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ANCHORAG~ BOWL#~
COMPREHENSIVE~~
DEVELOPMENT /,q,
PLAN
Adopted September 28, 1982
(Assembly Ordinance 82-85)
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~ MUNICIPALITY OF ANCHORAGE >
~ Tony Knowles, Mayor . ..... i,. .
· ARLIS
Alaska Resources Library & Information ServK<
.. : .. :. LJ"braty Building. Sui~ 111
· 3211 Providcnc.:c Dnve
Anclloragc. AI< 9950R-461 <~
ANCHORAGE BOWL COMPREHENSIVE DEVELOPMENT PLAN
MUNICIPAL ASSEMBLY
Jane Angvik
Paul Baer
Fred Chlei
Ben Marsh
Carol Maser
Rick Mystrom.
Gerry O'Connor
Lidia Selkregg
Don Smith, Chairman
Dave Walsh
Municipality of Anchorage
PLANNING AND ZONING COMMISSION
Kenneth Cannon, Chairman
Alicia lden
Toni Jones
Lorrie Kincaid
lois lester
Roger McShea
William Meehan
Cary Vlahovich
Nelda Warkentin
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To the Reader:
This is Anchorage's Comprehensive Plan; it is intended to
serve as a practical guide for community development. It
identifies the desired patterns of land use over the next
20-25 years and gives the desired densities of residential
development within the various neighborhoods that
make up our community. The Plan also contains recom-
mendations on the following subjects: environmental,
transportation, energy, and parks-open space. These are
the basic support systems for residential, commercial,
and industrial growth. They are meant to be complemen-
tary of the desired land use patterns, and should work to
achieve the community's desired growth patterns. But
most of all, the Plan is meant to be an expression of what
the community desires regarding growth. It is an embod-
iment of the values, concerns, and aspirations of what
the citizens of Anchorage want over the next 20 years in
terms of development.
The Comprehensive Plan guides development but does
not, by itself, actually control where and when growth
shall and can occur. Other means are used to implement
the Comprehensive Plan. Some of these methods are
well known, and include zoning and the subdivision
process. Other methods are sometimes used to control
growth that are not as well know, however. These
include such techniques as capital facility programming,
growth management, and building codes. These tools
can be organized into general categories depending on
how directly they affect land development, whether
they deal with the patterns of development or their
timing; and if they involve the use of capital facilities to
guide growth or deal with the regulations relating to
land development. Page references relating the imple-
mentation tools to the recommendations contained in
this plan are included, to assist the reader.
Direct Land Use Controls
These controls include subdivision reviews and zoning.
Subdivision involves the conversion of raw land into
some form of land use such as housing. Under subdivi-
sion regulations, the Municipality requires the dedica-
tion of streets; the inclusion of water, sewer, and storm
drainage lines; and the satisfactory layout and design of
lots. This review may also require adequate on-site septic
and water systems, and the reservation of land for scenic
easements and open space reserves. The Comprehen-
sive Plan expands the use of the subdivision power to
include the review of the effects of development and to
require such mitigation measures as may be appropriate
(pp 65-66).
Zoning regulates the use of land. It is specific to individ-
ual properties and regulates the use of property, the
height and bulk of structures, establishes yard and street
setback requirements, and specifies population limits. It
is that device which is normally associated with land use
planning.
The Comprehensive Plan is intended to guide future
zoning. Because the Plan was developed around a
lengthy planning process relating economic growth to
the demand for land, and because the Assembly has
endorsed this document as its basic guide to future
development, future zonings are meant to generally
coincide with the Plan's land use patterns and densities.
However, the Plan is a guide to future rezonings; it does
not actually establish the zoning pattern. The Plan des-
cribes how future rezonings are to be interpreted rela-
tive to the Plan (p. 75). The Plan, as applied to residential
zonings, discourages rezonings from higher to lower
density levels unless a clear neighborhood need exists
(p. 75). It also recognizes that densities may be some-
what higher than those designated in the Plan at major
development nodes and around neighborh.ood shop-
ping centers or along principal transit corridors (pp.
75-76). Finally, the Plan states that there is a need for
more flexible approaches to development and that cer-
tain of our current zoning devices need revision. These
methods are described in the 'Residential, Short-Term
Objectives' section (pp. 64-68).
Controls Over Construction and Design Processes
The previous controls deal with the general pattern of
land uses and with the conversion of raw to developed
land. They are meant to control the basic process of land
development. Other controls exist to affect the design
and construction process. These are oftentimes referred
to as construction codes, design criteria, and administra-
tive Municipal procedures. With the exception of buffer-
ing and design criteria standards, these methods are not
directly affected by this Plan, although they are designed
to further its goals and purposes. Specifically, building
codes are meant to ensure adequate, safe dwellings.
This corresponds to the housing goal and its intent to
provide satisfactory housing to all Municipal citizens.
These tools are tied to the Plan in an indirect way. They
relate to zoning and subdivision codes or to design
criteria for public facilities that are, in turn, derived from
the recommendations of this Plan. The reader is referred
to the Anchorage Municipal Code, Title 21, for a fuller
description of these ordinances and regulations. A dis-
cussion of buffering and design standards is included on
pp 64-65.
Controls over the Timing of Development
Comprehensive plans, like this one, are meant to express
the desired development patterns of the community.
Usually these patterns are representative of land uses
and residential densities that should or ought to exist
20-25 years in the future. This is not to say that these
patterns and densities are not appropriate to, nor desir-
able for immediate time periods as well, for often they
are. Nonetheless, contemporary planning theory has
increasingly emphasized that if future, recommended
patterns are to be acl;lieved, there must be a clear and
definite process established to realize these patterns.
The 'Land Guidance System' section describes just such a
process (pp. 69-74).1t specifies areas for development,
the general timing of development, and the types of
tools to actually achieve the desired development pat-
terns. This timing component (pp. 71-72) places heavy
emphasis upon the use of major capital facilities, like
water and sewer, to achieve the goal of properly timed
growth. These facilities are financed and scheduled
through the Municipal Capital Improvement Program.
The Plan requires that the Program be consistent with
this document's timing recommendations (p. 70). Finally
the plan recommends the use of new design tools and
zoning processes (p. 70) to better deal with the costs of
housing development in environmentally sensitive areas--
of which Anchorage has many.
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Consistency of Infrastructure of Development with Plan
The desired urban forms, as well as the regulatory and
design tools designed to implement them, are ultimately
dependent upon what is termed as 'infrastructure'--the
systems of water, sewer, roads, parks, and similar urban
amenities and essential services that are vital to urban
life. These services must support the recommended land
use patterns if the latter are to be achived. Specifically,
they must be consistent with and reinforce these pat-
terns. The major infrastructure systems are described at
length in the Plan under the chapter called 'Functional
Element' (pp. 7-49). The Environmental System, con-
cerned with environmental protection and enhance-
ment, examines these subsystems at length and includes
sections on water quality, air quality, and coastal zone
management. The Transportation System, consisting of
major roads, transit, and alternative mode programs, is
described in pp. 26-32. Finally, tlrie Parks and Open
Space (pp 33-48) and Energy (pp. 49-54) Systems exam-
ine the required open space improvements and energy
conservation/ development programs necessary to pro-
vide a high quality of urban life and satisfactory energy
utilization. Each of the components is intended to be
compatible with the others, and with overall land use
patterns.
Summary
A plan does not, by itself, create the future. It points to a
future and gives certain signposts and methods as to
how the future may be achieved. For this future to be
realized there must be commitment to the Plan but,
perhaps to a larger degree, to the need to deal with
potential future growth problems in the present. Prob-
lems are difficult and oftentimes impossible to reverse
once an unwanted condition or action has begun. There
must be, if this Plan is to succeed as a guide to develop-
ment, a commitment to a type of problem solving that is
creative, constructive, and balances short-term gains
with long-term goals and objectives. Each and all of the
implementation techniques the Ml:micipality processes
are not wholly satisfactory unless this attitude and
approach is pursued in the daily activities of our Munici-
pallife.lfthis approach is followed, our present activities
will ultimately manifest themselves as an eventual urban
form. This plan can help to achieve these growth objec-
tives if this attitude exists and is practiced.
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CHAPTER 1 -An overview of Anchorage's Comprehensive Plan
1.1 Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
1.2 Purpose and Scope ............................................. 2
1.3 Uses of the Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
1.4 Plan Development Process. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
1.5 Organization of Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
CHAPTER 2 -Functional Element
2.1 Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
2.2 Environmental Component ....................................... 7
2.3 Transportation Component ...................................... 26
2.4 Parks, Recreation, and Open Space Component .................... 33
2.5 Energy Component ............................................. 49
CHAPTER 3 -Urban Development: Patterns and Process
3.1 Urban Development: Patterns and Process ......................... 55
3.2 Land Use Element .............................................. 56
3.3 Land Guidance System .......................................... 69
CHAPTER 4 -Plan Implementation
4.1 Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 5
4.2 Land Use Implementation Mechanisms: Land
Use Patterns ................................................... 75
4.3 Adoption of Certain Additional Elements as
Part of the Comprehensive Development Plan ...................... 76
4.4 Urban Development Plan ........................................ 76
4.5 Relationship of Comprehensive Development
Plan to Major Planning Programs and Activities ...................... 76
4.6 Procedural Land Use Implementation Mechanisms .................. 78
4. 7 Land Use Implementation Process Mechanisms . . . . . . . . . . . . . . . . . . . . . 79
4.8 Plan Review Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79
TABLE OF CONTENTS
Page
Table of Tables
2-1 Goals, Policies, Objectives: Environmental Component .................... 18
2-2 Goals, Policies, Objectives: Transportation Component ................... 31
2-3 Standard for Parks by Classification and Population Ratio .................. 36
2-4 Goals, Policies, Objectives: Parks, Trails, and Open Space .................. 44
2-5 Goals, Policies, Objectives: Energy ..................................... 52
3-1 Goals, Policies, Objectives: Land Patterns ............................... 64
3-2 Goals, Policies, Objectives: Land Management Process . . . . . . . . . . . . . . . . . . . . 73
Table of Maps
2-1 Preservation Map ..................................................... 9
2-2 Conservation and Utilization Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 0
2-3 Transportation Plan Map .............................................. 29
2-4 Parks and Open Space Map ........................................... 47
3-1 Land Use Plan Map .................................................. 57
3-2 Residential Intensity Map ............................................. 59
3-3 Urban Phasing Strategy Map ........................................... 71
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1.1 INTRODUCTION
Rapid growth in Southcentral Alaska and especially in
the Anchorage metrop o litan area has p l aced increas-
ingly greater burdens upo n the enviro nmental, fiscal,
and public fa c ility sys tems that support and guide urban
development. This growth has a l so required l arge
amounts of land within the Anchorage Bowl to accom-
modate competing residential, industrial, and commer-
cial land demands. Currently, 32,340 acres are deve-
loped; of this amount, some 13,500 a cres are used f o r
residential purposes, 1,300 acres for commercial, and
1,440 for i ndustrial. Considerable land remains within the
Anchorage Bowl, i n c lu ding, under cu rrent zoning, some
13,900 acres of residential, 1,14 0 acres of commercial, and
2,400 acres of i ndustrial land . In addition, some 7,5 0 0
acres of land are zoned unrestricted but most likely will
be avai lable for re sidential use i n the Potter and Littl e
Rabbit Creek drainages in south Anchorage . It ca n be
expected that increa sing d emograph ic change and
economic growth o v er the next twenty years will place
great demands upon the remaining land supply. Anchor-
age wi ll be faced with the need to use wisely the last
remaining land parc els while minimizing environmental
and fiscal impacts.
This basic iss ue of growth--its proper pattern, density,
and quality--is the central theme of the Comprehensive
Plan . The following desc riptions exami ne the current
patterns of la nd devel o pment, the pressures placed
upon the ava i lable la nd i n ventory from competing eco-
nomic and social forces, and the rec ommended strate-
gies to deal w i th these press ures.
A compr ehensiv e plan is necessarily a represe ntation of
the atti tudes and perceptions of the ways to deal with
future growth at a par t i cular time.lt can be assumed that
conditions, e v ents, and attitudes will change o ver t i me,
which requires th e development of a method to deal
with chan ge. This Plan includes such a component. It is
also concerned w ith provid i ng methods to effectively
respond to and guide the processes of development
over time and space.
CHAPTER ONE
AN OVERVIEW OF ANCHORAGE'S COMPREHENSIVE PLAN
1.2 PURPO SE AND SCOP E
The 1981 Comprehensive Devel opment Plan is i nte nded
to serve as a pract ical guid e for community develop-
ment. It is formulated around a series of key "functional"
areas of urban planning concerned with the major pub-
lic facili t ies and services desi gned to support urban
develo pment. These se rvices a lso guide the location of
urban deve lopment and appo rtion the density of t h at
growth. Incl uded in t hese descriptions are goals, objec-
tives, and policies which support the development of
these facilities and provide direction to the manner in
which they are to be organiz ed. Initially, these goals and
objectives were a synthesis of the public participation
process used in developi ng the 1976 Comprehensive
Plan, but have since been augmented to incl ude re -
sp o nse s to new c o nditio ns and even ts which have taken
place d u ri ng the past fi ve years. The Plan also in c ludes
implementation gu ideli nes to be appl ied in conjunction
with the l and u se maps. The l atter allocate basic uses as
appropriate to the n eeds of t he co mmunity. Methods to
direct th is process over t i me ar e also identified. They
p rovide the dimension of time to th e maps of land u ses .
The Plan is necessari ly general, to be further defined by
appropria tely detailed plans, by ordinances and other
p o li cy tools applied by the Assembly and Pl annin g and
Zoning Commission.
The Comprehensive Pl an focus es upon the physical rel a-
t ionshi ps and development patterns of the community.
It is intended to deal with conditions and events
expected o v er the next 20 years. This length o f time is the
u sual limi t of demograph ic and economic forecasting,
and corresponds to the t i me period used i n the design
of most major pubtic faci lities. The Land u se and Residen -
tial Intensity Maps ar e geared to a somewhat l onger time
period, although the l and patterns are generally t h e
r esu l t of land acreage allocations to t he design peri od
(year 2000 ). These maps represent the preferred pat-
tern of community devel opment.
The Comprehensive Plan also focuses upon what is
termed the "Anchorage Bowl". This is the area of major
u rbanization extend i ng from t he military bases in the
north, to the Ch u gach State Park in the east, to the Knik
and Tu rnagain A rms of Cook Inl et i n the west, to the
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Turnagain Arm and Chugach State Park i n the south . The
Plan recomme ncations and data analyses are confi ne d
to this a rea . The other urbani zing ar eas o f t he M u n icipa l-
ity, including Ea gle River-C hugiak-Eklutna and the Turn-
aga i n Arm, are covere d by separate compre hensive
plans. This is not to indica te that the seve ra l comprehen-
sive plans are mutually exc lu sive . The land and public
faci l ity requirements, as wel l as t he p opul ation al loca-
tions, are derived from demograph i c p roj ecti ons that
treat each ar ea as part of an i ntegrated economic uni t
w ithin Southcentral Alaska .
1.3 USES OF THE PLAN
The adopted Comprehensive Plan is a publ ic declaration
of the general policies which w ill gu i de but n ot b ind , the
a c tions of the legis lative body. This declaration of policy
is a refl e c tion of comm u nity goa ls as expressed by t h e
community and approved b y t hei r e l ect ed representa-
t ives.
Some of the ben efits and purposes o f the Comprehen-
sive Plan and the plan ning process are outlined as
follows :
• The Comprehensive Plan is designed to improve the
physical, social, and economic environ ment of the
community.
• The Comprehe nsive Pl a n se rves as a sour ce of i n for-
mati on to the ge n eral publ ic, as well as to government
agencies having an impact upon physica l development
decisions.
• The Comprehensive Plan serves as a m eans o f coor-
dination between the p rivate and public sectors, be-
tween d i fferent government agencies, and between the
legisl ative body and its t echn ical staff.
• The Comp re h ensive Pla n serve s as the best es t imate of
th e future--an esti mate t hat is gu ided by speci fic com-
munit y goals. The plan re flects what is most l ik e ly t o
happen if the policies and p rog rams i n the plan are
followed.
• The Comprehensive Plan se rves as a declaration of
public p o licy re ga rding physical development and
clearly states the objectives and actions that th e com-
mu nity intends to pursue t o ac h ieve the r e c ommen-
dations co ntained in the Plan .
• The Com pre hensive Pla n foc uses atte n tion u pon the
m ajor issue s confronti ng the comm un ity, and aids in
resolvi ng these thr o u gh a d i scussio n of the conse-
quences of alternative courses of action .
The Comprehensive Plan and its attending planning pro-
cess are intended to be instru mental in both guiding and
influencing urban development. It is a method whi ch
he l ps to ensu re t hat community resourc es w i ll be used i n
the most effi cient ma nn er practicabl e to rea c hi ng com-
munity goals . In addit ion, it can serve as a vehicl e for
representing, to the publi c and p r ivate sectors, the likely
future of the c ommun ity and the means to b e used to
achieve that fu ture.
1.4 PLAN DEVELOPMENT PROCESS
Th e process for revi si ng the Anch o rage Compreh e n sive
Development Plan focu sed about six major rese arch
areas:
• Defin ing planning alternatives,
• Analyzing the land mana gem ent alternatives necessary
t o implement particular l and use densities and patterns,
• Research ing e fforts relating to land demand and
su p p ly,
• Developi ng poli cies and objectives re lati ng to physi cal
growth and urban form,
• Devel oping and syn thesizing major f unc tional planning
activities, and
• Formulating major land u se alternatives.
It i s i mporta nt t o recogn i ze that this p la nning effort is
bu ilt upon the technical and ci t i ze n involveme nt efforts
i nvolved in preparing the 1976 Compr ehensive Deve l-
opment Plan . Many of t h e goa ls and objectives deve-
loped durin g th e p u blic participation p rocess i n 1976 are
retain ed i n this Plan , and form much of the basis for the
Plan 's recommendations in its functional and la n d use
sections . The more recent planning activities focus on an
integration between la nd use and fun ctional planning,
the establishment of a mana gem ent process to d irect
growth patter ns, and changes t o the Land Use a nd Res i-
dential Intensi t y Maps.
