisions.

− Environmental protection.

• Industrial uses should be compatible with each other and surrounding areas of the community.

• Industrial expansion should occur in areas where adequate tract size is available to assure maintenance of quality development standards.

TRANSPORTATION Several types of transportation systems are important to maintenance of the present and future community; however, the primary systems affecting physical development are the airport and the network of vehicular travelways. Concerning vehicular travelways, the following guidelines apply: Major Streets Planning standards for major street are based on functional classifications which reflect intensity of usage. For the purposes of comprehensive community planning, four separate classes of urban streets and highways are usually recognized. These are:

• Expressways and Interstate Highways • Arterial Streets • Collector Streets • Local Streets

Expressways and Interstate Highways are the large multi-lane traffic corridors which are intended to efficiently move the bulk of through traffic to, from, and around the community. A primary goal of these trafficways is to avoid directly impacting build-up urban areas. As such, expressways are the largest class of roads and are designed and located in accordance with traffic volumes to be accommodated. The I-70 travelway is a typical example of this classification. Major functions of the expressway are to provide for through traffic and to receive the traffic flowing from the arterial network, although they are themselves arterials by functional classification.


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Arterial Streets are intended to move large volumes of traffic generated within the community. Service access to abutting property is a function of secondary importance to the primary function of efficiently moving traffic. Where possible, the design of arterial streets should incorporate access control, and on-street parking should be minimized or eliminated. Design of arterial streets typically incorporates right-of-way widths of 80 to 150 feet, depending upon pavement and drainage requirements and pavement widths of 48 to 64 feet, depending upon traffic lane and median arrangements. It is over these streets that the greater part of everyday travel will occur. Examples of these types of facilities in the local community include the Old US 40 highway corridor and Washington Street. Collector Streets provide the important function of collecting traffic from local streets in the interior of neighborhoods and distributing it to the arterial system. As with arterial streets, the primary function is to move traffic, and property access points and on-street parking should be minimized. Traffic safety is an important consideration for the collector system. Unnecessary property access points and street crossings should be minimized or eliminated. Right-of-way widths for collectors typically range from 70 to 90 feet with pavement widths ranging from 45 to 69 feet, depending upon lane, access, and parking arrangements. The spacing of collector streets is often influenced by land use, density of development, and land use traffic generating characteristics. A spacing of one-half mile intervals is a reasonable standard where conditions are such that it can be achieved. Local Streets are designed and located for the primary purposes of providing access to property, and providing connecting traffic routes to the collector system. Access should be provided for both vehicles and pedestrians. Through traffic should be discouraged on local streets. The local street is a major element in the design composition of the city, providing space for grass and tree planting and arranging properties in various sizes and shape of blocks with an irregular or rectangular street pattern. In residential areas, the local street serves as open space, providing light and air to adjoining properties and also acts as a fire stop between blocks of buildings. Local streets and other streets serve as easements for sewer, water, and gas mains. The street often carries a part of the storm water runoff from abutting properties to storm sewers which may also occupy its right-of-way. In residential areas, power and communication lines should not be located within street right-of-way, except in instances where it is feasible or desirable to locate them underground. Overhead utilities are usually located in easements provided for this purpose at the rear of lots or along side lot lines. Design of local streets usually incorporates a right-of-way width from 60 to 70 feet with a pavement width from 30 to 34 feet. Spacing of streets is as required to provide property access. PUBLIC SERVICES Schools Anticipating and planning new or enlarged schools is largely based on future requirements. Estimates of future requirements are, in turn, substantially based on the population projections which provide a general overview of the numbers of school-age children to be accommodated. Generally, schools should be adequately sized, providing sufficient classrooms to avoid overcrowding, and should be located on a site large enough to allow development of ancillary functions, such as playgrounds, athletic fields, and off-street parking. School planning standards indicate that an adequate facility should have not more than 25 pupils per classroom and should have available special and multi-purpose spaces, such as lunchrooms, gymnasiums, laboratories, health offices, libraries, and faculty work rooms. While generalized planning standards help to size individual schools, detailed determinations of interior space requirements necessary to meet desired specific functions must be carried out by local school officials.


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In terms of site sizes, generally accepted standards indicate that elementary schools should have about five acres of land plus one acre for each 100 students of estimated enrollment. Middle schools should have a site size of 15 acres plus one acre per 100 students, while senior high schools should ideally have a site size of 30 acres plus one acre per 100 students. School locations within the community should be such that elementary schools are within 0.25 to 0.5-mile walking distance, or not more than 20 minutes travel time by bus for all students, and ideally should complement the neighborhood concept. High schools within small communities should be centrally located with easy access from all residential areas, and should be directly and easily accessible for school buses. Libraries The following generally accepted standards were developed through experience with the planning of numerous libraries. The standards are guidelines that can be used to measure the space and operational requirements of a given library at a given point in time. Book Stock Volumes per Capita 5 Number of Seats Per 1,000 Population 3 Circulation Volumes per Capita 9 Square Feet per Capita .55 Desirable First Floor Ground Area Square Feet per Capita .3 The standards outlined above are taken from Volume, Space and Circulation, National Library Association. Fire Protection Fire protection standards vary widely, depending upon population and development density, type of land use in the fire district, and topographic characteristics of the service area. Staffing requirements are equally variable; however, minimum requirements indicate that at least six persons should be available at any time over any 24-hour period to provide initial fire call response. Providing a minimum or better staffing pattern will require a larger actual manpower complement, up to 30 to 36 persons for a fully staffed municipal company. Fire response distance from the fire station should not exceed 10 miles measured in driving distance. Other general guidelines related to location and overall characteristics of municipal fire stations are noted below:

• Fire stations should be within a 0.75-mile radius of the Central Business District, Commercial Service Districts, and Industrial Areas.

• Fire stations should be within the center (time of travel) of the districts they serve.

• The stations should be within a 1.5-mile service radius of neighborhood shopping areas and residential

districts.

• Movement of fire fighting equipment from fire stations should not be impaired by physical or topographic barriers.


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• Fire stations should be located with direct access for fire fighting equipment to the thoroughfare networks of the City. Movement of equipment must not be impaired or be a danger to other traffic.

• The design of station houses should be compatible with the surrounding area so that buildings fit into

the character of the neighborhood. Space should be provided on station sites for adequate parking, landscaping, and maneuvering area.

Police Protection Precise definition of standards for police facilities is not realistic due to extreme variation in social, economic, and physical characteristics, size of service area, and nature of department work load. Even the long used standard of one to two patrolmen per 1,000 population has been inadequate for staffing patterns in recent years due to the growing diversity in case load and the general broadening of police responsibility. Accordingly, police staffing patterns and physical accommodations should be developed to match specific local requirements resulting from a planning process involving municipal officials acting in concert with other county, regional, and state law enforcement agencies. In general, a police district should comprise, if possible, a homogeneous area, unbroken by impassable barriers, such as expressways, railroads, or rivers that provide natural barriers. In addition, a district should have convenient major street access throughout the area. The district headquarters should be near the geographic center of the service area; on a major street with good access to all parts of the service area; near concentration of commercial and industrial uses and the highest crime rate; preferably not in residential area, but adjacent to a commercial area; and district headquarters should emphasize administration and service to other public rather than the long-term incarceration of prisoners. Utilities Planning for utility extensions is an important tool in the guiding of community growth toward common environmental and economic goals. In general, a full complement of utility services should be available to all areas of development; however, such extensions should not encourage scattered development outside the corporate limits. It is also important in the planning process to consider the physical capability of service systems in order to guide future growth toward a development pattern which can be efficiently and economically served with utilities. This becomes especially critical for extensions of sanitary sewer service which are most economical when the system can continue to operate on gravity flow without special pumping apparatus. In general, the overall capacities of utility systems will be a consideration throughout the planning period as will the quality of service provided. Water and sewer systems, for instance, must meet a range of quality standards more related to public health than physical design; however, efficient development patterns will complement efforts to maintain a high-quality product throughout. PARKS AND RECREATION Outdoor recreation planning standards recognize five basic categories of municipal parks, which include playlots, neighborhood playgrounds, neighborhood playfields, neighborhood parks, and community or regional parks. Playlots are the equivalent of the backyards of homes in sparsely settled residential districts. The size of each lot may range from 1,500 to 2,500 square feet in area and, ideally, is located within a clear view of all the dwellings it serves. The playlot is designed for pre-school children and should have low swings, slides, sand box, jungle gyms, and space for running and circle games. Passive recreation is also provided for the adults while they watch their children.


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Neighborhood Playgrounds are designed for children whose ages range from 6 to 14 years. They are intended as the recreation center of the neighborhood and are usually within 0.25-mile walking distance of the dwellings they serve. The preferable location of a playground is adjacent to a community center or elementary school where supervised recreation is possible. The playground should have an area for apparatus and open space for informal play. There should be courts for various games, such as soccer, softball, tennis, handball, and volleyball. Space is also needed for the quiet activities, such as crafts, dramatics, and story-telling. Neighborhood Playfields are intended for both young people and adults, and provide for a variety of recreation activities. Each may serve five to six neighborhoods. The desirable space standard is one acre per 800 people. Recreation facilities normally include softball, basketball, football, handball, hockey, archery, outdoor theater and a swimming pool. Night lighting is desirable. Neighborhood Parks provide active and passive recreation for all age groups. The service radius should not exceed 0.75 to one mile. The desirable space standard is one acre per 800 population. The size of the park should not be less than ten acres. Community or Regional Parks serve as open spaces in the built-up area. Frequency depends a great deal upon the degree of population density. This is the place where active and passive recreation facilities for all ages are provided. There should be areas for picnicking, boating, swimming, winter sports, day camping, and bridle paths. This is a park which serves the whole community. The general overall space standard for outdoor recreational opportunity within developed areas is ten acres per 1,000 population, or one acre per 100 persons. Concerning standards for individual recreation facilities, the following guidelines provide an initial gauge for determination of probable present and future needs.

AREA OR FACILITY STANDARD Park Land 1 acre per 100 people Neighborhood Park Land 1 acre per 800 people District Playfield 1 acre per 800 people Softball Diamond 1 per 3,000 people Baseball Diamond 1 per 6,000 people Tennis Courts 1 per 2,000 people Archery Range 1 per 1,500 people Handball Court 1 per 1,500 people Bicycle Trail 1 per 2,500 people Group Picnic Center 1 per 2,500 people Outdoor Theater 1 per 10,000 people Gymnasium 1 per 10,000 people Auditorium 1 per 15,000 people Social Room 1 per 15,000 people Recreation Building 1 per 20,000 people Arts and Crafts Workshop 1 per 10,000 people Municipal Golf Course 1 per 9,000 people Shuffleboard Court 1 per 1,500 people Nature Trail 1 per 10,000 people Wading Pool 1 per 2,500 people Day Camp 1 per 10,000 people Indoor Swimming Pool 1 per 50,000 people Outdoor Swimming Pool 15 sq. ft. per 3 percent of population


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PUBLIC BUILDINGS There are few general standards for gauging the adequacy of most public buildings. Building and site size requirements differ widely between communities and are related to population growth and the extent of functions and services to be accommodated. Requirements are best determined by local survey with future land requirements estimated accordingly. Projections of future populations to be served are one of the basic considerations of all such determinations. Generally, public buildings should be adequate to provide the needs of the community and should be centrally located for equitable access from all parts of the community. Sites should feature ample parking capacity with easy pedestrian flow to, from, and within facilities. Site design should minimize the potential for vehicular congestion and should be aesthetically pleasing. All public facilities, inside and out, must be completely accessible and usable by the physically handicapped. SUMMARY The goals, objectives, standards, and guidelines provide a general framework for evaluation of individual development proposals as well as the means to monitor short- and long-range trends across the municipal planning jurisdiction. Maintenance and use of these standards is one of the basic tools available to the Planning Commission in the continuing effort to influence an increasingly attractive, healthful, and pleasant environment in both existing and developing areas of the community.


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SECTION III

POPULATION

INTRODUCTION Communities exist because of common needs of individuals for a range of amenities, services, and protection, which would not be available on a singular and uncoordinated basis. Accordingly, everything about the community, including its physical characteristics, is shaped, influenced, and sized according to the needs of the resident population to be accommodated. And because the needs and aspirations of population groups are measurable and predictable, analyses and forecasts of existing and future community population levels are among the singularly most important factors in the process of estimating the probable physical size of the community during the planning period. Through this process, some degree of scale can also be provided to the process of determining the probable needs for public facilities, institutions and community infrastructure. In this context, it is the purpose of the population study to review demographic patterns and trends over the course of the 20th century with the intent to establish a statistical foundation for estimation of potential future population levels over the course of a 20-year planning period reaching to the year 2025. FACTORS OF DEMOGRAPHIC CHANGE The overall population of the community will grow or decline over time in response to both social and economic influences, although of the two, economic conditions represent the primary factor of change. When local and regional economic conditions are strong, and jobs are available, the population will expand due to people entering the community, which is termed in-migration. The reverse, or out-migration, is typical where economic decline results in people leaving the community to seek employment in other areas. A general pattern of net-out-migration has characterized most rural areas of the state over the past several decades. The resident population may also change as a result of natural increase, that is, the difference between births and deaths. Also closely tied to area economic conditions, natural increase factors trend toward positive values where available jobs have resulted in larger numbers of younger age workers, but trend toward negative values in a weakening economic climate, or where the population has a high older age component. Over much of central Kansas, natural increase factors have been insignificant due to generally low birth rates coupled with moderate and increasing death rates. The studies of individual aspects of population change in the Lindsborg community which follow will examine these and other factors in more detail as the basis for preparation of a demographic scale to guide development of short- and long-range planning recommendations for implementation during the 20-year planning period. HISTORIC POPULATION PATTERNS The population of the State of Kansas, as well as those of adjoining states in the Central Plains region, was subject to massive and dramatic increases in the years immediately following the Civil War due to the opening of the prairies for settlement. Although the early immigrants were largely farmers and others seeking new land at little or no cost through the provisions of the several federal land bills, the massive and sudden buildup of population occasioned need for centers of supply as well as markets for the products of area farms and ranches, and the trend toward urbanization was begun. Over the course of 140 years, this trend has continued largely unabated, resulting in state and national populations which have become increasingly urban in character. The effects of this trend to the population of the state for the period 1860 to 2000 are illustrated on the following table.


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TABLE 2

POPULATION OF KANSAS, URBAN AND RURAL*

Census Percent Percent Percent Percent of Total Year State Change Urban Change Rural Change Urban Rural

1860 ** 107,206 — 10,045 — 97,161 — 9.4 90.6

1870 364,339 239.9 51,870 416.4 312,529 221.7 14.2 85.8

1880 996,096 173.4 104,956 102.3 891,140 185.1 10.5 89.5

1890 1,428,108 43.4 269,539 156.8 1,158,569 30.0 18.9 81.1

1900 1,470,495 3.0 329,696 22.3 1,140,799 – 1.5 22.4 77.6

1910 1,690,949 15.0 492,312 49.3 1,198,637 5.1 29.1 70.9

1920 1,769,257 4.6 616,485 25.2 1,152,772 – 3.8 34.8 65.2

1930 1,880,999 6.3 729,834 18.4 1,151,165 – 0.1 38.8 61.2

1940 1,801,028 – 4.3 753,941 3.3 1,047,087 – 9.0 41.9 58.1

1950 *** 1,905,299 5.8 993,220 31.7 912,079 – 12.9 52.1 47.9

1960 2,178,611 14.3 1,328,741 33.8 849,870 – 6.8 61.0 39.0

1970 2,246,578 3.1 1,484,870 11.8 761,708 – 10.4 66.1 33.9

1980 2,363,679 5.2 1,575,899 6.1 787,780 3.4 66.7 33.3

1990 2,477,574 4.8 1,712,564 8.7 765,010 – 2.9 69.1 30.9

2000 2,688,418 8.5 1,920,081 12.1 768,337 0.4 71.4 28.6 * Source: U.S. Department of Commerce, Bureau of the Census ** Population of that part of Kansas Territory lying within present limits of the State *** New definition of urban area The table shows that the portion of the overall population classified as urban has increased in each decade since 1860, while the rural population demonstrated a pattern of growth prior to 1900 followed by losses over much of the 20th century. Expressed as percentages of the total, the urban population has continued to expand throughout most of the 140-year period while the rural population has declined. Concerning historic trends in the County population, the following table summarizes demographic patterns since 1890.


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TABLE 3

HISTORIC DEMOGRAPHIC TRENDS* McPherson County, Kansas 1890 - 2000

Number Percent

Year Population Change Change 1890 21,614 ---- ---- 1900 21,421 -193 -0.9 1910 21,521 +100 +0.5 1920 21,845 +324 +1.5 1930 23,588 +1,743 +8.0 1940 24,152 +564 +2.4 1950 23,670 -482 -2.0 1960 24,285 +615 +2.6 1970 24,778 +493 +2.0 1980 26,855 +2,077 +8.4 1990 27,268 +413 +1.5 2000 29,554 +2,286 +8.4

*Source: Comprehensive City Plan, Lindsborg, 1988, U.S. Department of Commerce, Bureau of the Census

The 110-year population history shows that McPherson County has experienced an overall pattern of continuing expansion except for small declines during the 1890’s as characterized by cataclysmic weather patterns across the central plains coupled with economic collapse on a national scale which results in a general depopulation of the dry plains during this period. While McPherson County lost less than one percent of its population during these years, other counties farther west lost from 25 to 75 percent of their populations, most of which would rebound later upon return of more favorable weather and economic conditions. The losses during the ‘40’s were due to the economic and demographic shifts which occurred nationwide due to the World War II effort. These losses were replaced by corresponding gains during the 1960’s and ‘70’s. Within the demographic patterns of the 20th century the population of McPherson County experienced particularly strong expansions during the 1920’s, the 1970’s and the 1980’s. In each case the gains were in a range of about 8 percent. For the most part, this long term pattern of growth was fueled by an expanding local and regional economy, and in particular, an expanding industrial base which has created large numbers of new jobs. As noted in the comprehensive plan of 1988 . . . .“increases in the countywide industrial base, coupled with the stable elements of agricultural, commercial, governmental and institutional employment, sufficient economic opportunity has been present to sustain a general pattern of growth . . . .” Patterns and trends in the population of the City of Lindsborg from 1890 – 2000 are summarized in the following table.


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TABLE 4

MUNICIPAL POPULATION TRENDS, 1890 – 2000* City of Lindsborg, Kansas

Number Percent

Year Population Change Change 1890 968 ---- ---- 1900 1,279 +311 +32.1 1910 1,939 +660 +51.6 1920 1,897 -42 -2.2 1930 2,016 +119 +6.3 1940 1,913 -103 -5.1 1950 2,383 +470 +24.6 1960 2,609 +226 +9.5 1970 2,764 +155 +5.9 1980 3,155 +391 +14.1 1990 3,076 -79 -2.5 2000 3,321 +245 +8.0


The table illustrates a pattern of general population increase over the course of 110 years, with only three decades exhibiting small losses. Periods of population losses included the decade between 1910 and 1920 when a 2.2 percent decrease was recorded, the 1930’s when a 5.1 percent loss occurred, and the 1980’s when a 2.5 percent decrease was noted. Conversely, the city also experienced three decades during which significant growth occurred. These included the 1890’s, the period between 1900 and 1910 and the 1940’s. Gains during these decades ranged from 24.6 percent during the 1940’s to 32.1 percent during the 1890’s and the largest of all, 51.6 percent growth between 1900 and 1910. Concerning the overall pattern of continued growth, the Comprehensive Plan of 1988 notes . . . “like the overall county population patterns, the growth trend in the City population is also due in part to available economic opportunity which has resulted in greater retention of persons already living in the community, plus attraction of new population through the process of in-migration. While local and regional job opportunity has been a strongly positive factor in this regard, enlargement of the local population is also due in part to maintenance of a quality living environment, which has resulted in selection of Lindsborg as a place of residence for increasing numbers of retired persons, as well as persons holding jobs in other area employment centers such as Salina and McPherson . . . .” For the most recent period, growth patterns in both Lindsborg and McPherson County were very similar with an enlargement of 8 percent in the population of the City, and an 8.4 percent enlargement in the overall County population. In this regard, a statistical summary of the City population as a factor in the overall population of the County is outlined in the following table.


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TABLE 5

COMPARISON OF CITY AND COUNTY POPULATION TRENDS, 1890 - 2000* City of Lindsborg and McPherson County, Kansas

City County City as Percent of

Year Population Population County 1890 968 21,614 4.5 1900 1,279 21,421 6.0 1910 1,939 21,521 9.0 1920 1,897 21,845 8.7 1930 2,016 23,588 8.5 1940 1,913 24,152 7.9 1950 2,383 23,670 10.1 1960 2,609 24,285 10.7 1970 2,764 24,778 11.2 1980 3,155 26,855 11.8 1990 3,076 27,268 11.3 2000 3,321 29,554 11.2

*Source: Comprehensive City Plan, Lindsborg, 1988, U.S. Department of Commerce, Bureau of the Census The population comparison shows that the City population as a percentage of the overall County total has varied over the years, but has remained at around 11 percent over the past 40 years. These figures show that while the growth rate of the overall county was greater during the first half of the twentieth century, since about 1950 the growth rates of McPherson County and the City of Lindsborg have been very similar in terms of percentage expansion. This in turn illustrates the interlocked nature of the local and regional economy and the broad impact of the area job market upon population levels countywide. BACKGROUND DECENNIAL CENSUS INFORMATION Among the data compiled during the course of each federal census enumeration is a significant array of related background demographic details for the state, as well as the counties and cities within. The following table outlines a summary of historic census information for McPherson County, from 1960 to 2000.


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TABLE 6

DEMOGRAPHIC COMPOSITION OF THE RESIDENT POPULATION* McPherson County, Kansas 1960 – 2000

Item 1960 1970 1980 1990 2000

Number 24,285 24,778 26,855 27,268 29,554 Percent Change from Last Census --- +2.0 +8.4 +1.5 +8.4 Percent Non-White 0.4 0.8 1.8 2.2 3.5 Percent Under 18 Years Old 33.7 30.8 25.1 26.1 25.4 Percent 18 to 64 Years Old 52.8 54.3 58.6 58.3 57.3 Percent 65 and Over 13.5 14.9 16.3 15.6 17.3 18 years Old and Over, Male, Percent 31.9 32.9 35.5 35.2 35.9 Non-White (Number) 86 201 482 605 1,027 Under 18 Years 26 51 159 209 ---- 65 Years and Over 6 12 19 19 ---- Median Age 31.7 31.4 31.8 34.7 38.1 Male 30.4 29.0 29.9 35.2 ---- Female 33.0 34.0 33.7 36.2 ---- Population in Group Quarters 861 1,454 1,776 1,559 1,637 Families 6,428 6,486 7,293 7,401 7,968 With Own Children Under 18 3,468 3,235 3,428 3,468 3,698 Percent 54.0 49.9 47.0 33.9 33.0 Persons Per Household 3.10 3.13 2.56 2.51 2.49 Birth Rate per 1,000 Population 19.4 12.3 15.8 14.1 11.7 Death Rate per 1,000 Population 9.5 11.6 10.7 11.0 11.6

*Source: Comprehensive City Plan, Lindsborg, 1988, U.S. Department Of Commerce, Bureau of the Census The 40-year demographic summary shows that there have been several notable changes in the composition of the resident population of McPherson County over the years. While the overall population expanded by about 22 percent, the non-white sector increased by more than 600 percent, increasing from 0.4 percent in 1960 to 3.5 percent in 2000. The age composition demonstrated continuing change as well. While the component of the population under 18 years of age declined from 33.7 percent in 1960 to 25.4 percent in 2000, the percentage of population aged 65 and above increased from 13.5 percent to 17.3 percent. During the same period, the median age increased from 31.7 to 35.9, indicating a general and continuing aging of the overall County population. While the population in group quarters has remained relatively stable since 1970, the number of families with their own children under the age of 18 increased slightly, but declined significantly as a percentage of all families. In 1960, 54 percent of families countywide included children under the age of 18, while by 2000, the percentage had declined to 33 percent. This change is also reflected in the average number of persons per household which declined from 3.1 in 1960 to 2.49 in 2000. The underlying reason for much of the demographic change over the period has been a general decline in natural increase. While death rates have remained relatively stable at around 11 per thousand for the past 30 years, birth rates have declined from 19.4 per thousand population in 1960 to 11.7 per thousand in 2000. Current indications are that this general pattern will likely continue for the foreseeable future. Background demographic information for the City of Lindsborg is outlined in the following table.


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TABLE 7

SELECTED COMPONENTS OF THE MUNICIPAL POPULATION* City of Lindsborg, Kansas, 1980 - 2000

Percent

Item 1980 1990 2000 Change Population 5 3 3,15 3.076 3,321 +5. Male 4 6

e 1 3 s 8

s 9 5 s 2

6 s

e 1 9 2

r 2 3 n 8 4

s 1 1

1,48 1,428 1,612 +8. Femal 1,67 1,648 1,709 +2. Under 5 Year 16 155 161 -4.2 5 to 19 Year 73 678 743 +0. 20 to 64 Year 1,55 1,542 1,728 +11.3 65 Years and Over 69 701 689 -1.0Racial Characteristic Whit 3,10 3,017 3,223 +3. Black 3 22 37 +15.6 Othe 2 21 61 +177.Persons of Hispanic Origi 1 25 53 +194.Population in Group Quarter 76 638 552 -27.5 Persons per Household 2.3 2.24 2.26 -2.2

*Source: Comprehensive City Plan, Lindsborg, 1988, U.S. Department of Commerce, Bureau of

the Census The table shows that over the past two decades the City population enlarged over 5 percent with the male component expanding at a somewhat greater rate than the female component. Due to a lower birth rate there are fewer numbers of population under 5 years of age; however, the 20 to 64 age group recorded a slight increase during the period. The 5 to 19 year group and the component of the population over age 65 both remained relatively unchanged. One of the significant changes in the makeup of the City population since 180 has been the increasing numbers of nonwhite population, which in the aggregate amounted to almost an 85 percent enlargement. During this same period, the number of persons reporting Hispanic ancestors more than doubled, growing from 18 in 1980 to 53 in 2000. Persons of Hispanic origin may be of any race. Over the 20-year period, the number of population in group quarters declined by over 27 percent, while the average number of persons per household declined from 2.31 to 2.26. The decline in the number of persons per household is indicative of the generally lower birth rate in recent years which has resulted in fewer persons per household throughout most of the United States as well as the State of Kansas. POPULATION AGE GROUP TRENDS The following table summarizes trends in age group distribution for McPherson County over the past 30 years.


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TABLE 8

POPULATION AGE GROUP DISTRIBUTION* McPherson County, 1970 – 2000

Age Group 1970 1980 1990 2000 Percent Change

Under 4 1,633 1,941 1,903 1,747 +7.0 5 – 9 2,089 1,680 2,206 1,902 -9.0 10 – 14 2,459 1,797 2,021 2,336 -5.0 15 – 19 2,584 2,608 1,889 2,598 -0.5 20 – 24 2,015 2,651 1,842 1,965 -2.5 25 – 34 2,440 3,880 3,902 2,996 +22.8 35 – 44 2,584 2,638 3,794 4,461 +72.6 45 – 54 2,755 2,641 2,550 3,914 +42.1 55 – 64 2,530 2,641 2,416 2,526 -0.2 65 – 84 3,321 3,802 4,036 4,178 +25.8 85 and Over 368 576 709 931 +153.0


The 30-year summary of age-specific population trends shows that, overall, the countywide population has generally aged, with losses in the younger aged groups and gains in the older brackets. The patterns reflect the impact of a generally declining birth rate which has resulted in smaller numbers of younger age population. Countering these losses in terms of numbers are the gains in the older age groups. Particularly notable were the gains in the 25 to 54 age brackets which indicate the presence of substantial numbers of jobs which have influenced a pattern of net in-migration, particularly during the decade of the 1990’s which was a period of economic growth, both locally as well as nationally. Also notable are the very strong gains in the numbers of population aged 65 and over. As a group, the population expanded by almost 6 percent, with a dramatic 153 percent increase in the numbers of persons aged 85 and over. Those figures illustrate a generally greater longevity than in earlier decades, but also the substantial strides in modern geriatric medicine, which together have resulted in many more people in the very old age groups. These broad demographic trends are expected to continue a generally similar pattern throughout the 20-year planning period. Age group trends in the population of the City of Lindsborg during the same 3-year period are summarized in the following table.

TABLE 9

POPULATION AGE GROUP TRENDS* City of Lindsborg, 1970 – 2000

Age Group 1970 1980 1990 2000 Percent Change

Under 5 122 168 155 161 +32.0 5 – 9 156 143 182 178 -14.1 10 – 14 174 139 175 215 +23.6 15 – 19 408 457 321 350 -14.2 20 – 24 420 544 433 400 -4.8 25 – 34 195 362 304 293 +50.3 35 – 44 189 214 346 404 +113.8 45 – 54 234 193 240 375 +60.3 55 – 64 253 239 219 256 +1.2 65 – 74 296 310 267 250 -15.5 75 and Over 317 386 434 439 +38.5

*Source: Comprehensive City Plan, Lindsborg, 1988, U.S. Department of Commerce Bureau of the Census


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The table shows that demographic trends in the population of Lindsborg are generally similar to those of McPherson County with losses in the younger ages with moderate to strong increases in the middle and older age brackets. Significant differences between the two include the gains in the under 5 and the 10 – 14 age groups, and the decline in the 65 – 74 age group. Also similar to the County is the strong gains in the very old age brackets over age 75. Like the County, these patterns suggest that the population of the City has been similarly affected by the lower birth rate in recent years. The gains in the middle years indicate a moderate net in-migration pattern fueled by the beneficial economic conditions which were generating substantial job opportunity in area industries. A certain, although unquantifiable, percentage of expansion in the population of Lindsborg is also attributable to the high quality living environment available in the City which has been a beneficial influence in individual decisions about place of residence and retirement. It is the central purpose of the comprehensive planning process to identify ways and means to extend and preserve these qualities for the benefit of future generations. NATURAL INCREASE FACTORS Although the background reviews of historic demographic trends highlight the net effects of migration as the primary factor in prevailing patterns of population change, the impact of natural increase, that is, the difference between live births and deaths will also affect local and regional population levels. In this regard, the following table outlines a summary of natural increase in the Lindsborg population since 1965.

TABLE 10

PATTERNS OF NATURAL INCREASE*

SELECTED YEARS, 1965 - 2001 City of Lindsborg, Kansas

Live Rate Per Rate Per Natural

Year Births 1000 Population Deaths 1,000 Population Increase 1965 32 14.4 35 15.8 -3 1970 24

19 31 31 24 29 27 40 38 29 38

8.7 30 10.9 -6 1975 8.1 27 11.5 -8 1980 9.8 37 11.7 -6 1985 9.4 38 11.5 -7 1989 7.3 50 15.2 -26 1996 9.4 34 11.0 -5 1997 8.7 43 13.9 -16 1998 12.5 57 17.8 -17 1999 11.5 55 16.7 -17 2000 8.7 62 18.7 -33 2001 11.4 45 13.5 -7

*Source: Comprehensive City Plan, Lindsborg, 1988, Annual Summary of Vital Statistics, Kansas, various years, Kansas Department of Health and Environment.

The data summary shows that throughout the nearly 40-year period from 1965 to 2001, deaths have typically out-numbered births, resulting in a negative natural increase. Over the period, birth rates have ranged from a low of 7.3 per thousand population in 1989 to a high of 14.4 per thousand in 1965. Over the period, the birth rate has been generally low, but with a modest increase in recent years, particularly during the economic expansion of the 1990’s. Prior to 1997, the birth rate as shown in the table averaged 9.5 per thousand, while since 1997 the birth rate has averaged 11.0 per thousand.


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While birth rates have endured fluctuations in response to prevailing economic conditions, death rates have remained relatively stable, ranging from a low of 10.9 per thousand population in 1970 to a high of 18.7 per thousand in 2000, with a nearly 40-year average of 14.0 per thousand. These statistical comparisons show that natural increase has not been a positive factor in growth rates in the city population of Lindsborg. Even with the slightly elevated birth rates of the ‘90’s there still was a continuing negative natural increase. These conditions show that any actual population expansion will be the result of in-migration which will be, in turn, directly tied to area and local economic conditions. In this respect, future population growth will be directly dependent upon an expanding economy which is not only creating new jobs locally, but also in the major employment centers of nearby Salina and McPherson. POTENTIAL FUTURE POPULATION LEVELS Forecasting or predicting long-range demographic trends is an inexact procedure at best and always highly speculative. Over the course of time, many internal and external factors will combine to influence rates of growth or decline in the resident population. Because these influences can and will vary widely in their accumulative impact upon the populations, it is appropriate to consider a range of possibilities in order to assess potential effects of varying social and economic conditions. As previously noted, the primary demographic change agent has, and will continue to be, economic opportunity and its accumulative impact upon migration rates. Within this recognition, the following table contains a series of population forecasts, each based on differing assumptions about the strength and diversity of the local and regional economy during the 20-year planning period. In this context, the following table contains a series of population forecasts, each representing different forecasting methods and/or assumptions about short- and long-range conditions in the community and the surrounding region.

TABLE 11

FUTURE POPULATION ESTIMATES City of Lindsborg, Kansas

Forecast 2000 2005 2010 2015 2020 2025

Trend Line • Since 1890 3,321 3,703 4,128 1,603 5,131 5,720 • Since 1950 3,321 3,456 3,597 3,743 3,864 4,053 • Since 1980 3,321 3,371 3,421 3,461 3,501 3,567

Cohort Method I 3,321 3,326 3,363 3,400 3,449 3,541 Cohort Method II 3,321 3,356 3,411 3,478 3,546 3,666 Cohort Method III 3,321 3,361 3,465 3,628 3,874 4,200 Cohort Method IV 3,321 3,528 3,818 4,154 4,558 5,087 1988 Plan Forecast 3,852 4,624 4,500

Population forecast selected for use in the 1988 Planning Program The table illustrates seven different forecasts, each of which represents a potential reality for the future. Three of the forecasts are trend line projections which assume that historical experience will continue unchanged in the future, a prospect which is relatively unlikely. The other four forecasts utilize a cohort survival procedure which utilizes varying rates of births, deaths and migration based on assumptions about future economic conditions. As such, the cohort forecasts represent the most realistic view of potential future conditions. With reference to the trend line projections, if the average rate of expansion since 1890


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were to prevail, the 2025 population of Lindsborg would be nearly 6,000, while the trend since 1950 would produce a population of slightly over 4,000. The most recent trend line, that is the rate of growth since 1980, would generate a future population of 3,567 by the year 2025, or about 500 less than the 1950 trend line. Of this group, the trend line since 1950 appears to be in a realistic range given the overall demographic experience of the community. In this context, the cohort method forecasts also indicate a wide range of possibilities with regard to future population. Forecast number I, which utilizes average birth and death rates with mildly positive net in-migration rates, indicates a potential future population of over 3,500 by 2025. This forecast is in most respects very similar to the 1980 trend line projection. Cohort forecast II utilizes birth rates of 9.8 to 11.0 per thousand, death rates ranging from 11.5 to 13.0 per thousand and mildly positive net in-migration also predicts a modest enlargement over the years which would result in a 2025 population of nearly 3,700. Cohort forecast III is based on assumption of a stronger economic condition which is producing an increasing number of jobs locally and regionally. Utilizing birth rates of 11.0 per thousand population, death rates of 14.0 per thousand, and a pattern of net in-migration ranging from 0.5 to 2.0 percent per year, this forecast indicates a potential 2025 population of a little over 4,000. This rate of increase is very similar to the 1950 historical trend line forecast. Cohort forecast IV assumes an immediate economic expansion with sustained growth throughout the period. Based on average birth and death rates and yearly net in-migration of from 1.0 to 2.6 percent, this forecast predicts a future population of slightly over 5,000 by 2025. This growth rate, which is slightly less than the 1890 trend line forecast, would only be realistic in the event of major job market expansions both locally as well as regionally. Additionally, the summary of future population patterns also shows the future population forecast utilized in the 1988 Comprehensive Plan. Obviously, that forecast was overly optimistic given the circumstances and course of events over the past 15 years. Overall, the forecasts illustrate a broad range of demographic possibilities over the next two decades, which indicate potential growth rates from relatively stable to strongly aggressive, depending upon which set of economic conditions ultimately prevails. Given present conditions and future indications, it is likely that the mid-range forecasts will prove to be the most reliable. In this regard, Cohort Method III appears to be the most realistic. This forecast recognizes the probability of continuing population expansion, but at a somewhat reduced rate than was utilized in the 1988 plan. SUMMARY The background demographic studies show that the population of the Lindsborg community has demonstrated a 110 year pattern of expansion with very few periods of loss. Most recently, the population enlarged by 8 percent between 1990 and 2000. Whether or not this rate of growth will continue is directly dependent upon future economic conditions, and the ability of the local and regional economy to sustain a favorable job market. Due to uncertainty of future demographic trends, it will be important to continually monitor emerging community directions as part of the continuing planning program. Because patterns of population growth or decline will seldom match the smooth progressions evident in the forecasts, determination of long-range demographic trends will be dependent upon annual review as part of the plan maintenance procedures contemplated by state statute. Where this is a regular aspect of the continuing planning process, demographic information can be kept current and suitable for use in the decision making process.


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Maintenance of the continuing planning program in all aspects, including monitoring of population change, is a primary responsibility of the Planning Commission acting in its role of official advisor to the Governing Body. Where this process is keyed to emerging community characteristics, the population forecasts as well as the comprehensive planning directions generally can be kept viable and useful throughout the 20-year planning period and beyond.


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SECTION IV

LAND USE

INTRODUCTION Within the range of studies appropriate to the comprehensive city planning process, none are of more importance to the process of shaping the future community than the analysis and projection of existing and future patterns of land use. In most communities, existing topographical features in concert with established transportation systems have heavily influenced community development directions, often resulting in areas of mixed use and incompatible land development patterns, often at the boundary and along major highway routes. While these patterns and conditions may be fixed and difficult to change in developed portions of the community, the opportunity exists, through the comprehensive planning process, to guide future municipal expansions toward a more efficient urban pattern, with a resultant benefit to the entire community. In this context, the land use study will provide a practical guide for long-range development, which will influence an efficient urban pattern in which all of the interrelated elements of the community can be sized and located according to the needs of the population to be accommodated. As part of this process, potential future land use patterns are estimated and presented graphically to provide a summary overview of community expansion patterns toward the end of the planning period. Based on the reviews of past and present land use characteristics and development constraints coupled with the forecasts of probable future population levels, the land use study projects potential community expansion over a 20-year planning period through the year 2025. LAND USE METHODOLOGY The term “land use” refers to the activity conducted within a building or on a given land parcel. Such activity that may range from residential uses and commercial sales of commodities to production of goods or the offering of various services. Because these activities are so diverse and the physical facilities associated with them so complex in type and spatial pattern, they are classified into groupings of similar activities for inventory and study. Concerning the process of inventorying uses of land resources, a field survey of land development patterns in and around the Lindsborg community was completed in May of 2003. The survey covered all of the incorporated portions of the City plus the immediately surrounding rural area within three miles of the corporate boundary. The survey consisted of a lot-by-lot inventory of land parcels in the planning jurisdiction, with the resulting land use data classified according to categories as established in the Standard Industrial Classification Manual developed by the Federal Office of Management and Budget. Based on these guidelines, existing uses of land resources in the study area are classified according to the following categories: • Residential - Single-Family (Conventional) - Two-Family - Multiple-Family

- Manufactured Housing

• Commercial - Retail Trade

- Service Business

• Industrial - Light Industry

- Heavy Industry


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• Public and Quasi-Public • Utilities and Communications • Parks and Recreation • Transportation • Undeveloped Land and Water Areas Land use information gathered through the field survey procedures has been portrayed graphically on maps of the planning jurisdiction with existing patterns of development shown for both the area inside the corporate boundary as well as the surrounding rural area. The accompanying data tables show the extent of development in acres by major category of land use for both the incorporated and rural elements of the planning jurisdiction. INCORPORATED AREA LAND USE CHARACTERISTICS Land development patterns across the incorporated area of the Lindsborg community, as shown on the following figure, reflect the influences of the former railroads, a federal highway corridor and a major river channel. These influences, together with a typical western European north-south oriented lot and block platting pattern have resulted in a generally rectangular shape with extended elongations on the northeast and northwest where new residential subdivisions have been developed in recent years. Due to the federal highway corridor influence, the City has, in effect, two commercial districts, one in the Central Business District and one in the eastern portion of the community along the Harrison-Cole Street corridor. Although several industrial businesses are present near the former railroad corridors, there is no concentrated area of industrial development. Overall, the prevailing development patterns of the community have been heavily influenced by flat terrain and the presence of the Smoky Hill River with its associated floodplain. These features have restricted urban expansion toward the south and southwest. The land use field survey indicates that the most recent development trends have been toward the northeast and toward the northwest at the higher elevations, and it is probable that future development will continue to move in these directions in the years ahead. In areas toward the west, which are also relatively flat, there has been no significant development, although there is little to restrain future development except for drainage. Like most of the incorporated area, flat terrain has resulted in serious drainage deficiencies due to lack of adequate channels with lower elevation outlets. Accordingly, although the area toward the west represents the most immediately useable area for continued urban expansion, the development pattern must include area-wide drainage systems adequate to handle the increased storm water runoff volumes which will result from urban development. Concerning characteristics of incorporated area development patterns, the following table outlines a summary of information about types of uses, acreage and percentage.


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TABLE 12

EXISTING LAND USE SUMMARY INCORPORATED AREA CHARACTERISTICS - 2003

City of Lindsborg, Kansas

Percent of Percent of Acres* Estimated Acres Total Developed Per 100

Classification 1987 2003 Land Area Land Population Residential Single-Family 274.7 299.8 30.9 38.0 9.0 Two-Family 2.1 2.2 0.2 0.3 0.1 Multi-Family 19.1 19.4 2.0 2.5 0.5 Manufactured Homes 5.2 8.9 0.9 1.1 0.3

Subtotal 301.1 330.3 34.0 41.9 9.9 Commercial Service Commercial 17.2 17.4 1.8 2.2 0.5 Retail Commercial 11.8 16.4 1.7 2.1 0.5

Subtotal 29.0 33.8 3.5 4.3 1.0 Industrial Light 9.8 18.9 2.0 2.4 0.6 Heavy 15.0 13.7 1.4 1.7 0.4

Subtotal 24.8 32.6 3.4 4.1 1.0 Public & Quasi-Public 82.3 98.9 10.2 12.6 3.0 Parks & Recreation 12.9 21.2 2.2 2.7 0.6 Streets, Alleys & Railroads Streets 226.7 241.0 24.9 30.6 7.3 Alleys 20.8 23.4 2.4 2.9 0.7 Railroads 37.5 0.0 0.0 0.0 0.0

Subtotal 285.0 264.4 27.3 33.5 8.0 Utilities 1.6 7.2 0.7 0.9 0.2

TOTAL DEVELOPED LAND 736.7 788.4 81.3 100.0 23.7 Undeveloped Land 107.7 181.9 18.7 TOTAL CITY 844.4 970.3 100.0 *Based on the 2000 Census Population of 3,321

The statistical summary of municipal incorporated acreage shows that the community has evidenced a degree of growth since the last land use inventory was completed in 1987, enlarging from an estimated 844.4 acres in 1986 to 970.3 acres in 2003. Much of this growth pattern has been toward the northeast and northwest where residential subdivisions have been completed in recent years. Overall, the statistics indicate an expansion of about 15 percent in incorporated area acreage over the past 16 years. Within this growth pattern, there have been associated enlargements in most of the land use categories, with substantial enlargements of about 10 percent in Park and Recreation acreage, and 20 percent in acreage associated with Public and Quasi-Public uses. Within this pattern, commercial and industrial acreage, together, has enlarged by 12.6 acres or over 23 percent since 1987.


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In this respect, the only developed use category to register an acreage decline since 1987 is the Street, Alleys, and Railroads category which represents the transportation system in the community. Due to loss of the railroads, this category declined by about 7 percent, although land devoted to the municipal street system increased by over 6 percent during the statistical period. As noted in the table and illustrated on the existing land use map, the community growth pattern has also resulted in enlargement of undeveloped acreage, which expanded from an estimated 107.7 acres in 1987 to 181.9 acres in 2003. These statistics show that residential acreage remains the predominant aspect of community development, pointing to the important function of the City as a small town place of residence for many who commute to work in other nearby cities and the importance of maintaining a high quality living environment as an aspect of economic development. RURAL AREA DEVELOPMENT PATTERNS At the time the inventory of land use in the incorporated area of the City was prepared, a field survey of developed uses of land resources in the rural area surrounding the City was also completed. The survey of rural area land use patterns encompassed the territory lying within 3 miles of the corporate boundary of the City, including that portion of the 3-mile area inside Saline County. The results of the rural area land use survey are illustrated graphically on the following figure. The figure shows that the rural study area has been subject to increasing non-farm development throughout. At the present time, rural area development has been predominantly for suburban residential uses with the result that many sections now contain from 2 to 7 home sites. This pattern is most intense south and southeast of Lindsborg and least intense toward the northwest. The map also shows, however, that the territory lying west of the City has also been subject to considerable suburban non-farm development in recent years. The rural study area map also shows that there are several substantial barriers to future development, which include the floodplain of the Smoky Hill River and its associated tributaries, and the Interstate I-135 Highway corridor which traverses the eastern portion of the study area from north to south. These barriers will continue to influence suburban development patterns in the rural planning jurisdiction throughout the planning period and beyond. A statistical summary of developed uses of land resources in the 3-mile extraterritorial planning jurisdiction is outlined in the following table.


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TABLE 13

RURAL AREA DEVELOPMENT PATTERNS 3-MILE EXTRATERRITORIAL PLANNING JURISDICTION


Percent of Acres* Estimated Acres Developed Per 100

Classification 1987 2003 Land Population Residential Single-Family 248.6 326.0 22.2 103.8 Manufactured Housing 14.2 18.4 1.3 5.9

Subtotal 262.8 344.4 23.5 109.7 Commercial Service 1.6 2.8 0.2 0.9 Retail 1.4 16.5 1.1 5.3

Subtotal 3.0 19.3 1.3 6.2 Industrial Light 7.6 8.1 0.6 2.6 Heavy 26.6 79.9 5.4 25.4

Subtotal 34.2 88.0 6.0 28.0 Public & Quasi-Public 28.3 30.4 2.1 9.7 Parks & Recreation 110.1 196.5 13.4 62.6 Utilities 6.6 7.0 0.4 2.2 Streets & Roads 755.5 782.3 53.3 249.1 Railroads 228.7 0.0 0.0 0.0

TOTAL DEVELOPED LAND 1,429.2 1,469.9 100.0 467.5

*Based on an estimated rural area population of 314 The tabulation shows that there have been a number of changes in the patterns and density of rural area development since 1987. The greatest element of change has been removal of the railroads from the developed use inventory, which resulted in a reduction of over 200 acres of developed land. Other categories increased however, resulting in an overall developed acreage expansion of more than 40 acres, or over 28 percent, during the period. Developed use categories evidencing substantial change include Residential with over 31 percent increase; Commercial uses with over 500 percent enlargement in acreage; and Industrial with over 150 percent increase. These changes illustrate the continuing urbanization of the rural study area which, at the present time, is still very low density in character. In general, a low density development pattern is desirable throughout the rural area to minimize the potential for serious deterioration of environmental quality. Future growth pressures in suburban locations should be carefully monitored to help assure acceptable development characteristics. When new development is proposed, careful consideration should be given to the likely future needs for roads, utilities and emergency services. In every case, all newly developing areas should utilize land use patterns which will result in a blending of older and new portions of the community so that a balanced land use pattern will result and a quality living environment can be maintained.


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POTENTIAL FUTURE DEVELOPMENT TRENDS Studies of future land use provide important estimations of the potential future size of the community. Based on the review of physical conditions, existing future population levels and current development trends, a forecast of physical expansion patterns by major land use element for the community can be prepared, which in turn provides the statistical base for preparation of a future growth plan. The forecast of future land use patterns is important to the estimation of potential future need for housing, streets and all of the other interrelated elements of the community. In this respect, the forecast establishes a general framework for long-range planning. While community trends over the past century tend to suggest that growth directions have been relatively static, the most recent development patterns are indicating fundamental change in the type, styles and orientation of continuing community expansion as witnessed by the latest residential subdivisions on the northeastern and northwestern flanks of the City. Complicating future development potential is the presence of major defined floodplains and areas of less threatening but nevertheless serious local flooding. In this context, it is the central purpose of the Land Use Study to forecast potential future demand for expansion area and to develop a plan, together with policies and procedures for dealing effectively with continuing demand for development and re-development as well as the social and physical impacts which will result. LAND USE FORECAST Preparation of a statistical forecast of potential future development needs by acreage is an essential aspect of planning for future physical expansion. The forecast is grounded in the broad assumption that future community growth will be substantially influenced by a range of social and economic factors similar to those responsible for recent expansion patterns in and around the City. Based on these parameters, the following table contains a forecast of future land use by acreage for the Lindsborg community, through the 20-year planning period, or until the year 2025.


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TABLE 14

LAND USE FORECAST City of Lindsborg, Kansas

Developed

Existing Percent Acres Per Developed Percent Area in of 100 Population* Acres Acres Of

Classification Acres Total 2003 2025 Added 2025 Total Residential Single-Family 299.8 38.0 9.0 10.0 120.2 420.0 41.3 Two-Family 2.2 0.3 0.1 0.2 6.2 8.4 0.8 Multi-Family 19.4 2.5 0.5 1.0 22.6 42.0 4.1 Manufactured Housing 8.9 1.1 0.3 0.5 12.1 21.0 2.1

Subtotal 330.3 41.9 9.9 11.7 161.1 491.4 48.3 Commercial Retail 17.4 2.2 0.5 0.6 7.8 25.2 2.5 Services 16.4 2.1 0.5 0.7 13.0 29.4 2.9

Subtotal 33.8 4.3 1.0 1.3 20.8 54.6 5.4 Industrial (Manufacturing) Light Industry 18.9 2.4 0.6 0.7 10.5 29.4 2.9 Heavy Industry 13.7 1.7 0.4 0.2 -5.3 8.4 0.8

Subtotal 32.6 4.1 1.0 0.9 5.2 37.8 3.7 Transportation, Communications & Utilities Utilities & Communications 7.2 0.9 0.2 0.2 1.2 8.4 0.9 Streets & Alleys 264.4 33.5 8.0 7.0 29.6 294.0 28.9 Railroads 0.0 0.0 0.0 0.0 0.0 0.0 0.0

Subtotal 271.6 34.4 8.2 7.2 30.8 302.4 29.8 Cultural, Recreation & Entertainment Public & Quasi-Public 98.9 12.6 3.0 2.5 6.1 105.0 10.3 Parks & Recreation 21.2 2.7 0.6 0.6 4.0 25.2 2.5

Subtotal 120.1 15.3 3.6 3.1 10.1 130.2 12.8 TOTAL DEVELOPED LAND 788.4 100.0 23.7 24.2 228.0 1,016.4 100.0 *Based upon a 2000 decennial census population of 3,321 and a 2025 population forecast of 4,200


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Residential Uses are expected to register continuing expansion throughout with proportionately larger increases in the alternative types of housing represented by multi-family structures and manufactured housing. In total, the acreage used for residential purposes is forecast to expand by almost 49 percent during the period, enlarging from 330.3 acres to over 490 acres by the year 2025. Due to the probability of continuation of low density development patterns, the acreage per 100 population is expected to demonstrate a modest increase, expanding from 9.9 to 11.7 per 100 over the course of the 20-year planning period. Commercial Uses, which include both retail and service businesses, are expected to demonstrate a modest expansion during the years ahead. Within the total, the forecast assumes that retail business will experience a slightly smaller overall expansion, but both retail and service businesses have the potential for continuing growth. If the population enlarges at or near the forecast, commercial uses in the aggregate could expand by up to 20 or more acres by the year 2025, resulting in an overall increase of up to 61 percent during the period. Industrial Land is expected to follow the present trend, with continued loss of heavy industry, but with a moderate increase in smaller, cleaner, light industrial types of businesses. Part of the forecasted acreage expansion is due to growing demands for larger sites for individual businesses; however, the forecast also assumes that there will be a continuing enlargement in the number of businesses as well. Based on these guidelines, the forecast indicates an aggregate demand for up to an additional 5 acres or more of land for industrial expansion during the planning period. Cultural, Entertainment, and Recreational Uses of land include parks, institutions, and other public facilities which are essential to provision of the common amenities necessary for a pleasing living environment. Although well developed at the present time, it will remain essential to provide the same opportunity to newly developing neighborhoods. This will be particularly important with respect to providing recreation and in locations where safe access for small children can be available. As a group, these uses are anticipated to expand by over 10 acres or more which represents an increase of over 8 percent during the planning period. Transportation, Communications, and Utilities as a group are expected to require slightly less acreage per capita due to the present extent of facilities coupled with a diminished requirement for streets and alleys brought about by modern platting practices in developing residential neighborhoods. However, as the population continues to expand, there will be a need for additional streets, alleys, utilities, and associated facilities. Together, this category of land use is expected to account for about 30 percent of the total developed land, and require up to 30 or more additional acres if the population enlarges at the forecasted rate. Overall, the forecast of future land use trends anticipates a general community-wide expansion over the next 20 years. Within this general pattern, there will likely continue to be change in the proportional relationships between types of land uses reflecting continuing change in the social perceptions, attitudes, and desires of the resident population. In large measure, these anticipated alterations are observable in the variations in the acreage per 100 population ratios evident in the detail of the future land use forecast. It is the task of the Planning Commission to continually monitor emerging land use trends and to modify the land use forecast as necessary to reflect current community development directions. LAND USE RATIO COMPARISON Concerning current and future land use ratios, the following table details a comparison of current and future ratios projected for the Lindsborg community with average ratios for 25 similar size cities. The 25-city average represents values which were developed from actual land use research conducted by the consultant in each of the subject communities, thus assuring comparability of background research methods.


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TABLE 15

LAND UTILIZATION RATIOS* City of Lindsborg, Kansas

City of Lindsborg 25 City

Land Use 1987 2003 2025 Average Residential Single Family 8.4 9.0 10.0 6.4 Two Family <0.1 0.1 0.2 0.1 Multi-Family 0.6 0.5 1.0 0.2 Manufactured Housing 0.2 0.3 0.5 0.3 Commercial Service Business 0.5 0.5 0.7 0.5 Retail business 0.4 0.5 0.6 0.6 Industrial Light Industry 0.3 0.6 0.7 1.0 Heavy Industry 0.5 0.4 0.2 0.7 Trans., Comm, & Utilities Utilities & Comm. <0.1 0.2 0.2 0.5 Streets & Alleys 7.5 8.0 7.0 5.7 Railroads 1.2 0.0 0.0 1.1 Cultural, Rec. & Entertain. Public & Quasi-Pubic 2.5 3.0 2.5 2.7 Parks & Recreation 0.4 0.6 0.6 1.2 TOTAL CITY 22.5 23.7 24.2 21.0

*Acres per 100 Population The land use ratios developed for the land use forecast reflect a per capita value which is a measurement of development demand for a given population. This makes it possible to assemble mathematical values, or ratios, which illustrate the proportional relationship between population numbers and developed land acreage by broad category. These values, or ratios, are reflective of the fact that communities across broad regions often exhibit remarkably similar development patterns due to common moral values, social views, and platting practices. The comparison of land use ratios for the Lindsborg community with the 25-city average reflects a remarkable similarity throughout, with moderate differences in the individual categories. The comparison shows that the Lindsborg development pattern is slightly lower in overall density than the 25-city average, and it is likely that this trend will continue as most types of developed uses, and in particular new residential expansions, are requiring progressively larger lot sizes. This is ultimately beneficial as lower density promotes light, air and green space which contribute significantly to the quality of the living environment available in the community. LONG-RANGE DEVELOPMENT PATTERNS Based on the background studies of current land utilization practices, the forecast of future population, and the projection of long-range development needs, a graphic presentation of potential urban expansion patterns in and around the Lindsborg community is shown on the following Future Land Use Plan. The plan predicts the possible future characteristics of the community toward the end of the 20-year planning period if all of the judgments and forecasts as envisioned by the planning studies are realized.


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The plan anticipates that a portion of the overall demand for expansion acreage will be satisfied through a process of infilling current vacant land parcels within the present municipal boundary. As shown by the existing land use summary, the community currently contains a considerable amount of vacant land, much of which will be suitable for development during the planning period. However, even with a strong infilling process, urban uses of land will continue to expand on the fringes, resulting in a general enlargement of the community. Potential locations for future expansion zones by land use type are shown graphically on the Future Land Use Plan. RESIDENTIAL EXPANSION The land use map shows that a certain amount of infill will be possible in already platted areas of the community, however, realization of the forecasted 160 acre growth in residential acreage will necessitate additional development outside the present community boundary. As part of this expansion pattern it is probable that future neighborhood enlargements will occur on the northeast, north and northwest, and very likely toward the west across Coronado Street as well. Westerly expansion was predicted by the Comprehensive Plan of 1987 and remains a potential urban expansion direction today. COMMERCIAL USES Due to the compact development of the City there is little expansion potential in the Central Business District and only limited potential along the Harrison-Cole corridor. A limited amount of additional commercial expansion could be accomplished through re-development of adjacent residential uses in both locations, however, realization of the forecasted 20 acre enlargement will necessarily require expansion into currently undeveloped areas at the periphery. Locations potentially usable for new commercial development include the areas adjacent to Swensson Street east of Harrison-Cole, and the area north of Highway K-4 and west of Coronado Street. Both locations could be utilized for commercial development without intruding into established residential neighborhoods. INDUSTRIAL EXPANSION The land use forecast indicates a need for some additional industrial acreage, in addition to a degree of re-development of existing areas. The land use map indicates that the traditional industrial region of the community in the southeast quadrant contains several acres of developable land which is currently in and around existing industrial businesses in the area. Much of the forecasted increase could be realized in this location. If, however, locations requiring larger acreage will be required, the potential exists for further industrial development in the south and southeast where the land elevation is above the floodplain of the Smoky Hill River. In this context, it should be the policy of the community to designate and establish areas appropriate for industrial expansion and to guide such expansion toward a planned growth with regard for transportation access and for extension of community services. Future industrial development should be encouraged in a manner which will minimize the potential for land use conflict in the future and adverse impacts to surrounding residential development. CULTURAL, ENTERTAINMENT, AND RECREATION These uses of land are essential to create and maintain a pleasing community environment, which provides for institutions, parks, and other public facilities. Demand for increases in these amenities will occur as a result of an expanding population base, and it should be the policy of the City to provide upgraded and additional facilities as the needs develop. It will be especially important to maintain a proper balance in newer and older portions of the City to help assure equitable access by all citizens in all areas of the community.