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The research process involved in the revision of the
Comprehensive Plan can best be described in terms of a
sequence that focused on a broad development al ter-
natives a n d then attempted to make these patterns
more specific and operational. This process also tried to
incor porate functional with developmen tal planning
and to analyze the various constraints and opportunities
for urban growth through a se ries of economic, demo-
graphic, and environmental studies.
1.4.1 Alternative Land Use Study
The revision of the Comprehensive Devel opment Plan
began with an analysis of alternative growth patterns.
The Alternative Land Use Study identified a series of
alternative growth patterns and densities, and assessed
the varying impacts of these forms. Thes e impacts were
measured in terms of social, economic, land use, and
environmental indi cators . Incl u ded among the ap-
proaches to urban form and growth were alternatives
that:
• Concentrated urban growth in a more p u rposeful way
throu gh a pattern of extensive in-f i lling,
• Allowed metropolitan growth to cont inue to disperse,
allowing a low-density metropolitan form to emerge,
• Fostered a gradual in-filling of urban lands, to achieve a
moderate concentration of urban development,
• Dispersed urban growth to the Eagle River-Ek l utna-
Chugiak and the Matanuska-Susitna Borough areas, and
• Decreased urban growth, putting a "lid" on future
community expansion.
Of the alternatives, that i nvolving a progressive infil ling of
urban lands tended to be most cost-effective and pro-
duced the fewest environmental and social disruptions.
1.4.2 MUHICIPAL LAHD MAHAGEMEHT SYSTEM
Urban growth occu rs over space and time. The 1976
Comprehen sive Plan focused on the questi on of spatial
re lationsh ips at a specifi c time in the f uture. The Munici-
pal Land Management System study was designed to
bridge the gap between the urban patterns we wish to
create, and our desi re and ability to use the manage-
ment tools required to attain these forms . It analyzed the
types of co ntrols used to manage land and related these
to the alternate urban forms giv en in the A lternative
Lan d Use Study. Different land management techniques
are required to realize certain patterns o f l and uses.
Management controls were se l ected for development
that implemented a moderate in-fil ling patt ern . These
controls involved the further strengthening of the cu r-
rent zoning and subdivision regu lations; the devel-
opment of a systematic strategy f or the siz i ng and instal-
lation of urban services, especially sewerage; and the
establi shment of progr ams involvin g land ban kin g and
capital facility programmi ng. The most i mport ant o f these
strategi es are related to the timing and phasing of capital
facilities in south Anchorage . Because o f their large influ-
ence over urban development, capital pro jec ts were
found to be most effective o f the va rious strategi es in
guidin g the timing and density o f growth.
1.4.3 RESEARCH AHD AHALYSIS: LAHD IHVEHTORY,
HOUSIHG, ECOHOMIC PATTERHS
The previous alternative testing and land management
analyses were designed to frame the scope and focus
the direction of the Co mprehensive Plan revis i on. Th ey
were intended to establi sh the
general pattern and density o f
urban growth to the year 2000
and to indicate the t ypes and
mix of controls necessary to
ac hi eve those patterns. The
analyses that fol lowed focu sed
d i rectly o n the revis i on of the
Comprehensive Plan. The re-
vised Comprehensive Plan in-
cludes three major sections--
goals and objective s, major
functional systems to support
urban devel opment, and the
desired patterns of urban
growth.
The basic research studies in-
cluded the following:
• Deteriorated Housing Su rvey
• Housing, Land Use, and Zon-
ing Inventory
• Housing Market Model
• AMATS Metropolitan Employment Surve y
• Anchorage Coastal Atlas
• Land Demand Pr ojections : Commerci al & Industrial
• Lan d Demand Projections: Reside ntia l
These analyses inventori ed t he b asic constituents of
development, as sessed the pro bable future causes of
and influences upon growth, and p roj ected needs for
t he va ri ous land types and densities. In particular, the
Deteriorated Housi ng Survey identifi ed the main areas
of substandard, deteri orati ng, a nd d il apidated housing.
If centrally l o cated and adj acent to major employment
centers, such areas commonly experience redevelop-
ment to higher densities. Several such areas exist near
the downtown in Fairview and Mountain View. This con-
clus i on is important due to t he negligible amount of
developable land remaini ng i n the Anchorage Bowl and
bec ause of the co mmunity's policy o f ensu ring the effec-
tive use of public facilities. The Housing, Land Use, and
Zoning I nventory served to ident ify the d istribution and
amount o f the a rea's hous ing stock (single-and mul t i-
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A lternat ive Land
Use Study
t
Municipal Land
Management System
Deteriorated Housing
Su rvey
Housing Market
Model
Metropolitan
Employment Surve y
Anchorage Coastal
Atlas
PLAN DEVELOPMENT PROCESS :
LAND USE COMPONENT
Land Demand
r-+ Projections 1--
Residential
Land Demand Projections
l...+ Comme r cia l & -
Industrial
~ A lternative
Land Use
~ Patterns
I
I
Draft I Plan
Function
To defi ne maJor development alter-
na tives
To identify methods to g u ide
growth
To identify potential redevelop-
ment areas
To identify housing conditions and
trends
To identify employment trends
To identify envnonmental con -
straints
To specify probable areas of resi -
dential development
To specify probable areas o f com-
mercial-indust ria l growth
To identify spec ific developmental
alternatives
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family, mobi l e home, and duplex), la nd u se patterns
(organized according to residential, commercial, indus-
trial, and public la nds), and zoning patterns (arranged by
principle zoning ca te gories). These data were separat ed
into small geograp hic areas and were organized accord-
ing to acreage amounts for undeveloped and deve-
loped land. These data wer e essential in determining
where growth has occurred and how it was arranged,
and where future growth might occur--on the basis of
the vacant, developable l and supply. The AMATS Met-
ropolitan Employment Survey identifi ed the amou n t of
empl oyment by place of employment i n the Anchorage
Bowl. To gether, these reports described current eco-
nomic, population, and land conditions within the Bowl.
Environmental data were mapped at a common 1:25,000
scale in the Anchorage Coastal Resource Atlas. This
document gives a detailed inventory of physica l, biologi-
cal and engineering data, to complement the socioeco-
nomic information provided by the other studies.
The inventory analyses were complemented by studies
of future fa cili ty need5 and land patterns. The Housing
Market Model analyzed the various trends affecting cur-
rent and future housing conditions. It also projected the
amount and distribution of single-and multi-family hou s-
ing by small geograph ic areas. Th ese forecasts were
e ssen tial to later evaluations of land needs and to the
development of housing redevel opment st rategies in
deteriorating areas.
A final analysis, Commercial-In dustrial Employment and
Acreage Allocations, speci fied f uture popu lation, dwel-
l ing unit, and employment amounts. These data were
then translated into acreage demand re quirements,
which formed much of the basis (along with the residen-
tial housing analyses), for the land use designations con-
tained herein .
1.4.4 FUNCTIONAL PLAN DEVELOPMENT
The revised Comprehensive Plan includes sections on
the main public facility and environmental systems. Pub-
lic facilities support and infl uence the pattern and den-
sity of growth, and mainta i n c ultu ral and social systems .
The environmental sys tems act
as constraints to growth as well
as providing recreational, aes-
t hetic, health, and open space
values and opportunities. A ser-
ies o f studies, p repared si nce
the period of in itia l plan de-
vel opment i n 1976, form the
basis for these functional, or
infrastructural, elements.
The Environmental Component
was based largel y upon th e fo l-
lowing studies:
• Water Quality Management
Plan
• Air Quality Plan (draft)
• Coasta l Zone Management
Pl an
• We tlands Management Pla n
(draft)
The Transporta tion Compon-
ent was derived from the var-
ious analyses prepared by the Anchorage Metropolitan
Area Transportation Study, and largely from th e fol-
lowing:
• Long Range Eleme nt
• Tra ns p o rtation Sys te ms Management Element
• Tra nsi t Development Program
• Light Rail Feasibility Study
The Parks and Recreation Element was large ly based
upon the foll owi ng analyses :
• Areawide Parks and Open Space Plan (draft)
• Areawide Trail s Plan
• Sub-area Parks Plans (various )
The Energy Component was based upon the following
technica l reports :
• Energy Crisis Conti ngency Pl an
• Energy Eleme nt, Comprehensive Pl a n, Technical Report
Each of these studies provided documentation as to the
needs o f the various components, and are to be dis-
c ussed in mo re detai l in Chapter Two.
1.4.5 POLICY FO RMULATION PROCESS
The plan development process also i nvolved the formu-
l ation of community goals, objectives, and policies . This
analysis identified goal s, objec tives, and pol icies for a
variet y of functional, or in fras tru ctur e, areas. Infrast ruc-
ture is defined as t h ose systems f o rming the bas1c foun-
dation support mechanisms of the u rban commun ity.
Goals and objec tives were developed for the following
elements:
• Land Use • Envi ronme nt
• Tra n sportation • Ene rgy
• Parks , Rec reation, Open Space
These goals were derived from literature reviews, the
previous Comprehensive Plan, and from already adop-
ted fu nctional p lans and studies of the Municipality. The
impo rt ance of th e Pol icy /Goal Component is t o set the
basic di re c tion for commun ity acti viti es , i ndicate t hose
policies and programs necessary to ach i eve those activi-
ties, and esta blish an interrelationsh ip among the various
socioecono mic for ces and systems that affect the com-
m unity's physical deve lopment and form.
5
1.5 ORGANIZATION OF PLAN
This report is separated into four major sections :
• Introduction
• Functional Plan Components
• Land Use-Land Management Element
• Plan Implementation
The Functi onal compone nt describes the approach to
be used by the Municipality in the provision of important
public services. It also sets Muni cipal policy regarding
economic development and energy management. The se
components are essentia l to the creation of the urban
forms and densities ex pressed in the Land Use Plan . The
components are al so interrelated, both to each other
and to the desi red urban form.
Th e Land Use-Land Management depicts the desired
urban forms and d ensities, and indicates those manage-
ment tools necessary to focus growth over time to
achieve desired urban patterns. This component is, i n
turn, based upon the Plan's functional component and
works to drive t he i mplementation component.
The Implementation Element identities those tools and
methods necessary to carry out the recommendations of
the Plan. Without a strong commitment to the mecha-
nisms required to achieve desired urban forms and
infrastructure syst e ms, community goals cannot be fully
realized.
6
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2.1 INTRODUCTION
Th e functional element of t he Comprehensive Pla n des-
cribes those major components of the planning p rocess
that support and affect physical devel opment. These
systems interact, influencing each other and, ultimately,
the patterns of land uses and the qual ity of comm u nity
life. Certain of these systems are strong determinants of
growth while others act to constrain the amount and
location of growth .
Th e functional syste ms described he rein i nclude:
• Environment
• Transpor tation
• Parks and Open Space
• Energy
Most of these systems are examined at length in separate
studies and reports p r epared by the Municipality. They
ar e summa r ized in the Co mpre hensive Pl an to p rovide
an integration between l and use patterns and these
components, and between the variou s systems them-
selves. Detailed analyses of these systems are contained
in the reports and st u dies from which they are derived.
2 .2 ENVIRONMENTAL COMPONENT
The environmental component consists of three sub-
ele ments: coasta l zone, water q u ality, and air quality
ma na gement. The coasta l zone program addresses t he
effective management of the nearshore area and the
a reas directly affected by or affecting this area. The air
and water q u al ity management p r ograms are, however,
areawide in scope within the Anchorage Bowl. Different
strategy areas and environmental processes are also
encompassed by the various programs. The coastal zone
management program is concerned with al l of the major
p rocesses affecting the n earshore area, including:
• su rface waters
• wetlands
• marshes, tidal f lats, and floodplain s
• hazar dous land
• anadromous streams
• marginal land
In co n trast, the other programs are structured around
t h e u se of con trol strategies intended to improve a ir and
water q u ality. Coas t al Zone Management is, t h en, co n-
siderabl y broad er in scope than the oth er p rograms in
ter ms of the types of land and envi ronmental p r ocesses
affected by its ma n agement controls. Coastal manage-
ment i ncorporates natural re source management c on-
cerns into the urban p l anning process.
Each of the environmental programs attempts to reflect
and impleme nt a bal anced use phil osophy between
devel o p me nt an d envi ronmental protection. This ap-
proac h r ecogn i zes the t rade-off i nh erent to all environ-
men t p rogra ms. It at tempts to maintain and en hance vital
environmen tal processes whi l e a l lowing residential
growth and economic development to conti nue. Envir-
onmen t al resources, ec onomic productivity, and live-
ability are interdependent. Economic activities use en-
vironmental resources, and are maintained by the envi -
ronmental resources they are dependent upon. Live-
abili ty, in t urn, is deter mined by the i ntangible values of
resources, b oth n atural and socia l. This interdepen-
den cy is l imit ed by the fragil ity and fi ni te number and
type of envir onmental r esour ces. In o r der t o main t ain
both econ omi c and environmenta l resourc es , c areful
consideration must be giv en to achieving a proper bal-
ance between the competing demands of growth, gen-
erated by economic expansion, and of preservati on, to
maintain the sensi tive character of ecosystems.
2.2.1 COASTAL ZONE MANAGEMENT
Description of Program
Coastal Zone Management pla nning is a result o f both
the Federal Coastal Zone Management Act o f 1972 and
the A l aska Coastal Management Act o f 1977 . Both acts
require that states use the nation's coasta l r esources and
promote their wise and balanced use. The reassert ion of
the rightful responsibilities of local and state govern-
ments i n r egul ating the use a nd deve lopment of their
coastal resources i s a maj or aspect of both acts.
The coastal zone ma nagement program must be con-
sistent w i th Fede ra l and State law and regul ations. Such
programs mu st inclu de, but are not limited t o, the
foll owing:
• a description of the land and water uses and activiti es
subject to the district program, and a description of
geop hysica l hazard a reas, recrea t ion, t ransportation
CHA PT ER TWO
FUNCT I ONAL ELEMEN1'
7
and utilitie s, energy facilities, and water-re lated activi-
t ies.
• a description of the u ses and activities that will be
consi dered proper and im proper in the coastal area .
• a statement of the policies that will be applied to l and
and water u ses and activities subject to the district
program.
Issues
The basic issue of coastal zone planning is to effectively
manage c oastal resources, while balancing the compet-
ing claims of environmental protection and urban
growth . Th is is a particularly difficult task, given the prox-
imity of the coastal zone to major areas of economic and
urban expansion. Municipal growth is expected to rea c h
over 338,000 inhabitants in the next twenty years, and
the number of employees sh ould increase from 65,000
to a over 150,000 over the same time period. Confli ct s
between various l and u ses are sure to arise . The thru st of
Anchora ge's coast al zone program is to devise and
im plement a rational process for resol ving these con-
flicts . Th is process sho uld maintai n the del icate bal ance
among the economic, environmental, and social forces
that maintain human well-being; and it must be flexible
enough to respond to new info rmation and cha nging
perceptions of human needs.
The resolution o f this issue, in the Coastal Zone Manage-
ment (CZM ) Plan, occurs th r o ugh a process which ident i-
f ies the sub-units of the t otal landscape accordi ng to
sui tability of use . Thi s process of land use suitability anal-
ys is makes it possible to i dentify dominant and subordi-
nate units of the landscape based upon a biophysical -
cultural del i neation of the coasta l area. In the
Coastal Zone Management Plan , the concept of geog ra -
phic seg me ntation is used. This involves a division of the
coast into different lan dscape resource units, each
represe n ting a different type o f environment, and each
exhibitin g its own un i que charact eristics. Th e terms u sed
for the several la nd use suitability environments are:
Preservat ion, Cooservation, and Utilization.
Preservation Environment: This unit consists of geogra-
p h ic areas characterized by the presence of environ-
mental and/or cu ltural features considered val uable in
their undisturbed or o ri ginal co ndition, and which are
8
relatively intoler ant of intensive human u se . Such areas
sho uld be essentially free from development, or be c ap-
able of being res tored t o their natural co nd i t ion, and
they should be large enou gh to protect the va lu e of the
resource . The emphasis in this c la ssification is on preser-
vation or restoration c•f natural syste ms, and on the
prevention or regulation of use s and activities which
would degrade or destroy the natural environment. See
Map 2-t.
Conservation E nvironm•~nt: Th is area consists of those
l and and water ar eas having certain natural or insti tu-
tional use limitations which requi re protecti on prior to
their development. The purpose of t his desig nation i s to
protect areas for environmenta ll y related purposes such
as pa rks, food protection, and forestry management. It
does not intend t hat the natural environment be main-
tained in a pure state; r ather, that all activities and u ses
be ca rri ed o ut to prod uce min i ma l adverse impacts. Th e
key factor in this classification is the ma nagement of uses
and activities to maintain the natural quality of the site.
See Map 2-2.
Utilization En vi ronment: This designation relates to those
l and and w ater areas of the coastal district su i table fo r
development. Areas design ated f o r utilizatio n have the
fewest co nst rai nts to develop ment. See Map 2-2.
,....,
L
l
1.1 INTRODUCTION
Rapi d growth in Southcentral Alaska and especially in
the Anchorage metrop o l itan ar ea has p laced increas-
ingly great er bu rdens upo n the environmental, fi sca l,
and public facility sys t ems that support an d gu i de urban
development. This growth has als o required l ar ge
amounts of land within the Anc horage Bowl to accom-
modate competing res i dential, industrial , and commer-
cial land demands. Currently, 32,340 acres are deve-
loped; of this am o unt, some 13,500 a cre s ar e use d f o r
residential purposes, 1,300 a cres for commercial, and
1,440 for industria l. Co nsiderable land remain s withi n the
Anchorage Bowl, inclu ding, u nder cu rrent zoning, some
13,900 acres of residential, 1,140 acres of commer c ial, and
2,400 acres of industrial land . In addition, some 7,5 00
acres of land are zoned unrestricted but most likely will
be available for re sidential use in the Potter and Little
Ra b b it Creek d rainages in so uth Anchorage . It can be
expected that increasing d emograph ic change and
eco nomic growth over t h e ne xt twent y y ears will p l ace
gr eat demands upon the remaining land supply. Anc hor-
age wi ll be face d with the n eed to use wisely the l ast
remaining l and parcel s while minimizi ng e nvi ronmental
and fis cal impacts.
Th is basic iss ue of growth--its proper pattern, de nsi ty,
and quali t y--is t he central the me of the Comprehensive
Pl an. The following descriptions examine the current
patterns of l and development, the pressures placed
upon the available land i n ventory from competing eco-
n omi c and social forces, and the recommended strate-
gies to deal wi th these pressures.