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TRANSPORTATION, COMMUNICATIONS, AND UTILITIES As the community grows and the expansions in the other categories of land use occur, there will be a corresponding and directly proportional demand for streets and alleys, utilities, and communications facilities to serve new neighborhood areas and growing commercial and industrial areas. Toward these ends, it should be the policy of the community to provide adequate street and extensions of municipal services to all developed areas. Sanitary sewer and water should be extended only into designated areas. Extensions should not be made where the availability of services will precipitate a scattered development in outlying areas. IMPLEMENTING THE LAND USE PLAN Implementing the direction and intent of the planning program is a continuing process carried out by the daily decisions of the government officials. The ultimate quality and utility of the future community will depend to a high degree on the policies, actions, and controls of the City in directing future growth and expansion toward development patterns which are consistent and in accordance with the present community and which will reflect an orderly and economical growth pattern. Implementing a land use plan is facilitated through official development policies, application of zoning and subdivision regulations, application of appropriate environmental controls, and a sound policy of future annexation. Realization of the full scope and intent of future development guidelines is dependent upon close cooperation of both the public and private sectors to achieve a balanced and cohesive community which can continue to offer a healthful and quality living environment. As successful implementation of the land use plan is dependent upon a continuing decision-making process, it is important that each decision reflect defined concepts, priorities, and directions. In order to facilitate these ends, it is helpful to establish a range of policy statements to supplement the based overall guidance available from the long-range land use plan and associated studies. Among the guidelines appropriate to the decision-making process are the following: Neighborhood Expansion. The City should promote quality design with due regard for functional adequacy, protection of the natural environment, and aesthetic improvement. New development should be required to provide streets, utilities, and drainage in accordance with acceptable public facility standards, and should be encouraged to provide adequate space for off-street parking of all associated vehicles. Allowance for pedestrian circulation should be provided in locations where deemed advisable by the Planning Commission. Commercial and Industrial Development. The City should provide a reasonable opportunity for continued enlargement of commercial and industrial uses consistent with identified growth patterns with due regard for land use compatibility and protection of the natural environment. All commercial and industrial development should have available adequate utility services for such intensified needs plus fire protection. Proposals for commercial and industrial development should be accompanied by plans for general aesthetic improvement including landscape development and screening where the development will abut a residential area. All development should be low-density with provisions for off-street parking and frontage roads where needed to avoid traffic congestion. Environmental Quality. It should be the policy of the City to influence and guide long-range development toward compatible patterns with the object of limiting environmental impacts.


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Proposals for future development should include storm water management plans where appropriate to help assure that downstream properties will not be adversely affected by the increased runoff. All future development should be provided with adequate utility services meeting appropriate public facility design standards. Advance Land Acquisition. The City should acquire land for playgrounds, neighborhood parks, and other open spaces in advance of need. Land reserved in this manner can, if reserved in appropriate areas, become the focal points for new residential neighborhoods. Historic Preservation. A policy aimed at restoration and preservation of districts and structures having historical significance should be adopted. Buildings and districts treated in this manner have increased value and utility and contribute to community pride. Annexation. Existing areas of urban development, as well as those which may emerge in the future, should be considered for annexation to the City when: 1. The fringe area is needed for continued orderly growth and the prosperity of the City. 2. Fringe lands are needed so that public service facilities, such as water and sewer systems, street

extensions, and recreational facilities, may be planned and provided on a rational and economic basis. 3. Fringe areas need to be brought within and developed under City land use controls; planning, zoning,

housing codes, and building regulations. 4. Fringe areas may be subject to City protective regulations and receive City police and fire services. 5. The fringe area may be subject to City health and sanitation regulations and receive these services. 6. Residents of the fringe areas actually benefit from many of the services and facilities provided by the

City and should bear their full share of the costs. Code Enforcement. The City should continue an active policy of building code enforcement aimed at preservation of property values, providing safe and sanitary living accommodations, and providing community amenities. City Beautification. It should be the policy of the City to enhance the environment through tree planting programs and landscaping of all parks and public buildings and to encourage good landscaping on all private property. These guidelines expressed as policies will provide a framework for guiding future development toward established quality standards. In this context, following specific policy statements are oriented toward the implementation of the planning directions on a progressive and continuing basis. MUNICIPAL DEVELOPMENT POLICIES An important aspect of implementing the long-range planning directions established by the Comprehensive Plan is adoption of specific policies which set out and describe the intention of the City with regard to the location, extent and quality of future urban development. In this regard the following policy statements provide a direct and effective means of guiding future municipal growth and expansion.


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GENERAL DEVELOPMENT POLICIES Policy GD.1. The community Comprehensive Plan shall be the official guide for future

community development. Policy GD.2. Future development patterns and definition of zoning districts shall conform to the

directions and intent of the Future Land Use Plan. Policy GD.3. Future urban growth shall not be located in areas of defined flood hazard without

proof of compliance with applicable local, state and federal floodplain regulations. Policy GD.4. Areas of community expansion shall be located and designed to make efficient use

of available energy resources, established travelways, community facilities and public services.

Policy GD.5. Municipal utilities and other tax paid amenities will not be extended outside the

corporate boundary of the City. Policy GD.6. Continuing development of the City should occur as logical extensions of the

existing community with due regard for street connectivity and preservation of a high quality living environment.

Policy GD.7. Future community development shall preserve natural drainageways and make

such other provisions as may be required to minimize the hazard of flooding. Policy GD 8. Future urban development is encouraged to utilize immediately adjacent land

areas in order to maximize efficiency of community expansion and to reduce scattered non-contiguous rural area development.

RESIDENTIAL NEIGHBORHOOD POLICIES Policy RN.1. Residential expansion shall represent logical extensions and additions of existing

neighborhoods. Policy RN.2. New neighborhood areas shall be served by a full range of municipal utilities

including water, sewer, electricity and natural gas. Policy RN.3. Proposals for residential development outside the service area of existing

municipal utility systems shall not be approved except upon proof of adequate, safe and sanitary service by alternative means.

Policy RN.4. Neighborhood growth patterns shall provide for continuation of existing municipal

street and sidewalk systems. Policy RN.5. Residential additions shall provide for proper drainage patterns consistent with the

characteristics of the existing terrain at the site, and on adjacent properties. Policy RN.6. Continuation of low density development patterns are encouraged in all aspects of

neighborhood development. Policy RN.7. All new residential expansions shall be platted in accordance with the Subdivision

Regulations of the City of Lindsborg.


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Policy RN.8. Residential neighborhood expansion shall include allowance for landscaping to include street trees and lot improvements to preserve the existing visual quality of the community.

COMMERCIAL AND INDUSTRIAL POLICIES Policy CI.1. New commercial and industrial businesses are encouraged to locate adjacent to

existing business areas of like nature to promote cohesive districts. Policy CI.2. Commercial and industrial businesses shall have immediate access to major streets

to assure adequate access to transportation systems. Policy CI.3. Commercial and industrial development shall be connected to municipal utility

systems. Policy CI.4. Commercial and industrial development shall be appropriately buffered and

screened to assume protection of less intense uses, and in particular, areas of neighborhood residential development.

Policy CI.5. Commercial and industrial development shall provide for adequate management

of stormwater runoff, and may be required to provide engineering certifications where deemed appropriate by the City.

Policy CI.6. Commercial and industrial tracts shall be platted and zoned in accordance with the

regulations of the City of Lindsborg. Policy CI.7. Commercial development in the Harrison-Cole corridor should be for travel and

tourist oriented services as opposed to general merchandising types of businesses as are traditional in the Central Business District.

Policy CI 8. Future industrial growth should be limited to those businesses which will not

generate adverse environmental impacts to the natural environment or to the living environment available in residential neighborhoods.

Policy CI.9. Commercial and industrial businesses are encouraged to adopt architectural

features and signage reflective of the unique cultural heritage of the community.

GENERAL ENVIRONMENTAL POLICIES Policy GE.1. New development shall demonstrate environmentally sensitive design through

acknowledgement of existing drainage patterns, natural features and environmentally sensitive lands.

Policy GE.2. All new construction projects shall include appropriate conservation measures to

limit wind and water erosion as part of the project planning process. Policy GE.3 Proposals for future development shall demonstrate appropriate, reasonable, and

efficient use of the existing terrain and natural resources of the community. Policy GE.4. The unique historical heritage of the community and individual locations having

special historical significance shall be protected and enhanced. Policy GE.5. Future neighborhood expansion shall include allowance for enhancement of the

living environment through provision of public infrastructure, outdoor recreational opportunity, pedestrian circulation, and landscaping.

Comprehensive Community Plan

City of Lindsborg, Kansas 47

Policy GE.6. All future development shall conform to the floodplain regulations of the City to minimize the hazard of property damage from future water runoff.

When adopted as part of the Comprehensive Plan for the community, the policy statements provide a framework for decision making and a gauge for quality assessment with regard to emerging patterns of community development. In this sense, the adopted policy positions should be utilized as a formal aspect of evaluations when considering proposals for additional development, changes in zoning, or planning for major public infrastructure improvements or extensions of existing systems. SUMMARY The Land Use studies show that the City of Lindsborg has evidenced continuing enlargements in all aspects of community development. Much of this expansion has been for residential development, although all categories of land use have demonstrated change over the course of the 16-year period since completion of the Comprehensive Plan of 1987. In this sense, the land use studies also show that continuing change in the physical makeup of the City is likely throughout the 20-year planning period and beyond. Toward this end it is important that the planning recommendations be adopted and implemented in order to preserve and extend efficient development practices and a high quality living environment for all citizens of the community. As noted in the 1987 Comprehensive Plan - - - - “While the primary impetus for plan implementation must come from local government, the full process will also require cooperation with the private sector as well as coordination with the policies and operations of county, state and federal governmental agencies, and others. Through these means the City is assured of a maximum opportunity for access to provisions of facilities and services within the general goal of maintaining a high quality environment while minimizing reliance on local tax dollars.” This coordination of governmental policies with the development actions of the private sector is one of the important responsibilities of the Planning Commission acting in its official capacity as technical advisor to the governing body. In this sense, the Planning Commission should play an active role in the formulation of day-to-day actions and policy decisions concerning community expansion, and should represent a primary resource for the Governing Body in the process of managing continuing urban development. Ultimately, the course and effect of this process will significantly impact the direction of the City for decades to come, and with it the living environment of all of the citizens of the community, present and future.


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SECTION V

HOUSING

INTRODUCTION The background land use studies show that development for residential purposes is by far the most prominent use of land resources in the Lindsborg community. Due to the location of the City between the major employment and economic centers represented by Salina and McPherson and adjacent to a major highway corridor, a large and growing number of citizens work outside the City but maintain local residence to avail themselves of the hometown atmosphere and quality of life which characterizes the local setting. As such, the condition of the local housing stock and the appearance and function of the neighborhoods in the community are of considerable importance to the long-range growth potential of the City. In addition to the primary purpose of providing places of residence for the population, the community housing stock is also the primary determinant of the prevailing patterns of neighborhood development which define the physical size and shape of the community, as well as the overall visual quality. In this sense, it is the local housing stock which will most directly influence the quality of the living environment available in the community. Toward a better understanding of current and future housing needs, it is the purpose of this section of the Comprehensive Plan to review the existing housing supply from the view points of adequacy, present and long-range needs, and opportunities for solutions and remedies through actions, policies and programs in both the public and private sectors. DWELLING UNIT SUPPLY AND CONDITION During the land use survey, the physical condition of each dwelling structure was rated according to a visual exterior inspection with a “sound” rating if it appeared to need little or no maintenance and normal conservation measures would maintain it in good condition. Structures with exterior indications of neglect, such as loose siding and windows, roofs and doors in need of repair, received a “deteriorated” rating. Structures with this rating can be economically restored to a sound condition. A “dilapidated” rating was assigned to buildings exhibiting major structural damage of a type not economical to repair, such as crumbling foundation, sagging roof lines, walls out of plumb, and steps, siding, and porches rotted and failing. BACKGROUND HOUSING INFORMATION The following table outlines a comparison of general housing information available from the Federal Decennial Census of 2000 with the 1980 data reported by the Comprehensive Plan of 1988.


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TABLE 16

GENERAL HOUSING CHARACTERISTICS* City of Lindsborg, Kansas

Change Item 1980 2000 Number Percent Total Housing Units 1,117 1,331 +214 +19.2 Year-round units 1,117 1,327 +210 +18.8 Seasonal or occasional 0 4 +4 ---- Year-Round Units Owner-occupied 756 881 +125 +16.5 Vacant units 80 104 +24 +30.0 Plumbing Facilities Complete plumbing 1,105 1,326 +221 +20.0 Lacking complete plumbing 12 5 -7 -58.3 Rooms 1 Room 1 7 +6 +700.0 2 Rooms 21 40 +19 +90.5 3 Rooms 115 120 +5 +4.3 4 Rooms 181 200 +19 +10.5 5 Rooms 240 180 -60 -25.0 6 Rooms 201 268 +67 +33.3 7 Rooms 190 206 +16 +8.4 8 or more Rooms 168 307 +139 +82.7 Median Rooms 5.5 5.9 +0.4 +7.3 Occupants per room 1.00 or less 1,028 1,199 +171 +16.6 1.01 to 1.50 8 21 +13 +162.5 1.51 or more 1 0 -1 -100.0 Value (Owner Occupied Units) Less than $50,000 516 134 -382 -74.0 $50,000 - $99,999 134 382 +248 +185.1 $100,000 - $149,999 4 192 +188 +4,700.0 $150,000 - $199,999 1 56 +55 +5,500.0 $200,000 - $299,999 0 26 +26 +2,600.0 $300,000 – or more 0 0 ---- ---- Median Value $36,300 $85,100 +$48,800 +134.4 *Source: Comprehensive City Plan, City of Lindsborg, 1988; U.S. Dept. of Commerce, Bureau of the Census

The background census information notes considerable change in housing characteristics over the 20-year period between 1980 and 2000. While the total dwelling unit supply enlarged by over 19 percent in the aggregate, there were substantially greater changes in some of the detailed aspects of the housing stock. The statistics show that the size of dwelling units increased sharply, with many more structures having 6 rooms or more in 2000 as compared to 1980. Similarly, the value of owner-occupied housing units registered a sharp increase over the period, with the median value increasing from $36,300 in 1980 to $85,100 in 2000. In this respect, the figures indicate that in 1980, there was only one local dwelling unit valued over $150,000, while by the year 2000 the number had reached 82. These numbers are indicative of increasing size and value, and hence quality of the community housing stock.


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Concerning occupancy characteristics, the table shows that most dwelling units have one person or less per room with only 9 units in 1980 and 21 in 2000 reporting more than one occupant per room. Occupancy rates above one person per room are an indication of over-crowding, and are typically associated with lower range family income levels. Concerning overall quality of the local housing stock, in 2000 there were only 5 dwelling units which lacked complete plumbing facilities. This represents a decrease of over 58 percent in such units since 1980. In general, the background census information indicates that the housing supply has steadily increased in number, quality and value over the years. HOUSING CONDITIONS FROM FIELD SURVEY During May of 2003, existing dwelling units were inventoried with regard to number, type, location, structural condition and occupancy characteristics. The following table outlines a summary of this information and provides a comparison of similar information collected during the earlier field survey of April, 1987 as reported in the Comprehensive Plan of 1988.

TABLE 17

MUNICIPAL HOUSING STOCK FROM FIELD SURVEY City of Lindsborg, Kansas, 1987 and 2003

Change Dwelling Unit Condition 1987 2003 Number Percent Conventional Units Sound 1,125 1,247 +122 +10.8 Deteriorated 46 39 -7 -15.2 Subtotal 1,171 1,286 +115 +9.8 Manufactured Homes 51 71 +20 +39.2 TOTAL ALL UNITS 1,222 1,357 +135 +11.0

The statistical summary indicates that the community housing stock has increased by 11 percent over the course of the past 20 years, with conventional housing units increasing by 10.8 percent while manufactured housing registered an increase of over 39 percent. The survey comparison also shows that the housing stock has increased in quality, as well as number, with over 15 percent fewer deteriorated units in 2003 than in 1987. The table also shows that of the total housing stock as of 2003, 1,286, or 94.8 percent of all dwelling units were classified as conventional stick-built units, while the remaining 71 units, or 5.3 percent, were classified as manufactured housing units. Because of price, ease of acquisition and improved quality, it is likely that manufactured housing units will represent a progressively increasing percentage of the total housing stock in the years ahead. Generalized locations of deteriorated and dilapidated housing units noted during the field survey are shown graphically on the following figure. In general, the map indicates that there are no especially pronounced areas of structural deterioration, and that the relatively few units so recorded, were located in the older sections of the community.


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HOUSING UNIT STRUCTURAL TYPES Within the total housing stock, dwelling units occur in several different types of structures, including conventional single-family detached structures, duplexes, apartment and manufactured housing structures. Based on information gathered during the field survey, the following table summarized the municipal housing stock by type of structure.

TABLE 18

COMPARISON OF DWELLING UNIT STRUCTURAL TYPES

City of Lindsborg, Kansas, 1987 and 2003

Percent of Total

Number of Dwelling Units

Type of Structure 1987 2003 1987 2003 Conventional Dwellings Single-Family 896 1,005 73.3 74.1 Two-Family 26 28 2.1 2.1 Multi-Family 249 253 20.4 18.6

Subtotal 1,171 1,286 95.8 94.8 Manufactured Homes 51 71 4.2 5.2

TOTAL HOUSING STOCK 1,222 1,357 100.0 100.0

The table indicates that structural choice in housing has remained relatively stable over the period, except for an increasing number and percentage of manufactured housing units, which by 2003 represented over 5 percent of the total housing stock. Conventional single-family units remained the overwhelming choice, with over 74 percent of the total. Two-family and multi-family units remained relatively stable, registering only small increases. These numbers show that Lindsborg is generally similar to most other communities, with a strong preference for detached single-family dwelling units, a growing percentage of which is represented by manufactured housing. However, if local trends remain typical of the region, there will be a growing demand for duplexes and apartments as alternatives to the high cost of individual dwelling structures. Accordingly, it is probable that there will be proportionately more duplexes and apartments in the future, with a particularly strong resurgence of duplexes as a housing type of choice. This trend is further reinforced by the numbers of “baby boomers” which will be reaching retirement age soon, many of which will opt for low maintenance rental types of dwelling units. In addition to type and condition of structure, the field survey also recorded dwelling units which had exterior evidences of vacancy. At the time of the survey in 2003, there were 52 units recorded as vacant, which represented 3.8 percent of the overall housing stock. The decennial census of 2000 recorded a total of 108 vacant units which represented 8.1 percent of the total housing stock. These statistics show that the housing market has been, and remains tight, with little choice other than construction of new housing on a custom basis. RURAL AREA HOUSING PATTERNS In addition to the housing stock inside the City boundary, the field land use survey also inventoried dwelling units located in the 3-mile rural study area surrounding the City. A summary of housing information from this source is outlined below.


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TABLE 19

RURAL AREA HOUSING CONDITIONS Lindsborg – McPherson County

Number of

UnitsPercent of

Total

Dwelling Unit Type 1987 2003 1987 2003 Conventional Single-Family Sound 113 122 77.9 86.5 Deteriorated 12 5 8.3 3.6 Dilapidated 14 3 9.7 2.1

Subtotal 139 130 95.9 92.2 Manufactured Housing 6 11 4.1 7.8

TOTAL ALL UNITS 145 141 100.0 100.0

The results of the most recent field survey show that while there are slightly fewer housing units in terms of overall numbers now as compared to 1986, there are many more conventional units in sound condition and manufactured housing units. In this respect, the table shows that the numbers of deteriorated and dilapidated housing units in the rural study area declined by over 69 percent between 1987 and 2003. This trend points to a strong and continuing process of removing older obsolescent farm dwellings while adding substantial numbers of new dwelling units, both conventional and manufactured housing. In this regard, substantial numbers of newer units were observed throughout the rural study area at the time of the field survey. Only 5 vacant units were noted during the survey, all of which were also noted as deteriorated or dilapidated. DWELLING UNIT DENSITY Locations of residential development and general indications of dwelling unit densities were shown earlier on the existing land use maps. These maps indicate a generally low density throughout the planning jurisdiction with areas outside the corporate boundary evidencing a dwelling unit density of only 3 to 6 units per square mile, with the heaviest development densities being toward the east and southeast. The field survey noted an increasing incidence of new home construction in these areas, as well as throughout the rural area. This trend is expected to continue for the foreseeable future. Inside the corporate boundary of the community, dwelling unit densities generally range from 2 to 4 units per acre, up to as much as 8 to 10 units per acre or more where there are apartment or manufactured housing parks. Residential development densities inside the corporate boundary of the community in terms of dwelling unit locations are shown graphically on the following figure. The figure shows that most older sections of the City have been extensively developed with most blocks fully developed. Because of the presence of the Smoky River floodplain on the south and east, the latest direction for new residential development has been toward the northeast and northwest at the higher elevations. Based on the forecasts of potential future population levels, it is probable that additional residential expansion will occur in these general directions at intervals throughout the planning period.


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ESTIMATED FUTURE HOUSING DEMAND Potential future demand for housing is dependent upon many variables, including demographic patterns, economic conditions, and market capacity for provision of materials necessary for housing construction. For the purpose of estimating future housing needs, assumptions are grounded in expectation of improving economic conditions, market capability for product delivery, and population growth as envisioned by the growth forecast adopted by the Planning Commission for use in the planning program. Based on these parameters, the following table outlines a forecast of potential dwelling unit demand through the year 2025.

TABLE 20

FUTURE DWELLING UNIT DEMAND

City of Lindsborg, Kansas, 2025

Item 2003 2005 2010 2015 2020 2025 Population* 3,478 3,543 3,707 3,871 4,035 4,200 Population in Households 2,926 2,991 3,155 3,319 3,483 3,648 Persons per Household 2.6 2.26 2.24 2.22 2.20 2.18 Dwelling Unit Demand 1,295 1,324 1,408 1,495 1,583 1,673 Vacant Demand @ 5% 65 66 70 75 79 84 Replacement Demand @ 1% 13 13 14 15 16 17 Total Dwelling Unit Demand 1,373 1,403 1,492 1,585 1,678 1,774 Less Sound Housing (Current Supply) 1,318 1,318 1,318 1,318 1,318 1,318 Less Units Suitable for Rehabilitation (Current Supply)

39 39 39 39 39 39

Accumulative Deficit -16 -46 -135 -228 -321 -417 *Based on a current population of 3,321 and a future population of 4,200

If the moderate population growth as forecasted by the background planning studies becomes a reality in the years ahead, there could be a long-range need for several hundred additional dwelling units over the course of the planning period. As indicated by the estimates of potential housing demand, if the population reaches the 4,000+ level by the year 2025, upwards of 400 additional units of all descriptions could be required. Included in the demand calculations are allowances for progressive replacement of obsolescent units, plus a vacancy allowance to provide an element of choice in the overall supply. Together, these factors point to the probability of strongly increasing demand for housing in the years ahead. Because the actual demand for housing will be based on a range of highly variable conditions, the forecast should be reviewed annually by the Planning Commission based on emerging demographic trends and prevailing housing conditions. In a number of cases, badly deteriorated dwelling units could, through further neglect, rapidly become dilapidated, increasing the statistical dwelling unit demand. Accordingly, it will be important that monitoring emerging housing patterns and dwelling unit demand be an integral facet of the continuing planning program maintained through the formal process of the Planning Commission.


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FUTURE HOUSING DEMAND BY TYPE OF UNIT Current dwelling unit characteristics as determined through field survey provide a factual basis for estimation of potential housing demand by type of unit. The estimates assume that present characteristics and patterns will remain relatively the same over the course of the planning period, with small variations to account for a larger percentage of alternative housing styles as represented by duplexes, apartments and manufactured housing. The conventional single-family detached type of dwelling unit, however, will continue to remain the overwhelming choice for the majority of families. Based on these parameters, the following table outlines an estimate of potential dwelling unit needs by type of structure toward the end of the 20-year planning period.

TABLE 21

ESTIMATED FUTURE DWELLING UNIT MIX City of Lindsborg, Kansas

Percent Number Dwelling Unit type 2003 2025 2003 2025 Increase Percent Single-Family (Conventional) 74.1 70.7 1,005 1,254 249 24.8 Two-Family 2.1 2.8 28. 50 22 78.6 Multi-Family 18.6 19.5 253 346 93 2.18 Subtotal Conventional Units 9438 93.0 1,286 1,650 364 28.3 Manufactured Housing 5.2 7.2 71 124 53 74.7 TOTAL ALL UNITS 100.0 100.0 1,357 1,774 417 30.7

The table shows that within the 30.7 percent overall housing unit expansion forecast over the next 20+ years, there will likely be stronger percentage increases in manufactured housing and duplex structures as compared to conventional single-family housing and multi-family apartments. However, in terms of actual numbers, the overwhelming majority, or 249 of the forecasted 417 new units, are expected to be conventional single-family units, followed by 93 apartment units, 53 manufactured housing units and 22 duplex units. Ideally, the future dwelling unit mix should include a reasonable variety of housing units of different sizes and arrangements in order to meet the needs of all income levels. Changing lifestyles and family formation affect the number of bedrooms and hence the size of dwellings. Single person households are currently more common and reflect the needs of single persons within the younger and elder age groups. Accordingly, recent indications show that due to a statistically smaller average family size, the overall need for larger units is somewhat lower, however, with difficult economic conditions with regard to housing, it is possible that the statistical average for persons per dwelling unit will remain generally the same in the near term, but with declines in future years due to a generally aging population. HOUSING ASSISTANCE NEEDS Overall community-wide need for housing assistance at the family level can be estimated from the forecasts of future population and housing characteristics coupled with census data for low income families. The 2000 census indicates that 4.9 percent of all families in the City had annual incomes below poverty level, while 8.2 percent of all individuals had incomes below poverty level. Generally, those with incomes below poverty level will be eligible for a range of housing assistance under the scope of federally funded programs.


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If these indications are in any way typical of potential future conditions, up to one in twenty of all local families could be eligible for some type of housing assistance. When these factors are applied to the future housing demand forecast, there could be as many as 35 or more eligible families toward the end of the planning period. Experience shows that the majority of these households will be 1 to 3 person households with lesser numbers of large families. While definitive forecasting of exact numbers is difficult, if not impossible, due to the certainty of continuing economic change, the figures do show the need to include housing assistance needs as an integral facet of the future neighborhood improvement strategy. HOUSING AND NEIGHBORHOOD IMPROVEMENT STRATEGY The location, type, style and quality of residential development are critical elements in the design composition of the City, and in large measure define the quality of life available in the various neighborhood units. It is the visual quality of residential neighborhoods which most directly establishes the flavor and “feel” of the community to both the resident population and those who will visit the community. Because housing and neighborhood development are of such importance, the process must be continuous involving both the public and private sectors. Initial direction and program planning, including funding and budgeting of neighborhood improvements, must be carried out by government according to a defined strategy based on identified housing improvement priorities. Central to these efforts will be:

• Code enforcement to determine building deficiencies.

• Rehabilitation programs for correction of structural and environmental deficiencies.

• Correction of major neighborhood deficiencies such as trash accumulations, rodent infestations, weed problems and surface drainage deficiencies.

• Provision of street improvements, utilities and community services.

• Preservation and/or restoration of historic structures where they are worthy of special effort.

• Continued cooperation with the policies and programs of the state and county.

• Promotion of equal opportunity in all aspects of housing.

While attention to current and emerging residential deficiencies must be the primary focus of the administrative programs, long-range housing and neighborhood improvement will also be dependent to a large degree upon maintenance of quality standards for new development. Among the standards and guidelines appropriate for newly developing neighborhood areas are the following:

• New residential development should not be permitted in defined wetlands and floodplains. Known hazard area, such as areas of land subsidence, or geologic faults, should be avoided.

• High hazard areas such as flight approach zones, high volume traffic streets and sites adjacent to high

pressure natural gas or petroleum products lines should be avoided for residential development.

• Noise and air pollution levels should be considered in all housing developments.

• Multi-family housing and manufactured housing should be developed on sites that are equal in quality to those for single-family homes.


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• Environmental assessment procedures should be developed for all housing projects including 25 or more units. The City should require these reviews at the time that a preliminary subdivision plat is submitted for approval. This requirement could be broadened to include an economic feasibility statement for proposed new developments.

• Whenever possible, all development should be timed to assure the economic and orderly provision of

services. Without proper planning and development of the necessary services and utilities, delays and inconveniences will result for homeowners. Plans for providing sewer, water, electricity, gas and solid waste disposal should be completed well in advance of development.

• Systematic code enforcement programs should be developed and employees well trained to carry out

these regulations so that minimum delay will result in getting projects developed. The primary vehicle for influencing future development quality is through exercise of the review authority present in the Subdivision Regulations. Through the process of land planning, development of preliminary and final plats, and preparation of plans and specifications for actual construction of improvements for the City will have a broad opportunity for application of quality standards aimed at correction of most development deficiencies and promotion of a quality living environment in all development residential neighborhoods. Where the formal public program is consistent and fair with clearly identified objectives, experience shows that corresponding private action and cooperation may be expected with a resulting benefit to the entire spectrum of housing improvement considerations. SUMMARY The review of current housing conditions in and around Lindsborg shows that the local housing stock has increased in both numbers of units and in overall quality since 1987. Current field survey results indicate lower numbers of deteriorated units as compared to 1987 both inside the City as well as across the unincorporated rural study area. In many cases, older obsolescent housing units have been replaced with new units, particularly in the rural area. Also noted by the field survey was a growing incidence of manufactured housing units throughout the planning jurisdiction. Enlarging from 4.2 to 5.2 percent of all units inside the City, and from 4.1 to 7.8 percent of all units in the rural portion of the study area, manufactured housing are being increasingly selected as a structural type of choice for many families. Due to the rapidly improving quality of manufactured housing, and favorable cost as compared to stick-built units, this is a type of unit which will continue to register expansion as a percentage of the total housing stock throughout the planning period. Concerning the on-going process of improving the housing stock and overall neighborhood conditions, enforcement of building, electrical and plumbing codes will be an important adjunct to other efforts, as will enforcement of Zoning and Subdivision Regulations. These measures standardize lot sizes, building setbacks and other aspects of residential neighborhoods and help to assure a rational, planned approach to continued expansion. Such regulations will help to control uses of land within residential neighborhoods and minimize the potential for intrusions of incompatible uses. Such regulations also provide an influence toward street planning with the intent to minimize through traffic in neighborhood areas. Other considerations and opportunities for housing include weatherization and application of emergent technologies for heating and cooling. An important on-going local program will be to continue to participate in governmental programs which offer special inducements for housing modernization. Utilization of the new technologies for heating and cooling could require some revision of existing codes and ordinances. An important program for the future, in this regard, will be to monitor new developments and to recommend appropriate changes to allow full application of new materials and methodologies. Central to these efforts will be continuing participation of the Planning Commission in all aspects of neighborhood improvement. Beyond the traditional role of Zoning and Subdivision review, the Planning Commission acting in its capacity as technical advisor to the Governing Body, should play a pivotal role in identification of long-range neighborhood improvement needs. This process will be most effective where housing and neighborhood improvement issues are approached as an aspect of annual review as part of the continuing plan.