A co mprehensive plan is necessarily a re presentati on o f
the atti tudes and perceptions of the ways to deal with
future growth at a particular ti m e . It can be assumed that
cond itions, events, and attitudes will change o ver t i me,
which requires th e development of a method t o deal
w ith change. This Plan inc ludes such a component. It is
also concerned with provid ing methods to effectively
respond to and guide t h e processes of development
over time an d space .
CHAPTER ONE
AN OVERVIEW OF ANCHORAGE'S COMPREHENSIVE PLAN
1
1.2 PURPOSE AHD SCOPE
The 1981 Comprehensive Development Plan is intended
to serve as a practic al guide for community develop-
ment. It is f orm ulated around a series of key "functional"
areas of urban planning concerned with the major pub-
lic fa cilities and services desi gned t o support urban
development. These se rvices also guide the location of
urban development and apportion the density of that
growth . Included i·n these descriptions are goals, objec-
tives, and policies which support the development of
these facilities and provide direction to the manner in
which they are to be organized . In itially, these goals and
objectives were a synthesis of the publ ic participation
process used in developing the 1976 Comprehensive
Plan, but have since been augmented t o include re-
spo nses to new conditions and events which ha ve taken
place during the past five years . The Plan also inc ludes
implementation guideli nes to be applied i n conj unc tion
with the land use maps. The latter allocate basic uses as
appropriate to the needs of the comm unity. Methods t o
direct this process over time are also identified. They
provide the dimension of time to the maps of land uses .
The Plan is necessarily general, to be further defined by
appropriately detailed plans, by ordinances and other
policy tools applied by the Assembly and Planning and
Zoning Commission.
The Comprehensive Plan focuses upon the physical rela -
tionships and development patterns of the community.
It is in tended to deal with condition s and events
expected over the next 20 years. This length of time is the
usual limit o f demographic and economic forecasting,
and corresponds to t he time period u se d in the design
of most major public fa cil ities. The Land Use and Re siden-
tial Intensity Maps are geared to a so mewhat longer time
period, although t h e lan d pattern s are generally the
result of land acreage allocations to t he design period
(year 2000). These maps represent the preferred pat-
tern of community d evel opment.
The Comprehensive Plan also focuses upon what is
termed the "Anchorage Bowl". This is the area of major
urbanization extending from the military bases in the
north, to the Chugach State Park in the east, to the Knik
and Turnagain Arms of Cook Inlet in the west, to the
2
Turna gain Arm and Chugach State Park in the south . The
Plan recommencations and data analyses are con fined
to thi s area . The other urbanizing areas of the Municipal-
ity, including Eag l e River-C hugiak-Eklutna and the Turn-
again Arm, are covered by separate comprehensive
plans . This is not to i ndicate that the several comprehe n -
sive plans are mutually exclusive. The land and public
fa cil ity r e quirem ents, as well as the popul ation alloca-
tions, are derived from demographic proje ctions that
treat each area as part of an integrated economic unit
within Southcentral A l aska .
1.3 USES OF THE PLAH
The adopted Comprehensive Plan is a public declarati on
of the general policies wh ich will gu ide but not bind, the
actions of the legislative body. This declaration of policy
is a reflection of com mun ity goal s as expresse d by the
community and approved by thei r elected representa-
tives.
Some of the benefits and purposes of the Comprehen-
sive Plan and the planning process are outlined as
follows:
• The Comprehensive Pla n is designed to i mprove the
physical, social, and economic environment of the
community.
• The Compreh e n sive Plan serve s as a source of infor-
mation to the general public, as well as to government
agen cies h aving an i mpact upon physical dev elopment
decisions.
• The Comprehensive Plan serves as a means of coor-
d ination between the private and public sectors, be-
tween different government agencies, and between the
legi slative body and its technical staff.
• The Comprehensive Pl an serves as the best estimate of
the future--an estimate that is guided by specific com-
munity goals. The plan reflects what is most l ikely to
happen if the pol icies and programs in the plan are
f ollowed.
• The Comprehensive Pla n serves as a declaration of
public policy regarding physi cal devel opment and
clearl y states the objectives and actions that the com-
munity intends to pursue to achieve the recommen-
dations contained in the Plan .
• The Comprehensive Plan focuses attention upon the
maJOr issues confronting the communi t y, and aids in
resolving these through a discuss ion of the conse-
quences of alternative courses of action.
The Comprehensive Plan and its attending p lan n ing pro-
cess are in tended t o be instrum ental in both guiding and
influencing urban development. It is a method which
hel ps to ensure that community resou rces wi ll be used in
the most efficient manner practicable to reaching com-
munity goal s. In addition, it can serve as a vehicle for
representing, to the public and private sectors, the likely
fu ture of the community and the means to be used to
achieve that future.
1.4 PLAH DEVELOPMENT PROCESS
The process for revisi ng the Anchorage Comprehensive
Development Plan f o cused about six major research
areas:
• Defining planning alternatives,
• Ana lyzing the land management alternatives necessary
to implement particular land use densities and patterns,
• Researching efforts relating to land demand and
supply,
• Developing policies and objectives relating to physical
growth and urban form,
• Developing and synthesizing major functional planning
activi t ies, and
• Formulating major land use alternatives.
It is important to recognize that this planning effort is
b uilt upon the techni ca l and c iti zen involvement efforts
invo lved in preparing the 1976 Comprehensive Devel-
opment Plan . Many of the goals and objectives deve-
loped during the public participation process in 1976 are
retained in this Plan, and form much of the basis f or the
Plan 's recommendations in its functional and land use
sections. The more re cent planning activities focus o n an
integration between land us e and functional planning,
the establishment of a management process to direct
growth patterns, and changes to the Lan d Use and Res i-
dential Intensity Maps.
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The research process involved i n the rev1s 1on of the
Comprehensive Plan can best be described in terms of a
sequence that focused on a broad development alter-
natives and then attempted to make these patterns
more specifi c and operati onal. This process also tried to
incorporate functi onal with developmental planning
and to ana lyze the v ario us constraints and opportunities
for urban growth through a series of economic, demo-
graphic, and environmental studies.
1.4.1 Al ternative Land Use Study
The revi sion of the Comprehensive Development Plan
began w ith an analysis of alternative growth patterns.
The Alternative Land Use St udy identified a se r ies of
alternative growth patterns and densities, and assessed
the varyi ng impacts of these forms. These impact s were
measured in terms o f social, economic, l and use, and
env ironmental i ndicators. Included among the ap-
proaches to ur ban form and growt h wer e alternatives
that:
• Concentrated urba n growth in a more purposeful way
through a pattern of extensive in-fi l ling,
• Allowed metropolitan growth to continue to disperse,
allowing a l ow-density metropolitan form to emerge,
• Fostered a gradu al in-fi lli ng of urban lands, to achieve a
moderate co ncentration of urban development,
• Dispersed urban growth to the Eagle River-Ek lutna-
Chug i ak an d the Matanuska-Susi tna Borough areas, and
• Decr eased urban growth, putti ng a "lid " on f ut ure
communi ty e xpansio n.
Of the alternatives, that i nvolving a progressive infi ll ing of
urban l ands tended to be most cost-e ffective and pro-
d uced the fewest environmental and social disruptions.
1.4.2 MUNICIPAL LAND MANAGEMENT SYSTEM
Urban growth occurs over space and time. The 1976
Comprehensive Pla n focused o n the question of spatial
relationsh ips at a specific time in the future. The Munici-
pal Land Management System study was designed to
bri dge the gap b etween the urban patterns we wish to
create, and our desire and abi lity to use the manage-
ment tools required to attain these forms. It analyzed the
types of controls u sed to manage land and related these
to the alternate urban forms give n in the Alternative
Land Use Study. Different land management techniques
are required to realize c ertain patterns o f land uses .
Management co ntrols were select ed for development
t h at implemented a moderate i n-f ill ing pattern. These
controls invol ved the fu rther strengthen i ng of the cur-
re nt zoning and subdi vision reg ulations; the devel-
opment of a systematic strategy for the si zing and instal-
lation of urban services, especial ly sewerage; and the
estab l ish ment of programs i nvolvi ng land ba nking and
capital facility programming. The most important of these
strategi es are related to t h e timing and phasi ng of capital
facil i t i es i n south Anchorage . Because of th eir large influ-
ence over urban development, ca p ital projec t s were
fou nd to be most effective of the va r iou s strategi es in
guidi ng the timing and density of growth.
1.4.3 RESEARCH AND ANALYSIS : LAND INVENTORY,
HOUSING, ECONOMIC PATTERNS
The previous alternative testing and land management
analyses were designed to frame t he scope and f ocus
th e direction of the Comprehensive Plan revision . They
were intended to establ ish the
general pattern and density of
urban gr owth to the year 2000
and to indicate the types and
mix of co ntrols n ecessary to
ac hieve th ose patterns. Th e
analyses that followed focused
directly on the revision of the
Comprehensive Plan . The re -
v ised Comprehensive Plan i n -
c ludes three major sections--
goal s and objectives, maj or
functional systems to support
u rban development, and the
desire d patterns of urban
growth.
Th e b a sic research studies in-
c luded the following:
• Deteriorated Housing Survey
• Housing, Land Use, and Zon-
ing Inventory
• Ho usin g Market Model
• AMATS Metropolitan Employ ment Survey
• Anchorage Coasta l Atlas
• Land Dem and Projection s: Co mmercial & Industria l
• Land Demand Projections: Re sidential
These analyses inventori ed the basi c c o nstituents of
development, assessed t he probable future causes of
and influences upon gr owth, and projected needs for
the variou s la nd types and densities . In partic ular, the
Deteriorated Housin g Survey identi fied the main areas
of substandard, d e teriorating, and d il apidated housi ng.
If c e ntrally lo ca ted and adjacent t o maj or empl o y ment
centers, such areas c ommonly experience redevelop-
ment to higher densities. Several such areas exist n ea r
the downtown in Fairview and Mountai n View. This con-
clusion i s important d u e to the negligible amount of
d e v elopable land remaining in the Anc horage Bowl an d
because of the c ommunity's policy of ensuring the effec-
tive use of pu b lic facilities. The Housing, Land Use, and
Zoning Inventory served to i dentify the distribution an d
amount of the area's housing stock (s ingle-an d mu lti-
3
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Alternative Land
Use Study
t
Municipal Land
Management System
Deteriorated Housing
Survey
Housing Mar1<et
Model
Metropolitan
Employment Survey
Anchorage Coastal
Atlas
PLAN DEVELOPMENT PROCESS :
LAND USE COMPONENT
STUDY ACTIVITY
Land Demand
~ Proj ections I--
Residentia l
Land Demand Projec ti ons
~ Commercial & !-
In dustrial
~
~
Al ternative
Lan d Use ~ Patterns
Dra ft
Plan
Function
To define major development alter-
natives
To identify methods t o gu1de
growth
To iden tify pot e n tial redevelop-
me n t area s
To i denti fy h o u si ng conditions and
trends
To 1dent1fy employment trends
To 1dent1fy environmental con-
,.....
straints ,_
To specify probable are as of resi-n
dentia l development
To specify probable areas of com-
mercial-industr ia l growth
To i dentify specific developmental
alternatives
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fam ily, mobile home, and dupl ex ), la n d us e pat terns
(organi ze d accordi ng t o reside ntial, commercial, indu s-
trial, and public l ands), and zon i ng patt erns (a rranged by
p rin c iple zoning categories). Th ese data were sepa r at ed
into sma l l geographi c areas and were organized accord-
ing to acreage amounts for undeveloped and deve-
l oped l and. These d ata were essential in det ermini ng
w h ere growth has occurred and how it was arra n ged,
and where future growth might occur--on the basis of
the vaca nt, developable land supply. The AMATS Met-
ropolitan Employment Survey identified t h e amount of
employment by place of employment in the Anchorage
Bowl. Together, these reports described current eco-
nom ic, population, and land conditions within the Bowl.
Environmental data were ma p ped at a common 1:25,000
scale in the Anchora ge Coastal Resource Atlas. This
document give s a detailed inve ntory of physical, b iologi-
cal and engin eering data, to complement the socioeco-
nomic i nformation provided by the other studies.
The in ventory an alyses were complemented by studies
of future facility needs and la n d pattern s. The Housing
Market Model analyzed the various t rends affecting cur-
rent an d futu re hou sing co nd i t ions. It also projected the
amount and distributi on of sing le-and mu lt i-family hous-
i ng by sma l l geographi c ar eas. Th ese forecasts were
essent ia l to l ater eva luations of land needs and t o the
devel opment of housing r edevelopment strategi es in
deteriorati ng areas.
A fi n al analysi s, Commercial -Industrial Employment and
Acreage Allocations, specified fu ture populatio n, dwel-
ling unit, and employment amounts. Th ese data were
then translated i nto acreage demand requi rements,
which formed much of the basis (along with the res i den-
tial housing analyses ), for the land use designation s con-
tained herein.
1.4.4 FUNCTIONAL PLAN DEVELOPMENT
The revised Comprehensive f>l an i ncludes secti ons on
the main p u bl ic faci lity and environmental systems . Pub-
li c fac i lities support and influence t h e pattern and den-
si ty of growth, and ma intain cu ltural and social systems .
The environmental syste ms act
as constraint s to growth as well
as providing r ecreational, aes-
thetic, health, and open space
va lues and opportunities. A se r-
ies of studies, prepared si n ce
the per iod of i n itial p lan de-
ve l opment i n 197 6, form the
basis for these funct ional , or
infrastructur al , elements.
The Environmental Component
was based largely upon the fol-
l owing stud ies :
• Water Quali ty Ma nag ement
Plan
• Air Quality Plan (oraft)
• Coas t al Zone Management
Plan
• Wetlands Management Plan
(draft )
The Transportatio n Compon-
ent was derived from t he var-
iou s analyses p repared by the Anchorage Metropolit an
Area Tran spo rtati on Study, and largely from the fol-
lowing :
• Long Range Element
• Transportation Syst ems Man agemen t Element
• Transit De velopment Program
• Light Rail Feasib i lity Study
The Parks and Recreation Element was largely based
upon the foll owing analyses :
• Areawide Parks and Open Space Pl an (draft )
• Areawide Trails Plan
• Sub-ar ea Parks Plans (various)
The Energy Component was based upon t he foll o wing
tec hnical repo rts:
• Energy Crisi s Contingency Pla n
• Energy Element, Comprehensive Plan, Technical Report
Ea c h of these studies provi ded d ocumentation as to the
needs of the va ri ous components, and are to be dis-
cussed in more detail in Chapte r Two .
1.4 .5 POLICY FORMULATION PROCESS
The p la n develop ment process al so invo lved the formu-
lation o f community goals, objectives, and polic1es. This
analysis identi fied goals, objec t ives , and policies fo r a
variety of fun c t ional , or infrastructure, areas . Infrastruc-
t u re is defined a s those systems forming the bas i c foun-
dation support mechan ism s of the urban community.
Goa ls and o bjec ti ves w ere developed f o r t he following
elements:
• Land Use • Environment
• Transportation • Energy
• Park s, Re c reation, Open Space
The se goals w ere derived from literature revi ews, the
previo us Comprehensive Plan, and from already adop-
t ed funct iona l pla n s and studies of the Municipality. Th e
importance of the Po licy/Goal Component is to se t t he
basic direc tion for community activi ties, i ndicate those
p olic ies and p r ogra ms ne c ess ary to ac hieve those activi-
ties, and establish a n interr elationship among the various
socioeco n o mic forc es and syste ms that affect the com-
m unity's physical development and form.
5
1.5 ORGANIZATION OF PLAN
This report is separated into four major sections:
• Introduction
• Functional Plan Components
• Land Use-Land Management Element
• Plan Implementation
The Functional compone nt describes the approach to
be used by the Municipality in the provision of important
public services. It also sets Municipal policy regarding
economic development and energy management. The se
components are essentia l to the creation of the urban
forms and densities expressed in the Land Use Plan . The
components are also interrelated, both to each other
and to the desi red urban form.
The Land Use-land Management depicts the desired
urban forms and densities, and indicates those manag e-
ment tools necessary to focus growth over time to
achieve desired urban patterns. Th is component is, i n
turn, based upon the Plan 's functional component and
works to drive the implementation component.
The Implementation Element identifies those tools and
methods necessary to carry out the recommendations of
the Plan . Without a strong commitment to the mecha-
ni sms requi red t o achieve desired urban forms and
infrastructure systems, community goals cannot be fully
realized.
6
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,...,
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2.1 INTRODUCTION
The functional element of t he Comprehensive Plan des-
cribes those major compon ents of the planning process
that support and affect physical development. These
sys tems interact, influencing each other and, ulti mately,
the patterns of land uses and the quality of community
life. Certain of these systems are st ro ng determinants of
growth while others act to constrain the amount and
location of growth.
The functional sys tems described herein include:
• En viro nment
• Tran sportation
• Parks and Open Space
• Energy
Most of these systems are examined at le ngth in separate
studies and reports prepared by the Munic ipal ity. They
are summarized in the Comprehensive Plan to provide
an integration between land use patterns and these
components, and between the various systems them·
selves . Detailed analyses of these systems are contained
in the reports and studies from which they are derived .
2 .2 ENVIRONMENTAL COMPONENT
The environmental component consists of three sub·
elements: coastal zone, water quality, and air quality
management. The coastal zone program addresses the
effective management of the nearshore area and the
areas d irectly affected by o r affecting this area. The air
and water qual ity management programs are, however,
area wide in sco pe within the Anchorage Bowl. Di fferent
strategy areas and environmental processes are also
encompassed by the various programs. The coastal zone
management program is concerne d with all o f the major
processes affecting the nearshore area, including:
• surface waters
• wetlands
• marshes, t idal fl ats, and floodplai ns
• hazardous l and
• anadromous streams
• marginal land
In contrast, the other programs are structured around
the use of control strategies i ntended to improve air and
water quality. Coastal Zo ne Management is, then, con·
siderably broader in scope than the other programs in
terms of the types of la nd and environmental processes
affected by its management controls. Coastal ma nage·
ment incorporates natural resource management con·
cerns into the u rban planning process.