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SECTION VI

TRANSPORTATION

INTRODUCTION Adequate transportation systems are vital to economic expansion and continued community growth. These systems provide the means for supply of raw materials and for movement and distribution of the products of local agriculture and industry. Transportation is equally vital to the re-supply of the daily needs of the population, including safe, efficient and direct access to all portions of the community and the surrounding region. Transportation systems are also among the dominant design elements in the composition of the community, and once established, strongly influence patterns of land utilization. It is important that planning for expansion of existing systems be coordinated closely with the purpose and intent of the future land use plan. While transportation systems and the various modes of travel have greatly influenced the location and extent of development of American cities, the cities of the great plains throughout their history have been dependent principally on three systems of transportation: surface, air and technological. The first utilizes the vehicular and rail mode, the second aircraft, and the third electric transmission lines and pipelines. Each system and mode of transport used is essential to one or more segments of the economy and is balanced in a way that effectively transports people and goods. Because these systems influence patterns of community development so significantly, it is the purpose of the transportation study to review the current transportation systems in the community and explore ways and means by which these systems can continue to serve a growing population and expanding economy in the years ahead. Throughout the Lindsborg community, the dominant feature of transportation is the system of streets and roads, which provides internal access throughout the community and also connects with the street system in adjacent rural areas to form an overall vehicular transportation network. Accordingly, it is the central purpose of the transportation study to review the present system of streets and highways in the community, and to explore ways and means by which the system may be improved throughout the City to provide adequate service to developing areas while promoting safe and efficient interconnection with the existing system in both the incorporated and unincorporated portions of the planning jurisdiction. AIR TRANSPORTATION Although there is no local airport at Lindsborg, the City is within 20 miles of major air facilities at both Salina and McPherson. Both offer basic amenities for based aircraft, pilot instruction, and a range of airport services including fixed base operator, certified airframe mechanic and air charter. In addition, the airport at Salina offers services to the major hub airports at Wichita, Kansas City and Denver and connections to worldwide passenger service as well as air freight. These facilities assure opportunity for access to the full range of air transportation services within a relatively short driving distance of the Lindsborg area. Due to the number and extent of already existing facilities in the region, it is unlikely that an airport will be practical in the immediate area during the 20-year planning period. RAIL TRANSPORTATION The City of Lindsborg and the surrounding area were historically served by both the Missouri Pacific and the Union Pacific railroads with the Union Pacific providing north-south service and the Missouri Pacific providing east-west routing. In recent years the Union Pacific acquired the trackage of the Missouri Pacific and operated both routes, even after subsequent further consolidation with the Southern Pacific, and operated a high-grade main line trackage on the east-west route. All rail service in recent years was limited to freight, with no passenger access anywhere in the immediate region.


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In more recent times, both routes were abandoned, with the north-south trackage being first to go. A portion of the east-west route reaching west from Lindsborg was for a few years operated by a short line rail company – the Central Kansas Railroad, who also abandoned the route, leaving the immediate valley with no access to rail service. At the present time, the former rights-of-way of the railroads within the City of Lindsborg have been “rail banked” and are being developed as routes for a hike and bike trail. With the abandonment of the local routes, rail service is only available at Salina or McPherson, both on the Union Pacific system. The only passenger service is available at Newton, a distance of approximately 50 miles toward the south, on AMTRAK, which operates over a section of the Burlington Northern Santa Fe route east-west through the state. Due to the economic characteristics of operation, it is unlikely that rail service will ever again be reactivated in the immediate area. AREA HIGHWAY SYSTEM The City of Lindsborg is situated about 2 miles west of Interstate 135 Highway on a business loop of US 81. Connections to the north-south interstate highway corridor from Lindsborg at 2 interchanges located approximately 3 miles northeast and 3 miles southeast of the City. At the present time, there is no direct route from the interstate to the City. In addition to I-135 which provides north-south routing, the City is also served by Kansas Highway number 4 which traverses the state on an east-west alignment. This route reaches from Topeka to western Kansas and provides access to and from the community from the central region of the state. Together with I-135, the local and regional highway system assures that the City is within one to three days of all major metropolitan market areas in the continental United States and is easily accessible for commercial traffic and tourists. Concerning tourist access, the Comprehensive Plan of 1988 contained the following:

“In addition to the basic transportation services, another significant aspect of consideration is the economic impact of tourism as it relates to area travelways. One of the important elements of the local economy, travel and tourism is directly dependent upon quality local and regional streets and highways as the primary means of access to the community. The earlier studies of economic condition shows that the accumulative impact of travel and tourism is significant in terms of placing new dollars in circulation countywide. As the community continues to grow and expand, it will be important that the needs of tourism represent a factor in the design and planning of the future street system and that the existing system be upgraded as necessary to maintain an appropriate functional and visual standard.”

CLASSIFICATION FOR STREETS AND ROADS For the purposes of community planning, motor vehicle corridors are classified according to function and traffic carrying capacity. Four classifications are commonly recognized, which include local streets, collector streets, arterial streets and expressways. General characteristics of these street classifications include the following: Local Streets The primary purpose of a local street is to provide access to abutting property. Traffic generated from abutting land use is generally light. Through traffic, buses and large trucks are discouraged from using local streets. The traffic volume on a local street is normally related to the residential dwelling unit. It has been found in many national transportation studies that each dwelling unit will generate from 4 to 10 trips per day. Studies indicate that volumes on local streets usually do not exceed more than 600 vehicles per day.


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Right-of-way widths on local streets will vary from 50 to 60 feet with pavement widths of 26 to 48 feet. In low density residential areas, a pavement width of 28 to 30 feet on a 60-foot right-of-way is possible. The local street in a residential area serves as open space and provides light and air to adjoining properties. The local street also acts as a fire stop between blocks. In residential areas, overhead utilities should be located underground and within the street right-of-way except in instances where it is not feasible to locate them underground. Local streets are the major elements in the design composition of a city, providing space for grass and tree planting and arranging properties in various sizes and shapes of blocks with an irregular or rectangular pattern. Collector Streets The function of the collector street is to collect traffic from the local streets and distribute it to the arterial streets. Land access is a secondary function, parking should be controlled and design should emphasize traffic movement. Curb cuts should be kept to a minimum. Traffic safety is an important design consideration for the collector street. Since collector streets must move more traffic at an increased speed, they require more width than local streets. It is desirable to provide a 70- to 90-foot right-of-way and pavement width of 40 to 48 feet. The traffic volumes on collector streets will vary greatly depending on location, kind of land use and extent of development. Collector streets should not carry more than 2,000 to 3,000 vehicles per day. Where this volume is exceeded, the collector street is probably carrying through traffic. The spacing of collector streets is influenced by land use, density of development and traffic generating characteristics. A spacing of ¼ to ½ mile is a reasonable standard where conditions are such that it can be achieved. Arterial Streets The arterial system is a network of through streets serving the major traffic movements. Arterial streets not only interconnect the various sections of the City, but also interconnect the City with the external highway system. Arterial streets carry the bulk of traffic in the City’s major street system. Arterial street traffic volumes may vary from as low as 2,000 to more than 20,000 vehicles per day in an urban setting. Arterial streets often have right-of-way widths of 80 to 100 feet and pavement widths of 48 to 72 feet. New arterial streets should be designed with rights-of-way from 100 to 150 feet wide. The greater width will provide room to divide opposing traffic lanes and will provide frontage roads on either side to reduce side friction caused by automobiles turning into and from adjacent land uses. Expressways Expressways are very large, high-capacity travelways typified by the divided median, controlled access highway common to the federal interstate system. Such roadways feature multiple land development and are designed to carry high volumes of mixed traffic at high speeds. Accordingly, expressways are designed to accommodate current and anticipated future traffic conditions, and may feature 4 to 12 traffic lanes requiring several hundred feet of right-of-way width. The Interstate I-135 corridor is typical of the expressway type of highway. EXISTING MUNICIPAL STREET SYSTEM The existing street system in the City of Lindsborg reflects a standard grid pattern throughout all but the most recent additions. The grid, which is typical of most small communities, has been a standard town design for centuries, and indeed is reflected in many of the earliest communities of the Old World. Slavishly copied in the development pattern of most original New Work communities, the grid pattern is unquestionably an efficient design, but is limited with respect to site and terrain adaptability and visual appeal.


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For the most part, the grid pattern in the City of Lindsborg consists of blocks 300-400 feet square, intersected and surrounded by street rights-of-way which are typically 60 to 80 feet in width. This pattern has allowed an efficient and compact development which is generally easy to provide with utilities and drainage. In newly developing portions of the community, however, the street pattern has been more adapted to existing terrain and has tended to be more curvilinear in design. Street rights-of-way range from 50 to 60 feet in width and block dimensions are variable, but are usually larger than the blocks in the standard grid pattern. These types of designs have the advantage of minimizing the amount of streets necessary to provide service to abutting property and are generally of better visual quality than the standard grid. It is probable that most development in the future will continue to trend toward a more curvilinear design with decreasing reliance upon a grid pattern. The existing street pattern in Lindsborg is illustrated on the following figure. The figure also outlines classifications of streets within the existing system and indicates the relationship of existing major streets to the overall surface transportation network. The figure shows arterial and collector streets with the remainder classified as local streets. The present street system does not include the expressway classification, although the Interstate 135 corridor closely adjacent to the east is typical of this type of travelway.

TABLE 22

EXISTING STREET SYSTEM SUMMARY City of Lindsborg, Kansas 2004

Estimated Mileage Percent Percent of Functional Classification 1987 2004 1987 2004 Change Expressways 0 0 0 0 0 Arterial Streets 4.5 4.5 17.6 15.7 0 Collector Streets 2.7 5.3 10.5 18.5 +96.3 Local Streets 16.0 18.3 62.5 63.8 +14.4 Subtotal 23.2 28.1 90.6 97.9 +21.1 Platted Streets Not Open 2.4 0.6 9.4 2.1 -75.0 System Total 25.6 28.7 100.0 100.0 +12.1 The data summary shows that there are an estimated 28.7 miles of platted streets in the City, of which, less than one mile is platted but not open for vehicular travel. In its present configuration, the system is nearly balanced between arterial street and collector street mileage, with substantially more miles of local streets. This pattern is more or less typical of most small communities. Usually there are many more miles of local streets than collectors and even fewer arterials. With the community bounded on three sides with major streets and an arterial route through the center, the arterial street mileage is slightly higher in proportion than is the usual case. The table shows that the street system overall has expanded by slightly over 12 percent which is largely due to the new subdivisions of recent years. Also, while there was a moderate increase in the mileage of both collector and local streets, the mileage of platted streets not open declined dramatically from the inventory of 1987. In the future, due to the configuration of the existing street system, it is probable that future enlargements will be in the local street category with no significant increases in the mileage of arterial streets and only small increases in the mileage of collector streets.


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STREET SYSTEM SURFACING Although a range of factors contributes to the relative efficiency or inefficiency of the street system, street surface type and condition is typically the most noticeable to the traveling public. At the present time, the City of Lindsborg street system is comprised of several types of surfacing, including concrete, asphalt, brick and gravel. Estimated mileages of these various surfacing types is summarized in the following table.

TABLE 23

STREET SYSTEM SURFACING

City of Lindsborg, 2004

Surface Type

Estimated Mileage

Percent

With Curb & Gutter Concrete 6.3 22.0 Asphalt 12.4 43.2 Brick 2.2 7.7 Gravel 0.0 0.0 Without Curb& Gutter Concrete 0.3 1.0 Asphalt 3.2 11.1 Brick 0.0 0.0 Gravel 3.7 12.9

Subtotal 28.1 97.9 Streets not Open 0.6 2.1 System Total 28.7 100.0

The summary of street system surfacing indicates that there is a variety of existing surfaces ranging from gravel with side ditches to brick with concrete curb and gutter. Throughout the system, most, or 43.2 percent of all streets, have an asphalt surface with concrete curb and gutter. Next with 22 percent of the total was concrete with curb and gutter, with gravel streets without curb and gutter accounting for nearly 13 percent of the total. With respect to curb and gutter, the summary notes that 20.9 miles or nearly 73 percent of all streets have concrete curb and gutter. Of those without, asphalt streets account for over 51 percent with gravel accounting for another 44 percent, while the remainder is represented by concrete streets. Overall, the remaining brick streets in the system account for less than 8 percent of the total, but are located in high visual impact areas in and around the downtown. Specific locations of brick streets and other surface types in the street system are shown graphically on the following figure. TRAFFIC ACCIDENTS Across the municipal street system, patterns and concentrations of traffic accidents are among the indications of functional efficiency and operational safety. In this regard, the following figure illustrates locations of vehicular accidents in the community during the period from January, 2003 to December, 2003. The figure illustrates the locations of 25 accident occasions. Of the total accidents for the year, 12, or 48 percent, were very minor, involving less than $500.00 damage. Hit and run accidents accounted for 9 of the accidents, while only 3 of the 25 total accidents involved injuries.


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These numbers compare very favorably with the accident experience reported for 1987 by the Comprehensive Plan of 1988. At that time there were 62 accidents, or over twice as many as were reported for 2003. Concerning accident patterns, the 2003 map shows that there were a few incidents in most areas of the community, however only the Lincoln and Main intersection in the downtown area evidenced any noticeable concentrations, although only 6 accidents were reported at this location over the course of the 12 month statistical period. Of particular note is the absence of accident numbers along the Harrison-Cole corridor with only 2 incidents as compared to the 11 accidents reported for 1987. It is probable that widening of the street since 1987 has been a positive factor in this regard. TRAFFIC VOLUMES Traffic volumes utilizing the City street system are also significant factors in accident experience and overall system adequacy. In this regard, the Kansas Department of Transportation regularly conducts vehicle counts at strategic points along the major highway routes which can be compared over time to assess emerging traffic demand patterns. A summary of this information is outlined in the following table.

TABLE 24

TRAFFIC VOLUMES* ANNUAL AVERAGE 24-HOUR TRAFFIC

City of Lindsborg

Location

1987

2003

Percent Change

Old 81 North Total Volume 1,240 2,770 +123.4 Commercial Component 150 180 +20.0 Commercial as Percent of Total 12.1 6.5 --- Old 81 South Total Volume 1,965 3,290 +67.4 Commercial Component 190 165 -13.2 Commercial as Percent of Total 9.7 5.0 --- K-4 West Total Volume 1,075 1,880 +74.9 Commercial Component 140 205 +46.4 Commercial as Percent of Total 13.0 10.9 ---

Source: Traffic Flow Map, Kansas State Highway System, Kansas Department of Transportation The traffic count summary shows that overall volume utilizing the primary highway routes has increased substantially ranging from about 75 percent on K4 west to as much as 123 percent on Old 81 at the north edge of the community. During the same period, heavy commercial traffic increased only moderately and registered a slight decline on 81 south of Lindsborg. For the purposes of City planning, traffic volume data is a primary indicator of street function and classification. Where 24-hour traffic volumes exceed 800 to 1,000 vehicles, the street will likely qualify as a collector, while volumes exceeding 2,000 to 3,000 per day are generally indicative of an arterial street, particularly smaller communities isolated from major metropolitan areas. These patterns appear to coincide reasonably well with the existing major street system outlined earlier.


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In the years ahead, the City should monitor emerging trends in traffic volumes on a regular basis to keep abreast of needs for system changes and route segment up-grading. This will be particularly important in regions of the community where major industrial and/or residential neighborhood expansions are occurring. In this context, emerging traffic volume patterns provide one of the primary gauges, or tests, of the validity of the proposed long-range major street plan. Where significant variations become obvious, appropriate changes to the long-range plan should be adapted as part of the annual plan review process. STREET STANDARDS Reasonable standards for development of new streets and reconstruction of older streets are desirable so that economy in construction can be achieved, traffic can be moved safely and efficiently, and the neighborhood amenities will be preserved. The standards are intended to guide land subdivision activities as well as other street planning and construction. Typical cross sections and standards for municipal streets are shown on the following figure. Arterials The arterial sections are an arterial with frontage roads, arterial with median, an arterial with and without parking and a rural arterial. The arterial cross sections are designed for right-of-way widths of 80 to 100 feet. In outlying areas, a right-of-way of 150 feet may be more useful. The rural arterial standard is one designed for county roads which can be up-graded to the urban arterial standard. This type of section can be used for roads at the periphery of the City which will later become urbanized. This type of road should have a minimum right-of-way 80 feet. Greater widths are usually necessary to provide for drainage ditches at each side. Collectors Two basic types of collector streets are proposed, one for residential areas and another for local business districts or industrial access. Both types are designed to permit parking. Right-of-way widths would range from 70 to 90 feet. Residential Streets The residential standard is based on a 60-foot right-of-way The minimum pavement width is 30 feet. Intermittent parking is permitted; however, long-term or overnight parking should be discouraged. Frontage Roads The figure also illustrates a standard for development of frontage roads in conjunction with arterial streets. Where right-of-way widths permit, frontage roads should be developed to serve arterials carrying large volumes of commercial traffic. This standard will likely have limited potential for application in the Lindsborg community. However, portions of K4 on the southwestern flank, and US 81 on the south are locations where commercial and/or industrial development is possible. In high traffic areas such as these, frontage roads would help to minimize conflicting traffic movements with a resultant benefit to overall corridor safety. Where existing development in these corridors will permit, frontage roads should be established as required. This improvement could become especially important if the City continues to develop and traffic volumes increase. A reasonable minimum standard for one-way frontage roads is 18 feet. Hike and Bike Trails Multiple-use trails can be developed as separate transportation corridors, or may be incorporated as part of an existing street where pavement widths are adequate to accommodate a vehicle lane plus area on the side for the trail. In any event, a combination hike and bike trail will typically require a minimum 10-foot wide surface pavement or marked street surface reservation. Where the trail is reserved for only bicycles or only pedestrians, the width can be reduced to 6 to 8 feet. If the trail is located in a separate corridor, a right-of-way width of at least 20 feet will be typically required to allow construction and maintenance activities. Additionally, the trail system will require specific safety features where there are street crossings and where the trail is a marked lane on an existing street.


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FUTURE COMMUNITY TRANSPORTATION SYSTEM The future municipal transportation system will continue to be dominated by surface vehicles with particular emphasis on the major arterial routes in and around the community. While a majority percentage of this traffic is local, a substantial portion is through traffic with no local destination, particularly along the K4 corridor. Other areas of higher volume vehicular activities will continue to be in the downtown area, near the college and in the area of the public schools. In such areas, but particularly in the US 81 and K4 corridors, it will be particularly important that the City require adequate setbacks and control property access points and parking design in order to preserve operational safety as well as the overall traffic carrying capacity of the roadway. An additional aspect of the functional characteristics of the street system is that of alternative transportation. It will become increasingly important to provide capacity for non-motorized vehicles and pedestrians throughout the community in the years ahead. In this regard, the future street system could include consideration of alternative either as a design feature of the street, or as a separate travelway specifically designed for non-vehicular use. Currently, the City has rail banked the former railroad corridors through the community and is in the process of developing a hike and bike trail which will traverse the central portion of the area from northeast to southwest. This non-vehicular travel route will function as both a major recreational facility and an alternate transportation facility. In the long term, transportation planning should also include consideration of promoting a new interchange and a direct route from I-135 to Lindsborg. As part of this process, Swensson street east of Harrison-Cole should be up-graded to urban collector standard with expectation of ultimate up-grading to an arterial standard. Such a new and direct access could also materially change the pattern of development on the northeast flank of the community In general, as the community continues to grow and expand, it is probable that future development patterns and transportation needs will result in the need for additional collector streets as well as significantly enhanced capacity for alternative transportation. The central requirements of the future system is that it be balanced to provide equitable access and circulation capacity with efficient connection to major external travelways for all areas of the community. MAJOR STREET AND TRANSPORTATION PLAN The Future Transportation Plan for the City of Lindsborg is illustrated on the following figure. The plan does not materially change the existing municipal street system, but anticipates up-grading several existing streets to a higher standard. Additionally, the plan shows a potential route for a hike and bike trail as an alternative transportation measure. The future system plan is grounded in the earlier studies of current and potential future land use characteristics coupled with expectation of modest population expansion which will result in heightened demands for vehicular access and circulation during the 20-year planning period. Additionally, in recognition of the broad national goal of reducing fossil fuel consumption through development of alternative transportation modes, it will be important for the City to continue to designate additional hike and bike trail segments to achieve a balanced routing which will allow non-vehicular circulation around and through the community with connection to major public facilities. A summary of the travelway mileage in the proposed Future Transportation Plan is outlined in the following table.


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TABLE 25

FUTURE TRANSPORTATION SYSTEM City of Lindsborg, Kansas

Classification

Estimated Current Mileage

Percent

Estimated Future Mileage

Percent Expressways 0 0 0 0 Arterial Streets 4.5 45.9 5.7 32.6 Collector Streets 5.3 54.1 6.1 34.9

Subtotal 9.8 100.0 11.8 67.4 Hike and Bike Trail 0 0 5.7 32.6 Total System 9.8 100.0 17.5 100.0

The statistical summary shows that the transportation system depicted on the map would add 1.2 miles of streets up-graded to arterial designation, 0.8 miles up-graded to collector designation and 5.7 miles of new hike and bike trails. The plan does not include new street corridors, except for the new collector designation for the easterly extension of Swensson street which is an existing rural route likely to be annexed to the City as part of the eventual corridor up-grading between Lindsborg and the proposed new I-135 interchange on the east. Other than potential annexation of existing travel corridors, and the route of the hike and bike trail, the proposed transportation plan essentially utilizes the existing street system. IMPLEMENTING TRANSPORTATION SYSTEM IMPROVEMENTS Implementing transportation system improvements is a multifaceted process involving a series of actions over a long period of time. In the short-range time frame, plan implementation, insofar as vehicular street traffic patterns are concerned, may be affected through proper signage and traffic controls which will influence area usage toward patterns which are complimentary to the intent of the long-range plan. Developing through streets, while requiring stops on others, produces immediate alterations in traffic flow, and is an important means of initial implementation of long-range planning. Implementation of the major street plan in the long-range time frame is significantly affected through exercise of the municipal power for administrative review of new subdivisions. Under this authority, granted through state statute, the City may review land subdivision proposals for compliance, once a major street plan has been prepared and adopted. The authority helps to assure that the integrity of the plan will be preserved as raw land is converted to urban uses through the subdivision process. Even with the authority for subdivision review, a common problem associated with implementation of the street plan is that of acquiring adequate right-of-way width so that ample building setback will be assured, and new development will not encroach upon the new street and reduce its capacity to move traffic safely and efficiently. In this context, state law provided municipalities with some discretion regarding reservation of required street rights-of-way. This process is outlined and described in K.S.A. 12-765 which states in part:


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“(a) Whenever any city or county has a part of a comprehensive plan adopted a plan for its major street or highway system, after consultation with the secretary of transportation and the county engineer and any planning commission of the county or counties within which such system lies, the governing body is hereby authorized and empowered, to establish by the appropriate ordinance or resolution building or setback lines on such existing and proposed major streets or highways and to prohibit any new building being located within such building or setback lines on property within the plat approval jurisdiction of the city. Such ordinance or resolution may incorporate by reference an official map, which may include supplementary documents, setting forth such plan which shall show with reasonable survey accuracy the location and width of existing or proposed major streets or highways and any building or setback lines ------------------------The powers of this section shall not be exercised so as to deprive the owner of any existing property of its use or maintenance for the purpose to which such property is then lawfully developed.”

Subject to a range of procedural requirements as further outlined in detail in the body of the enabling legislation, this authority provides a means whereby the community can preserve the rights-of-way of future streets from conflicting development, thus assuring that the major street plan can be implemented on a phased and continuing basis. This authority does not provide a direct taking of land. Actual acquisition of the required right-of-way must proceed according to the usual negotiated purchase procedure. Implementing alternative transportation in the form of a hike and bike trail will require designation of routes, acquisition of right-of-way, and preparation of a financing plan. While required space is much less than that required for streets, a defined and protected corridor for the trail route will be required to provide adequate separation of pedestrians and bicyclists with safety buffer in each side. Special measures will be required where the trail will intersect vehicular routes. Like all major public amenities, the trail system will be expensive and difficult to achieve. In this context, part of the required funding might be available from current recreation and transportation grant programs such as the Department of Transportation T-21 program. This is a competitively awarded grant made available to enhance alternative transportation modes and has already been utilized by the City to fund a major portion of the first phase of the trail which is currently (spring 2004) in the final design stage. A more difficult to implement aspect of the future transportation system is the proposal for a new I-135 interchange to provide a direct route to Lindsborg. This will be a significantly expensive improvement which, if eventually approved, would be largely funded by KDOT. In this context, inclusion of the project in the transportation planning process will help to provide a vehicle for future discussion with the Department of Transportation with the intent to influence designating the interchange as an aspect of the future state transportation improvement plan. SUMMARY Overall, the existing city street system is in sound condition and well maintained. In the years ahead, the community should continue to pursue an aggressive street program both for maintenance and for development of new streets in expansion areas. Such program should include the available means for review of streets as a function of platting practice, and for reservation of rights-of-way for future streets. These measures, together with continued review of changing needs for marking, signage and signalization on the existing system, will result in continued functional adequacy with reduced congestion and hazard in all areas of the community throughout the 20-year planning period.


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In this regard, the major street plan indicates the locations where significant future system improvements will likely be needed to maintain a balanced street pattern. In most such locations, adequate rights-of-way already exist, however, where additional or new rights-of-way may be required, the reservation and acquisition process should begin at an early date. Of particular note are the street expansions proposed in the northeast quadrant of the community. In addition to maintenance of the street system, the City should also continue development of the hike and bike trail through the community. Like the street system, the trail system can be developed in stages over a period of years as funding becomes available. The City should also maintain dialog with KDOT with regard to the proposal for a new highway interchange. Such an improvement could represent a significant economic tool for the community as well as a major transportation system improvement. The transportation system is continually evolving to fit the ever-changing urban pattern. Change most often has occurred without the guidance of a plan. The continuing transportation planning program should provide up-to-date information which can be used as a firm basis for planning future street and highway extensions. Analysis of these data should be used to measure the accuracy of the proposed plan. Continuing study may indicate areas where the plan is weak, or where government policies should be strengthened to achieve the desired goal. Maintenance of the major street plan in the context of continued community expansion is one of the primary responsibilities of the Planning Commission within the scope of the continuing planning program.


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SECTION VII

ECONOMIC RESOURCES AND OPPORTUNITIES

INTRODUCTION Prevailing patterns of growth or decline in any community are, in large measure, influenced by the distribution, depth and diversity of the wealth-producing factors active in the local, regional and state economies. The economy is influenced by the availability of raw materials, the proximity to market areas, transportation, the labor force and capital investment. The purpose of this section of the Comprehensive Plan is to provide a summary view of the economic factors which are currently affecting the Lindsborg community, and which will combine to influence general population levels and physical growth trends during the planning period. In this context, the following analyses also identify historically strong aspects of the local economy and suggest possibilities for continued strengthening of the economic position of the community during the years ahead. GENERAL EMPLOYMENT PATTERNS General patterns of local and area employment are among the basic indicators of business diversity, and as such, provide one of the dependable measures of the relative strength of the local economy. In this context, the following table outlines a summary of information from the federal decennial census.

TABLE 26

LABOR FORCE CHARACTERISTICS* City of Lindsborg

Item 1980 2000 Change Persons, 16 years and over 2,687 2,724 +37 Percent in labor force 54.5 64.9 +10.4 Civilian labor force 1,464 1,767 +303 Employed 1,443 1,521 +78 Unemployed 21 246 +225 Percent 1.4 13.9 +12.5 Female, 16 years and over 1,453 1,402 -51 In labor force 663 845 +182 Class of Worker Private wage and salary workers 1,082 1,111 +29 Federal government workers 26 State government workers 34 Local government workers 138 Self-employed workers 163 136 -27 Unpaid family workers --- 7 +7 Families 705 783 +78 No workers 102 1 worker 160 2 workers 347 3 or more workers 96

* Source: U.S. Department of Commerce, Bureau of the Census


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The table shows that the local labor force remained relatively stable between 1980 and 2000, increasing by only 10.4 percent overall, with about 65 percent of the total population aged 16 years and over participating in the job market. The statistics also show, however, that while the civilian component of the labor force increased by 303, the number of unemployed enlarged by 225. The number of females in the labor force also increased by 182 in over 27 percent between 1980 and 2000. Concerning class of worker, private wage and salary workers increased by 29, or about 3 percent, which the number of self-employed workers declined by 27, or over 16 percent. Unpaid family workers increased by 7. the figures also indicate that government workers numbered 198 in 1980, but by 2000 had increased to 262, an increase of over 32 percent. A summary of the local labor force by industry of employed persons is outlined in the following table.

TABLE 27

INDUSTRY OF EMPLOYED PERSONS* City of Lindsborg

Item 1980 2000 Change Employed persons, 16 years, and over 1,443 1,521 +78 Agriculture, forestry, fisheries and mining 56 29 -24 Construction 80 78 -2 Manufacturing 182 236 +54 Durable goods 81 Transportation, communications and utilities 18 30 +12 Wholesale trade 64 32 -32 Retail trade 224 150 -74 Finance, insurance, real estate 21 87 +66 Business and repair service 28 Personal, entertainment and recreational services 65 144 +79 Professional and related services 667 Health services 158 Educational services 438 Public Administration 38 39 +1


The statistics show that over the 20-year period between 1980 and 2000 the number of employed persons in the local labor force registered only a small gain of about 5 percent. Within the range of employment categories the number of employees declined in agriculture, construction, wholesale trade and retail trade, with increases in manufacturing, transportation, financial and insurance, and personal and entertainment and public administration. In general, the figures are indicative of economic shifts nationwide which have resulted in growth of employment in service industries at a somewhat greater rate than in other non-service industries. This trend is expected to continue for at least the near future. Concerning specific types of occupations, the following table contains a review of the local labor force by occupational classification together with indication of employment trends between 1980 and 2000.