Each of the environmental programs attempts to reflect
and implement a balanced use philosophy between
development and environmental protection. Thi s ap·
proach recognizes the trade-off inherent to all environ·
m e nt programs. It attempts to maintain and enhance vital
environmental processes while allowing residential
growth and economic development t o continue . Envir·
onmental resources, economic productivity, and live·
ability are interdependent. Economic activities use en·
vironmental resources, and are maintained by the envi·
ronmental resources they are dependent upon. Li ve·
ability, in turn, is determi ned by the intangible values of
resour ces, both natural and social. Thi s interdepen·
dency is limited by the fragility and finite number and
type of environmental resources. In order to maintain
both economic and environmental resources, ca reful
consideration must be given to achieving a p roper bal·
anc e between the competin g demands of growth, gen·
erated b y economic expansion, and of preservation, to
ma i ntain the sens itive character of ecosystems.
2 .2.1 COASTAL ZONE MANAGEMENT
Description of Program
Coastal Zone Management planning is a result of both
the Federal Coastal Zone Management Act of 1972 and
the Alaska Coasta l Ma nagement Act of 1977 . Both acts
require that states use the nati on's coastal resources and
promote their wise an d balanced use. The reassertion of
the rightful responsibilities of local and state govern·
ments in regulating the use and development of their
coastal resources is a major aspect of both acts.
The coastal zone management program must be con·
sis tent with Federal and State law and regulati ons. Such
programs must includ e, but are not limited t o, the
following:
• a description of the land and water uses and activities
subject to the district program, and a description of
geophysical hazard areas, recreation, transport ati o n
CHAPTER TWO
FUNCTIONAL ELEMEN1'
7
and utilities, energy facilities, and water-related activi-
ties.
• a description of the u ses and activities that will be
considered proper and improper in the coastal area .
• a statement of the policies that will be applied to l and
and water u ses and activities subject to the district
program.
Issues
The basic issue of coastal zone planning is to effectively
manage coastal resources, while balancing the compet-
ing claims of environmental protection and urban
growth . Th is is a particularly difficult task, given the prox-
imity of the coastal zone to major areas of economic and
urban expansion. Municipal growth is expected to reach
over 338,000 inhabitants in t he next twenty years, and
the number of employees should in cr ease from 65,000
to a over 150,000 over the same time period. Confli ct s
between various land u ses are sure to arise. The thru st of
Anchorage's coast al zone program is to devise and
impl ement a rational process for resol ving these con -
flicts. Th is process should maintain the delicate bal ance
among the economic, environmental, and social forces
that ma i ntain human well-being; and i t must be flexible
enough to respond to new information and chan ging
perceptions of human needs.
The resolution o f this issue, in the Coastal Zone Manage-
ment (CZM } Plan, occurs thro ugh a process which identi-
fies the sub-units of the total landscape accordi ng to
sui tability of use . This process of land use suitability anal-
ysis makes it possible to i dentify dominant and subordi-
nate u ni ts of the landscape based upon a biophysical -
cultural delineation of the coasta l area. In the
Coastal Zone Management Plan, the concept of geogra-
p h ic seg me ntation is used. This involves a division of the
coast into different landscape resource units, each
representing a different type of environme nt, and each
exhibiting its own un i que characteristics. The terms u sed
f or the several la nd use suitabi lity environments are:
Preservation, Cooservation, and Utilization.
Preservation Environment: This unit consists of geogra-
p h ic areas characterized b y the p resence of environ-
mental and/o r cultural features considered val uable in
their undisturbed or o riginal condition, and which are
8
relatively intoler ant o f intensive human use. Such areas
should be essentially free from development, or be ca p -
able of being restored t o their natural co nd i ti on, and
they shoul d be large enough to protect the value of the
resou rce. Th e emphasis in this classification is on preser-
vation or restoration cof natural sys tems, and on the
prevention or regulati o n of u ses and activities which
would degrade or destroy the natural environment. See
Map 2-1.
Conservation En vironm •~nt : This area consists of those
l and and water areas having certain natural or institu-
tional use limitati ons wl1ich requi re protection pri o r to
their development. The purpose of this desig nation i s to
protect areas for environmentally related purposes such
as pa rks, food protection, and forestry management. It
does not intend t hat the natural environment be main-
ta i ned in a pure state; rather, that all activities and uses
be ca rri ed o ut to prod uce min i ma l adverse impacts. Th e
key factor i n this classification is the management of uses
and activities to maintain the natu ral quality of the site.
See Map 2-2.
Utili zation Env i ronment: This designation relates to those
l and and w ater areas of the coastal district suitable for
development. Areas designated for utili zation have the
fewest con straints to develo pment. See Map 2-2.
n
Coa~aiManagementZon~
~ Municipality of Anchorage
~ Anchorage Comprehensive Development Plan
1 Kllome1ers 2
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Preservation Environment
ELMENDORF AIR FORCE BASE
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Map 2-2
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The three categories of preservation, conservation, and
utilization are interwoven in the Coastal Zone Manage-
ment Plan . Geographically, a mixing of features actually
exists, since a given area may have attributes that require
preservati on or conservation, and attributes that allow
development. The CZM Plan establishes the processes
whereby these competing uses and activities can be
measured and judged, and a variety of management and
engineering practices applied, to mitigate the impacts of
urban pressures. The policies that are subsequently de-
scribed focus upon the three management districts and
establi sh the basic direction of Municipal action for each
designation.
Direction of Municipal Program
The basic direction of the Municipal program regarding
coastal zone management is described in the goals,
objectives, and poli cies contai n ed in the adopted Coast-
al Zone Management Plan. The plan itself basically pro-
vides an analytical framework which includes a data
inventory, a method for resolving the competing claims
of development and environmental preservation, and a
listing of the goals and policies that are to guide the
decision-making regard ing this process. General policies
have been deve loped for the three composite coastal
environments and specific policies developed for each
subunit contained within each environm~nta l c la ss.
More detailed policies, goals, and objectives related to
the actual geographic and bioph ysical processes of the
coastal zone are given in Table 2-1 .
Preservation Environments
1. Natural areas should remain free from all development
which would adversely affect their natural character.
2. The intensity and type of uses permitted should be
restricted i n order to maintain the environmental sys-
tems and resources in their natural condition.
3. Uses wh i ch are consumptive of the physical and bio-
logical resources, or which may degrade the actual or
potential value of the preservation environment, should
be prohibited.
4. Uses and activities in locations adjacent to natural
areas should be strictly regulated to ens ure that the
integrity of the preservation environment is not com-
promised.
Conservation Environment
1. New development shou ld be restricted to those uses
which are compatible with the natural and biophysical
limitations of l and and water.
2. Intensive commercial and industrial uses other than
forestry, agriculture, energy facilities, fisheries, and mi n-
ing should be discouraged .
3 . Diverse recreational activities wh ich are compatible
with the conservation environment should be en-
couraged.
4. Development which would be of a hazard to public
health, safety, or the general welfare, or would materially
interfere with natural processes should not be allowed.
5. Residential development should be regulated to
mainta i n an overall density based on the carrying capac-
ity of the land, or should be high density cluster units
with open space and buffer zones surrounding.
6. Within the flood hazard zone, regulations should be
developed which apply to development within the
floodplains. The pri mary objective should be to prevent
further development that is not water -dependent in
those floodplains.
7. In areas with poorly drained or marginal soils, devel-
opment should not be allowed unless connected to
sewers.
8. Developments should be regulated so as to minimize
the following impacts: erosion or sedimentati on; the
adverse, direct, or significant i mpact on land and aquatic
habitats; and degradation of the existing character of
the conservation environment.
9. The Municipality should encourage sustained yield
management of natural resources within the conserva-
tion environment.
Utilization Environment
1. Emphasis should be given to development withi n
already developed areas.
2. Priority should be given to water-dependent and
water-related uses over other uses . Uses which are
neither water-related nor water-dependent sha ll be dis-
couraged, except for residential.
3. Multiple use of the shoreline should be encouraged.
4. To enhance water related devel opment and to ensure
maximum public use, industrial and commercial facilities
should be designed to permit pedestrian waterfr ont
activities consistent with public safe t y and sec urity.
5. Aesthetic considerations should be actively pro-
moted by means of sign con trol regula t ions, architectu -
ral design standards, landscaping requirements, vi ew
shed requirements and other such m eans.
6 . Development should not significantly degrade the
quality of the environment, including water quality, nor
create conditions which would accelerate erosion,
drainage problems or other adverse i mpacts on adja-
cent envi ronments.
7. Redevelopment and renovation of existing areas
should be encouraged in order to accomodate future
uses and to maximize the use of coastal resources.
8 . New development in ru ral areas should reflect the
character of the surrounding areas by limiting residential
density (when Mun icipa l policy is to maintain a rural, l ow
density environment), by providing permanent open
space, and by maintaini n g adequate building setbacks
from coastal and inland waters.
9. Recreational access to coastal areas should be
encouraged. Recreational facil i ties should be located
and designed to minimize c onflicts with other uses, activ-
ities, and user groups not c ompatible w ith recreationa l
uses.
10. To preserve and enhance the quality of residential
development, priority should be given to the develop-
ment of storm drain systems, including o n-site systems
required to provide adequate d raina ge for subdivisions
and structures.
13
2.2.2 Water Qua lity Management
Description of Program
The Water Quality Management Plan is concerned w ith
water quality probl ems in t he Anchorage a rea created
by non-point source pollution. Non-poi n t so urce pollu-
t i on in an urban area consists of street runo ff, er osio n
fro m constru ction sites, runoff fr o m snow d i sp osa l si tes,
and si milar types of wastewater that do not originate
from a single source.
Water Quality Management planning is a result of Section
208 of t h e Water Po llution Con tro l Act Amendments of
1972. Under Sect:on 208, state governors can designate
urban-i n d ustrial areas where there is a co ncern for e xist-
ing and future water quali t y. These areas are then
required to devel op p lans to c ontrol non-point source
p o lluti on. These plans must co ntain strat egies to meet
the July, 1 983, l egisl ative deadl ine for achieving a
n ational interi m water qual i t y goal pertai ning to the pro-
duction and propagation for fis h, shellfis h, and w i ldlife,
and providing for r ecreation in and o n the nation's
waters. Th is i nten m goal, com monly ref erred to as the
f is hable/swimmable go al, is the primary objective of the
Municipality's Water Q uality Management program.
The Sta te of A laska Water Quality Standards reinforce
the goal set by the Po lluti on Control Act by specifying
c r iteri a or pollut ant levels for each water u se. All
Anchorage cr eeks are c lass ified for all uses, i n c luding
wat er supply fo r drinking, water recreation, and the
growth and propagat ion of fish and wildl ife.
Issues
The purpose of the Water Q uality Management Plan is t o
develop a coordinated set of are awide management
contro l s over pollutant so urces t o prevent the degrada-
tion o f water quality. The basic i ss ues addresse d by the
Plan include rel ating u rbanization to pollutant levels,
and establ ishing the proper kind and mix of controls to
satisfy state and n ational pollution abatement st andards.
The c urrent level of water quality in the Munici pality is
quite high and most of the area's creeks are w ithin
existing water quality standards of the State and Federal
government. However, certa in violations do occur. Fecal
coli form, suspe n ded solids, oil and grease, and heavy
14
metal s are defined as curre nt wat er quality probl ems
under these standards. Analyses of the distribution of
these vio lati ons indicate that w ater qua lity decreases
with progression downstream. Th ese analyses have also
indicated that the w ate r quality problems in areas
undergoing urbanizaiton are solely cau se d b y non-point
sources.
Although the current level o f water quality is ge nerally
satisfactory, maj or increases in urban iz ation are ex-
pected to greatly affect these l evels. Over the next 20
years, about 8,000 additional acres are anticipated to be
urbanized. The sediments generated during constru c-
tion and the pollutants d erived from the r unoff of built-
up, impermeable surfa ces will have t o be controlled to
meet water quality standards. In addition, future pollu-
tant sources are e xpected to parallel existing sources,
wit h the greatest loadings being contributed from com-
mercia l, i ndustrial, a n d hi gh-density residentia l land. It is
e xpected that maj or increases in pollutant loads will
result without prope r co ntrol measures be ing utili zed,
resulting in the State and Federal standards for fecal
col i form, suspended solids, and oil and gr ease being
exceeded.
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Direction of Municipal Program
The Water Quality Management Plan, in its preparation,
identified three alternative levels of non-point source
pollution controls to prevent the further degradation of
Anchorage's creeks and improve future stream quality to
meet water quality standards and criteria. The three
control levels were designed to match three water qual-
ity goals: a very high level of water quality sufficient to
preserve streams for drinking water supply (Level 3); and
intermediate quality level to achieve the federal require-
ments of fish able/swi mmable waters (Level 2); and a
l ower, less expensive water quality level reflecting the
continuaiton of existing control efforts (Level 1 ).
The first level involved the then existing program of con-
trols to prevent stream degradation. This current pro-
gram, although I)Ot specifically oriented to the protec-
tion of water quality, st i ll represented an attempt at
improving stream water quality. But studies of present
and projected water qual ity in dicated that water uses
would be impaired i n the fu ture without additional cor-
rective actions. Level1 controls were not found to meet
State and Federal legal requirements for water quality,
nor would they protect on-going water uses .
The controls utilized under Level 2 were based on a
strengthening of Municipal practices designed to reduce
non-point source pollution. Level 2 controls basically
expanded upon the existing subdivision, zoning, and
floodplain controls, and attempted to gear these mea-
sures to the protection of water quality in a more satis-
factory fashion. Restructured, these controls were fou nd
to resu l t in water quality level s sufficient to protect all
existing uses of area streams, but not to satisfy all of the
requirements of State Water Quality Standards. The uses
that would be protected under this l evel of control
included secondary co ntact recreation and the growth
and propagation of fi sh and wildlife.
The strategies involved under Level 3 centered on
developing an interceptor storm sewer system parallel
to area creeks. This would ha ve the affect of diverting
most urban runoff into Cook Inlet, thereby greatly reduc-
ing pollutant l oads to area streams. This strategy would
also include certain controls under Level 2 su ch as l i mit-
ing the stockpil ing of petroleum supplies n ear creeks
and prohibiting the d irect discha rge of wastewater to
2800
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MAXIMUM FECAL COLIFORM CONCENTRATIONS
CHESTER CREEK ....
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streams. Level 3 actions would probably not improve
water quality suffficiently to allow use of the streams for
drinking water supply, although it could improve it suffi-
ciently to meet primary contact recreation standards.
Nonetheless, the improvement in water quality using the
control strategies of this approach would be the great-
est of all the alternatives.
The approach selected b'/ the Municipality in its adop-
tion of the Water Qual ity Management Plan focused on
Level 2 strategies, which involved the current set of
regulatory controls restructure d to better protect water
quality. This approach applies control strategies related
to each of the pollutant generating conditions asso-
ciated with increased urbanization. These inc l ude non-
point pollutio n from urban runoff, runoff associated with
erosion from construction sites, runoff and percolation
from snow disposal sites, and both surface and ground-
water contamination resu l ting from the failure of on-site
waste disposal systems. This approach was found to be
the most cost-effective of the various alternatives. It was
determined t o be effective in protecting the c urrent
uses and users o f various streams; in minimizing environ-
mental and social impacts otherwise associated with
5 4
River Mile
Legend
Year
1977
2000 ---
Criterion (Proposed Standard)
3 2 0
major construciton activity; and in reducing cost require-
ments for water quality protection measures, to both the
public and private sectors. While these techniques were
intended to focus on the individual sources of non-point
source pollution, they were procedurally linked to an
overall implementation strategy. Certain of the strategies
were effective in reduc ing non-point pollution sources
from several activities and functions. The current imple-
mentation program of the Municipality retains and re in-
forces this linkage between strategy areas.
Municipal Policies Regarding Water Quality Manage-
ment
The manner by which the Municipality f o c uses the Water
Qual ity Management program about the Level 2 ap-
proach is expressed through two sets of strategies. The
first is represented through specific control methods
that affect building design and con struction and the
manner in which land is developed. The second is
expressed through goal s and pol icies relating to urban
development and construction practices. The goal s, pol-
icies, and objectives that are described in Table 2-1
indicate the overall d ire ction used by the Municipality in
achieving water quality standards for area streams.
15
2 .2 .3 AIR QUALITY MANAGEMENT
Description o f Program
Following the occurrence of several violations of the
ambient standards fo r carbon monoxide concentra·
tions, the Mun icipality was designated by the Environ·
mental Protection Agency as a nonattainment area. This
designation necessitates the devel opment and imple-
mentation of an air quality control p l an which would
l ead to attainment of t h ese standards.
The primary goal of the Air Quality Plan has been and will
continue to be the attainment of the national ambient
standards for ca rbon monoxide concentrations. This is
to be achieved, however, wh ile maintaining compatibil-
ity w ith other community goals.
Scope of the Probl e ms
The Clean Air Act Amendments of 1977 d irected the EPA
to es t ablish air quality sta n dards for air poll utant s. Th e
standards se t by the EPA for carbon monoxide allowed
an area to exceed n ot more than once in a given year a
concentration level of 9 parts of carbon monoxide per
million parts of ambient air measured over an eight hour
period.
A special monitoring study conducted in 1978 revealed
that the air quality problem associated with carbon
monoxide was relatively widespread throughout the
urbanized area of the Anchor age bowl. The monit ors
revealed that those areas with high levels of t raffic and
congestion, primarily in the downtown and the midtown
areas, tended to show the highest concentrations of
carbon monoxide.
This inventory d e termined that 93 percent of the total
emission s were transportation rel ated, pri ma ri ly from
automobil es and li ght tru cks . Abou t 5.1 percent of the
pollutants were from small i n dustrial so urces, su ch as
electrical generating plants and aircraft operati ons.
Commercial and large industrial sou rces contributed . 7
percent, and residential fuel consumption was respon-
sible for less than one half of one percent of the pollu-
tants. In terms of the geographic distribution, the inven-
tory revealed that those areas which would be expected
t o have high level s of traffic volume, would also be the
areas of highest pollutant emissions. Both the downtown
and the midtown areas were i dentifi ed as either havi ng,
16
or exhibiting the potent ia l for having, high carbon mon-
oxide concentra:ions. Large employment centers which
attract high traffic volumes, tend to suffer most from air
quality probl ems. As congestion increases, average
speeds decrease, and pollutants increase.