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TABLE 28

EMPLOYMENT OCCUPATIONAL CLASSIFICATION* City of Lindsborg

Occupation 1980 2000 Change Employed persons, 16 years, and over 1,443 1,521 +78 Managerial and professional specialty occupations 403 606 +203 Executive, administrative and managerial occupations 118 Professional specialty occupations 285 353 +78 Technical, sales, administrative support occupations 283 290 7 Technicians and related support 16 Sales 109 Administrative support 158 Service occupations 358 279 -79 Private household 12 Protective service 5 Other service 341 Farming, forestry and fishing occupations 44 29 -15 Precision production, craft and repair occupations 190 Operators, fabricators and welders 155


The figures show that managerial and professional specialty occupations registered a sharp increase of 203, or over 50 percent between 1980 and 2000 with losses or only small gains in the other occupational classifications. HOUSEHOLD INCOME LEVELS Household and family income levels are another of the primary indicators of the strength of the local economy. The following table compares 1980 and 2000 census data for the City of Lindsborg.

TABLE 29

HOUSEHOLD INCOME* City of Lindsborg

Income level 1980 2000 Change Less than $10,000 363 142 -221 $10,000 to $14,999 198 13 -182 $15,000 to $24,999 93 293 +200 $25,000 to $34,999 131 114 -17 $35,000 to $49,999 26 176 +150 $50,000 or more 26 355 +329 $50,000 - $74,999 D 207 --- $75,000 - $99,999 D 89 --- $100,000 - $149,999 D 46 --- $150,000 - $199,999 D 8 --- $200,000 or more D 5 --- Median family income $13,365 $46,250 $+$32,885


D = Data not available


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The household income summary shows that there have been substantial changes over the 20-year period, which have resulted in substantially increased income for most households. In the aggregate there were decreases in the number of households with annual income levels below $35,000 with substantial increases in the number of local households with income levels exceeding $50,000. In 1980, there were only 26 households which reported incomes in excess of $50,000, while in 2000 there were 355. Additionally, by 2000 there were 59 households reporting income of $100,000 or more and 13 with incomes exceeding $150,000. An additional indicator of economic change is the median family income, which increased from $13,365 in 1980 to $46,250 in 2000 which represents an increase of over 246 percent over the period. LOW INCOME FAMILIES Although income levels have increased substantially over the course of the past two decades, there remains a certain percentage of the population which has annual incomes at or below official poverty status. The tabulation below outlines census data for 1979 and 1999.

TABLE 30

POVERTY STATUS OF FAMILIES* City of Lindsborg

Category 1979 1999 Change Income below poverty level 53 38 -15 Percent of all families 7.5 49 -2.6 Householder worked 26 With related children under 18 25 26 +1 Female householder, no husband present 28 15 -13 Householder 65 years and over 12 Income below 125 percent of poverty 83 Percent of all families 11.8 Female householder, no husband present 35

* Source: US. Department of Commerce, Bureau of the Census

The poverty statistics show that the improved economic circumstances of recent years and the associated substantial income expansions documented earlier have resulted in a corresponding decline in the numbers of families with incomes below poverty level. As of 1999 there were 38 families as opposed to 53 in 1979 which qualify for some form of assistance based on income. This represents a decline of over 28 percent in the numbers of very low income families in the Lindsborg community. Similarly, the number of very low income families with female head of household also declined over the 20 year period, dropping from 28 in 1979 to 15 in 1999, which represents a decline of over 45 percent.


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INCOME SOURCES A summary of household income by major source as reported by the federal census is outlined in the following table.

TABLE 31

HOUSEHOLD INCOME BY MAJOR SOURCE* McPherson County

Item 1979 1999 Change Households 9,818 With earnings 8,466 With wage or salary income 7,587 With non-farm self employment income 1,410 With farm self employment income 1,884 With interest, dividend, or net rental income 4,922 With social security income 2,954 With public assistance income 282 With all other income 1,768

* Source: US. Department of Commerce, Bureau of the Census

The statistics indicate that the majority of all households have reported income from some source, and that most have some type of wage or salary income. There are also a number of households which have reported interest, dividend, or net rental income. Relatively few households have reported public assistance income. RETAIL TRADE Due to the nearby major retail centers at McPherson and Salina, traditional retailing in the local community has given way over the years to specialty retailing oriented toward the significant travel and tourism market which is unique to Lindsborg. In this context the following table contains a range of information available from the federal decennial census.


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TABLE 32

RETAIL TRADE* City of Lindsborg

Item 1982 1992 1997 Change Establishments Total number 38 39 28 -10 Number with payroll 33 39 28 -5 Sales ($000) All establishments 8,598 12,897 10,051 +1,453 Establishments with payroll 8,419 12,897 D 4,478 Other data Sole proprietors 19 --- --- --- Paid employees 152 277 128 -24 Payroll entire year ($000) 988 1,991 1,556 +568 Type of establishments (with payroll) Building materials D 3 2 -1 Sales ($000) --- 723 D --- Food stores 5 2 1 -4 Sales ($000) 3,653 D D --- Automotive dealers 3 2 2 -1 Sales ($000) D 2,098 D --- Gasoline service stations 1 3 2 +1 Home Furnishing 2 1 2 -1 Sales ($000) D D D --- Eating and drinking places 9 12 D +3 Sales ($000) 1,332 2,762 D +1,340 Drug stores 2 1 1 -1 Sales ($000) D D D --- Miscellaneous retailers 7 15 4 +2 Sales ($000) 610 D D ---


D = Data not available The information indicates that during the 15-year period from 1982 to 1997 the number of retail establishments decreased from 38 to 28 which represents a loss in numbers of 26.3 percent, although there was an enlargement of about 17 percent in the value of total annual sales. The table also shows that, overall, there were declines in the numbers of basic commodity retailers with increases in service establishments and miscellaneous retailers. In all instances, sales volumes grew substantially over the period. WHOLESALE TRADE Businesses engaging in wholesale trade are those which purchase commodities from manufacturers with the intent of reselling the items to retail stores for purchase by the shopping pubic. For the most part, they are distributors for products and will usually serve a somewhat larger area than just the local community. General characteristics of wholesale trade for the Lindsborg community are summarized in the following table.


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TABLE 33

WHOLESALE TRADE* City of Lindsborg

Item 1982 1992 1997 Change Establishments Total number 8 6 4 -4 Number merchants 7 6 4 -3 Number other types 1 0 --- --- Sales ($000) All establishments D 6,938 D --- Other data Paid employees D 48 D ---


D = Data not available The statistics indicate that wholesaling has generally declined over the period, with a loss of 50 percent in the total numbers of wholesale establishments, and a loss of 43 percent of the merchant wholesalers. Together, 6 firms reported 48 paid employees and gross sales of nearly $7,000,000 in 1992. MANUFACTURING Manufacturing activities are also a major aspect of the local and regional business community. Detailed data from the census are not available for the City of Lindsborg, however, a range of information is available from McPherson County, of which the City of Lindsborg is a part. A summary of these data is outlined in the following table.


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TABLE 34

MANUFACTURING* McPherson County

Item 1982 1992 1997 Change Establishments Total number 67 84 68 +1 Food and kindred products 6 11 --- --- Lumber and wood 2 1 --- --- Furniture 1 2 --- --- Paper and allied products 1 --- --- --- Printing and publishing 14 11 --- --- Petroleum and coal 1 1 --- --- Rubber and plastics 6 9 8 +2 Stone, clay and glass 3 4 --- --- Fabricated metal 3 8 --- --- Machinery, except electrical 20 20 9 -11 Electrical equipment 1 3 --- --- Transportation equipment 1 1 --- --- Apparel and textiles 1 1 --- --- Chemicals and allied products 1 3 4 +3 Value added by manufacture All establishments ($000,000) 118.9 269.7 632.4 +413.5 New Capital Expenditure All establishments ($1,000,000) 8.2 84.3 104.3 +96.1 Employment data Total employees (000) 2.5 3.2 3.8 +1.3 Total production workers (000) 1. 2.2 2.7 +1.7 Total payroll ($000,000) 43.8 91.6 131.2 +87.4 Production workers payroll ($000,000) 26.0 53.5 82.1 +56.1

* Source: 1992 and 1997 Census of Manufacturers, U.S. Department of Commerce The summary indicates the importance of manufacturing as an aspect of countywide economic structure. There have been substantial increases in the total number of establishments and in the associated economic impact, including value added by manufacture, which increased by over 400 percent during the period. Likewise new capital expenditures increased strongly by over 1,000 percent during the period, reaching over $100,000,000 in 1997. With respect to employment, there were increases in both employee numbers and total payroll during the period. While the number of employees increased by 52 percent, the value of the annual payroll enlarged by nearly 200 percent, reaching over $131,000,000 by 1997. Of this total, $82,100,000 was for production workers salaries, which represents an increase of 216 percent between 1982 and 1997. These figures illustrate the importance of manufacturing employment countywide and to the Lindsborg community as well. SERVICE BUSINESS Services, while actually an indigenous aspect of retailing activity, are reported separately for census purposes. These are the commercial activities which do not involve sale of a product or commodity, but are instead sales of some type of service, such as legal service, accounting service, dry cleaning service, automobile repair, or similar activities. A summary of the economic aspects of local service businesses is outlined in the following table.


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TABLE 35

SELECTED SERVICES* City of Lindsborg

Item 1982 1992 Change Establishments Total number D D --- Number with payroll 11 19 +8 Receipts ($000) All establishments D D --- Establishments with payroll 900 3,109 +2,209 Selected business groups (with payroll) Hotels and motels 1 2 +1 Automotive repair --- 1 +1 Miscellaneous repair --- --- --- Amusement, recreation --- 1 +1 Legal services 2 1 -1 Health services 5 6 +1

* Source: 1992 U.S. Census of Service Industries, U.S. Department of Commerce

D = Data withheld to avoid disclosure The table indicates increases in both the numbers of service businesses and associated receipts. Over the period, the total number of service businesses increased by nearly 73 percent, while total sales of services enlarged by over 245 percent. These numbers indicate the importance of service business locally, both as a source of employment and as an aspect of the local economy in terms of sales to the resident population, as well as the significant number of tourists that annually visit the Lindsborg community. AGRICULTURE Representing the primary factor that gave original impetus to settlement and development of the Smoky Valley and McPherson County, agricultural enterprise has always been one of the major and dependable aspects of the local and regional economy. A summary of the impact and effects of agriculture countywide is outlined in the following table.

TABLE 36

ECONOMIC IMPACT OF AGRICULTURE* McPherson County

Item 1984 1997 Change Number of farms 1,493 1,270 -223 Total acreage 559,000 529,999 -30,000 Total acres harvested 316,230 369,480 +53,250 Total value of field crops $41,606,900 $51,382,500 +$9,795,600 Total value of livestock and poultry produced $27,370,000 $25,585,940 -$1,784,060

* Source: 1992 Kansas Statistical Abstract, 2000 In general, the statistics show that while the number and size of farms decreased by several percent over the period, the total acres harvested increased, reaching nearly 370,000 by 1997, up from 316,000 in 1984. During the period the value of field crops expanded by nearly $10,000,000, or over 23 percent. The value of livestock and poultry, however, decreased by $1,784,060, or 6.5 percent during the same period.


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The census data illustrate the extent and importance of economic activity associated with area agriculture. The figures also demonstrate the volatile nature of agriculture with the value of production varying widely over relatively short time periods. MINERAL PRODUCTION Concerning the economic impact of mineral production the 1988 Comprehensive Plan noted the following:

“The Kansas Statistical Abstract notes that in McPherson County, mineral production is limited to clays, sand and gravel for construction and petroleum. Because of the small number of firms producing sand and gravel, detailed sales and income figures are not available. With respect to petroleum production, there were 1,135 producing oil wells in McPherson County in 1983, which produced a total of 1,347,000 barrels of oil. During the same period, 113 gas wells produced 758,000,000 cubic feet of natural gas.”

The September, 2001 edition of The Statistical Abstract noted that as of 2000, there were 463 producing oil wells which delivered 349,750 barrels of oil, both numbers down significantly over the period. Similarly, the number of gas wells declined to 44 with a total production of 137,642 cubic feet of gas. These numbers show that while mineral production, specifically gas and oil, has been and continues to be a significant economic factor in the local and countywide economy, the overall impact has been declining for several years. This trend will likely continue, at least for the near term. TOURISM AND TRAVEL The 1988 Comprehensive Plan noted that the economic impact of tourism and travel in 1985 in McPherson County included total expenditures of $10,331,000 with a generated payroll of $1,877,000 for 248 employees, State tax receipts of $411,000 with local tax receipts of $158,000. At that time, McPherson County was ranked 22nd of the 105 counties for tourism. Although the State of Kansas no longer maintains statistical information on tourism and travel in the state, the previous economic summaries evidence a generally improved condition countywide and in the Lindsborg community. A portion of this expansion has been within the service industries, which locally represent many of the tourist oriented businesses. In this sense, tourism and travel have been a major economic consideration to McPherson county and Lindsborg, and will continue to represent a significant share of the economy throughout the planning and beyond. SUMMARY The reviews of the major economic factors evident in the local community show that traditional businesses, both retail and wholesale, have declined, while tourist oriented businesses, many of which are services, have generally registered strong expansions, particularly in total sales and payroll. The summaries also show that income levels overall have demonstrated a strong expansion in recent years with wage and salary income representing the primary income source. This points up the importance of the greatly expanded job markets in McPherson and Salina which provide places of employment for many of the residents of Lindsborg. Concerning economic opportunity, the 1988 Comprehensive Plan noted the following:


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“The reviews of the individual aspects of the local economy point to a relatively stable, but growing economy overall. The studies show that the traditional sectors of agriculture and trade remain important contributors as does governmental and institutional employment. The studies also show that tourism and industry have begun to represent increasingly strong elements of the local economy in recent years. It is also in these sectors that there appear to be the greatest potential for increased expansion in the years ahead.”

The most recent economic reviews echo those findings and reinforce the importance of continuing to nurture tourism while also promoting industrial businesses which can increase local employment levels. In this sense, the City should re-establish an industrial growth area and should promote industrial growth as part of the overall community economic growth strategy. Although the studies indicate potential for economic improvement during the planning period, much will depend upon the attitude and foresight of the City in both the public and private sectors, in attracting and keeping new businesses and industries. Central to these efforts will be designation and provision of adequate space for physical expansion, and available financing for expansion of existing businesses and location of new commercial enterprises. Also, equally important will be maintenance of an economic development strategy, grounded in maintenance of a community climate which is conducive to expansion of existing businesses while encouraging new commercial enterprise to locate in the Lindsborg vicinity.


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SECTION VIII

COMMERCIAL AND INDUSTRIAL DEVELOPMENT

INTRODUCTION The City of Lindsborg exists as a local center for economic activity associated with a variety of commercial and industrial enterprises. Although often overlooked in the detail of the comprehensive planning process, land use patterns induced by these activities have distinctive characteristics which in many ways affect adjacent neighborhoods as well as the form and function of the community generally. In addition to continuing effects upon physical development patterns, commercial and industrial areas also provide the primary place of employment for the resident population as well as many of the available recreational, cultural, and social amenities. Within this context it will be important that continued development of these areas occurs within the guidelines of adopted goals and policies in order to achieve and maintain efficient and environmentally sound growth patterns. In this context, this section of the plan will provide an overview of existing commercial and industrial areas with the purpose of furthering long-range development patterns which will remain consistent with economic need and the directions established by the Future Land Use Plan. COMMERCIAL AND INDUSTRIAL DEVELOPMENT Within the existing community development pattern there are several distinct areas of commercial and industrial development that have individual land use and environmental characteristics. These areas, depicted on the existing land use maps presented earlier, include three commercial districts and three areas of industrial development. Existing commercial areas include the Central Business District; the Harrison-Cole corridor; and a small but growing area at the southwest corner of the community west of the intersection of Highway 4 and Coronado Street. The area at the southwest corner is currently outside the corporate boundary of the City. Industrial locations include an area of light industry located on north Harrison between the street and the city limits and north of Saline Streets; a mixed area of light and heavy industrial businesses generally along the former railroads, south of Saline Street, east of Cole, and north of McPherson; and a smaller area of industrial uses south of K-4 and the former railroad, east of Chestnut and north of the City limits. These areas differ substantially in development and use characteristics and have differing potentials for long-range future expansion. Locations of existing commercial and industrial areas are shown graphically on the following figure. COMMERCIAL AREAS In addition to location differences, the three existing commercial areas have developed in response to market demand and economic opportunity, resulting in varying types and styles of development. At the present time, except for the Central Business District, development densities are generally low with large lots and ample off-street parking capacity. Descriptions of these areas are outlined in the following paragraphs. The Central Business District This unique area of the community, which reflects the central market concepts of the early European town builders, has been designed at a very high density with extreme economy of space in all aspects of development. This concentrated area serves not only as a center for retail commercial activity, but as a hub for distribution of governmental services, and as the focal point for many of the activities which affect the daily lives of the resident population. Located here are most of the financial, professional, and governmental offices, in addition to a wide array of individual businesses, which provide the goods and services necessary for maintenance of the municipal population, as well as the majority of the inhabitants of the surrounding county.


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As shown on the map, the Central Business District is located generally between Second and Washington Streets east to west, and State to Grant north to south. Occupying approximately 2 city blocks in a rectangular form, the district contains both City and federal offices, school district offices, churches and upstairs apartments in addition to a mixed pattern of retail and service commercial businesses. The district is easily accessible from the area street system and is presently well-maintained and economically viable. As in all such central districts, however, long-term economic stability will be directly linked to the collective ability of the district to retain and enhance shopper interest, both within the resident population and the traveling public. The Central Business district is a unique area of the community and one which will require special planning techniques in order to maintain the current economic viability evident in the array of goods and services currently available. In this regard, the National Mainstreet Organization recognizes four basic aspects of downtown planning. These are:

1. Design – enhance the physical appearance of downtown buildings and public area.

2. Organization – build consensus and cooperation between individuals and organizations having an influence in the downtown.

3. Promotion – market the downtown’s unique characteristics to shoppers, investors, new businesses,

tourists and others. 4. Economic Restructuring – strengthen and diversify the existing economic base of the downtown.

Experience has shown that where these special efforts have been successful, the Central Business District will benefit from a generally renewed interest in the downtown area, accompanied by physical improvement and economic expansion. In this context, the City is currently in the process of a major restructuring of the Central Business District with regard to appearance and function which will result in a generally-improved physical appearance. It will be important for the City to also effectively execute the other basic aspects concerning organization, promotion, and economic restructuring. Additional guidelines for managing this special area of the community are outlined in the following sections of this element of the plan. Harrison-Cole Commercial District In a pattern typical of most major traffic corridors, Harrison-Cole Street (Old US 81) on a north-south alignment through the community has been heavily-developed for commercial and industrial purposes. Commercial uses for the most part are situated immediately adjacent to the highway right-of-way, while industrial areas have tended to infill areas behind the commercial strip development. Typical of this location are business types catering to the traveling public, and those requiring large lot sizes and off-street parking areas. Retail commercial business types currently located along Harrison-Cole include motels, convenience stores, a grocery store, restaurants, a liquor store, a video store, an auto parts store, a bank, and other small retail and service offerings. Commercial development is typically concentrated adjacent to the street right-of-way and does not have significant depth. A noteworthy aspect of the Harrison-Cole commercial district is the presence of sizeable areas of interbedded residential development, particularly on the east side of the corridor from Saline street south to the City limits. Residential development has been in this location for many years and in some cases has been recently upgraded. It is, accordingly, uncertain whether conversion to commercial uses may be expected in the foreseeable future.


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West Highway 4 Commercial District Situated at the southwest corner of the community, this limited commercial area is presently small in size, contains only a veterinary clinic and a utility company office and shop. Both facilities are located west of Coronado street and north of Highway 4. Site sizes are large resulting in very low development densities. The information gathered during the land use survey suggests that this area will likely experience additional pressure for commercial development in the years ahead. At the present time, the location contains substantial undeveloped land fronting on both Coronado and K-4 which could reasonably be developed. Any such development should be carefully planned to avoid a typical “strip” development, particularly with respect to ingress, egress and interior circulation. In this respect, suggested development guidelines and land use controls are outlined in the Future Development section of this plan element. INDUSTRIAL DEVELOPMENT The City of Lindsborg has a moderate industrial base grounded in agriculture, petroleum, manufacturing and construction. Like the commercial areas, industrial development has tended to locate near major transportation routes and has generally concentrated in three different locations, each having unique aspects with regard to current and potential future development patterns. In general, industrial development has occurred along the Harrison-Cole corridor, and along the former railroad corridors in response to available transportation opportunities. Descriptions of the existing areas of industrial development are outlined in the following paragraphs. North Harrison Industrial Area Located east of Harrison street and north of Saline street, this area contains a mixture of light industrial uses including a well drilling office and yard as well as a mini-storage warehouse facility. In this location, Olsson street east of Harrison has been vacated so that there is no public access toward the east between Swensson street on the north and State street on the south. Given the present development characteristics of the area and the lack of access, future expansion potential is uncertain, although the existing land use map indicates additional developable acreage toward the east. Railroad Vicinity Industrial District This area of industrial development is not well defined, but was originally developed to benefit from immediate access to high-grade transportation represented by the former railroads, K-4 highway and the Harrison-Cole (old US 81) corridor. As shown on the map, this area is generally bounded by the former railroad corridors, Saline street on the north, and McPherson street (K-4 Highway) on the south. In addition to existing development related to grain handling, concrete batching, welding and manufacturing, the area also contains a limited amount of currently vacant land which would be suitable for additional industrial development, particularly between Grant on the north and McPherson on the south, and east of the former Union Pacific railroad corridor. South K-4 Industrial Area This small area of industrial development is an oil field equipment storage yard. This area is immediately adjacent to the former Missouri-Pacific railroad corridor and west of Main street on a marginal non-paved roadway. The area is generally bounded on three sides by residential development with currently vacant land toward the south. Overall, this region of the community is essentially residential in character. It is unlikely that this small industrial district will experience substantial pressure for development in the future due to lack of primary access, decline in petroleum related industrial activity and the prevailing residential character.


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EXISTING EXPANSION POTENTIAL As shown on the land use maps, none of the existing areas of industrial development offer substantial growth potential, largely due to the extent of current development and lack of access. Concerning future industrial expansion, due to the need for high grade utilities and transportation systems, and the attendant potential for adverse environmental impacts, the most effective means of guiding development toward identified quality standards is through use of the industrial park concept. Where an appropriate acreage could be assembled, such as in areas on the northeast and southwest, the industrial park concept allows opportunities for study and review of all associated industrial development needs including vehicular access, utility services, drainage, and environmental protection. The industrial park concept also allows more effective marketing of available space as a facet of the local economic development program. In some cases, it may be possible to incorporate elements of existing business and industry into a park configuration, while in other cases the best approach may be to locate and plan an entirely new industrial district. In this regard, application of appropriate zoning and subdivision controls will strengthen the industrial development planning process, and help assure that the industrial park will fit into the long-range community development pattern in the years ahead. PRINCIPALS OF COMMERCIAL AND INDUSTRIAL DEVELOPMENT Each of the community’s commercial and industrial districts has evolved in response to a defined set of market and locational circumstances which have been responsible for present development patterns and which will continue to influence details of expansion in the future. Areas such as the commercial strip along Harrison-Cole have developed as a response to the needs of the traveling public as well as demand for locations offering large tract sizes with immediate access to the highway, while areas such as the Central Business District relate more directly to the permanent population of the community and the surrounding region, and more recently to the unique tourism market. Each type of district has an identifiable character and where these aspects are reinforced through proper zoning and land development practices, the various types of commercial and industrial districts can exist in harmony and even provide some degree of mutual benefit with regard to distribution of goods and services. Development Adjacent to Major Highway Intersections It should be the policy of the City to protect major highway intersections through appropriate control of development practices in adjacent properties. The basic objectives of such policies should be oriented toward:

1. Achieving the most productive use of land.

2. Protecting the highway’s traffic capacity.

3. Providing traveler services to motorists.

4. Preserving the appearance of the landscape around the intersection area. Land use around intersections should be regulated through zoning with specific uses permitted on the basis of their similarity and compatibility. An approximate density standard should limit development around intersections to prevent overcrowding of structures on the land and consequent traffic congestion. Residential uses around major highway intersections should be discouraged. Uses that might be permitted in addition to highway commercial services include low density warehousing and light manufacturing.


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Uniform building setback lines should be established along each side of the approach highway to prevent buildings and other structures from crowding up to the highway right-of-way. The purposes of such building setbacks are:

1. To eliminate obstructions to sight distances on the highway and on drive and local road intersections.

2. To keep distractions to the motorists away from the highway’s traffic lanes.

3. To provide space off the highway right-of-way for maneuvering vehicles entering or leaving roadside establishments.

4. To allow for possible future widening of the highway, construction of parallel service roads or other

improvements to eliminate congestion or solve safety problems. Strip Commercial Development Additional strip development, or “ribbon development”, along area highways should be planned to prevent interior tracts along such travelways from becoming “land locked” and deprived of access to approach roads. In strip areas where a dense development is expected, provision for a service frontage road should be considered to eliminate the need for numerous driveway entrances and the associated traffic hazard. All business establishments located in these areas should have an off-street parking and loading capability sufficient to allow all required vehicular maneuvering to be accomplished completely off-street. Permitted Types of Commercial Development An important element in the future development of commercial areas will be that of land use control. Highway intersection areas and associated strip commercial areas should be oriented toward business types providing goods and services associated with the needs of the traveling public. Such offerings could include restaurants, service stations, motels and fast service grocery and snack shops. Business types which are traditionally of a central business district character, such as clothing, shoes, hardware, professional offices and similar offerings, should be prohibited from highway service commercial areas. Due to limited expansion, potential within the central business district, it is probable that the usual definition of highway service commercial development should be expanded to include automobile dealerships, farm equipment sales and other similar businesses which, because of space requirements, or activity, are not truly compatible with a dense and compact business district concept. General control of development practices and business types permitted to locate within the various commercial areas is best affected through application of a modern comprehensive zoning ordinance which his designed to recognize the emerging need for zone differentiation between the various types of commercial areas. Such zoning control should allow only the minimum pyramiding of use types between areas in order to provide the maximum protection of the character and flavor of each types of area. The Central Business District This unique area of the community is diverse and complex in composition, and must be carefully planned and managed to assure long-range economic viability. In general, a properly planned central business district should be conveniently located, easily accessible and somewhat compact to facilitate ease of shopping, however, densities should not become great enough to cause vehicular congestion. The district should be restricted to sales activities to avoid potential land use conflicts. Such areas should feature ample parking and off-street loading and unloading zones with the opportunity for off-street employee parking. The district should be aesthetically pleasing and should be designed to facilitate pedestrian movement throughout. The district should be functional and safe and should not have a high volume of major highway traffic. The district should have a suitable variety of goods and services with future expansions sized and planned on the basis of anticipated growth in demand for goods and services. Future expansion capability should ideally include sufficient area to a wide range of structural choice in terms of square feet of sales area and building type, with allowances for off-street loading and employee parking.