The large number of employees in these ar eas adds to
the overall pollution load due to the "cold start" phe-
nomenon. Cold weather substantially increases motor
vehicle carbon monoxide emiss ions. The maintenance of
vehicles is more difficu lt during cold periods and engines
take much longer to reach the proper operating tem-
peratures of the pollution control equipment. Conse-
quently, ca rbon monoxide emiss io n s durin g the i nitia l
stage of engine operation are typically much h i gher, and
may accou nt for more than 90 percent of the t otal
vehicle trip emission s. Because of the l arge number of
commuter automobiles w ithin the commercial and retail
areas and other employment cen t ers, the p h enomen on
is more pronounced at the end of an average work day,
as these veh icles are start ed cold for the trip home.
Although the Federal ai r pollu t i on control program is
designed to limit automobile emissions, it is not ex-
pected that ai r qual ity standards will be met in A n chor-
age unti l the early 1990's. Population growth will con-
t inue to redu ce most of the advantages to be gained
from the motor vehicle pollution control program. In
addition, once the standards have been met, average
pollutant concentrations are aga i n expected to in crease
with continued increases in population and automobile
use.
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Direction of Municipal Program
In order to reduce carbon monoxide concentrations to
acceptable levels, it will be necessary to implement a
number of air quality control strategies. A balanced
approach between air quality improvements, public and
institutional acceptability, and cost is to be incorporated
into the Air Quality Control Plan. It will also be necessary
to ensure that the various strategies are clearly interre-
lated. Often, the implementation of any one strategy will
also require the implementation of another strategy to
be fully effective.
Because of the complexity of the air quality problem in
the Anchorage area caused by the cold start pheno-
menon, it is not known whether conventional transpor-
tation control measures will be totally effective in reduc-
ing pollution levels. The full extent of the contribution of
cold start to carbon monoxide emissions is not yet
known. To achieve the necessary reductions for attain-
ment of the carbon monoxide standards, cold start
strategies will need to be developed, in addition to the
more conventional transportation control measures.
Strategies which are being considered for inclusion in
the Air Quality Plan may include all of the following:
• Pedestrian facilities improvements
• Inspection and maintainance programs
• Cold start strategies
• Public transit improvements
• Parking management
• Variable work hour programs
• Traffic improvements (high and low cost)
The goals and objectives to be used by the Municipality
in the air quality efforts are given in Table 2-1.
£
NORTH
~
ONE MILE
ANCHORAGE
NONATTAINMENT AREA
Municipality of Anchorage
3/77
~Boundary
17
TABLE 2-1
GOALS, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
Comprehensive
Plan Element
or Sub-Element
Environmental
Freshwater Marshes
Wetlands, and Coastal
Marshes
Goals
To ensure that the natural environment is
enhanced, maintained, and protected by
establishing standards for the protection of
soil, vegetation, air, sound, and sight with
appropriate surveillance and enforcement to
these standards.
To protect the basic natural functions served
by coastal marshes, freshwater marshes and
wetlands.
Tidal Creeks and Flats 1. To protect the basic natural functions served
by tidal creeks and mud flats.
18
2. To protect estuarine beaches for the pur-
pose of public access and recreation.
3. To prevent public liabilities associated with
development in these areas.
Long Term
Objectives
Short Term
Objectives Policies
Planning, programming and construction
activities of the Municipality shall recognize
and consider the natural functions and values of
freshwater marshes and wetlands as delineated
in the Anchorage Wetlands Management Plan.
In wetlands identified for development, approp-
riate mitigation techniques, as specified in the
Anchorage Wetlands Management Plan, shall be
used to the maximum extent practicable.
All public works activities such as transportation
projects, utilities, sewers and drainage activities
shall avoid or minimize any identified adverse
impacts upon freshwater marshes and wetlands
to the maximum extent practicable.
Freshwater marshes and wetlands of major
significance as defined in the Anchorage Wet-
lands Management Plan shall be regulated to
ensure maintenance of protected natural func-
tions and values.
Discourage development in tidal flats, estuaries
beaches and tidal creeks except in areas identi-
fied in the Coastal Zone Management Plan for
water dependent uses. Such activities that are
allowed shall, to the extent practicable, avoid or
minimize adverse impacts.
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Comprehensive
Plan Element
or Sub-Element
Coastal Habitats
Cliffs and Bluffs
Hazardous Lands
Historic, Prehistoric
and Natural Areas
TABLE 2·1
GOALS, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
Goals
To protect the natural environment of critical
urban and rural coastal habitats.
To restrict, and where necessary, prohibit
development in these areas.
To permit recreational uses that are not
ecologically disruptive.
To protect coastal bluffs from erosion caused
by indiscriminate construction
To provide public access and viewing
opportunities to the public.
To protect the public safety and welfare.
To assure, through appropriate land use regula-
tion, that development in areas designated as
hazardous land occurs in a manner consistent
with State Geophysical Standards in order to
protect human life and the public safety and
welfare.
To preserve, restore, protect and, where
appropriate, allow public access and display of
sites important to Alaska history and
archaeology.
To preserve and protect unique environmental
areas and features not otherwise protected
as natural areas.
Long Term
Objectives
Short Term
Objectives
In the absence of
state geophysical
standard, the
Municipality
shall develop
proper hazard
mitigation codes
related to
engineering,
architecture, and
land use.
Policies
Preserve important coastal habitats in their
natural state, and preclude any development in
these areas in order to provide buffers around
these areas.
1. No commercial, industrial, or residential users
shall be permitted.
2. Public use of these areas shall be limited to
hiking, sightseeing, nature study and research
to the extent compatible with the purpose for
which critical habitat areas are established
3. Ensure that development adjacent to or
affecting coastal habitats have effective
measures to minimize adverse effects on these
environments and to mitigate those effects that
do occur.
Prevent new construction that would threaten
the stability of the coastal bluff envornment.
Maintain vegetation in its natural state to
prevent slope degradation.
Provide for construction setbacks from coastal
bluffs.
Discourage development in high hazard areas;
require the use of central sewage systems and
engineering specifications sufficient to mitigate
the potential loss of life and property.
These areas should be protected where
possible through the application of local zoning,
tax incentives, purchase, easements, or other
appropriate means.
Any development in "natural areas" should
incorporate special precautions and design
criteria to avoid damaging the character of the
feature.
19
Comprehensive
Plan Element
or Sub-Element
Coastal Flood Zone
River Floodplains
20
TABLE 2·1
GOALS, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
Goals
To ensure the continuation of natural features
and systems in coastal flood zones, and
establish management plans for their
utilization.
To minimize unnecessary flood losses caused
by unwise development in areas subject to
flooding ( 1 00 year statistical floodplain).
To enhance, restore and preserve the
values of floodplains.
Long Term
Objectives
Short Term
Objectives Policies
Prohibit development within the coastal flood
zone except for those uses that are water
dependent. Uses that meet the above criteria
are identified in the Urban Environmental
classification of the Coastal Zone Management
Plan.
All residential uses shall be prohibited in the
coastal flood zone.
No uses, other than passive recreation, sight-
seeing, hiking, and viewing, or other uses and
activities that will not alter, endanger, or destroy
fish and wildlife species or habitat shall be
permitted in the coastal flood zone identified
by the State Department of Fish and Game as
"Critical Coastal Habitat."
Development of the 100 year floodplain shall be
discouraged in order to avoid the need for later
attempts to protect such investments through
the construction of flood control structures at
public expense, except those uses which
require water access.
Channel improvement projects intended to
provide flood protection shall be considered
only after it has been determined by appro-
priate Federal, State, and Municipal agencies
that land treatment and all feasible floodwater
retarding structures will not provide an ade-
quate level of flood protection.
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Comprehensive
Plan Element
or Sub-Element
Marginal Lands
Surface Water
TABLE 2-1
GOALS, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
Goals
To assure that development in areas defined as
marginal adequately consider the physical
limitations involved and do not result in direct
or indirect consequences harmful to the public
health, safety and welfare.
To preserve and improve the quality of water
resources.
To use natural water courses for surface runoff
control.
To restore and preserve the natural balance
between ground water replenishment and
surface water runoff.
To ensure the wise use of the area's water
resources; to maintain the quality of these
waters at a level suitable for recreational pur-
poses and for the propagation of fish and
wildlife.
Long Term
Objectives
Short Term
Objectives Policies
Careful site design and planning shall be
required before development occurs in marginal
lands.
Subdivision and zoning controls shall identify,
recognize, and address marginal lands to assure
that future growth is not injurious to the public
health, safety and welfare.
Development in marginal lands shall, where
feasible, utilize central sewage collection and
treatment facilities and where not feasible, on-
site facilities shall be designed so as not to cause
conditions that will pollute rivers, lakes, and
other water bodies including the ground water
supply.
Runoff control and delayed release measures
shall be encouraged to release storm waters at
a natural rate to the storm drainage system,
filter out pollutants and sediments, and
replenish grolllnd water resources.
To the extent possible, natural water courses
shall be utilized for surface water runoff.
In new development, emphasis shall be placed
on the retenUon of ground cover, minimization
of impermeable areas, and maintenance of
water intake areas. Such measures shall espe-
cially be stressed in aquifer recharge areas.
Development projects shall include provision for
precipitation to be returned to the soil at
natural rates and near as possible to the point
where it falls.
21
Comprehensive
Plan Element
or Sub-Element
Vegetation
Steep Slopes (greater
than 25%)
22
TABLE 2·1
GOAI1S, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
I
. Goals
To retain n~tural vegetation in order to pre-
serve scenic beauty, prevent the erosion of
topsoil, prdtect against flood hazards and
landslides, reduce the costs of stormwater
systems and decrease the impact of urban
development.
To protect soils, water courses, and life and
property by preventing serious erosion and
increased rLnoff on steep slopes
To protect !ife and property on slide-prone
sections of steep slopes.
To preserve steep slopes as open space.
Long Term
Objectives
Develop and maintain a
continuing street tree
landscaping planting and
maintenance program.
To protect from adverse
developmental impacts
areas of or greater than
25% slopes
Short Term
Objectives
Prepare & Implement a
street tree landscaping
plan that applies to the
arterial street system and
provides the basis for
Municipal policy on high-
way landscaping.
Prepare and implement
the R-1 0 Alpine Slope
Ordinance.
Prepare and implement a
snow avalanche hazards/
impact mitigation study.
The Municipality shall
develop and implement
flexible and bonus point
ordinances that allow the
reservation of open
space through ease-
ments, dedications,
and acquisition.
Policies
Development applications of over 20 acres shall
include a description of the existing vegetation
and an inventory of specimen trees in the area
to be developed; measures shall be considered
to minimize or reduce vegetation losses.
Retention and re-establishment of vegetation
shall be considered in the development review
process.
Special care shall be exercised to preserve
vegetation in steep slope, wetland, and water-
course bank areas in order to prevent soil
erosion.
Development on steep slopes shall include the
consideration of factors such as site coverage,
gradient, soil type, hydrology, substrata, and
vegetation.
Development shall be permitted if significant
impacts can be mitigated. Applications for
development on steep slopes shall be accom-
panied by sufficient information to permit an
assessment of impact on slope and adjacent
properties.
Any development of steep slope area shall,
during all phases of construction, incorporate
control measures to prevent flooding, minimize
erosion, and prevent eroded material from
entering established drainage systems or natural
water courses.
Development of severe slide hazard areas or
identified avalanche impact areas shall be
prohibited. The Municipality shall seek to
preserve open space in steep slope areas
through planning, subdivision, flexible
and cluster zoning, and planned unit
developments.
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Comprehensive
Plan Element
or Sub-Element
Wetlands
TABLE 2-1
GOALS, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
Goals
To preserve life and property from flooding
hazard, and to enable wetlands to perform
their natural function as recipients of flood-
waters.
To retain in their natural state those wetlands
having value for water retention, wildlife habi-
tat, and open space, especially those wetlands
contributing significant water flow to a princi-
pal stream system.
Wetlands that are disturbed by current devel-
opment, that do not perform essential hydro-
logic, habitat, or stormwater retention func-
tions, or that are required for other urban pur-
poses, shall be considered for development.
Long Term
Objectives
Short Term
Objectives
To develop and imple-
ment a Wetlands Manage-
ment Plan that will
establish Municipal policy
regarding the develop-
ment, conservation, and
preservation of wetlands.
To prepare and imple-
ment a Wetlands Mitiga-
tion Manual that specifies
alternative mitigation
techniques for building
design and construction
in wetlands designated
for conservation or
development.
To prepare and imple-
ment flexible and cluster
zon:ing ordinances that
allow the reservation of
critical wetland areas
while premitting con-
tinued urban develop-
ment.
To prepare and/or revise
Master Plans affecting
the Turnagain Bog area
(controlled by the State
Department of Trans-
portation), the Far North
Bicentennial Park, and
the University Hospital
Complex. These analyses
shall evaulate the needs
for public facility expan-
sion with Fedral require-
ment to protect and pre-
serve critical wetlands
areas.
Policies
Wetlands shall be preserved in their natural state
as identified in the Wetlands Management Plan
if they perform essential hydrologic, habitat or
stormwater detention functions.
Wetlands shall be allowed to be developed as
identified in the Wet1ands Management Plan if
they do not perform essential natural functions
and are required for urban uses and activities.
Mitigation measures shall be considered and, if
appropriate, applied in areas undergoing
development.
New development on wetlands shall use con-
struction and design methods that will minimize
construction impacts and retain natural hydraulic
functions to the extent practicable.
Storm drainage facilities shall be developed to
maintain natural hydraulic functions and con-
tinue established base flow patterns to adjacent
streams and lakes.
The Municipality shall minimize alterations in the
quantity and quality of the natural flow of water
supplying the wetlands and shall protect critical
wetlands from adverse dredging or fill activities,
from toxic materials resulting from seepage and
from situation resulting from construction
activities.
Landfills in wetlands areas shall be controlled to
minimize alteration in natural storage and flow
characteristics.
Sewer, water and storm drainage projects shall
be limited to areas designated as developable in
the Wetlands Management Plan unless overriding
cost/health conditions exist.
23
Comprehensive
Plan Element
or Sub-Element
. Noise Pollution
Water Pollution
24
TABLE 2-1
GOAtS, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
Goals
To reduce or control transportation-related
noise.
To maintain existing beneficial water uses in
area strea rris.
To achieve water quality levels sufficient to
provide fishable, swimmable conditions.
Long Term
Objectives
Modify state water quality
standards for urban areas
to recognize the effects
of urbanization.
Improve street-sweeping
and catchbasin mainte-
nance in those areas
without curbs and gutters
and having high urban
densities.
Short Term
Objectives
The Municipality shall pre-
pare noise impact and
sensitive noise areas
maps for the arterial and
heavily traveled collector
systems.
The Municipality shall
prepare and adopt build-
ing and design require-
ments for residential con-
struction and adjoining
sensitive, noise impacted
areas.
Continue and expand the
water quality monitoring
program in areas of ex-
pected rapid, dense
urban growth.
Re-evaluate the Water
Quality Management Plan
by 1986.
Expand the existing
water quality monitoring
program to include a
more comprehensive
ground water and sur-
face water quality mon-
itoring component.
Policies
Future residential development shall include
traffic noise abatement construction tech-
niques to minimize sound impacts from
arterials.
The Municipality shall establish and implement
standards for noise abatement.
Continue the stream corridor protection pro-
gram by acquiring park land and park easements
and by protecting existing vegetated strips along
streams.
Sufficient land shall be preserved for snow dis-
posal sites in newly devel·oping areas based
upon the recommendations of the Water Quality
Management Plan, and analyses shall be pre-
pared periodically to assess snow site disposal
requirements.
Through the use of storm-water detention facili-
ties, ensure that the quality and quantity of
urban runoff is withing 60% of natural levels.
Prohibit point source discharges to area creeks
and lakes.
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Comprehensive
Plan Element
or Sub-Element
Air Quality
TABLE 2-1
GOALS, POLICIES, OBJECTIVES: ENVIRONMENTAL COMPONENT
Goals
To attain the national ambient air qualit y stan -
dards for carbon monoxide within the Anch or-
age nonattainment area .
To prevent any significa nt deterioration of air
quality for pollutant standards for which An-
chorage h as been designa ted as bei ng in
attainment.
To ac hieve the above goal s while maintainin g
compatibility with other com munity goals as
i dentif ie d in the Anchorage Comprehensive
Pl an .
Long Term
Objectives
To develop a heigh tened
public awareness o f the
air quality problems in
Anchorage, as well as the
costs a nd ben efit s o f
achieving attainment of
the standards.
Short Term
Objectives
Expa nd the Department
of Public Works desig n
criteria to include more
e mphasis o n storm water
detention an d water
qualit y protection.
Prepare and implement
an on-site wastewater
ma nageme nt p l an for the
Hi ll sid e area of the co m-
munity that i dentifies
se rvi ce areas of sewerage
and on-site facilities, es-
tablishes a program of
on-site system inspect ion
a nd maintenance, and
defines areas su itable for
the operation of alterna -
thte o n -si te and co mmun-
ity systems.
Develop an Air Qual ity
Co ntrol Plan for the An-
chorage area, which,
when impl emented, wi ll
lead to the attain ment of
air quality standar ds.
Continu e to mon itor pol-
lution l evels to ensure
that improvements are
being achi eved and to
prevent deterior ation o f
those pollutant levels
wh ic h are currently with-
in all owable limits.
Policies
To develop transportatio n c ontrol stra t egies
w hich are effective in redu ci ng pollution levels
an d yet are balanced agai n st cost and adverse
social i mpacts.
To ca refully evaluate proposed p r ograms and
proj ect s w hi c h may adverse ly affect ai r quality
within Anchorage. Thi s eva luatio n should det er-
mine conf o rmity to the Air Qual ity Plan an d offer
alternatives if needed.
25
2.3 TRANSPORTATION COMPONENT
2 .3 .1 Description of Program
The transportation system is directly related to the patt-
erns and densities of land uses in the community. Th e
funciton of this syste m is to connect the activity areas
associated with particular patterns of land u ses. It allows
human interaction to occur through the movement o f
people and goods.
Besides the function of redu ci ng the ba rriers of time and
distance, the transportation system performs severa l
additional services. A ll of these requi re the considera-
tion o f transportation, within the context of economic
and land patterns. Transportati on, al ong with water and
sewer f acilities, serves as a princ i ple determiner of land
u se patterns and densities. The accessibili ty provided by
tran sportation creates and fosters land development.