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Industrial Areas Because of the potential for a range of serious environmental, traffic and utility system impacts within the community, management of continuing industrial expansion through appropriate community planning practice will be essential in the effort to promote additional economic expansion while maintaining a high quality living environment in residential areas of the community. This broad objective is most easily achieved where industrial expansion will occur within a planned development type of concept which will provide adequate long-range growth potential for new businesses while incorporating currently developed industrial areas to a maximum extent. Whether future physical growth will occur as expansion of existing facilities, or as entirely new businesses, patterns of future industrial development should be guided by a range of planning consideration oriented toward land use compatibility with protection of the natural environment. In all cases, industrial development should have immediate access to major high grade travelways of adequate design to handle large trucks and other associated traffic. Water service should be of sufficient size and capacity to handle daily requirements plus fire protection, and all other utilities, including drainage, should be upgraded as required to support the high capacity needs of industrial users. All development should be low density with ample provision for off-street parking and frontage roads where needed to avoid traffic congestion. Signage should be limited in sizes, design and placement to promote visual quality and avoid creation of traffic hazards for adjacent travelways. Each tract or lot should be appropriately landscaped and boundary areas should be heavily screened where the industrial area will abut a residential development. Future proposals for industrial expansions should be accompanied by plans for overall tract development, including means of ingress and egress, utility requirements, drainage provisions, signage and landscape improvement. FUTURE GROWTH DIRECTIONS The principals of commercial and industrial development, coupled with the existing land use and the forecasted need for physical expansion, provide a framework for development of general directions for future development of the various commercial and industrial areas. Because of differing physical resources, surrounding land use and business thrust, each identified district will require a slightly different application of the development principles with a resulting variance of development concept. Each of the areas has the potential for unique features and development modes which, taken as a whole, can compliment the overall pattern of community development. Also a part of long-range development directions is the application of operational techniques which include aspects of product lines, service types, pricing structure, hours of operation and similar considerations, which also significantly affect the long-term viability of commercial and industrial districts. FUTURE COMMERCIAL AND INDUSTRIAL GROWTH PATTERNS Generalized areas of future commercial and industrial expansion are illustrated graphically on the following figure which shows that each of the existing districts will have a physical growth aspect over the course of the planning period. The Central Business District The central core serves as the seat of local government and a point of supply for retail goods and services. Additionally, in recent decades the Central Business District (CBD) has transitioned toward a major center for businesses and services associated with tourism. The activities have combined to keep the district strong as a center of employment and economic activity for the community. In the years ahead, upgrading and expansion will be required to keep pace with the needs of the local and regional population, together with the continuing demand from the traveling public. Physical expansion space is limited around the CBD; accordingly, long-range growth will require purchase and redevelopment of surrounding properties. As these properties are redeveloped, the character and flavor of the existing


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district should be extended in order to retain a sense of continuity and to promote the purposes of a general identity for the area. Another important CBD consideration is that of pedestrian circulation. As the coverage of the district enlarges, convenient, safe pedestrian circulation will be an important aspect of shopper willingness to enter the downtown area. Access from automobile storage areas must be direct and the walk system must be designed to efficiently distribute pedestrians from parking lots to any area of the district. Points of intersection with the street system should have positive control, either by signage or physical design, or both. Landscape screening should be required where businesses abut residential properties. While physical and aesthetic improvement of the district and associated expansion areas will be beneficial to the effort to maintain the CBD, the ultimate success of the effort will also hinge to a significant degree on the operational characteristics of the businesses within the district. Expanded merchandise lines, modified hours of operations, competitive pricing structure and improved interior display and sales space are among the considerations which will compliment the function of the district. Additionally, the CBD will continue to be the appropriate location for specialty businesses such as those related to special cultural features, recreation or personal services and for professional and governmental offices. These types of activities act to draw large numbers of shoppers to the district. Commercial Areas Outside the Central Business District The Future Land Use Plan indicates the probability of continued expansion of commercial areas associated with the major travelways outside the CBD. In all of these instances, with few exceptions, continued commercial development will abut, or occur in the vicinity of current and future residential areas. In order to assure maintenance of a quality living environment, long-range concepts for development of commercial areas should recognize the essential residential character of area neighborhoods and should be aimed at compatible development. Central to this type of concept are large lots, low densities, single story buildings, pleasing landscape and aesthetic treatment and landscape or structural screening of commercial development which abuts residential property. Setbacks should be generous and all businesses should have ample off-street parking and vehicle maneuvering space available. Signage should be carefully controlled to prevent offensive visual clutter. Also of particular importance will be adequate provision for control of surplus stormwater. Already a problem in many areas of the community, the large expanses of roof areas and paved parking lots which will be associated with future commercial development will have the potential to dramatically increase stormwater runoff quantities in adjacent areas of the community. In order to assure that adequate drainage characteristics will be incorporated, each proposal for expansion should include a hydrological analysis and drainage plan of sufficient quality to enable an administrative review as part of the platting and building permitting process. Industrial Development Like the commercial acreage, the Future Land Use Plan also predicts a substantial enlargement in the extent of industrial development during the 20-year planning period. As noted earlier, this type of development will be attended by heightened demand for high grade roadways, larger capacity water and sewer services and power supplies. Industrial development, because of the nature of the associated activities, will also have a greatly increased potential for adverse environmental effects as compared to other types of development, particularly where the expansion may occur in the vicinity of residential neighborhoods. All business in expanding industrial areas should have large lots and ample off-street parking, and maneuvering space. Industrial development areas should be serviced by frontage roads to minimize points of ingress and egress. Business types should be restricted to industrial classifications and development should be clustered to prevent the tendency to generate new strip expansions along major streets.


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In areas where application of industrial park principles is possible, such as in the long-range industrial expansion area shown on the northeast, the area should first be planned and platted through a Planned Unit Development process to help assure that ensuing development will occur on a rational and planned basis. In this manner, adequate utilities and vehicular circulation can be provided, together with application of requirements for signage, landscaping and other aesthetic improvements. In all expansion areas, owners should be encouraged to apply tasteful landscape and exterior building treatments. Signage should be controlled and screening should be required where industrial development will abut residential property. Drainage control will also be important in all such areas. IMPLEMENTATION Carrying out the intent of the development concepts will require the cooperation of both private enterprise and municipal government. The initial impetus for developing the concepts should come from government since they regulate land uses, traffic and utilities in the districts. It is government responsibility to develop the plan and regulatory measures necessary to create a harmonious development. Among the initial measures the City should take are:

1. Adopt a plan.

2. Develop a program of action based on above plan.

3. Develop and enforce necessary regulatory measures.

4. Develop an effective administrative organization for carrying out regulatory measures and implementing plan elements. Develop a system of reporting progress to the public.

5. Develop a financing plan and program and effectively administer it.

The private enterprise endeavor should be equally as forceful as that of the public and should compliment and parallel the public endeavor. Among measures which can be taken by private enterprise are:

1. Organize effectively as a group to assist and support the development of appropriately planned commercial expansion.

2. Work vigorously to develop and attract new business and industry to the community.

3. Use the concepts and development principles as a framework for developing an effective program of

the individual building and site improvements.

4. Work with the municipal government to develop all aspects of expansion based on a program of established priorities which will benefit the entire community.

5. Avoid the possibility of becoming a special interest pressure group. All action should be made for the

good of the community as well as individuals. Coordinate any activity carefully with that of the local government.

SUMMARY The review of current and potential future commercial and industrial development directions in Lindsborg is intended to serve as a guide to maintenance of sound long-range development practices. Continued observation of land use changes and traffic patterns is necessary to keep the long-range commercial and industrial expansion patterns updated and in tune with changes occurring as a result of physical and economic growth. This will ultimately require the interest and full participation of both the public and private sectors of the community.


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It is also important to the ultimate success of the planning efforts that the Planning Commission remain closely involved in all development decisions. Acting in its advisory capacity to the Governing Body, the Commission should continue to play a critical role in the delineation and direction of overall commercial and industrial development patterns. Through this process the community can continue to realize a full range of commercial and industrial growth without generating land use conflicts or unnecessarily limiting the long-range utility of already developed portions of the community.


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SECTION IX

COMMUNITY FACILITIES

INTRODUCTION The term “community facilities” refers to a range of public amenities serving the health, welfare, recreational, educational, and governmental needs of the population. These are the large and expensive facilities and services which can be available only through the combined contributions of large numbers of people. Community Facilities may include, but are not limited to, such essential utilities as water, sewer and electrical power; police and fire protection; schools, parks, libraries and churches; and public administrative facilities such as the airport, city hall, and the city shops. These and similar facilities, both public and quasi-public, rank high among the reasons why groups of people are willing to band together in cities. Through this means, individuals may avail themselves of protection, services and facilities which would not be available on a singular and uncoordinated basis. The effect and contribution of those amenities is so great that for the most part, they constitute a major basis for judgment about the quality of the community, and the living environment within. Because of the premier importance of adequate community facilities to the quality of life available to the citizens, review, study and assessment of long range needs ranks high among the central purposes of the Comprehensive Planning process. In this regard, one of the important overall goals of the planning process is to gauge potential long range need for amenities and services so that future facilities may be sized and located to serve the future population and the future areas of urban expansion in an efficient manner within the intent to conserve tax dollars. The following paragraphs contain reviews and future needs assessments for a range of important community facilities currently serving the Lindsborg community.

INVENTORY Locations of major community amenities, both public and quasi-public, were recorded during the land use field survey, as were details of facilities available and apparent condition. Utilizing this information source, the following figure depicts locations of a range of amenities currently serving the community. Included are locations of a number of facilities which range from churches, schools, parks and public offices, to utilities, city shops and health facilities. As shown on the figure, the community enjoys a wide range of amenities which are located throughout the incorporated area of the city. It will be particularly important that these facilities, which largely determine the quality of life, be sized and located with regard to emerging patterns of urban development so that all citizens in all areas of the current and future community can continue to enjoy equitable access to the range of facilities. FACILITY ASSESSMENTS Assessments of the current condition, service capacity and need for improvement as expansion of a range of important community facilities are outlined in the following paragraphs. Information for the assessments was developed from field observations and interviews with operating staff as well as from the results of a community-wide survey of public opinion completed by the City staff during the fall of 2004. The survey provided opportunity for citizen comment concerning a range of facilities and services and was widely distributed throughout the City. A total of 98 survey forms was returned. A summary of survey response is outlined in the following table.

TABLE 37

SUMMARY OPINION SURVEY RESULTS City of Lindsborg, Kansas


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TABLE 37 (Continued)



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The survey returns, in the aggregate, indicate general public satisfaction with Lindsborg as a place to live and work. However, written comments and observation submitted with the completed survey forms suggest a range of useful and desirable improvements could be made to the existing community infrastructure. Notable among the improvements suggested were improved recreational facilities, group activity centers, conference facilities, additional employment sources, expanded housing opportunities, and expanded shopping. As such, the community opinion survey results together with the written comments provide an aspect of consideration in the process of evaluating and projecting future community facility needs. COMMUNITY HOSPITAL The Lindsborg hospital, located on west Lincoln in the west central portion of the community occupies a site containing approximately 3.1 acres which accommodates the principal building and ancillary facilities including a heliport as well as parking for up to 53 staff and 26 visitors. The main hospital structure, which contains 26,148 square feet of space, is relatively new, having been constructed in 1991, and is in excellent condition. The single-story facility accommodates a medical clinic, a laboratory and a pharmacy, as well as 25 patient beds. The hospital is a general services facility, operated by 47 full-time and 17 part-time personnel. There are typically 47 employees present during a typical work shift. With regard to professional staff, as of 2005, the hospital had available the following: 1 – Anesthesiologist – CRNA 1 – Chiropractor 1 – Dentist 1 – Eye, Ear, Nose and Throat (visiting physician) 4 – General practice physicians 1 – Radiology group 1 – Urologist (visiting physician) 1 – Physician Assistant The hospital provides health care services for the local area as well as the surrounding rural region, and represents one of the public facilities of premier importance to the community. NURSING HOME Supplementing the short-term health care services available at the hospital is an extended care nursing home which features both assisted living and full-time nursing care. Located at Madison and Chestnut the site contains over 200,000 square feet of space. The primary care facility features 132 beds in a two-story main structure with two single-story wings. The building has been remodeled 9 times since the original 1911 construction was completed. In its current configuration, the structure has a present floor area of 57,800 square feet. The facility employs 135 full-time and 53 part-time employees, with 80 employees present for the peak work shift. At the present time, there are no immediate plans for building remodeling, although long-term intentions are to relocate the nursing care unit to allow expansion of assisted living services. Site modifications currently planned include addition of another 23 off-street parking stalls to the 67 already available.


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PUBLIC SCHOOLS The City of Lindsborg is served by Unified School District 400 which covers 396 square miles in Ellsworth, McPherson and Saline counties. The district, from Lindsborg, reaches approximately 16 miles east, 9 miles south, 13 miles north, and 20 miles west. In addition to Lindsborg, USD 400 also serves the cities of Falun, Marquette, Roxbury and Smolan. The district, which is headquartered in Lindsborg, operates three school plants, which include an elementary school, a middle school and a high school. Descriptions of these facilities are noted below: Soderstrom Elementary School Located at 227 North Washington on a 215,625 square foot site near the downtown area, the Elementary School occupies a single 2 story structure containing 50,986 square feet which was completed in 1962. The building contains 14 classrooms, 2 gymnasiums – one of which seats up to 500, and a lunch room with seating for up to 120. The school grounds also contain a well equipped playground featuring 2 baseball diamonds, 2 basketball courts, 9 swings, a slide and a merry-go-round. The Elementary School is staffed by a principal, 19 teachers, 2 secretaries – one of which is part-time, 3 custodians – one of which is part-time, 2 cooks, a librarian and a counselor. The Elementary School was recently renovated and is described as being in good condition with no current plans for further changes or enlargements. Middle School The Middle School is located in concert with the High School on a combined site containing 1,171,600 square feet of space which is designed as a public school complex. The Middle School portion of the complex, located at 401 N. Cedar, consists of 3 buildings which together occupy 67,314 square feet. The Middle School facilities, which formerly served as the High School, were renovated in 1998 and are described as being in good condition. The facility contains 24 classrooms plus an auditorium seating 600 which is shared with the High School, a gymnasium seating 1,350, and a lunch room with seating for 160. Other shared amenities at the site include a baseball diamond, a basketball court, and an athletic field with running track, and up to 50 vehicle parking spaces. Staff at the Middle School includes a principal, 14 teachers, 2 secretaries, 3 custodians, 2 cooks, a librarian and a counselor. There are no current plans for facility renovations or enlargements at the present time. High School Smoky Valley High School, located at 1 Viking Boulevard, was completed in 1998. The school, a single-story, 72,217 square foot structure, is located in a school complex with the Middle School. The site, which also accommodates a storage building, a bus lot, and 195 off-street parking spaces, contains 1,171,600 square feet of space. The High School portion of the complex contains 21 classrooms, a shared auditorium, a gymnasium seating 1,600, a lunch room seating up to 170, and a library offering seating for up to 50. Associated facilities at the site include 6 tennis courts, a basketball court, and a practice athletic field with running track. High School staff includes 2 principals, 24 teachers, 2 secretaries, 3 custodians, 3 cooks, a librarian and a counselor. The High School is described as being in good condition. There are no current plans for renovations or expansions. School Enrollment Patterns The following table outlines a summary of public school enrollments in recent years.


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TABLE 38

UNIFIED SCHOOL DISTRICT 400 ENROLLMENT PATTERNS City of Lindsborg, Kansas

Year Elementary

School Middle School

High School

1999 – 00 282 259 366 2000 – 01 274 249 359 2001 – 01 272 253 368 2002 – 03 260 241 334 2003 – 04 272 239 310 2004 – 05 264 254 312

2005 – 06 (prog.) 249 239 317

Change “99 – ‘05 -33 -20 -49 Percent -11.7 -7.7 -13.4

The statistical trend over the period has been one of gradual decline, and this trend is expected to continue to some extent, with yearly fluctuations, for the near term. However, if the City and others in the immediate region experience a degree of success with regard to economic development, the enrollment trend could stabilize and eventually evidence a return to a pattern of expansion in the years ahead. This could be especially so if growing numbers of families with children elect to relocate to Lindsborg and other small towns in the coverage of the district in order to avail themselves of a small town atmosphere and quality of life. In this regard, the high quality of education available in the USD 400 system is a decidedly positive factor. PUBLIC LIBRARY The Lindsborg City Library is located at 111 south Main in an 8,000 square foot structure which is 65 years old. The building is a one-story structure that houses 2,715 feet of shelf space and approximately 30,000 volumes. There are two meeting rooms available – the Swedish Heritage Room which accommodates about 20 people, and a reading room seating up to 50. Separate facilities are available for children and adults. The library has a staff of 3 which includes a librarian plus two part-time employees. In its current configuration, the facility has 9 tables and 48 chairs with a staff work space of 300 square feet. There are a total of 2,999 card holders, which include 2,162 from within the City, 335 from throughout the region and 502 others. Total circulation for the most recent year was 21,455 volumes. In this context, the following table outlines a comparison of the present library with generally accepted minimum library standards.


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TABLE 39

PUBLIC LIBRARY REQUIREMENTS City of Lindsborg, Kansas

Item Planning

Standard* Existing

Requirement**

Deliciency 2025

Requirement***

Deliciency Book Stock Volumes Per Capita

2 6,642 --- 8,400 ---

No. of Seats Per 1,000

3 10 --- 13 ---

Circulation Vol. Per Capita

9 29,889 8,434 37,800 16,345

Square Feet Per Capita

0.55 1,827 --- 2,310 ---

* Source: Volume, Space and circulation Standards, American Library Association ** Based on a current population of 3,321 *** Based on a 2025 forecast of 4,200 The comparison shows that overall the current facility exceeds minimum standards except for circulation, which is a secondary effect of the electronic information age, due to widespread availability of home computers and the internet. Library staff note current operational needs include more tables and chairs, a computer cataloging system for public use, and regular benefits for employees. PUBLIC SAFETY FACILITIES Public safety facilities in the Lindsborg community consist of law enforcement, fire protection and first responder emergency medical services. The scope of these services, including associated facilities and equipment, is very closely tied to the size and characteristics of the population base served, and to the physical size of the primary service district. The following paragraphs summarize current conditions and potential future needs for these vital services in light of potential future population levels and community characteristics identified by the earlier planning studies. LAW ENFORCEMENT Law enforcement is provided by the Lindsborg Police Department located at 102 South First Street in an administrative services building which also houses the fire department and the first responders emergency medical services. Total space allotment for the Police Department services is 3,200 square feet. The department is staffed by 6 officers plus an administrative assistant, which annually process approximately 1,100 calls per year. Police activity in 2004 resulted in 721 cases filed, 468 citations issued, and 300 written warnings. Although fingerprinting is available locally, booking and detention, when required, is provided by the McPherson County Sheriff’s office under the terms of a joint City/County agreement. County facilities provide for separation of juveniles and females. Other cooperative assistance includes dispatch, after-hours telephone answering and back-up manpower when requested. Concerning arrests requiring County booking and processing, during 2004 there were a total of 131 incidents involving 85 adult males, 15 adult females, 21 juvenile males and 10 juvenile females. Present operating equipment includes 2 patrol cars, 22 portable radios, 4 mobile radios, 3 scanners and an EDAC radio base system.


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Under current operating conditions there are needs for additional building security to include entrance protection, general building access, bullet-proofing of exterior windows, front door bell, sand fill for walls, and a door buzzer on the second entrance door. Additionally, there is continuing need for more storage area and a shower/locker room for staff. Long term, if the City grows as anticipated over the next 20 years there will likely be additional need for up to 3 to 5 additional officers plus administrative assistance. Physical needs will include generally enlarged quarters, both for operations and for evidence security. Associated operating equipment will also require upgrading to include up to 2 additional patrol cars plus continuously upgraded and expanded communication and personal equipment. Eventually at some point in the planning period these needs will result in requirements for building remodeling and/or relocation of some aspects of current building usage. Long-range improvements should be timed to pace population enlargement and activity levels. Physical improvements need to be prioritized and scheduled as part of an on-going capital improvements programming process. By this means implementation can be planned and financing timed to mesh with the other improvement obligations of the City. FIRE PROTECTION The Lindsborg Fire Department is an all-volunteer unit comprised of 21 members which is housed at the combination administrative center at 102 South First Street. The department is allotted 5,200 square feet of space, plus a training room and wash bay. Physical facilities at this location include, in addition to the training rooms and wash bay, handicapped parking, restrooms, break room, small office, storage, water, air fill for tanks, air compressor and generator and 4 vehicle parking bays. Operating equipment includes 3 municipal trucks, 4 rural trucks, 17 portable radios, 8 mobile pagers, 35 pagers, 12 scanners, 20 air packs, 3 air lift bags, 2 positive pressure fans, plus a thermal imaging camera and a JAWS unit. The department annually responds to an average of 49 city runs and 25 county runs. Facility and equipment needs include a shower/locker room, parking for vehicles of responding volunteers, and interior space for an additional rural truck. Long-range needs will include general space expansion, both for personnel use and to accommodate additional trucks and other equipment, plus additional vehicle parking. These needs will eventually result in requirements for building and site enlargements and/or relocation of some of the activities currently housed at the administrative center. Fire Department needs should be considered together with the needs of the other departments housed at the center to achieve a balanced and appropriately planned and financed expansion program. This can be best accomplished through maintenance of a formal capital improvements programming process involving all of the operating departments of local government. EMERGENCY MEDICAL SERVICE Local EMS facilities are also housed at the administrative center at 102 South First Street, together with the Police Department and the Fire Department. Facilities available for EMS use include a training room, handicapped parking, restrooms, break room, small office, vehicle wash bay, storage, water, generator, and 2 vehicle storage bays. In addition to the training room, these facilities occupy 2,560 square feet of space. The department has available a staff of 11 volunteers who annually respond to an average of 349 calls per year. Operating equipment includes 2 ambulances, 15 portable radios, 2 mobile pagers, 18 pagers, 2 beds and 2 cots.


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Presently there are needs for a shower/locker room, additional parking for responders vehicles and an enclosed climate controlled and sanitary room for storage of medical equipment in the current use area. Like the other department needs, current and future needs will eventually result in requirements for building remodeling, site expansion, as well as consideration of relocation of some of the activities at the center. A possible means to this end could be purchase of the lot south of the current building to allow building expansion for addition of a new structure to house EMS. This would allow additional space for the other departments as well as provision of additional vehicle parking. EMS would then respond off of First Street instead of Lincoln. As noted earlier, such needs should be schedules and implemented through maintenance of a long-range capital improvements programming procedure. CITY HALL COMPLEX The Lindsborg City Hall complex, located at 101 South Main, includes the City Hall, a public restroom building and a staff off-street parking lot. The complex has an overall site size of 8,000 square feet, of which City Hall occupies 3,750 square feet and the restroom building, 875 square feet, with the remainder utilized for parking and driveways. City Hall, built in 1891, is a 2-story structure with basement which has been well maintained and is in good condition. At the present time, the building houses a number of municipal departments including Administration, Finance, Parks and Recreation, Utility billing, and Municipal Court. Additionally, portions of the building are leased to the Chamber of Commerce, Kansas Region National Education Association, and a professional services consulting firm. In addition to offices, the building also contains a 575 square foot Council Chamber/Court Room seating 28, and a small conference room seating 12. At the present time, ground floor space offering ease of public access is extremely limited for current activity levels, while the second floor, which is accessible only by stairs or a single electric handicapped rail chair, is only partially utilized, with available space which could be renovated for offices if it were more accessible. If the City and the associated administrative requirements continue to expand, there will be increasing need for additional space for most municipal administrative functions. In order to meet anticipated short and long-term space needs, the City should consider a two-stage process. In the near-term, 5 – 10 years, the City should consider utilizing most City Hall space for municipal administration. This would involve redesign of ground-floor space, addition of an elevator to access the second floor, and redesign of the second floor to accommodate administrative functions which do not require immediate access by the public, such as Finance, Parks and Recreation, storage and similar aspects. In the long-term, 10 – 20 years, the entire range of City administrative offices should be relocated to a central location where a modern handicapped accessible municipal administrative services center can be developed. Such a center should combine most administrative departments and provide space for parking, equipment warehousing and secure records storage. In this manner, many of the facility needs identified earlier for Police, Fire, EMS and City Hall could be realized in a functionally efficient location outside the Central Business District. In turn, this would allow the present City Hall structure to be returned to Main Street retail and service uses for which it was originally designed. CITY SHOPS (WATER, ELECTRIC) Located at 202 E. Lincoln, this building, a single-story former commercial structure, contains 8,200 square feet of space and has an overall site size of 21,750 square feet. The structure, which is described as being in fair condition, accommodates administrative offices for the Public Works Director, a break room, vehicle storage, shop and materials warehouse. The site offers outdoor equipment storage space plus 9 off-street parking spaces, 2 of which are designated as public spaces.


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This is another of the administrative departments which will require enlarged and renovated space, or relocation to a new facility at some point during the planning period. Toward this end, these services could be consolidated as part of a new municipal administrative services center to achieve maximum functional and operational efficiency. CITY SHOPS (STREET) The Street Department is situated in a former shop building in a detached location at 331 Harrison Street. The structure, which is described as being in only fair condition, contains 4,400 square feet of space. Total tract size is approximately 1.4 acres which provides for outdoor equipment storage, and off-street parking for up to 7, 3 of which are designed as being for public use. The facility is described as adequate for present activity levels, but like other City services will require expansion in the years ahead if the City grows as anticipated. This is another of the municipal departments which could be eventually combined with others to create a new municipal services center with the intent to maximize shared facilities and internal administrative support to achieve maximum efficiency in expenditure of public tax dollars. RECYCLING CENTER The Recycling Center utilizes a metal building located on Union east of the Union/1st Street intersection. The structure, about 40 years old, is described as being in generally poor condition. The building is approximately 5,400 square feet in size and is situated on a tract of land containing approximately 6,750 square feet. In addition to scheduled recycling events, the building, operated by the Parks Department, is utilized as a transfer station and is not regularly occupied. For the specific purposes for which the building is used, with maintenance and repair, it should be adequate at least for the near term. TREE STATION The Lindsborg Tree Station, located at 1111 E. Swensson occupies a 4.5 acre site which accommodates a tree growing-out yard as well as a 2,400 square foot office building which serves as the headquarters for the Park Department. The structure contains a main floor plus a 285 square foot loft above the office area. The building is described as being in good condition. The building has adequate space and facilities for current and anticipated future administrative needs. MUNICIPAL WATER SUPPLY Potable water for the Lindsborg community is supplied by groundwater wells which tap the Smoky River alluvium and also by a remote well field about 7 miles southwest which tap a northerly extension from the Equus Beds. Water from the remote well field is substantially lower in hardness than local groundwater from the valley alluvium. Water from the remote well field has helped to improve the quality of the public water supply, although many users continue to operate private ionic exchange water softeners. City utility records indicate that as of 2004, there were 1,373 metered water connections, up from 1,116 in 1990 and 1,249 in 1998. Water consumption, on an annual basis has ranged from a high of 174,851,990 gallons in 1994 to a low of 128,272,516 gallons in 1997, with consumption for the latest year, 2004, being 131,062,242 gallons. Average daily consumption has ranged from 343,514 gpd in 1999 to 448,911 gpd in 2004 with a maximum daily consumption in that same year of approximately 1,000,000 gallons. Average daily per capita water consumption typically ranges from 113 to as much as 135. In this context, current indications are that the quantity of the available water supply will be adequate for anticipated future requirements, although overall quality in terms of hardness and other parameters will likely decline over time.


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The City has progressively improved the 350,000 gallon storage facility and the distribution system as well as that there are currently far fewer dead-end lines and inoperable fire valves. Many of the undersized and/or deteriorated lines have been replaced as well, resulting in a condition of general adequacy with respect to both storage and distribution. In the future, if the City continues to develop toward the northwest there may be a long-term need for a new water storage facility at a higher elevation to assure adequate fire flow pressures. Additionally, system extensions should be looped to avoid dead-end lines and to provide for adequate volume characteristics. These measures together with continued system maintenance should assure continuing adequacy with regard to function of the distribution system. The other issue with regard to long-term characteristics is that of water quality. Even with the newer source, the water supply remains moderate to high in hardness, and it is probable that this condition will continue to worsen in the years ahead. To counteract this condition the City should operate a water treatment plant. By this means water in the distribution system could be regulated for hardness and other chemical characteristics with a resultant benefit to household water systems and appliances as well as overall public health. A water treatment plant will be expensive to build and operate but would provide a substantial contribution to the overall quality of life in the community. In order to address all aspects of water supply storage and distribution, the City should maintain a progressive system master planning process oriented toward system needs based on community growth characteristics. The planning process should be broadened to also include water quality issues and the need for a centralized treatment process. SANITARY SEWER SYSTEM The community sanitary sewer system is comprised of a city-wide pipeline network which collects sewage from most parts of water use for delivery to a mechanical treatment plant located on the far southeast flank of the community. The plant utilizes a primary and secondary sewage treatment with ultraviolet disinfection process. Resulting sludge is injected on nearby farm land. The plant was designed to treat 418,000 gallons of sewage per day with a maximum peak flow of 1,045,000 per day. City records indicate that the plant has been receiving from 250,000 to 300,000 gallons of sewage per day with annual volumes ranging from 90 to 100 million gallons in recent years. The low was slightly over 84 million gallons in 2000 with the peak being 105,812,986 gallons in 2003. Total annual volume for 2004 was 92.81 million gallons. Based on these flows, City records indicate that the daily per capita volume has averaged 77 gallons since 1997 with a maximum average daily per capita flow of 113.7 gallons. These figures indicate that the treatment plant will have adequate capacity for the foreseeable future. Within the overall services area, the sanitary sewer system has been designed for gravity flow with lift stations at unavoidable low points. One such location is in the northern portion of the community south of Normal near the alley between Main and Second. Sewage effluent is pumped from the station through a force main to a point where gravity flow can be resumed. A second such location is in the southwest area of the City, south of Lindsborg near the alley between Cedar and Pine. Lift stations such as these are expensive to install and maintain, but typically provide service for a substantial area of the community. In the future as the City expands and the sewer system is extended, additional lift stations will be necessary. To the extent possible the future system should be designed for gravity flow wherever elevations are such that it can be achieved. In general, the collection system should utilize minimum 6: main lines with larger pipe where needed based on expected volume. Manholes should be used at each location where the line changes direction with a maximum spacing of not over 300 to 400 feet. Within the system, layout and gradient of the flowlines of sewer mains are critical aspects of physical design.


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In order to maintain adequate service levels the City should maintain a sewer system master plan to include ass aspects of collection and disposal. This will offer the greatest assurance of overall system efficiency and operational adequacy. ELECTRIC POWER Power for the Lindsborg community is supplied by Westar Energy from several regional generation points. The City has not operated a local generation plant for many years. Electrical Department records show that demand for power has continued to increase, with the number of electrical meters increasing from 1,426 in 1988 to 1,719 in 2004, or about 1.1 percent per year. Current projections are that increases of about 1 percent per year are likely to continue for the foreseeable future. Based on present system characteristics and future community growth potential, power supply is expected to remain adequate for municipal demand throughout the planning period. SOLID WASTE GENERATION Solid wastes generated in the Lindsborg community are collected and disposed of by McPherson County and disposed of at the County Solid Waste processing center. In order to affect reductions in the waste stream volume requiring disposal, the City operates a local yard waste dump where leaves and grass clippings are separated from larger materials and composted to produce mulch which is available free of charge to area residents. Additionally, the City also operates a voluntary recycling program which further removes bulky recyclable items from the waste stream. These measures have substantially reduced the annual solid waste volumes which must be collected and transported for disposal. These measures have substantially reduced the annual solid waste volumes which must be collected and transported for disposal. Solid waste generation is affected by such factors as the types of dwellings and density of residential development, extent of commercial development, the kind and extent of industrial development, building construction and agricultural activities. Principal wastes generated in most similar communities are household and commercial with lesser volumes of agricultural refuse. The assumptions used in determining generation rates in the Lindsborg community are that due to the current waste stream reduction programs, overall refuse generation will range from 3.5 to 5.0 pounds of solid waste per capita per day. The higher generation rates are reflective of continuing trends in consumer goods packaging, and the possibility of future increases in the annual volume of commercial and industrial wastes resulting from an expanding economic base. Based on these assumptions, the following:

Year

Pounds Per Person Per Day

2005 3.5 2010 3.8 2015 4.0 2020 4.5 2025 5.0

Based on these assumptions for solid waste generation as balanced by the estimates of future community population, an estimate of potential solid waste in tons per year can be prepared. In this regard, the following table shows estimated solid waste generation in the Lindsborg community by volume during the 20-year planning period.