For this reason, transportation i s an essential element of
all land gui d ance programs--such as t h e program stipu-
lated in this Plan. It also provides a strong support func-
t ion to land use development by allowing economi c and
human interaction to occur on a convenient, economi-
cal basis. Its ability t o influ ence the rate an d pattern of
overall economic development is hig hly significant. The
importance of transportation in this regard can not be
overstated, particularly in p r o viding access to major
industrial facililties and to the major regional shopping
centers of th Downtown and Midtown.
Th e relationshi p between transpo rtation and land use
p l annin g is eminently c ri tical becau se of the important
spati al, physical d evelopment orientat ion of the Com-
prehensive Plan . The land use patterns identified herein
rep resent d esired Municipal policy regardi n g urban
development patterns and densities. Because Transpor-
tation form s a necessary link to the creation o f these
patterns, it is perhaps the most i mportant of all urban
infrastructure elements affecting land development.
2.3.2 Issues
The transportation system is con front ed with increasing
service demands, derived fr om expect ed increases in
both population and economic growth. The rate an d
leve l of growth actuate the requirements for an ever-
increasing transport ation network. The ce ntra l iss ues of
26
tra nsportation planning concern h ow and t o w hat
extent transportation services can be developed to
accommodate these expected increases in urbaniza-
tion.
The projected volum e of trips generated between activi-
t ies indicates t h e expected demand for increased t rans-
portation services. The Anchorage Metropolitan A r ea
Tran sportation Study es t imat ed that 802,000 trips wer e
made i n 1970. In contrast, by t h e 1995 design year of the
Long Range El ement Pl an, nearly 1,451,000 su ch trips are
projected. If these estimates are real ized, and t he
increase in person -trips over the l ast ten years see ms to
i ndicate the likelihood of this, major inc r eases in the level
and kind of transportation facilities and services must be
provided . A basic consideration in transportation system
expansi on is the l evel of modal split. This level i n dicates
the a mo unt, as a percent, of the total number of person-
t r ips made u sing t ransit. Presently, only 1.5 percent of al l
such t rips are made by transit. Nonetheless, it is
expected that. by the year 2000, ten percent of all
person-trips w i l l be ma de using transit. Whether this level
of diversion, fr om the private sing l e-occupant automo-
bile to the more energy-efficie nt modes of transit and
carpooling, ca n and will be made is a major variable in
devel oping the transport ation system .
Certai n secondary issues are c reated th r ough transpor-
tation im provements. These impacts are generat ed by
the expected growth of the system, and include consid-
erations of energy utilization, the impact on air qua li ty as
vehicle emiss i ons grow, and the fina n c ial costs of system
development.
Energy Utilizati on
As the numbe r of veh icl e trips increases, gasoline con-
sum ption tends to increase proportionally. As described
in the energy component of the Comprehensive Plan,
the scarcity an d cost of gasolin e and other petroleum
products are expected to rise over the n ext several
decades. Therefore, the developmen t o f an energy-eff-
cient transportation system must be a main considera·
t ion to continued community mobi lity. Transportation
planning must fo c us upon the necessary modifications in
cultural attitudes and behavior patterns, the creation of
mechanisms to ensure the provisions of transportation
servi ces under reduced petroleum supplies, and the
ability of the transit system to accommodate expect ed
r ises in ridership.
Air Quality
Sim il ar to the impacts upon e n ergy consumption, the
increasing number of vehicle trips projected by the year
2000 shou l d markedly impact levels of ca rbon monoxide
emission in t h e metr opolitan area. A n chorage is cu r-
rently design ated as a car bon monoxide non-attainment
a rea by the U.S . Environmental Protec tion Agency, and
si gnificant incre ases in the level of carbon monoxide in
this area are discouraged. These levels are especially
high at intersecti ons in the Midt own and Downtown
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areas, which accommodate large volumes of vehicular
traffic, especiall y during the peak-hour periods. It will be
necessary to develop both an impr oved transit system
and increased us ed of alternative transportation modes,
such as vanpools an d carpools, to effectively reduce
carbon monoxide emissions to amounts consistent with
both Federal and State standards. Some for of ve h icle
inspecti on-maintenance program may also be necessary.
Financial Resources
Th e need for improved transportation are reflected in
the costs to develop such a system. These costs exist for
both roadway and tra nsit improve ments, and total1 ,35 7
million dollars in 1978 prices . Th e costs of the roadway
system al one ar e ex p ect ed to reach $765 mi lli on, while
that of the transit system could be $592 mill ion. The
revenue projected to be available for these facilities only
approach $841 mill ion. The ability of the Municipality to
derive additional funds, re-allocate funds from other
activities to transportation, or r edu ce transportation
expenditures, are all issues facing the Municipality over
the next 1 0-20 years.
2 .3 .3 DIRECTION OF MUNICIPAL PROGRAM
The policy of the Municipality is to develop a integrated,
multi-modal transportation system that balances im-
provements in transit and highways. The rationale for a
bal ance d development approach is derived from the
previously described issues . Because o f increasing petro-
l e um costs, es calating operating and construction costs
of both facilities and vehicl es, and impacts o n air qual ity
caused by a rapidly increasing ve h icle f leet, it is essential
that passenger-efficient t ransportation modes be deve-
loped. Emph asis mu st co ntinue in developing a transit
system and alternative modes p r ogram. that is increas-
ing aggressive i n its attempts to divert trips from single-
occupant vehicles.
Roadway improvements necessary to accommodate
projected single-occupant vehicl e volumes are identi-
fied in the Anch orage Metropolitan Area Tran sportation
Study Long Range Element Transportation Pl an. See Map
2-3. The Tr ansportation Pl an tries to use existing rights-of
way for highway improvements and, i n the few instan-
ces where new roadways are projected, t o phase these
improvements in resp o ns e to incremental increases in
volume. M uch of the expected traffic vol ume carried b y
the r oadway net work should be funneled within the
three major corridors of the Glenn Highway, the New
Seward Highway, and the Minnesota Bypass. These facili-
t i es should accommodate most of the intra-urban trips
that have trip destinations of over fi ve miles.
Th e provision o f trans it facilities is an essential aspect of
the Long Rang e Transportation Plan, and will be required
to relieve overcrowd ed road systems, as well as allow
added mobility. A modal spl it l evel of 1 0 percent is
ass umed i n the Plan . This will require a major expansion
of fleet size, to a fleet of 540 by the year 2000. Currently
there are 31 buses on 14 routes in the Anchor age Bowl.
Bus system devel opment wi ll con centrate on usi ng a grid
route system w hich tends to be more effective in provid-
ing accessibility under patterns of higher urban densities.
Feeder routes with coordi nated transfers are being
designed for the low density areas where transit services
wi ll be provided. It wil l also conce ntrate upon the
devel opment of express bus facilities from outlying resi-
dential areas to inlying employment centers, especially
at the Midtown and Downtown. The Tran sporation Plan
recognizes the potential for light rail development and
high occupan cy vehicle lanes along primary transit corri-
dors. Two primary transit corridors are to be established:
the more central portions of western and eastern
27
Northern Lights and the C Street corridor extending to
south Anchorage. It is Municipal policy to concentrate
transit sys t em improvements i n these corridors, and to
establish and enco ura ge land use patterns t hat create
the higher densities required for line-haul express bus
systems .
Lastly, the Transportation Plan deals with developing an
alternative mo d es program, and with providing the sup-
port fa ci l ities desig n ed for pedestrian and bicycle fo rms
of transpor t ation. Th e pedestrain and bikeway forms of
transportation are intended to be integral parts of the
overall transportation sys tem, and are indentified at
l ength i n the Areawide Tra i ls Plans . The alternative
modes p rogram concent ra t es on the incre as ed use of
carpo o l ing and vanpooling, and the establishment of a
management system which e mphasizes the staged
development of transit faci lities and alternative modes
strategies. The systems o f walk ways and bikeways are
intended to provide access to and within residential
areas , to connect residential areas with schools and
major activity centers , a nd to form an a ccess pattern t o
major recreational and o pen space reso urces and to
transit corridors.
Although discussed se para tely, each transportation
mode is intended to p r ovide an impo rtant l i nk in the way
in which people are transported within Anchorage.
Municipal pol icy is to encou rage an expanded use of the
transit sys t e m, and to make mo re efficient use of road-
ways through the inc reased use o f alternative. modes
progra ms. This shoul d bal ance roadway con stru ctio n
with the development o f the other, more efficient trans-
p o rtation modes.
2 .3 .4 TRANSPORTATION POLICI ES AND GOALS
The transportation pol icies and goals of the Municipal ity,
given in Tabl e 2-2, reinforce the previous reco mmenda-
tions to develop a balanced, multi-modal transportation
network. These goal s and policies have been derived
from previous transportation studies (partic ularly the
Long Range Transportation Pla n ) and from the publ ic
parti cipation process associated with the development
of the 1976 Comprehensive De v elopment Pl an. They are
meant t o be con sis tent with the Comprehensive Plan,
and are designed to rei nforce the desi r ed land u se
pat terns and densities given in Maps 3-1 and 3-2.
28
n
Metropolitan Transportation Improvements
( (,
I ; POINT
CAMPBELL
Municipality of Anchor age
Anchorage Comprehensive Development Plan
1 Kilometers 2
D
K INCAI D R O AD
-Freeway • I nterc hange • Grade Separati on
IIIII III Maj or Arte rial -Mino r Arteri al
M ap 2-3
ELMEN DORF A IR FORCE B ASE
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TABLE 2-2
GOALS, POLICIES, OBJECTIVES: TRANSPORTATION COMPONENT
Goals
To develop and maintain a transportation
system that provides a minimum level of service
to essential private and public services, maxi-
mizes safety, minimizes environmental impacts,
and provides alternate modal uses
Long Term
Objectives
To develop a plan that
promotes and enhances
the quality of the environ-
ment.
To reduce dependency
on the automobile.
To develop a transporta-
tion network that pro-
motes and supports
planned land use pat-
terns as reflected in the
Anchorage Comprehen-
sive Plan.
Short Term
Objectives
Develop and adopt the
Street Tree Landscape
Plan as the basis for Muni-
cipal policy on arterial
landscaping.
Prepare and implement
an Areawide Air Quality
Management Plan.
Adopt acoustical stan-
dards for new multi-
family construction adja-
cent to major arterials.
The ongoing alternative
modes and transit devel-
opment programs shall
be expanded.
A six-year transit expan-
sion plan shall be pre-
pared to provide the
basis for routing and
scheduling of the bus sys-
tem, and for capital facil-
ity programming.
The Official Streets and
Highways Plan and
AMATS Long Range Ele-
ment shall be reevaluated
to minimize potential
vehicular impacts upon
neighborhoods, to con-
form to the Comprehen-
sive Plan's development
recommendations, and to
reflect an achievable 15
year modal split level.
Policies
Streets that have major visual impacts on the
community shall be enhanced with landscaping
Air quality standards shall be achieved as stipu-
lated in the State Implementation Plan.
Energy consumption from the use and mainte-
nance of the transportation system shall be
minimized.
Noise pollution shall be minimized.
Reductions in automobile dependency shall be
encouraged through staggered work hours and
car/van pooling programs.
Transit mode usage should be maximized and
encouraged.
Transit headways should be minimized in high
density developed areas.
The development of bikeways and landscaping
shall be required as component parts of a high-
way improvement project if either are identified
on adopted plans and are determined to be
feasible.
The need for additional capacity in the roadway
network shall be accommodated, to the maxi-
mum extent possible, by widening existing rights-
of-way and by providing additional transit ser-
vice. Use of new rights-of-way should be
minimized.
31
32
Comprehensive
Plan Element
or Sub-Element
TABLE 2-2
GOALS, POLICIES, OBJECTIVES: TRANSPORTATION COMPONENT
Goals
Long Term
Objectives
To integrate elderly and
disabled transportation
planning with the other
forms of transportation
planning, and develop
an e:lderly and handicap-
ped transportation
facilities plan as a com-
ponent part of the overall
transportation system.
To provide the commun-
ity with a balanced
multi-modal system that
provides for the safe and
efficient movement of
people and goods.
Short Term
Objectives
Changes in zoning and
setbacks shall be pre-
pared to preserve neces-
sary rights-of-way along
primary transit corridors.
Policies
The transportation system should provide ade-
quate access to employment, cultural, recrea-
tional, commerical and residential centers. The
cohesiveness of neighborhoods shall be
preserved.
There shall be special provisions for the trans-
portation of the elderly and handicapped.
The roadway network shall be designed to pro-
vide a minimum level of service "D" during the
weekday peak hours.
Proposed transportation projects shall be con-
sistent with the use/land density recom-
mendations of the Comprehensive Plan and
shall attempt to reinforce those patterns.
The scheduling of projects in the Municipal and
AMATS improvement programs shall correspond
to the time-phasing recommendations of the
Comprehensive Development Plan.
Transportation improvement projects shall be
scheduled to provide as much system continuity
as possible.
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2.4 PARKS, RECREATION, AND OPEN
SPACE COMPONENT
2.4.1 INTRODUCTION
The Comprehensive Plan is intended to provide gui-
dance and direction to land usage patterns and densi-
ties, and physical development. Whereas other compo-
nents of the Plan focus on such basic human needs as
shelter, work, and mobility, the Parks, Trails, and Open
Space component focuses on another basic need --
communitywell being. The function of a parks and open
space system within Anchorage is to provide space for a
range of leisure activities, and to retain a dimension of
the natural environment as a part of the overall design of
the community landscape.
Population pressures and availability of leisure time have
brought needs for recreational space and facilities. They
have also brought an intangible psychological need for
visual refreshment, and mental exercise away from rou-
tine home and work environments. Population pressures
resulting from a rapidly growing community have also
brought a need for establishing pride, personality and
stability to the surrounding environment. The establish-
ment of a functional parks, trails, and open space system
is key to meeting these community needs in Anchorage.
Anchorage has a finite amount of land available upon
which to accommodate future population growth and
economic expansion. Competition for ldnd for residen-
tial subdivision, industry, shopping, schools, and many
other uses will continue. It is important that appropriate
lands to be dedicated for parks, trails, and open space.
The Parks, Trails, and Open Space component of the
Comprehensive Plan addresses the land needs, geogra-
phic distribution and spatial relationships of parks, trails,
and open space to other land uses within the Anchor-
age Bowl.
33
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0 10 25 . 50 --COPE
SCALE
The Parks, Trails, and Open Space component contains a
system consisting of three inter-related elements:
• Parks
• Trails
• Greenbelts and Other Open Space
Detailed descriptions and analyses of these elements are
contained in the Areawide Trails Plan and (draft) Parks,
Recreation, and Open Space Plan. • As proposed in
these plans, the parks and open space are largely uni-
fied into a system with trails and greenbelts (or natural
corridors) forming links among the major parks and edu-
cational facilities. When these plans are implemented,
most Anchorage residents will be able to have recrea-
tion opportunities close to home and connections to
parks throughout the Anchorage Bowl.
34
I
COPE STREET PARK
~ R. revised 11-29-78
Methods by which park, trail, and open space land allo-
cations and acquisitions are made will vary. Parks --
whether serving neighborhoods or greater segments of
population--are planned according to a series of stand-
ards. The acreage allocations for parks are directly
related to the population of an area. However, the open
space system allocations are based on environmental,
social, and recreational values which are not necessarily
tied to population. These values include protection of
such natural areas as stream corridors, wetlands, and
woodlands.
Acquisition of park, trail, and open space lands vary, from
fee simple purchase to dedication of easements through
the platting process. Map 2-4 graphically depicts those
park, open space, and related public uses that are com-
ponents of this program. This plan, and its spatial ex pres-
sion in Map 2-4, is meant to provide a general direction
to the development of the Municipality's open space
and park programs in terms of acquisition, development,
and related land use decision-making. Neither this plan
nor Map 2-4 are meant to specifically exclude compat-
ible uses in areas identified as parks and open space nor
do they constitute a dedication of these areas for park
uses as specified in the Municipal Charter.
2.4.2 PARKS
Description of Program
Traditionally viewed as passive nature-oriented areas,
many parks today also serve a major function of provid-
ing active recreational opportunities for people of all
ages. Thus, urban parks systems are composed for pro-
perties that vary in size, location, function, service area,
and development.
Parkland need is primarily based upon a series of recrea-
tion area standards. The acreage allocations for parks are
directly related to the population of an area. Standards
for parks were development in the early 1970's by the
National Recreation and Park Association. Anchorage
has employed these standards in park acquisition and
facility development during the past decade. The ana-
lyses and projections of future park land needs are
based upon these standards.
The standards divide parks into three groups based on
the areas that they serve: ( 1) those that serve one
neighborhood, which would include playlots, vest
pocket parks, and neighborhood parks; (2) those which
serve several neighborhoods of a community, which
would include community parks; (3) those that serve a
large section of the Anchorage area or entire metropoli-
tan area, which includes large urban and regional parks.
(See Table 2-3 for a listing of the park standards utilized
in Anchorage). Following is a brief description of each
park type:
Playlots: Small areas intended for preschool and ele-
mentary school children, with provisions for adult at-
tendants. Greatest need in areas of high density where
backyard play opportunities are not available.
Vest Pocket Parks: Intended to serve specific groups
depending on character and needs of immediate neigh-
borhood. May serve children, senior citizens, or all age
groups. These are usually vacant lots converted to
recreation use.
0
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• N
Scale : 1'' = 540'
MR 2-13-79
Neighborhood Parks: Intended to provide areas for
both passive and active recreation for people of all ages.
Usually serve about a square mile of urban area and
population ranging from 2,000 to 10,000. Size ranges
from 5-20 acres. Location next to elementary schools are
preferred.
Community Parks: Intended to supplement neighbor-
hood parks in providing near-at-hand recreation areas.
They provide space for those recreational activities
which can not be accommodated within a single neigh-
borhood park. Intended to serve 10,000-50,000 peo-
ple. Size ranges from 20-100 acres. Locations next to
secondary schools are preferred.
Large Urban Parks: Intended to serve all residents within
Anchorage Bowl. At least 100 acres in size, these parks
generally have a mixture of natural areas and developed
special facilities. Such facilities may be golf course, trails,
nature center, boating, swimming or picnic areas.
Regional Parks: Basically large land preserves with natu-
ral orientation. Development limited and oriented to
outdoor activities incidental to maximum enjoyment of
nature and natural scenery. Should be located within
one hour drive of urban area.