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TABLE 40

ESTIMATED SOLID WASTE GENERATION City of Lindsborg, Kansas

Year

Population

Forecast

Estimated Solid Waste Volume

(Tons) 2005 3,361 2,147 2006 3,369 2,152 2007 3,393 2,167 2008 3,417 2,183 2009 3,441 2,198 2010 3,465 2,403 2011 3,489 2,420 2012 3,523 2,443 2013 3,591 2,490 2014 3,591 2,004 2015 3,628 2,648 2016 3,665 2,675 2017 3,716 2,713 2018 3,769 2,751 2019 3,820 2,789 2020 3,874 3,182 2021 3,928 3,226 2022 3,995 3,281 2023 4,062 3,336 2024 4,131 3,393 2025 4,200 3,833

PARKS AND RECREATION Among the public amenities having a direct and significant impact upon the living environment and the quality of life available in the community are the park and recreation facilities. Although difficult to quantify definitively, park and recreation facilities also impact the social and economic environments and are among the factors of influence in the long-range economic development process. For these reasons, current and future need for the park and recreation facilities is an important aspect of planning for continued community development in the years ahead. Toward these ends, the following paragraphs outline descriptions of existing park and recreation facilities and review possible long-term needs based on anticipated population enlargement and community growth patterns during the planning period. EXISTING PARK AND RECREATION FACILITIES The community facilities inventory listed eight public recreational facilities, of which five were outdoor park areas. These are in addition to the public school facilities. While the school facilities contribute to overall neighborhood recreational opportunity, they are not available to the public year-round on an unrestricted basis, and so do not count toward calculation of short- and long-term needs. Currently available park and recreation facilities include the following: Carlson Park Located at Lincoln and Chestnut in the west-central area of the City, this small area contains about 0.7 acre and offers only passive recreation. The grounds contain a number of tree specimens and several benches. The area is situated on the Dry Creek drainageway which traverses the City from southwest to north-central.


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Swensson Park This park is a community recreation area containing about 4 acres. Situated on North Main at Olsson Street, the park contains the following: Playground with full range of play equipment Restrooms Picnic shelter Band shell Tennis Courts Basketball Court Memorial garden Pergola Water fountain Benches Picnic tables Mature landscape Vehicle parking The park is well located to provide for the recreational needs of the north-central area of the community as well as students at Bethany College. The park, in terms of available facilities, is a good example of a larger neighborhood park, although many of the facilities serve the entire community as well as the surrounding neighborhood. Ball Park Complex Occupying more than 10 acres at the northern perimeter of the City, this area contains four lighted baseball diamonds with space available for field games. In addition to ball diamonds, the area contains bleachers, restrooms, a snack bar and vehicle parking areas. The facility offers opportunity for regulation play and provides service for the entire community. Riverside Park This 4.2 acre area is a classic example of a community park offering both passive and active recreation for the entire community and region. Facilities available include: Swimming Pool Large picnic shelter Small picnic shelter Storage building Memorial garden Rose garden Restrooms Tennis courts Basketball goals Sandbox with excavator Spring toys Swing sets Climbers Slide Merry-go-rounds Water hydrant Charcoal grilles Benches Picnic tables Refuse receptacles Mature landscape


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Because of the range of facilities available and proximity to the Old Mill and other local attractions, Riverside Park is utilized by many visitors from outside the community as well as local citizens. Heritage Square Although not a traditional park in the strictest sense, this 3 acre museum display area is immediately adjacent to Riverside Park and contains a range of facilities including: Historic buildings Railroad steam engine Windmill Railroad depot Antique machinery Memorial plaque Walking path As part of the Old Mill Museum complex this area is part of the overall recreational experience available in the riverside area. Old Mill Park Over 6 acres in size and containing a wide range of recreational opportunity, this park, together with the other surrounding areas, qualifies as a regional facility, serving a wide diversity of visitors from outside the community as well as local citizens. Recreational facilities include: Restored roller mill Old Mill Museum Settler’s cabin Pergola Memorial display Antique farm machinery River access Walking paths Charcoal grilles Refuse receptacles Vehicle parking Due to unique facilities and seasonal activities, the museum and park are well known throughout the state and annually register a very high visitation record. McPherson County Campground This facility located immediately south of the river and east of the Old Mill Park, is maintained and administered by the City of Lindsborg. Containing about 4.5 acres, the area is specifically set up to accommodate camping trailers and recreational vehicles. Associated facilities include: Camper sites Restrooms Charcoal grilles Refuse receptacles Walking trail River access Although the site does not offer full-service utility hookups, the area has a high utilization rate during the warm months.


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ASSESSMENT OF PARK AND RECREATION NEEDS As noted earlier in the Goals and Objectives element of the report, the generally accepted standard for the overall recreation acreage of a City is 1 acre per 100 population, or 10 acres per 1,000. Using this standard and applying it to the 2000 population of Lindsborg indicates a current overall need for about 33 acres of park land. A comparison of this figure with the 13.8 acres of park land available indicates a current deficiency of up to 19.2 acres at the present time, with a long-range statistical deficiency of up to 28 or more acres of park and recreation land, if the community reaches the 4,000+ population noted as possible by the earlier population study. In addition to overall acreage, present facilities must also be considered from the viewpoint of location with respect to current and developing neighborhood areas. The location of existing parks, as shown on the community facilities map, suggests several areas where additional park land may be required to provide outdoor recreational opportunity within reasonable walking distance of existing and future neighborhoods. These areas are located in the northern and eastern flanks of the present City for the most part. The major need in such locations is for neighborhood playlots for use by small children, although game courts and similar facilities oriented toward active play for the older age groups is also desirable. FUTURE PARK AND RECREATION PLAN Based on service area requirements, the Future Park Plan for the City of Lindsborg is shown on the following figure. The plan proposes a balanced system oriented toward long-range expansion patterns as outlined on the Future Land Use Plan. The figure shows existing parks and potential locations for new facilities needed to complete the existing system. Based on a neighborhood service area of ¼ mile, the figure shows that the proposed park system would provide a reasonable coverage throughout the present and future community. New neighborhood park areas are proposed on the southwest, northwest, north and east-central portions of the community. These new facilities should be the small neighborhood playlot type of facility, offering active recreation for small children and passive recreation for adults. Additional park areas are proposed along Dry Creek on the north, and south of Old Mill Park. The creek area park on the northwest is located in a floodplain which is an important stormwater outlet point for runoff from developed areas toward the south. As such, the park should be developed as open green space with only facilities which are not damaged by flooding, with the main function being stormwater storage and downstream discharge. The new proposed park area south of Old Mill Park is proposed as a general use area to be provided with full-service camper hookups, convenience facilities and a variety of outdoor recreational facilities. As such the area could significantly contribute to the effort to sustain and expand local tourism and travel. The other new facility shown on the Future Park and Recreation Plan is a Hike and Bike Trail system. The Hike and Bike Trail was one of the frequently mentioned facilities in the previously noted public opinion survey. As shown, the proposed Hike and Bike Trail would provide routes through and around the community to connect major public facilities, the downtown area and residential neighborhoods. The route segments shown on the previous railroad corridors is under design at the present time and is expected to enter the construction phase in early 2005 as a Phase I project. Subsequent sections of the circumferential routing should be completed in stages as available funding permits.


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Other items of public identification include: Walking paths Indoor pool Skateboard park Indoor tennis/racquetball/basketball Community center Fitness center Archery range Shooting range These types of facilities could be incorporated into a park development, or could be developed as stand-alone facilities. In the years ahead, consideration should be given to realization of the range of proposed amenities as funding may become available. IMPLEMENTING THE PLAN The park plan proposals are long-range considerations which should be provided at a rate commensurate with the actual growth and development of the community. Implementation will be expensive and should be undertaken on a phased basis. The Planning Commission, acting in concert with other municipal boards and commissions, should share in the primary responsibility for planning, scheduling and budgeting future improvements based on developing community need. Ideally, reservation of required spaces should occur by City purchase of the required land areas. The process of acquiring land parcels should begin at an early date, well in advance of anticipated actual development. In this regard, the Planning Commission can provide valuable assistance in implementing the long-range proposals by preparing and maintaining a Capital Improvements Program and Capital Budget which will help to establish the methodology and scheduling necessary to implement individual projects in a rational and prudent manner. In the past, participating federal funding for recreation development has been available from several sources, and has been utilized in the development of the present park system. Although funding from these traditional sources is more uncertain in the future time frame, the city should continue to pursue any available funding which may provide assistance for developing portions of the future system. Other methods which are also considerations for future application include dedications as part of new developments, and gifts of land for park purposes. Either or both of these in combination with local budget line item funding could help to provide a means toward implementation.


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SECTION X

GENERAL DEVELOPMENT PLAN

INTRODUCTION The long-range community planning process and the resulting investigations and studies provide an overall framework to guide continuing municipal expansion. Within the goal of achieving a balanced community, it is the purpose of the planning directions to influence a healthful and safe living environment, with allowance for efficient and economical development. In this context, the resulting comprehensive plan represents a broad statement about the desired type and quality of the future community. Toward these ends, the General Development Plan for the community is represented by the accumulative recommendations contained in the detailed planning studies developed in the Plan. Together, the conclusions and directions developed through the planning process create a composite picture of the potential physical characteristics of the community toward the end of the planning period. Depicted on the following figure, the General Development Plan 2005 for the City of Lindsborg, illustrates likely effects to urban development patterns if all of the previously identified influences materialize substantially as anticipated by the detailed individual studies. The plan is intended to be a general guide for decision making and a reference framework for fabrication of the future community, particularly with respect to provision of amenities that will not be available on an individual and uncoordinated basis. Toward this end, the plan should function to enhance the group interests of the public. The interests of any single individual should not be paramount when considering the relative merits of any aspect of the plan. The completed and properly adopted community plan is a statement of policy setting forth the kind of community desired in the future. It is the objective of the plan to achieve a harmonious, well-balanced community with components properly located and related to achieve safe, efficient and economical development without compromising those factors which will influence continuation of the healthful, wholesome and attractive living environment which has characterized Lindsborg over the years. BACKGROUND FOR PLANNING The study of background conditions provides a review of existing physical circumstances which have shaped historic patterns of community development and which will continue to impact and influence all aspects of urban development in the future. Such constant influences as location, climate, soils, topography, water resources and social history have combined to produce the present physical and demographic characteristics of the community. The background studies show that the City is within the valley of the Smoky Hill River and is affected by the associated floodplain areas of both the river and its major tributary streams. The studies show that the primary water source is groundwater in the river area alluvium and that water is both scarce and poor in quality at the higher elevations. The studies also show that the area is affected by steep slopes associated with the Smoky Hill buttes toward the west and north and that resident soils throughout the growth area of the community all have some degree of limitation for urban types of uses. These conditions show that caution and site specific design will be required for most major construction, whether at the higher elevations or at lower elevations which are often subject to threat of flooding. In this context, the studies indicate, however, that with proper planning, existing physical characteristics need not unnecessarily limit the future growth potential of the community. GOALS AND OBJECTIVES Guidance and procedural orientation for the individual studies comprising the Comprehensive Plan were determined through establishment of a series of goals and objectives which established desired quality and functional parameters for all of the major aspects of community development. Ranging from housing, economic diversification and recreational opportunity to commercial and industrial development, the goals and objectives statements adopted by the Planning Commission early in the planning process, established a


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framework for future community development within the expectation of influencing a progressively better living environment for all citizens. As utilized within the planning process, the Goals identify desired quality levels to be achieved, while the Objectives represent action steps and processes necessary to realization of the intent of the Goal. In this context, the Goals and Objectives provide a guide for the individual planning studies comprising the Comprehensive Plan. The goals and objectives are supplemented by a series of minimum planning standards which provide basic quality parameters for major aspects of community development. While the goals and objectives outline future conditions to be achieved, the planning standards set out minimum guidelines for gauging the quality of development, and the adequacy of the major processes and facilities which will be required to serve the future community. POPULATION Population estimates together with land use studies comprise a basis for protection of future community development on a reasonable scale. From these studies and projections, future need for housing, schools, goods and services, and utilities may be anticipated. Based on historical patterns, current indications and expectation of future economic expansion in the years to come, the planning studies indicate the potential for population growth of 25 to 30 percent or more, reaching levels of over 4,000 toward the end of the 20-year planning period. LAND USE The ultimate quality and utility of the future community will depend upon the policies, control and actions of the City in guiding future growth and expansion toward compatible and orderly growth patterns. The land use studies show that if the City grows as anticipated, more than 200 additional acres of development of all types is likely during the planning period, resulting in a total of nearly 1,000 acres of urban development of all types by the year 2025. Significant in the effort to sustain harmonious growth patterns are application of zoning and subdivision regulations, enforcement of appropriate environmental regulations and continuous maintenance and extension of community infrastructure. In general, the plan indicates that major areas of physical expansion are likely on the northern and western flanks of the present community, and to a lesser extent toward the east. Although a substantial portion of the forecasted growth is expected to be for residential purposes, significant increases in the amount of land committed for commercial and industrial purposes are also predicted. As the community continues to expand, it will become increasingly important to protect natural drainage patterns, and to promulgate patterns of development which are in harmony with the surrounding natural environment. As an aid to this process, the Future Land Plan is supplemented by a series of formal policies which set out the intention of the City with regard to future expansion. The formal policy statements provide a direct and effective means of evaluation development proposals and guiding future patterns of community growth and physical enlargement. Application of zoning and subdivision regulations and enforcement of appropriate environmental regulations including floodplain protection, and continuous maintenance and extension of community infrastructure are significant in the effort to sustain harmonious growth patterns. In this regard, the Planning Commission, acting in its official role as technical advisor to the Governing Body, can have positive influence through continuing participation in the formulation of policy actions and decisions.


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Equally important to the continuing planning process is the relationship between the public and private sectors. Inasmuch as most future development will occur as the result of private initiative, close and continuing cooperation between the public and private sectors will be essential to achievement of a balanced and cohesive community which can continue to offer a healthful and quality living environment. HOUSING The background studies of local residential development patterns show that at the time of the survey, there were 1,357 dwelling units, over 95 percent of which were in sound condition. Based on anticipated future demographic characteristics, an expansion of over 22 percent in overall numbers of units is expected during the planning period. Areas of significant future residential growth are expected on the north, northwest and east where additional development will occur as extensions of existing neighborhood areas. It will be important that new residential development occur in a neighborhood setting with proper provisions for sewer, water, electricity, gas and solid waste disposal. New development should avoid extension into defined floodplain and wetlands, and should remain sensitive to topography and other natural features. Central to these efforts will be properly drawn and enforced municipal ordinances, including the Zoning Ordinance and Subdivision Regulations. Newly developing residential areas should be planned as extensions of existing neighborhoods to maximize the opportunity for development of cohesive community units designed for family living. Neighborhood development should maximize access to schools and outdoor recreation. New neighborhood playlots may be needed in the developing residential areas on the flanks of the community. These areas will be somewhat remote from existing parks and school playgrounds. The internal street system of the neighborhood should be designed so that through traffic will be discouraged from traversing residential areas. Streets should be located so that traffic will be distributed from the internal system of local streets to the collector and arterial network. Densities should remain low in newly developing neighborhoods, assuring equitable access to light and air. Based on emerging technologies for utilization of alternate energy sources, in particular solar energy, it is becoming increasingly important to consider long-range needs for such additional neighborhood design concepts such as solar easements and special physical arrangements geared to maximizing the full available potential of the natural environment. Such additional considerations will be of necessity increase the amount of land required for neighborhood development above that which has been traditional, however, within the newly developing areas, opportunity is present to plan for increasing utilization of modern technologies that will likely reach full maturity during the planning period. As more modern development concepts are put into practice, it is probable that overall neighborhood development will trend away from the traditional lot and block design and begin a transition to an increasing irregular delineation which will be more adaptable to modern technologies and the surrounding natural environment. This will ultimately benefit the entire community through a diminished requirement for neighborhood streets and overall diminishing per capita fossil future requirement. TRANSPORTATION With the abandonment of the Missouri Pacific and Union Pacific rail lines through Lindsborg, the City is totally reliant upon surface transportation for movement of people as well as the goods and materials necessary for local commerce and supply of the resident population. With the close proximity of the north-south interstate I-135 highway corridor on the east, the City is fortunate in having immediate access to the primary transcontinental transportation system. In light of these circumstances, the Transportation Plan establishes a system of primary and secondary vehicular travelways designed to move traffic throughout the community in a safe and efficient manner. An important objective of this system is to minimize through-traffic in residential neighborhoods, and other intensely developed areas, by providing a network of alternative and more direct routes.


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Central to this plan is a system of street classification, including arterial streets, collector streets and local streets. The arterial is the largest street and is intended primarily for moving large volumes of traffic with land use service as a minor function. The local street is intended primarily to serve abutting land use, while the collector, an intermediate sized street, is designed and intended to distribute traffic from the local street network to the arterial system. The Future Transportation Plan anticipates up to an additional 2 miles of major streets for an overall total of 11.8 miles of arterial and collector streets. The Future Transportation Plan also proposes an alternative transportation system consisting of the major sidewalk network plus 5.7 miles of new hike and bike trails. Such a system is expected to significantly enhance the potential for non-vehicular travel with a resultant reduction in fossil fuel requirements. If the proposed plan is to be successful, the traffic carrying capacity of each street should be protected by regulating adjacent land uses, preventing excessive entrances on the street, and applying appropriate traffic engineering techniques to achieve optimum utilization characteristics. Thus the functional integrity of existing and future street systems benefit from the application of appropriate land use controls through the process of zoning and subdivision review. ECONOMIC RESOURCES AND OPPORTUNITIES Historically, the local economy has been grounded in agriculture, industry, and commerce. Studies show that significant long-range improvement in the traditional aspects of the economy is possible, particularly with respect to agricultural-related enterprise and industrial development generally. A strong potential will also be available for expansion of the community as a supply point for retail goods and services, particularly with respect to the position of the City as a regional tourist destination. The background studies show that while traditional businesses, both retail and wholesale, have declined, tourist oriented businesses have generally registered strong expansions in both payroll and sales. Preparing for continuing economic improvement will include development of short- and long-range strategy, which will include positive action toward recruitment of compatible businesses and industries. Central to these efforts will be designation and provision of adequate space for physical expansion, and available financing for expansion of existing businesses and location of new commercial enterprises. Also, equally important will be maintenance of an economic development strategy, grounded in maintenance of a community climate which is conducive to expansion of existing businesses while encouraging new commercial enterprise to locate in the Lindsborg vicinity. COMMERCIAL AND INDUSTRIAL DEVELOPMENT The background planning studies show that there are several distinct areas of commercial and industrial development in the City, including the downtown area, areas along Kansas 4 highway west, and along the Harrison-Cole corridor. Each is unique with regard to future development potential. In addition to the Central Business District, additional commercial expansion is anticipated to occur near the Coronado Street/K4 intersection on the southwest; at the northern and southern terminuses of Harrison-Cole, all three of which are also primary community entry points; and along the immediate Harrison-Cole corridor. It will be important that development at these locations reflect a high aesthetic standard in keeping with the visual quality expectations of the City. The background studies also indicate a strong potential for future industrial expansion near the existing industrial area near McPherson and Union streets, and on the northwestern flank where the opportunity exists for development of a planned industrial park. Realization of these future potentials will be dependent upon a successful economic development strategy and strong cooperation between the public and private sectors. Together with continued participation by the Planning Commission, these efforts will help to influence future development which is compatible, both visually and functionally, with already developed portions of the community.


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COMMUNITY FACILITIES Encompassing many of the urban amenities which provide for the day to day health, welfare and general well-being of the population, community facilities include a wide range of services and protections which would be unattainable on an individual or ad-hoc basis. Ranging from police and fire protection to library facilities and solid waste disposal, such considerations are among the primary determinants of the quality of life available in the community. In recognition of current and future demand, the Community Facilities element of the plan outlines potential improvement needs for a range of amenities in the years ahead, based on expected community growth. The studies of individual facilities address the impacts of population growth and outline recommendations for systematic and planned improvements in scale with the population to be served. Supplementing the basic facility studies were the results of a community-wide public opinion survey which allowed public comment with regard to current and future needs. In general, while most facilities are adequate for current needs, future improvements will be necessary in many cases to extend the same quality of service in the years ahead. The background studies indicate future needs for enlarged and improved quarters for the Police Department, Fire Department, Emergency Medical Services and general administrative services. The studies note that most of these functions could be combined in a new administrative center which would minimize duplication while maximizing use of tax dollars. Other long-term needs include expansions of utility systems including a new water tower, development of a water treatment plant, expanded library facilities, and provision of progressively improved park and recreation facilities. Many of the future modifications and expansions of the community facilities will be provided in response to demands arising from continued growth in the population base. Additionally, there will be a continuing requirement for new and improved systems to replace older obsolete facilities in existing areas of the community which may fail to provide satisfactory service at some point during the planning period. As many of these amenities are provided by government, public agencies will be frequently charged with the responsibility for monitoring emerging need and will be responsible for sizing and locating appropriate facilities. State legislation provides the Planning Commission with some discretion with regard to where and how public facilities may be located in the event a comprehensive plan has been adopted, through requiring Planning Commission review of proposals for facilities of a type covered by the plan. Through this means, new facility proposals are assured of the widest possible opportunity for public review and comment. THE FUTURE COMMUNITY Across time, there will be progressive needs for continued community facility improvements due partly to increasing obsolescence, but also to public perception and demand arising from social change. For this reason, the continuing planning process must include evaluation of community facility needs in order to remain in correspondence with the needs and desires of the population. Maintenance of the continuing planning program is a primary responsibility of the Planning Commission acting in its role as technical advisor to the Governing Body. The planning studies and assessments of community facilities utilize a series of analyses, forecasts and delineations of expected future growth potential which, in the aggregate, indicate the potential for moderate growth in all aspects of the Lindsborg community over the course of the 20-year planning period. To a significant degree, the ultimate quality and utility of the future community will depend on the policies, controls and actions of the City in guiding future growth and expansion toward development patterns which are consistent and harmonious with the present community and which will contribute to an orderly and economical growth patterns.


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If the process of long-range planning is to be successful, actual patterns of continuing development must carefully reflect the policies, attitudes, goals and objectives developed in the plan. Since the plan itself is not a legally binding instrument, it is essential that appropriate legislation be prepared, adopted and enforced to transform the general policies into regulations and actions which do have legal substance. It is through these means that the plan will function in the public interest to influence and guide the patterns and overall quality of future development.


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SECTION XI

IMPLEMENTING THE COMPREHENSIVE PLAN

INTRODUCTION The question of how to implement the intent and proposals of the completed and legally adopted comprehensive plan is both the most important and most difficult consideration of the planning process for most communities. Recognizing that plans are of little value if they are not followed and carried out to the greatest extent possible, the processes and means employed to effect a close correspondence between the plan and actual community development are of special concern. In reality, planning implementation is a process, which if it is to be successful, must of necessity be a collaborative procedure involving the entire community in definition of values, goals and planning directions at the early stages of comprehensive plan preparation with the intent to reach public consensus about major quality of life issues. It is the purpose of this section of the plan to document the collaborative process for the City of Lindsborg, summarize the findings and recommendations noted in the Planning Studies, and explore ways and means to implement the short- and long-range planning directions. THE COLLABORATIVE PROCESS Over the course of the comprehensive planning process the City of Lindsborg and the Planning Commission scheduled a series of working meetings to examine in detail progressive elements of the updated community planning directions. These meetings, which were open to the public, proved to have varying levels of participation, but over the course of the planning effort were attended by citizens at large as well as members of the City Governing Body and the Board of Zoning Appeals. This process, initiated in 2003, involved a series of 20 meetings through the summer of 2005. Specific working meetings were scheduled on the following dates: 2003 March 4 July 15 October 21 March 18 August 19 November 18 June 17 September 16 December 16 2004 January 20 May 18 October 19 March 16 July 20 November 16 April 20 August 24 2005 March 15 May 17 June 28 The working meetings provided opportunity for review and discussion about future community development issues. The meetings also provided opportunity for extensive education about the legal and functional aspects of comprehensive planning and the role of local governmental agencies and the general public in initiating and maintaining a long-range community planning process. As such, the plan formulation and training procedures represent an important aspect in the ability of the City to implement and maintain a long-range planning process. Other more specific measures are detailed below. ADMINISTRATIVE PROCESSES AND PROCEDURES Principal administrative means and methods for effectively implementing the directions and intent of the comprehensive plan may be classified into three broad and interrelated categories:


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1. Regulation of Development and Use of Property. This aspect of implementation deals with regulation of land use patterns to assure a reasonable compliance with the Future Land use Plan. This is affected through exercise of development policies, and through application of the zoning ordinance and subdivision regulations. These measures are the best means of influencing actual development toward the patterns and conditions contemplated by the detailed planning studies. The zoning ordinance and subdivision regulation are also the primary means of assuring that a quality living environment can be preserved for present and future generations.

2. Provision of Public Services, Utilities and Other Improvements Continuing development

and improvement of infrastructure will be required as the City physically expands. As noted in earlier sections of the planning report, provision of municipal service can be an important determinant of ultimate conditions and patterns of physical development. Items of infrastructure are primarily scheduled and brought to completion through development and maintenance of a long-range capital improvements program. Through these means, emerging need for capital expenditures can be anticipated well in advance, and can be introduced into the annual budget cycle on a planned and phased basis which is commensurate with actual physical growth and development.

3. Public Education and Participation in the Planning Program. The ultimate success of the

planning program over the course of the planning period will depend heavily upon the participation and cooperation of the private sector. In order to help assure an appropriate level of public participation it will be necessary to take definite steps to keep the public fully informed about the processes, intentions and aims of local government with regard to the philosophy and procedure of long-range planning practice, and the resultant impacts to the pattern and quality of continuing development. Through these means, the City can proceed in a common direction with a resulting benefit to all citizens in all sections of the community.

Scheduling and implementation of specific public improvements identified through the comprehensive planning process can be facilitated through preparation of a project priority listing and an action plan. The priority listing and action plan provide a defined route toward implementing specific projects by indicating expected year of initiation and identifying the responsible department, agency or organization. Meshed with the short- and long-range capital improvements programming process, the action plan provides a productive procedure for dealing with currently known short- and long-range needs of the community. Other processes are equally important for the purposes of encouraging “smart growth” and guiding long-range development of the City toward the overall quality standards embodies in the planning directions established by the Comprehensive Planning Process. Among these are the following:

Zoning Ordinance. Zoning regulates the use, height and area of buildings. It is accomplished by dividing the City into uniform use districts and preparing regulations for each of the districts. The Zoning Ordinance and District Map should bear a substantial relationship to the comprehensive plan and its documentation if it is to be used as a successful tool in achieving a healthful and wholesome community with proper land use relationships. It is the intent of zoning to reduce congestion in the streets, prevent overcrowding of buildings and assure that each property will have ample light and air. In order to keep the zoning ordinance in tune with emerging social values and development technologies, it will be necessary to incorporate revisions from time to time. Such changes should occur through the process of comprehensive review to assure that revisions will reflect the needs of the total community rather than the individual desires of isolated elements. It is important that the zoning ordinance continue to reflect the established goals and policies of the overall community for long-range use of available land resources.


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Subdivision Regulations. Subdivision regulations establish standards for subdividing land within or adjacent to the City. These regulations affect a small segment of the citizenry, but assure the future property owner of a properly sized building lot with all improvements installed. The regulations include the administrative procedures for approving subdivisions that will eventually be a part of the City. Like the zoning ordinance, the subdivision regulations should also be revised as necessary to maintain the principles and intent of the comprehensive plan. Capital Improvements Program. The Capital Improvement Program is a listing of projects from the comprehensive plan and the operating departments of the City. Projects are listed in order of their priority in the program. The program is for the first five or six years of the planned period. The Capital Improvement Program is accompanied by a Capital Budget which shows the method of financing and the source of funds for each project. The financial information allows projects to be phased into the annual City budget so that planned improvements may be advanced from year to year. Both documents should be revised on an annual basis. Housing Codes. Housing codes serve a most important part in the implementation of a plan for community growth. Housing codes regulate housing of every type and prescribe minimum conditions of space-per-occupant, sanitary facilities, lighting, heating and all of the more important aspects of a dwelling unit. They are made applicable for all future housing as well as for all existing housing. Properly administered, housing codes can be effective in reducing the causes of structural obsolescence and environmental deficiencies within neighborhoods. Building Codes. Building Codes are also an important tool to assure proper community development. As a regulatory instrument, building codes set standards and minimum requirements in all the various details involved with the construction of buildings. To be effective, they must be vigorously enforced and they should be revised, as necessary, to keep abreast of changing construction methods and to allow builders and architects to use new building material to better advantage. Building codes serve the important purpose of preventing construction that will be short lived, unsafe and unsanitary and, by so doing, minimize the many causes for structural deterioration and dilapidation.