The value of using these standards are threefold:
• Standards provide a systematic means to approach
park acquisition and development;
• Application of standards help to promote the equal
distribution of park land and recreation facilities from
one community to another; and
• Standards help to maintain a balanced system of parks,
providing a wide range of recreation opportunities.
Issues
In total acreage, Anchorage would at first appear to have
a substantial amount of park acreage with which to
accommodate future population needs. However, it is
very important to note the location and function of most
of the park land.
Currently, Anchorage has over 6,600 acreas in Municipal
parks and open space. By far, the greatest portio::>n of that
acreage is in the ten large urban and regional parks--of
which two are located in the Eagle River /Chugiak/Ek-
lutka area, and one at Bird Creek along Turna-gain Arm.
Following is a summary of Anchorage municipal parks
and open space by type:
Vest Pocket and Neighborhood Parks
Community Parks
227.45 acres
4 7 5.87 acres
Large Urban and Regional Parks 5832.70 acreas
Although they comprise the least amount of acreage in
the parks and open space inventory, vest pocket and
neighborhood parks are the most numerous, totalling
65. Community parks total 11, and large urban and
regional parks total 10 (including Section 16 and Pt.
Campbell Military Reservation).
In regard to land acreage needs, and relative geographic
distribution, there is an ample amount of large urban and
regional park land to meet current and future popula-
tion needs. This is particularly so if Chugach State Park
(495,000 acres) and Campbell Airstrip Tract (4,000
acres) are also considered.
The foundation of a good park system, however, is at the
neighborhood and community park level. Current and
future needs for playlots, vest pocket, neighborhood,
and community park lands vary within the Anchorage
Bowl. By using the park land standards, current and pro-
jected park land needs are identified for each of the
sub-areas, or communities, within the Anchorage Bowl.
Priorities are established in order to focus near-term park
land acquisition in areas where current needs are
greatest.
Direction of Municipal Program
The direction of the Municipal park program is toward
further park land acquisition and development com-
mensurate with current and projected population
growth. The focus of park land acquisition will be at the
neighborhood and community level. Unlike large urban
and regional parks which were originally public lands,
community, neighborhood, and vest pocket parks have
primarily been privately owned lands requiring acquisi-
tion, in most instances, by fee simple purchase. This
circumstance is not likely to change. Higher acquisition
cost will require thorough evaluations of sites to be
considered for additional park land. A number of strate-
gies will be employed. Most notable are:
35
Classification
Playlots
Vest Pocket Parks
Neighborhood Parks
Community Parks
Large Urban Parks
Regional Parks
Special Areas &
Facilities
*Not applicable
Table 2-3
STANDARD FOR PARKS BY CLASSIFICATION AND POPULATION RATIO
Municipality of Anchorage
Acres/
1000 People
*
*
•
2.5
2.5
5.0
20.0
*
Size Population Service
Range Served Area
2,500 sq. ft. 500-2,500 Sub-neighborhood
to 1 acre
5,000 sq. ft. 500-2,500 Sub-neighborhood
to 1 acre
5-20 acres 2,000-10,000 Y4 -% mile radius
20-100 acres 1 0,000-50,000 %-3 mile radius
100 +acres one per 50,000 Within %hour driving time
160 +acres Entire population in smaller Within 1 hour driving time
communities; need distribution
throughout larger metro areas
Includes parkways, beaches, plazas, historical sites, floodplains, downtown malls, small parks,
tree lawns, etc. No standard is applicable.
Adapted from: National Park, Recreation and Open Space,Standards.
36
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• Use of portions of greenbelts and public open space
areas for recreational facilities where environmentally
suitable and appropriately located,
• Certain portions of large urban park lands assisting in
meeting neighborhood and community recreational
needs, but without unduly compromising the integrity of
the large urban parks,
• Playlets, and vest pocket parks to a limited extent,
obtained through public dedication in the platting pro-
cess, and
• Utilization of space standards in school site acquisi-
tions for joint park-school uses.
An additional strategy that is recommended is the estab-
lishment of a Municipal land bank of surplus property.
Revenues derived from the sale of surplus Municipal
lands would be appropriated for acquisition of neigh-
borhood or community park land where needs are grea-
test and land availability through other means more
scarce.
Use of these strategies will result in a well-balanced,
equitably distributed park system that will provide
recreation opportunities accessible for all age groups to
enjoy.
2.4.3 TRAILS
Description of Program
Trails serve a dual function in Anchorage. They are a
recreational facility from which a variety of leisure time
enjoyment is derived. In addition, they are also an inte-
gral part of the total transportation system, thus provid-
ing mobility and accessibility to areas and facilities by
various modes of travel.
Details of the Municipal trails program are contained
with the adoption Areawide Trails Plan. The trails plan is
intended to be the basic policy document for develop-
ment of trails in the Anchorage area. As such, it serves as
the basis for establishing and maintaining access routes
and use areas as they relate to community centers and
recreational activities.
The Trails Plan identifies trails that serve a variety of
modes for travelling safely and enjoyable without auto-
mobiles or other large motor vehicles. The trails are
intended for bicylists, pedestrians, equestrians, dog
mushers, cross-country skiers, snowmobilers, joggers,
handicapped persons, and to a lesser exte:nt, motor-
cyclists. The Trails Plan identifies the general location for
trails development and the types of uses associated with
the development.
Issues
Anchorage is a community of outdoor enthusiasts with a
wide variety of summer and winter-time trails interests.
Some uses are compatible on the same trail facility (jog-
ging and bicycling), while others are not (horseback
riding and motorcycling). Some trails require special
facilities for a specific group of users (handicapped per-
sons trails), while other trails must be located in very
specific site areas (dirt bike trails). Because trails serve a
variety of users, they vary in design, locationa:l, and aes-
thetic characteristics. Major issues center on specific
route or site selections, impacts on surrounding area,
and the joint use of facilities.
Direction of Municipal Program
The Areawide Trails Program identifies the general loca-
tion of the various types of trails. In so doing, it has
separated the non-compatible trail users. It has also
identified certain design requirements and administra-
tive procedures necessary to implement the proposed
non-motorized trail system and motorized use areas.
The major emphasis of the Municipal trail program con-
cerns the further refinement of the recommended trail
corridors and implementation. The Trail Plam specified
general corridor locations for trail development but did
not identify particular route locations. These more spe-
cific locations are required for the reservation of ease-
ment as part of subdivision plats. Implementation of the
trail corridors is to occur through the development of
the area's overall transportation system and through the
use of available--and future--utility and roadway right-
of-way. It is the policy of the Municipality, expressed
through the adoption of the Trails Plan, to treat bikeways
and the other various forms of non-motorized transport
as important elements of the overall transportation sys-
tem. As such, these non-motorized circulation systems
are to be incorporated where feasible, as part of high-
way improvements and major new road projects. It is
intended that this general policy will be expressed in
multi-modal transporta~ion projects; the development of
of an integrated system of non-motorized circulation
forms providing access to principal trip generation cen-
ters, including schools; and in the establishment of multi-
use transportation corridors.
The continued application of this multi-use concept in
transportation system development will eventually result
in the establishment of an integrated trail-highway circu-
lation system serving major trip origins and destinations.
In addition, Municipal policy shall also continue to focus
on the development of motorized use areas that do not
conflict with residential areas and established non-
motorized ues.ln practice, implementation of this policy
will require the increased cooperative use and man-
agement of nearby State and Federal lands. Motorized
uses are largely incompatible with most urban activities
and require large, open spaces only available in adjacent
State and Federal lands.
2.4.4. GREENBELTS AND CONSERVATION AREAS
Description of Program
The greenbelts of Anchorage area a vitally important
system. They are natural landscape corridors that link
neighborhoods, parks and schools, and act as buffers
between different land .uses. They help define the physi-
cal form of the city by. contributing to its memorable
character and creating unique neighborhoods.
Following the east to west flow of Chester and Campbell
Creeks, the best of the greenbelts remind us of Anchor-
age's dramatic sea and mountain landscape. In the
greenbelts, Anchorage residents and visitors can walk,
run, ski and ride from the Chugach foothills to Cook Inlet
37
without conflicts with vehicular trattic, and free from city
noise and congestion. The greenbelts link many out-
standing city parks and their diverse facilities into a con-
tinuous recreation system. They provide the opportunity
to preserve special places-quiet woods, wetlands and
wildlife habitats -for public enjoyment in their natural
state. Greenbelts contribute the inost amenity when
they are easily accessible to residential neighborhoods.
Residents of adjacent housing developments can take
advantage of increased recreatio,n opportunity and
transportation alternatives. A major objective of this plan
is to join neighborhoods to park 'land through open
space corridors. The greenbelt element of the Parks and
Open Space Plan is designed to complement the overall
land use plan. Corridors are identified:
• to conserve natural features of lahd;
I
• to serve as buffers between different types of land use;
• to lend definition to neighborhood areas;
• to provide links between residential areas, education
facilities and existing park lands; and
• to provide recreation opportunities close-to-home,
minimizing time and barriers to participation.
Issues
Three growth-related isses form the context of the pro-
posed additions to Anchorage's greenbelt system. The
recommendations include both the development of
already adopted greenbelts and the adoption of new
ones to complement the system. These greenbelt pro-
posal plans are made with considerable urgency:
Anchorage is at a critical point in its urban development.
Heretofore, private undeveloped land was easily access-
ible for casual recreation use. That option is rapidly
disappearing, particularly for linear trail activities. People
find that their usual dog mushing, horseback riding and
skiing trails are blocked by new residential subdivisions.
Suitable recreation land should be reserved before
presently vacant land is fully develbped.
Greenbelt proposals address a s~t of water-related
issues. The urbanization of the Anchorage Bowl has
strained the area's hydrologic system by increasing
demand for water, changing ground water flow patterns,
38
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0
and increasing surface runoff. The protection of stream
courses and wetlands is necessary to preserve water
quality. Recreation is often the only appropriate use of
stream corridors and wetlands that are unsuitable for
other land uses. Anchorage has a policy of establishing
stream corridor open space, i.e., Chester and Campbell
Creek greenbelts. The new greenbelts proposed by this
plan continue this policy. In addition, the plan proposes
reserving certain highly valuable wetlands as dedicated
open space, with residential development planned for
surrounding land.
The third issue affecting greenbelt concerns the oppor-
tunity for the restoration of former gravel extration sites.
Through careful design and landscape reconstruction,
these sites will be able to accommodate future housing
which reserving greenbelts as an integral part of the
development.
Greenbelts and Other Open Space
The current Municipal greenbelt system has two catego-
ries of greenbelts, distinguished by different levels of
development. The two most completely established
greenbelts are Chester Creek and Campbell Creek Green-
belts. They constitute one of Anchorage's most impor-
tant urban recreation resources. The Municipal Assembly
has also adopted, but not developed fully, Fish Creek
and Rabbit Creek Greenbelts. Other undevelopable
tracts supplement the system, and are reserved as natu-
ral open spaces.
This Parks and Open Space Plan proposed the following
greenbelt and open space additions (see map) to the
present system:
• Sand Lake Gravel Pit Restoration
• Sand Lake, Sundi Lake and Jewel Lake Open Space
• South Fork of Chester Creek Greenbelt
• Klatt Bog-Connors Bog Greenbelt and Connors Lake
Open Space
• Nunaka Valley/Cheney Lake Greenbelt
• West Turnagain Greenbelt
• University-Muldoon Area
• Muldoon to Merrill Field Greenbelt
• Furrow Creek-O'Malley Greenbelt
r~:~:~va Pn-~=]~~~·~~;~:j!······~····~·)~\~\~··:~,·~··~~~~~~l~~~=~~
IIIII ~ -?PI><:E.'
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~ !\1UNIUI'"Al--l'"~?
cONCEPT:
• Little Campbell Creek Greenbelt
• Birch Road -Hillside Drive Greenbelt
• Little Rabbit Creek Greenbelt
• Potter Creek Greenbelt and Johnson Trail Corridor
• North and South Forks of Campbell Creek Open Space
• Fish Creek Estuary Open Space
The proposed additions are based on the premise that
greenbelts should be reserved before areas are deve-
loped1 thereby avoiding costly and difficult acquisitions
in built up areas. When new residential developments,
parks, and greenbelts are planned at the same time,
neighborhood residentials are able to get the most
advantage form well-located and cost-effective outdoor
recreation facilities. Highlights of these additions illus-
trate this integrated planning approach.
The Rabbit Creek Greenbelt is considered a "Special
Study Greenbelt" within the context of this Plan. The
concepts are: 1) to provide creek maintenance provi-
sions along the creek from Buffalo Street to the west, and
2) to provide both creek maintenance and public access
along a linear park from Buffalo Street to tine east. The
"special study" will be carried out as part of the Park1
Greenbelt and Recreation Facilities Plan.
39
• Sand Lake Greenbelt
The Sand Lake gravel pits can be restored to accommo-
date residential development. A unified restoration/ de-
velopment plan should provide hou~ing at variable den-
sities, and reserve greenbelts througn housing areas. The
public greenbelts would be bounded on both sides by
private land. Variable width corridors could link tot lots
and neighborhood parks, and provide trail connections
to Sand Lake, Jewel Lake, Jade Park and Kincaid Park.
~VATE LAND
~lc:e-l11Al-7\NEoW'O---
C.,Ul-·DE'-o?>£1? fA/l'\11 . .: i.JU!'?IN6
II ~ECTION
40
,
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• Klatt-Connors Bog Greenbelt
A major north/south open space and recreation corri-
dor is needed in the Anchorage Bowl. Through the bog
•
the corridor should be 200' in width. Adjacent to the
Minnesota by-pass a 500' corridor will serve to buffer
nearby residential areas. This corridor would link people
$ ! w ll
6£AL~ I" -ZOO' CONCEPT:
in residential communities of Bayshore, Oceanview,
Klatt, Sand Lake r;md Spenard with Campbell Creek
Greenbelt, Connor's Lake, and Coastal Trail.
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COt-IHCX~ LA,II:L. 10 .cAJ11P'~e.l.i.. cf~Zl!E.l'-~eo...T
41
Fish Creek Estuary Open Space
Fish Creek estuary is a rich wildlife habitat with outstand-
ing scenic views, near schools, residential neighbor-
hoods and the downtown business district. It has been
identified through the Anchorage Coastal Management
Program as an Area Meriting Specail Attention. The resul-
tant management plan suggest development as a handi-
capped-acessible nature study area, to be linked with
the Coastal Access Trail.
42
~~~~F=~~====~~~~~)~==o~------------.NC~~~ ~ ~
~
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• Furrow Creek-O'Malley Greenbelt
A series of birch-spruce woodlands and wetlands offer a
significant opportunity to provide an open space system
throughout the lower Hillside, providing access to Ser-
vice High School, Hillside Park, and Section 16 trails.
Horseback riding and bicycling trails can be accommo-
dated within the greenbelt.
• CONCEPT=
FUKR_Ow CR-EE.K..
0REENE:a T UN~
HI U.S I DE lD PAR.K':::l
43
44
TABLE 2-4
GOALS, POLICI:Es, OBJECTIVES: PARKS, TRAILS, AND OPEN SPACE COMPONENT
GOALS
Parks, Trails, Greenbelts and
Open Space
To provide a wide range of recrea-
tional opportunities to all segments
of the community.
To establish an integrated open
space network throughout the com-
munity based upon existing open
space patterns and lands which are
ecologically valuable and least
suitable for development.
To create a pedestrain-oriented
system of parks and greenways link-
ing open spaces and residential
neighborhoods and existing and
proposed parklands and school
sites.
To establish waterfront and water
course preservation areas for the
protection of unique land and water
relationships and vistas.
General
LONG-TERM
OBJECTIVES
5-15 Years
To provide usable, publicly owned
open space.
To establish greenbelts along the
major streams in the Municipality.
To combine park, recreation and
community facilities with school sites
in order best to serve residents of
the area and reduce costs.
To encourage the implementa-
tion of active recreation programs
within publicly owned lands and
facilities.
To provide separate use areas for
mechanized and non-mechanized
recreational pursuits.
To promote use of geologic hazard
areas and marginal land for parks,
recreation and open space.
General
SHORT-TERM
OBJECTIVES
0-5 Years
To develop conceptual Master Plans
for all parkland as it is acquired.
To develop neighborhood and com-
munity parks with facilities to meet
the needs of the citizens.
POLICIES
General
The Anchorage Municipality will esta-
blish, develop, manage and maintain a
balanced system of parks, greenbelts,
and trails for year-round utilization and
enjoyment by all citizens of the
community.
The Anchorage Municipality shall adopt stand-
ards for parks, greenbelts and trails.
Neighborhood and community park-
land will be acquired in anticipation of
population growth and community
development.
The Municipality and School District shall to
the extent practicable, develop joint park/
school facility areas in order to provide both
educational and recreation services to the
adjacent population in a convenient and
efficient manner.
u
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0
TABLE 2-4
GOALS, POLICIES, OBJECTIVES: PARKS, TRAILS, AND OPEN SPACE COMPONENT
GOALS
Parks
To establish a system of parks, from
the neighborhood to regional level,
to serve all segments of the Anchor-
age community.
Trails
To provide for full and rapid im-
plementation of the Areawide Trail
Plan.
LONG-TERM
OBJECTIVES
5-15 Years
A balanced distribution of neighbor-
hood and community parks will be
developed throughout Anchorage.
Neighborhood parks will be
acquire within walking distance of
residential areas.
Connections between parks espec-
cially regional, large urban and com-
munity parks, will be established via
the greenbelt open space system.
To establish a community wide
system of trails to permit travel by
several means other than auto-
mobile.
SHORT-TERM
OBJECTIVES
0-5 Years
To establish and begin development
of the Far North BicenntennJal Park.
To develop Section 16 in South
Anchorage as a large urban park.
To reduce or eliminate deficencies
in meeting neighborhood and com-
munity park standards.
To begin the acquisition and de-
velopment of the Little Campbell
Creek Trail.
To expand and continue the bike
trail system, especially to South
Anchorage.
To revise the Areawide Trails Plan to
reflect the newly adopted greenbelt
and open space system additions.
To plan and begin the development
of the Pt. Campbell-Pt. Woronzof
public lands, to incorporate park,
open space, and other compatible
facilities.
POLICIES
Development of parklands shall proceed
as rapidly as possible within the con-
straints of capital budgeting and main-
tenance.