ACTION PLAN Over the course of the planning project, the detailed studies of current and potential future community characteristics identified a range of needs which were documented within the individual research subject heading. These needs, often expressed in the form of planning recommendations, were developed through a multi-year planning process involving the Lindsborg City Planning Commission, the Lindsborg Governing Body, municipal operations departments, representatives of business, industry and education, and members of the general public. The planning process, facilitated by a professional planning consultant, involved a series of meetings as documented earlier. The results of these meetings combined with the community research developed by the consultant provided detail and background for development of the long-range planning directions, which were expressed initially as a detailed series of goals and objectives followed by specific planning directions and recommendations prepared by major subject heading. Concerning the Action Plan, or Planning Implementation Process and Schedule, the following table notes major needs and recommendations by major comprehensive plan element or classification, and outlines priorities, goals and objective, action steps, primary responsibility, resources available, results expected and potential year or years of initiative. In this sense the table outlines a process for implementing the findings of the planning studies. The primary responsibility for maintenance of the action plan and the continuing planning process lies in general with the Planning Commission acting in its official role as advisor to the Governing Body. Of special importance to this process will be current data and land use patterns, street and traffic conditions, demand for public facilities, general housing conditions and similar considerations. Maintenance of an action plan may also occasion need for development of special investigations such as studies of requirements for neighborhood rehabilitation, park and recreation space or commercial expansion areas.


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TABLE 41ACTION PLAN


Classification Priority * Goals Objectives Strategies Primary ResponsibilityCommunity Growth 1 & on Promote balanced and Develop a Future Land Use Adopt the Comprehensive City of Lindsborgand Development going efficient expansion Plan Plan

Minimize land use conflicts Maintain effective zoning City of Lindsborgand subdivision regulations

Adopt formal policy City of Lindsborgstatements

Utilize annexation authority City of Lindsborgto influence balanced growth

Maintain a continuing Adopt a formal schedule for City of Lindsborgplanning program annual plan review

Economic 1 & on Encourage diversified Provide development of Identify and target appropriate City of LindsborgDevelopment going commercial and industrial businesses and industries types of businesses and

development which utilize local raw industriesmaterials

Encourage planned growth Designate future expansion City of Lindsborgin conformance with the areascomprehensive plan

Strengthen promotion of the Maintain a strong program City of Lindsborg &City as a tourist destination of external advertising Private Business Owners

Foster an atmosphere Develop an effective program City of Lindsborgbeneficial to expansion of incentives for commercialof business and industry growth

1 & on Protect and strengthen Maintain and enhance the Plan for continuing aesthetic City of Lindsborggoing existing commercial Central Business District and functional improvements

districtsPromote development of the Plan for continuing aesthetic City of Lindsborg &Harrison-Cole district and functional improvements Private Business Owners

TABLE 41ACTION PLAN


Encourage application of Prepare guidelines for visual City of Lindsborgcommon aesthetic standards quality

Strengthen market position Maintain an economic City of Lindsborg &of the commercial districts development strategy Private Business Owners

1 & on Attract and retain new Formalize an industrial Identify and target compatible City of Lindsborggoing industries development strategy industries

Develop an incentive package City of Lindsborg

Provide space for industrial Identify industrial expansion City of Lindsborgdevelopment areas

Develop an industrial park City of Lindsborg*Priority Scale: 1 = 2005-2007, 2 = 2008-2011, 3 = 2012-2018, 4 = 2019-2025

TABLE 41ACTION PLAN


Resources Available Results Expected Established YearCity Funds Planned community growth 2005-2025

City Funds

City Funds

City Funds

City Funds

City Funds Long-term growth and expansion of local business and 2005-2025industry

City Funds

City and Private Funding

City Funds

City Funds Preservation and enhancement of existing commercial 2005-2025districts


TABLE 41ACTION PLAN


City Funds


City Funds Expanded industrial base with associated economic 2005-2025development

City Funds

City Funds & CDBG Funds

City Funds

TABLE 41 - CONTINUED

Classification Priority * Goals Objectives Strategies Primary ResponsibilityCommunityFacilities(continued)

Sanitary Sewer 1 & on Provide adequate waste- Maintain adequate collection Maintain a system master plan City of Lindsborg System going water collection and and disposal facilities

treatment

Solid Waste 1 & on Maintain efficient collec- Reduce the tonnage of solid Continue and strengthen the City of Lindsborggoing tion and disposal services wastes requiring collection local recycling program

with reduction in solid and disposalwaste volumes

Continue to operate a local City of Lindsborgyard waste composting program

Parks & Recreation 1 & on Provide adequate recrea- Continue an aggressive pro- Develop a schedule of regular City of Lindsborggoing tional opportunity for all gram of facility maintenance annual maintenance and repair

citizens and repair

Retain and improve public Prepare plans for upgraded City of Lindsborgriver access river area facilities

Add space and upgrade the Prepare plans for land additions City of Lindsborgsouth park area and facility development

Upgrade the south park camping Upgrade restroom facilities City of Lindsborgarea and add utility hookups

Develop playlots in all Develop playlots on the north, City of Lindsborgneighborhood areas east and southwest

Install a hike and bike trail Complete plans and construction City of Lindsborgsystem


*Priority Scale: 1 = 2005-2007, 2 = 2008-2011, 3 = 2012-2018, 4 = 2019-2025


Resources Available Results Expected Established Year

City Funds Adequate wastewater disposal 2005-2025

City Funds Reduction in solid waste tonnage 2005-2025

City Funds Reduction in solid waste tonnage 2005-2025

City Funds Safe and functional recreational facilities 2005-2025

City Funds Improved public use potential 2010

City Funds & State Funds Expanded and upgraded river area park 2008

City Funds Expanded public camping capacity 2008

City Funds Available recreational facilities in all neighborhoods 2008-2012

City Funds & State Funds Hike & Bike trail connecting major community 2005-2006facilities


Implementing the Comprehensive Plan and the associated measures represented by the Zoning Ordinance and the Subdivision Regulations is a multi-faceted process involving the Planning Commission, The Board of Zoning Appeals, and the Governing Body, each of which has a defined role as prescribed by State Statute. It is the purpose of this section of the plan to outline and summarize these procedures as a means toward maintaining a strong and viable planning process throughout the 20-year period and beyond. As provided by statute, the several studies and guidelines comprising the Comprehensive Plan may be adopted singly, or more commonly, together as a complete document setting forth the intent and objectives of the community with regard to definition and maintenance of a common living environment for all of the citizens to be realized over the course of the planning period. IMPLEMENTING AND MAINTAINING THE PLANNING DOCUMENTS Adopting the Comprehensive Plan The Comprehensive Plan is formally adopted by the Governing Body after preparation and recommendation by the Planning Commission as outlined in K.S.A. 12-747, which states in part:

---- "The Planning Commission may adopt and amend a Comprehensive Plan as a whole by a single resolution, or by successive resolutions, the Planning Commission may adopt or amend parts of the plan. Such resolution shall identify specifically any written presentations, maps, plats, charts or other materials made a part of such plan. ---- ---- Before adopting or amending any such plan or part thereof, the Planning Commission shall hold a public hearing thereon, notice of which shall be published at least once in the official city newspaper in the case of a city or in the official county newspaper in the case of a county. Such notice shall be published at least 20 days prior to the date of the hearing. Upon the adoption or amendment of any such plan or part thereof by adoption of the appropriate resolution by the Planning Commission, a certified copy of the plan or part thereof, together with a written summary of the hearing thereon, shall be submitted to the Governing Body. No Comprehensive Plan shall be effective unless approved by the Governing Body as provided by this section. The Governing Body either may: (1) Approve such recommendations by ordinance in a city or resolution in a county; (2) override the Planning Commission’s recommendation by a 2/3 majority vote; (3) may return the same to the Planning Commission for further consideration, together with a statement specifying the basis for the Governing Body’s failure to approve or disapprove. If the Governing Body returns the Planning Commission’s recommendations, the Planning Commission, after considering the same, may resubmit its original recommendations giving the reasons therefore or submit new and amended recommendations. Upon the receipt of such recommendations, the Governing Body, by a simple majority thereof, may adopt or may revise or amend and adopt such recommendations by the respective ordinance or resolution, or it need take no further action thereon. If the Planning Commission fails to deliver its recommendations to the Governing Body following the Planning Commission’s next regular meeting after receipt of the Governing Body’s report, the Governing Body shall consider such course of inaction on the part of the Planning Commission as a resubmission of the original recommendations and proceed accordingly. The Comprehensive Plan and any amendments thereto shall become effective upon publication of the respective adopting ordinance or resolution."

Once the plan has been formally adopted, copies must be made available to the other taxing jurisdictions, and at least once each year the Planning Commission is required to review the plan and associated measures for needed changes, or updating. In this respect, K.S.A. 12-747 states:


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---- "An attested copy of the comprehensive plan and any amendments thereto shall be sent to all other taxing subdivisions in the planning area which request a copy of such plan. Such plan or part thereof shall constitute the basis or guide for public action to insure a coordinated and harmonious development or redevelopment which will best promote the health, safety, morals, order, convenience, prosperity and general welfare as well as wise and efficient expenditure of public funds.

At least once a year, the Planning Commission shall review or reconsider the plan or any part thereof and may propose amendments, extension or additions to the same. The procedure for the adoption of any such amendment, extension or addition to any plan or part thereof shall be the same as that required for the adoption of the original plan or part thereof."

Beyond the statutory provisions for formal administrative adoption of the plan as the official guide for future community development, the intent of the plan is further defined and implemented through adoption of an action plan to provide a guide to realization of the findings and recommendations of the individual planning studies. Adopting the Zoning Ordinance The Zoning Ordinance is adopted by the governing body upon recommendations of the Planning Commission. In this regard, K.S.A. 12-756 states in part:

---- "Upon the development of proposed zoning regulations, the planning commission shall hold a public hearing thereon. Notice of such public hearing shall be published at least once in the official city newspaper in the case of a city or in the official county newspaper in the case of a county at least 20 days prior to the date of the hearing. In the case of a joint zoning board, notice of such hearing shall be published in the official city and official county newspapers. Such notice shall fix the time and place for such hearing and shall describe such proposal in general terms. The hearing may be adjourned from time to time and at the conclusion of the same, the planning commission shall prepare its recommendations and by an affirmative vote of a majority of the entire membership of the commission adopt the same in the form of a proposed zoning regulations and shall submit the same, together with the written summary of the hearing thereon, to the governing body. The governing body either may: (1) Approve such recommendations by the adoption of the same by ordinance in a city or resolution in a county; (2) override the planning commission’s recommendations by a 2/3 majority vote of the membership of the governing body; or (3) may return the same to the planning commission for further consideration together with a statement specifying the basis for the governing body's failure to approve or disapprove. If the governing body returns the planning commission’s recommendations, the planning commission, after considering the same, may resubmit its original recommendations giving the reasons therefore or submit new and amended recommendations. Upon the receipt of such recommendations, the governing body, by a simple majority thereof, may adopt or may revise or amend and adopt such recommendations by the respective ordinance or resolution, or the governing body need take no further action thereon. If the planning commission fails to deliver its recommendations to the governing body following the planning commission’s next regular meeting after receipt of the governing body’s report, the governing body shall consider such course of inaction on the part of the planning commission as a resubmission of the original recommendations and proceed accordingly. The proposed zoning regulations and any amendments thereto shall become effective upon publication of the respective and adopting ordinance of resolution."

When entire ordinance is to be adopted, the actual administrative process can provide for adoption by reference. This process is outlined by K.S.A. 12-3009 which states:


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---- "Any City is hereby authorized and empowered to incorporate in an ordinance by reference, in the manner hereinafter provided, any standard or model code or ordinance, regulation having the effect of law of a state officer, board or other agency, or statute, or portions thereof on any subject on which a city may legislate, which standard or model code or ordinance or state regulation is available in book or pamphlet form: Provided, that nothing herein shall be deemed to waive any statutory procedural requirement concerning a zoning ordinance, except that any city may incorporate by reference in conformity with K.S.A. 12-3010 a zoning ordinance or subdivision regulations in code form as that term is defined in K.S.A. 12-3301© if all other procedural requirements set forth in K.S.A. 12-708 are met."

Subject to the further detailed procedural requirements of K.S.A. 12-3010, the City may adopt the ordinance without reprinting in its entirety. K.S.A. 12-3010 states in part:

---- "The provisions of any standard or model code or ordinance, state regulations or statute or portions thereof incorporated in an ordinance by reference shall be as much a part of the ordinance as if the same had been set out in full therein."

The statute also contains detailed requirements for clear notation of any changes; that three copies of the ordinance adopted by reference must be filed with the city clerk to be open for public inspection and that all administrative departments charged with the enforcement of the ordinance be supplied official copies for their use. Because adoption of a new ordinance is a comprehensive process initiated by the planning commission and governing body, no particular application format is applicable. Amendments to the Zoning Ordinance and Official Map Amendments to the zoning ordinance and official map may involve changes in the language of the text of the ordinances, or a change in the zoning district boundaries as shown on the official map. Requests for text or map changes may be initiated by a private citizen as well as any agency of government. Such changes are, in general, handled in the same manner as the original adoption procedures, except that property owner notification is required for changes on the official map. Concerning proposals for zoning amendments, K.S.A. 12-757 states in part:

"---- A proposal for such amendment may be initiated by the governing body or the planning commission. If such proposed amendment is not a general revision of the existing regulations and affects specific property, the amendment may be initiated by application of the owner of property affected. Any such amendment, if in accordance with the land use plan or the land use element of a comprehensive plan, shall be presumed to be reasonable. ----" "---- All such proposed amendments first shall be submitted to the planning commission for recommendation. The planning commission shall hold a public hearing thereon, shall cause an accurate written summary to be made of the proceedings, and shall give notice in like manner as that required for recommendations on the original proposed zoning regulations provided in section 18. Such notice shall fix the time and place for such hearing and contain a statement regarding the proposed changes in regulations or restrictions or in the boundary or classification of any zone or district. If such proposed amendment is not a general revision of the existing regulations and affects specific property, the property shall be designated by legal description or a general description sufficient to identify the property under consideration. In addition to such publication notice, written notice of such proposed amendment shall be mailed at least 20 days before the hearing to all owners of record of lands located within at least 200 feet of the area proposed to be altered for regulations of a city and to all owners of record of lands located within at least 1,000 feet of the area proposed to be altered for regulations of a county. If a city proposes a zoning amendment to property located adjacent to or outside the city’s limits, the area of notification of the city’s action shall be extended to at least 1,000 feet in the unincorporated area. ----"


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The statute also provides for public protest concerning proposed amendments to the ordinance, and defines the circumstances under which a protest may be filed and considered:

---- "Regardless of whether or not the planning commission approves or disapproves a zoning amendment, if a protest petition against such amendment is filed in the office of the city clerk or the county clerk within 14 days after the date of the conclusion of the public hearing pursuant to the publication notice, signed by the owners of record 20% or more of any real property proposed to be zoned or by the owner of record of 20% of more of the total area required to be notified b this act of the proposed rezoning of a specific property, excluding streets and public ways, the ordinance or resolution adopting such amendment shall not be passed except by at least a ¾ vote of all of the members of the governing body."

Because proposals for either text or map changes, or both in combination, will occasion the need for a range of specific information for administrative considerations, it is appropriate to maintain a formal application process utilizing a standard application format. A sample zoning change application is appended to this section of the plan. Where the proposed amendment will involve a map change, there are a range of considerations which should be reviewed as part of the planning process. These include:

1. What are the existing uses of property and their character and condition on the subject property and in the surrounding neighborhood?

2. What is the current zoning of the subject property and that of the surrounding neighborhood in

relationship to the requested change in zoning classification? 3. Is the length of time that the subject property has remained undeveloped or vacant a factor in

the consideration for a change in zoning? 4. Would the requested change in zoning correct an error in the application of these regulations

as applied to the subject property? 5. Is the change in zoning requested because of changed or changing conditions in the area of

the subject property and, if so, what is the nature and significance of such changed or changing conditions?

6. Do adequate sewage disposal and water supply and all other necessary public facilities

including street access exist or can they be provided to serve the uses that would be permitted on the subject property if the change in zoning was approved?

7. Would the subject property need to be platted or replatted or in lieu of dedications made for

rights-of-way, easements, access control or building setback lines if the change in zoning was approved?

8. Would a screening plan be necessary for existing and/or potential uses of the subject property

if the change in zoning was approved? 9. Is the general amount of suitable vacant land or buildings available or not available for

development that currently has the same zoning district classification as is requested for the subject property.

10. In the event that the subject property is requested for business or industrial uses, are such uses

needed to provide more services or employment opportunities? 11. Is the subject property suitable for the current zoning to which it has been restricted?


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12. If the change in zoning were approved, would the uses which would be permitted on the subject property be compatible with the uses permitted on other property in the neighborhood? 13. Would the change in zoning as requested be consistent with the purpose of the zoning district classification and the intent and purpose of these regulations? 14. Is the request for the zoning change in conformance with the Comprehensive Plan and does it further enhance the implementation of the plan? 15. What is the nature of the support or opposition of the requested change in zoning? 16. Are there any informational materials or recommendations available from professional persons knowledgeable on this request which would be helpful in its evaluation? 17. Does the relative gain to the public health, safety and general welfare outweigh the loss in value or the hardship imposed upon the applicant by not approving the requested change in zoning?

Special Use Permits (Exceptions) In instances where specific zoning district language allows certain uses or exceptions by special use permit, a formal application and review process by the board of Zoning Appeals is required. Concerning exceptions by special use permit, K.S.A. 12-759 state in part:

---- "When deemed necessary by the board of zoning appeals, the board may grant variances and exceptions from the zoning regulations on the basis and the manner hereinafter provided: ----to grant exceptions to the provisions of the zoning regulation in those instances where the board is specifically authorized to grant such exceptions and only under the terms of the zoning regulation. In no event shall exceptions to the provisions of the zoning regulation be granted where the use or exception contemplated is not specifically listed as an exception in the zoning regulation. Further, under no conditions shall the board of zoning appeals have the power to grant an exception when conditions of this exception, as established in the zoning regulation by the governing body, are not found to be present."

Through this process, both administrative and public reviews are assured, with the Board of Zoning Appeals retaining the authority to require whatever safeguards as may be deemed necessary to protect the interest of the neighborhood and the surrounding community. A sample application for a special use permit is appended to this section of the plan. Appeals and Variances The state enabling legislation also provides for an appeals process where there is alleged to have been error in interpretation of the ordinance or map, or where a variance from the strict terms of the ordinance is desired. With respect to Board of Zoning Appeals authority in this regard, K.S.A. 12-759 states in part:

---- "Appeals to the board of zoning appeals may be taken by any person aggrieved, or by any officer of the city, county or any government agency or body affected by any decision of the officer administering the provisions of the zoning ordinance or resolution. Such appeal shall be taken within a reasonable time as provided by the rules of the board, by filing a notice of appeal specifying the grounds thereof and the payment of the fee required therefore. The officer from whom the appeal is taken, when notified by the board or its agent, shall transmit to the board all the papers constituting the record upon which the action appealed from was taken. The board shall have the power to hear and decide appeals where it is alleged there is error in any order, requirement, decision, or determination made by an administrative official in the enforcement of the zoning ordinance or resolution. In exercising the foregoing powers, the board, in conformity with the provisions of this act, may revise or affirm, wholly or partly, or may modify the order, requirements, decision, or determination, and to that end shall have all the powers of the officer from whom the appeal is taken, may attach appropriate conditions, and may issue or direct the issuance of a permit."


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The Board may also …

---- "authorize in specific cases a variance from the specific terms of the regulations which will not be contrary to the public interest and where, due to special conditions, a literal enforcement of the provisions of the regulations, in an individual case, results in unnecessary hardship, and provided that the spirit of the regulations shall be observed, public safety and welfare secured, and substantial justice done. Such variance shall not permit any use not permitted by the zoning regulations in such district. A request for variance may be granted in such case, upon a finding by the board that all of the following conditions have been met: (A) that the variance requested arises from such condition which is unique to the property in question and which is not ordinarily found in the same zone or district; and is not created by an action or actions of the property owner or the applicant; (B) that the granting of the permit for the variance will not adversely affect the rights of adjacent property owners or residents; (C) that the strict application of the provisions of the zoning regulations of which variance is requested will constitute unnecessary hardship upon the property owner represented in the application; (D) that the variance desired will not adversely affect the public health, safety, morals, order, convenience, prosperity, or general welfare; and (E) that granting the variance desired will not be opposed to the general spirit and intent of the zoning regulations; ----"

The statute also provides a route to challenge or appeal actions and decisions of the Board. In this respect the statute notes the following:

---- "Any person, official or governmental agency dissatisfied with any order or determination of the board may bring an action in the district court of the county to determine the reasonableness of any such order or determination. Such appeal shall be filed within 30 days of the final decision of the board."

The Board of Appeals functions in a quasi-judicial capacity and acts as the official interpreter of the zoning regulations. Decisions and actions of the board are subject to review and revision only by the district court. The function of the board is a most important one and must be approached with impartiality. In many cases, property values will be significantly influenced by board decisions. Sample application forms for zoning appeals and variances are appended as attachments to this section of the plan. Planned Unit Development The zoning ordinance for the community contains a PUD, Planned Unit Development District, which is oriented toward an extensive administrative and public review prior to approval of the development and zoning proposal. Designed to operate in the same manner as any other zoning change, procedures for the PUD zone, as outlined in the ordinance, require a public hearing and Planning Commission recommendation prior to action by the governing body. Because PUD proposals will typically involve unusual development and platting details, a range of background information is required to aid in the review process. It is important that the applicant receive a clear and concise explanation of the detailed process requirements at the outset. To aid in this process, a sample format for a PUD Planned Unit Development District application is appended to this section of the plan.


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Floodplain Areas An additional aspect of zoning which is potentially important where there may be defined flood hazard areas is that of administration of formal floodplain zoning. Concerning legal authority, K.S.A. 12-766 states in part:

---- "The governing body may establish floodplain zones and districts and restrict the use of land therein and may restrict the application thereof to lands, adjacent to watercourses, subject to floods of a lesser magnitude than that having a chance occurrence in any one year of 1%. Any floodplain regulations shall comply with the minimum requirements of the national flood insurance act of 1968, as amended (42 U.S.C. 84001 et seq.) or any rules and regulations adopted pursuant thereto. (b) Prior to the adoption thereof, the governing body shall submit to the chief engineer of the Division of Water Resources of the State Board of Agriculture any ordinance, resolution, regulation or plan that proposes to create or to effect any regulation or plan that proposes to create or to effect any change in a floodplain zone or district, or that proposes to regulate or restrict the location and use of structures, encroachments, and uses of land within such an area. The chief engineer may require, pursuant to rules and regulations, each submission hereunder to be accompanied by complete maps, plans, profiles, specifications and textual matter. The chief engineer shall approve or disapprove any such ordinance, resolution, regulation or plan or changes thereof within 90 days of the date of receipt of all such data required by the chief engineer as specified in rules and regulations adopted thereby. If the chief engineer fails to approve or disapprove within the ninety day period required by this section, such ordinance, resolution, regulation or plan or change thereof shall be deemed approved. The chief engineer shall provide in writing specific reasons for any disapproval."

It will be important that any zoning regulations established through this authority be structured to acknowledge the requirements of the enabling ordinance adopted at the time the official floodplain was formalized. In this manner the hydrological integrity of the flowageway can be preserved and new structures planned to avoid damage by flooding. Administering The Subdivision Regulations In general, the Subdivision Regulations are administered in much the same manner as the zoning ordinance. Concerning adoption of the regulations, K.S.A. 12-749 states in part:

---- "Following adoption of a comprehensive plan, a city planning commission may adopt and amend regulations governing the subdivision of land. A city planning commission shall apply such regulations outside of, but within three miles of the nearest point of the city limits provided such land is within the same county in which the city is located and does not extend more than ½ the distance between such city and another city which has adopted regulations under this section. A county planning commission may establish subdivision regulations for all or for parts of the unincorporated areas of the county. Subdivision regulations may include, but not to be limited to, provisions for the: (1) Efficient and orderly location of streets; (2) reduction of vehicular congestion; (3) reservation or dedication of land for open spaces; (4) off-site and on-site public improvements; (5) recreational facilities which may include, but not limited to, the dedication of land area for park purposes; (6) flood protection; (7) building lines; (8) compatibility of design; and (9) any other services, facilities and improvements deemed appropriate." ---- "Before adopting or amending any subdivision regulations, the planning commission shall call and hold a hearing on such regulations or amendments thereto. Notice of such hearing shall be published at least once in the official city newspaper in the case of a city or in the official county newspaper in the case of a county. Such notice shall be published at least 20 days prior to the hearing. Such notice shall fix the time and place for such hearing and shall describe such proposal in general terms. ----"


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"---- the planning commission shall prepare its recommendations and by an affirmative vote of the majority of the entire membership of the commission adopt the same in the form of proposed subdivision regulations and shall submit the same, together with the written summary of the hearing thereon, to the governing body. The governing body either may: (1) Approve such recommendations by ordinance in a city or resolution in a county; (2) override the planning commissions recommendation by a 2/3 majority vote; or (3) may return the same to the planning commission for further consideration, together with a statement specifying the basis for the governing body’s failure to approve or disapprove. ----"

In general, subdivision control is a vital tool of community planning. It is the means of shaping the development patterns of individual areas as well as of the total community. Amendments to the Text Amendments to the Subdivision Regulations are accomplished in the same general manner as a change to the Zoning Ordinance. As noted by K.S.A. 12-749, a public hearing is required, following the hearing, and upon action of the governing body, the changes are adopted by ordinance. Review of Subdivision Proposals The subdivision regulation is based on a 3-part review process consisting of:

1. A pre-application review; 2. Preliminary Plat review; and 3. Final Plat review and approval.

Through this process, the developer, City administrative groups and the general public are afforded a broad review opportunity to assure that the new development will meet the function and quality standards of the community. In simplified form, the process of subdivision review will occur according to a series of steps as outlined below.

1. Pre-Application Developer meets with the City to determine process for subdivision review and to establish

requirements for zoning infrastructure design and quality parameters. 2. Formal Application Developer submits completed formal application for a subdivision platting process. 3. Preliminary Plat Developer submits preliminary plat with a wide range of background information to allow

objective review. 4. Final Plat Based on directions from preliminary plat review, developer submits final plat with changes

as requested. 5. Administrative Approval and Plat Filing Planning Commission recommends final plat for governing body acceptance. Upon approval,

plat is signed and filed with the Register of Deeds. A sample checklist format for preliminary and final plat review is appended to this section of the plan.


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Lot Splits A prescribed by K.S.A. 12-752, a single existing tract of land may be divided into two lots without being subject to the requirements of subdivision regulations, providing that the lots so created may not again be subdivided. The same statute also provides that land zoned for industrial uses may be divided into two or more tracts without re-platting. While such divisions of land are exempt from the formal subdivision procedure, lot split proposals should be reviewed by the Planning Commission to determine compatibility with zoning requirements and the intent of the comprehensive plan prior to acceptance by the city. In general, lot splits should meet the following criteria:

1. The tract has not previously been split. 2. Lots resulting from the split will meet the minimum requirements of the zoning ordinance,

including setback lines and access to public streets. 3. Vacation or creation of new streets, alleys, easements or other public improvements will not

be required. 4. Existing street and easement rights-of-way will not be adversely affected. 5. There will be no significant change in requirements for public services.

Requests for lot splits should include at a minimum, a scale drawing of the proposed split with legal descriptions of the tracts of land; the location of any existing improvements; the location of any easements or right-of-way; and the name, signature and seal of the engineer or surveyor who prepared the drawing. THE CONTINUING PLANNING PROCESS In order for the plan to remain useful as a guide for community development, the process of planning must be continuous. Because cities are dynamic and marked by repeated change in response to varying social and economic circumstances, some portions of the plan may become outdated early in the planning period. Additionally, technological advancement has exerted, and will continue to exert, influence toward rethinking some of the basic concepts which are useful today. For these reasons, maintenance of the comprehensive plan will require a continual process of review and updating if the planning concepts are to remain as useful tools for evaluating and guiding community growth. Of special importance to this process will be current data on land use patterns, street and traffic conditions, demands for public facilities, general housing conditions and similar considerations. Maintenance of a continuing planning program may also occasion need for development of special investigations such as studies of requirements for neighborhood rehabilitation, park and recreation space or commercial expansion areas. Also of importance is maintenance of meaningful communication between governmental agencies and the general public. As the central purpose of the planning process is to improve the quality of the human environment, it is important that there continue to be positive efforts to involve and inform the citizens at each state of implementation. There are many means by which this may be accomplished, including hearings, newspaper articles, notices and similar methods, as well as through information systems available from active participation of organized citizens groups. Such efforts will make available the widest possible dissemination of information about the planning process and through public education, secure the widest possible support by the citizens of the community. Where these processes and programs have been successfully carried out, the comprehensive plan will continue to provide a meaningful and useful tool for structuring of an appropriate urban environment throughout the established planning period and beyond.


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ROLE OF THE PLANNING COMMISSION In order for the implementation processes and procedures to achieve the maximum results, it is essential that the practice of local government remain in tune with the emerging needs of the community, and that these needs be channel toward the concepts envisioned by the comprehensive plan. In this regard, the Planning Commission operates in the forefront through exercise of its authority for review of new development prior to consideration by the governing body. All proposals for new projects should be reviewed by the Planning Commission as should plans for improvement and extension of public facilities. It is at this stage of the review process where the initial, and many feel the most significant, impact can be brought to bear on the issue of influencing development patterns which reflect the concepts and intent of the comprehensive plan. The Planning Commission should also be actively involved with development and maintenance of a long range capital improvements programming process. Through this means, long-range needs for extension of public facilities can be anticipated and priorities established prior to introduction into the annual budget cycle of the governing body. Operating through extension of power from the governing body, and within the framework established by the state enabling legislation, the Planning Commission is charged with the primary responsibility for maintaining the comprehensive plan and for guiding actual development toward the patterns and characteristics portrayed in the plan. Where this process has been successful, the plan will not become archaic or static, but will continue to represent a viable community development influence throughout the planning period. ADMINISTRATIVE AIDS Implementation of the broad range of planning related measures is essentially an administrative process involving numerous individual actions with needs for collection of information. Most of these procedures will necessitate some type of application or formal request. As an aid to these needs, the following sheets contain sample application forms for most of the administrative actions associated with planning and zoning. Also attached are checklists for evaluating preliminary and final plats.


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