If standard size neighborhood parks cannot
be acquired, school playground, tot-lots, and
vest pocket parks will be developed to meet
neighborhood needs. Small park-type facilites,
as tot-lot and vest pocket parks, are to be
primarily concentrated within high density
residential areas.
The trail system will be developed in
conjunction with road improvements
whenever appropriate, and through
easement acquisition and dedication
of trail right-of-way. Construction of
trails will follow as rapidly as possible.
45
TABLE 2-4
GOALS, POLICIES, OBJECTIVES: PARKS, TRAILS, AND OPEN SPACE COMPONENT
GOALS
Greenbelts and Open Spaces
The greenbelt system will be esta-
blished for the following purposes:
a. To accommodate traiils and re-
creation facilities;
b. To protect streams and natural
areas;
c. To provide public access to the
coast;
d. To lend identity to communities
and provide buffers between
incompatible land use.
e. To provide linkages between resi-
dential areas, parks, schools, and
major areas of public activity.
f. To protect wetlands a:nd other
environmentally sensitive areas.
46
LONG-TERM
OBJECTIVES
5-15 Years
To acquire land on both sides of all
of the streams within the Municipal-
ity, as it becomes available.
To set aside critical habitats and
wetlands as open space.
SHORT-TERM
OBJECTIVES
0-5 Years
To revise the Areawide Trails Plan to
reflect plans for the open space-
greenbelt system.
To provide for Coastal access-
through a coastal trail system.
To establish an open space network
in the Minnesota Drive extension
corridor.
To establish the Ship Creek green-
belt.
To establish an open space net-
work from Turpin Road to Merrill
Field.
To establish a nature center at Pot-
ter Marsh, including trails and view-
ing areas.
POLICIES
Greenbelts and open spaces will be
designated to provide a continuous
bicycle, pedestrian, and where possible,
equestrian access system to
schools, parks, and residential neigh-
borhoods.
Greenbelts and open spaces should be
planned in an integral process with
new housing and commerical develop-
ment.
Greenbelts and open spaces should be
equally available to all Anchorage
citizens.
LJ
0
0
0
0
D
0
D
0
0
D
D
D
0
Anchorage Parks and Opern Space Plan
~ Municipality of Anchorage
~ Anchorage ComprehensiVe Development Plan
1 Kilometers 2
M iles
D Existing Municipal Parks and Open Space
CJ Other Open Space (Non-Municipal)
Areas to Develop as Parks, Open Space, and
Related Facilities
CJ Schools
CJ Linear Park and Open Space System
c:::J Adopted Greenbelt Plans
*The Linear Park and Open Space System is conceptual. The precise location
and widths of the corridors will be finalized as easements are set aside and as
acquisition takes place.
Map 2-4
ELMENDORF A IR FORCE BASE
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2.5 ENERGY COMPONENT
2.5.1 DESCRIPTION
As a result of the actual, as well as potential, reduction of
petroleum supplies, and because of the increasing cost
of such supplies, energy has become an essential plan-
ning activity. The concern for energy usage originated
primarily from the oil embargo of 1973-1974. Since that
time, energy supplies, and their allocation, have been a
continuing concern to this country, and to Alaska specif-
ically. It is safe to assume that this concern will continue
well into the foreseeable future. The supply and cost of
petroleum greatly affect lifestyle, c ustoms, and behavior.
The fact that energy has become a significant, long-term
problem requires that it receive consideration in com-
prehensive planning . This Plan element provides a gen-
eral framework for energy planning and specifies poten-
tial energy programs for use by the Municipality.
Th is element is not, however, an overall energy devel-
opment and management plan for the Municipality. Such
plans are more intensive, encompassing energy conser-
vation measures for such activities as industrial pro-
cesses, transportation, public utilities, Municipal ser-
vices, buildings, and government operations and procure-
ment. Energy management plans assess the systematic
pattern of energy flows, and develop an integrated pro-
gram to ensure the effective linkage of these patterns.
This report element is intended to form a relationship
between land use and energy patterns, and to specify
those strategies associated with more efficient land use
and transportation energy consumption patterns.
2.5.2 NATURE OF POWER DEMAND REQUIREMENTS
The characteristics of electrical power demand are ana-
lyzed in a recent report, Upper Susitna River Project:
Power Market Analysis. This study on ly analyses the
need for added electrical power generation, although
this medium adequately demonstrates the relationship
between land use and energy conservation patterns.
More studies are now being prepared, and should
update much of the supply analysis of electric! power
demands . Nonetheless, the Upper Susitna study pro-
vides a genera l indication of power requirements for the
Anchorage area, for both the near-and intermediate
fut ure. It is instructive in the need for conservation, as
well as supply development, measures.
2.5.3 PAST DEMAND CHARACTERISTICS
Electrical power demands over the la st ten years have
shown that the major energy use determinants were the
construction of the Tran s-A la ska oil pipeline and the 011
embargo of 1973-1974. In general, there has been an
increasing demand for e l ectrical power by all use sectors
including residential, commercial, and industrial . The
analysis determined that a major change occurred, after
the 1973-197 4 gaso line crisis, in the rate of energy growth,
and concluded that conservation should be considered
as a major factor in planning beyond the 1973 period.
Projections of electrical power demand indicate a fairl y
severe shortage of available capacity beginning about
the 19 85-1990 period. Even though the area's utilities are
expected to add considerable capacity during this
period, available capacity may be exceeded by the 1985
period . Thereafter, the demand-supply situation wiH
worsen, approaching a deficit of nearly 1.3 MW by the
year 2000 if additional capacity is not installed. The
primary conc lu sions derive d from the Susitna analysis
included the need for :
• Substantial power generation increases over the next
15-24 years, and
• Phased energy development strategy, and
• Increased energy conservation, to forestall part of the
expected power increases .
The importance of energy conservation measures can
best be appreciated when it is realized that the power
generation forecasts in clude a large energy conservation
factor . Because of the nature of the projected demand-
supply relationship over tne next fifteen years, con-
sideration must be given in energy supply and energy
management planni ng to both the provis ion of addi-
tional supply as wel l as the development of effective
energy conservation programs. The Upper Susitna anal y-
sis has indicated the need for both approaches and the
need for them to be close ly integrated .
2 .5 .4 RELATIONSHIP BETWEEN LAND USE AND
ENERGY MANAGEMENT PLANNING
Research on the energy demands of land use patterns
has recently emerged, and rnost have conc urred that the
v arying patterns effect the amount of energy we con -
sume, particularly for transportation, and space heating
and cooling. What remains unclear is t he extent to which
changes in land use can reduce the genera l level of
energy consumption. Yet, in spite of divergent opinions,
most studies identify energy conservation goals that land
u se decisions can promote.
Energy consumption patterns are directly tied to specific
community environments. A recent State study analyzed
the impacts of alternative community forms on energy
consumption levels in an ar ea near Anchorage. It indi-
cated fairly specific relationships between energy con-
trol measures and land use patterns.
In analyzing the effects of different urban patterns and
densities, marked decreases in energy use accrued
through even modest increases in density. More rapid
decreases in energy use were not apparent beyond an
urban structure that is fairly concentrated . In this study,
the creation of moderate densities in southcentral
commun iti es resulted in an 18 percent decrease in
energy use compared to typical decentralized urban
forms. The residential se c tor had the greatest impact in
these relationships, constituting nearly 70 percent of all
energy consumption needs. Equally important, this sec-
tor is especially sensitive to changes in land density and
use patterns.
A fairly direct relationship between land use patterns,
transportation, and energy co nsumption also exists. The
pattern and density of land development affects the
number of ve hicles required, miles traveled, and mode
used in travel. Urban forms having moderate densities
decreased total transportat ion energy consumed by 50
percent or more from a baseline, decentralized growth
pattern . A centra liz ed land use pattern decreased trip
making b y an even greater amount. These are significant
results since they replicate the levels of energy reduction
that can occur in other communities.
In addition to the possible energy savings derived from
space heating and intra-city transportation efficiences,
significant energy savings c an also re sult from incorporat-
ing community-wide and individual building energy con-
servation techniques. Exam ples of such techniques
might include :
49
• Improving individual building design and equipment
selection,
• Converting Municipal waste to supplement steam in
power plants, and
• Improving siting and orientation of buildings.
Large reductions in energy consumption would accrue
through the use of these techniques compared to the
baseline energy case, and co u ld approach a reduction
as great as 53 percent.
The previous analysis stresses the importance of land use
planning to energy conservation, and indicates the
impact of even modest chan ges in technology and use
patterns upon energy l evels . Perhaps most importantly, it
indicates the practical basis for changes in land use,
transportation, and supplemE:ntal energy technologies
necessary to effect reduction s in energy consumption .
2 .5 .5 DIRECTION OF MUNICIPAL PROGRAMS
REGARDING ENERGY SUPPLY AND DEMAND
Municipal policy regard i ng en e rgy conservation relative
t o urban form sho u ld focus on the general program
ar eas of land use and transportation. As described,
i mportant relationships e xi st between the patterns and
densities of land us e s, and transportation patterns and
d e nsities . Even modest density incre ases promote the
use of more efficient transportation modes and building
construction and site desi gn methods . Because of the
close tie between land use and transportation patterns,
t he associated policy and program directions must be
mutually support ing.
2 .5.6 LAND USE PATTERNS: DIRECTIONS AND POLICIES
A variety of mech ani sms exis t witl1 which land use forms
can be guided t oward more e fficient energy consump-
tion patterns. Included as factors are t he following :
• Creating higher densities,
• Combining land uses within geographic areas,
• Utilizing more effective buil d i ng layout, orientation and
landscaping, and
50
• Applying effective location and density patterns .
These mechanisms are described at length in the report,
Energy Element: Comprehensive Plan Revision. The
creation of higher urban densities is an essential strategy
for energy reduction . The common wall area and reduc-
tion of apertures in multi-family structures combine to
produce considerable space heat savings . This reduc-
tion, plus those caused by the more efficient use of
public utilities and transit systems, produce economies
in energy utiliz ation not afforded by urban forms with
predominantly single-family detached dwellings. Ap-
proaches used to achieve higher densities can involve
the use of higher density zoning, modification of height
restrictions, reduction of lot si z e requirements, and
amendment of zoning ordinances to allow the vertical
mi xing of uses in structures .
These techniques foster higher densities th r ough either
changes in land patterns, the allowance of taller build-
ings within zones, or the ability to increase densities
through increased fle xibility in site design. All of these
methods are appropriate to Anchorage, and specific
recommendations regarding these use s are contained in
the Energy Element: Comprehensive Plan Technical
Report . The recommendation to increase urban densi-
ties is consistent with desired land policies, and both
improved flexibility in site design and building siting are
essential to the effective use of our remaining urban
lands .
Changes in building layout, building orientation, and site
landscaping are also productive in creating conditions
for the more effective use of urban land and public
facilities. Appropriate techniques include: the use of
bonus points, flexible and cluster z oning, revised site
landscaping requirements, and the use of special per-
mits to allow for the flexible orientation of structures on
lots . Cluster zoning, which allows for the concentration
of structures in particular areas and for the preservation
of other uses (primarily open space) in environmentally
sensitive areas, can be applied to create development
patterns that minimize the need for public facilities. Flex-
ibl e and bonus point z oning provide similar benefits and
can be tailored to provide density bonuses to develop-
ers for specified site improvements. The use of these
strategies is recommended, and is generally consistent
with other Municipal policies to improve site develop-
ment practices and reduce private development costs.
A final set of strategies involves the location and density
of development, and the methods used to guide and
influence those patterns . Traditional ways of influencing
growth have included the programming of major public
facilities, the use of special forms of zo nin g, and the use
of comprehensive plans to guide the placement of facili-
ties . This orientation should be continued and extended
to include the processes of land guidance explained
subsequently in the Plan. Although these processes are
la rgely related to cost and urban growth considerations,
they are also intended to be instrumental in energy
conservation and energy management. The rationale for
their use should also originate from the need to effec-
tively utilize our energy resources.
2.5. 7 TRANSPORTATION RELATED IMPROVEMENTS
AND ENERGY CONSERVATION PROGRAMS
Even modest changes in land densities have a significant
affect on the effectiveness of transit in reducing overall
trip-making. The importance of transportation to energy
management centers on the consumption of petroleum
by private, single-occupant vehicles. Fully 86 percent of
all available petroleum products are used for automo-
bile and truck transportation in Anchorage . Energy man -
agement policies must be concerned with two aspects
of the transportation system: the development of a more
effective mass transit system and the preparation of
strategies to be used in the event of an energy crisis .
Attempts to reduce transportation energy use must
concentrate on the more aggressive development of the
transit system . Less than two percent of all person-trips
are made currently by this mode, although there has
been a considerable increase in transit usage over the
last three years . The reasons for this ridership increase
include the increasing cost of gasoline and the conven-
ience of transit. Municipal policy, as expressed in the
various Anchorage Metropolitan Area Transportation
Study reports, is to expand the mass transit system to the
maximum extent practical. The attainment of the ten
percent modal split rate, by the year 2000, will involve
major changes in lifestyle and travel-making behavior, a
major expenditure of funds for the purchase of vehicles,
as well as substantial increases in the operating costs of
transit.
The management of the transportation system for energy
conservation purposes also involves energy crisis and
contingency planning. These analyses are designed to
prepare for sudden reductions in energy supplies and
for continued high energy costs . They are also intended
to result in an overall reduction in fuel consumption and
in the increased use of more energy efficient transpor-
tation forms . Since the exact date of a future energy
shortage cannot be predicted, it is essential that those
strategies which require a long lead time for implemen-
tation or that should be in effect at the onset of an energ~ shortage, be initiated as soon as possible. These
strategies are identified in the Energy Crisis Contingency
Plan, prepared by the Anchorage Metropolitan Area
Transportation Study. This plan identifies measures that
can be utilized at various levels of energy shortfall, or
deficit. They involve varying levels of restrictiveness,
depending upon the significance of the energy shortfall
condition . Because many of these programs are only
effective--and are only required--in the event of such
shortfall conditions, Municipal policy focuses on the
development of strategies to meet probable worse case
energy reductions . These strategies augment a continu-
ing energy conservation program. The latter expresses
Municipal policy to ensure the inclusion of energy con-
siderations in traffic engineering, highway, and transit
projects, and to promote the more aggressive use of
paratransit resources, of both the public and private
sectors.
2.5.8 ENERGY GOALS, POLICIES, AND OBJECTIVES
The goals, objectives and policies rela t ing to energy
management are derived from the various studies and
plans prepared by the Municipality relating to energy
crisis /contingency planning and energy conservation.
They are identified at length in Table 2-3 . These programs
must be viewed as a starting point for energy manage-
ment planning and as an expression of the general direc-
tion to be followed by the Municipality in developing
programs to minimize, or make more efficient, energy
use . Although a series of program areas are identified
which specify major activities that should result in energy
use reductions, perhaps the most important recommen-
dation concerns the need for an overall energy man-
agement plan. This plan should focus on the need to
properly inventory and analyze energy patterns, and
upon the development of a comprehensive set of
strategies designed to deal with a full range of human
activities involving energy use.
51
Comprehensive
Plan Element
or Sub-Element
Energy
52
TABLE '2·5
GOALS, POLICIES, OBJECTIVES: ENERGY
Goals
To integrate energy consideration into all
private and public decision-making functions
and operations, and minimize the economic
impacts of energy supply and demand.
To manage Municipal energy use, establish
e n ergy-efficient operating and maintenance
procedures for government buildings, vehicles,
parks and recreation facilities and outdoor
lighting.
To establish a community education and out-
reach program to maximize economic oppor-
tunities and minimize economic hardship.
Long Term
Objectives
Encourage and facilitate
the development of va-
cant and out-moded
buildings and sites which
are currently served by
utility and transportation
systems. Increase density
allowances on such par-
cels where appropriate.
Maximize development
options along major
transportation routes,
especially those incor-
porating public transit
systems.
Encourage increased
densities and clustered
development where cen-
tralized energy systems
are proposed.
Discourage major isolated
and free-standing office,
education and public
service facilities not easily
accessible by public
transit.
Medium density and mid-
rise multi-family develop-
ments may be permitted
adjacent to areas of high
intensity employment or
person use, such as in-
dustrial areas, schools
and colleges, and high
density commerical units.
Short Term
Objectives
Establish minimum perfor-
mance standards for
structural heat losses and
gains, lighting, interior
and exterior, and heating
ventilation air-condition-
ing systems for new
buildings.
Design and build new
Municipal/public build-
ings as exemplary struc-
tures to demonstrate the
feasiblity of low energy
use and natural climate
modification techniques.
Develop energy conser-
vation measures for pub-
lic facilites to reduce
operational costs and
encourage private sector
participation in conserva-
tion and non-petroleum
cogeneration measures.
Refine the AMATS Energy
Crisis and Contingency
Plan to develop neces-
sary energy crisis manage-
ment programs for the
transportation system and
continue current energy
conservation programs.
Policies
Land allocation and development patterns
should permit the greatest possible current and
future use of alternate energy sources for space
heating and cooling .
The Municipality shall encourage development
that takes advantage of natural conditions and
utilizes renewable energy supplies, to minimize
non-renewable and overall energy consumption.
The Municipality shall examine methods of ex-
panding existing residential, commercial, and
industrial energy conservation programs.
The Municipality shall encourage medium and
high density residential uses, balanced with
other planning policies, to maximize the efficient
use of all forms of energy.
Commercial, residential, and recreational land
uses should be integrated in order to reduce
travel distances, optimize the reuse of waste
heat, and permit on-site energy generation, as
practicable.
Continue to encourage the cooperation and
communication between the public, utilities,
and the various levels of government concerning
energy-related issues . Encourage Municipal and
State efforts to promote energy conservation in
such areas as building codes, the development
of renewable sources of energy, and the estab-
lishment of equitable energy allocation systems.
Comprehensive
Plan Element
or Sub-Element
TABLE 2-5
GOALS, POLICIES, OBJECTIVES: ENERGY COMPONENT
Goals
Long Term
Objectives
Senior citizen housing
should be located near
shopping, personal ser-
vices, recreation and
cultural centers, with easy
access to public trans-
portation and small
vehicle circulation
systems.
Medium density residen-
tial development shall be
encouraged near neigh-
borhood service centers.
Encourage Neighborhood
and commercial uses in
centers on major
automobile and transit
routes.
Short Term
Objectives
Develop a new facility
conservation program to
preclude the expensive
retrofit of energy conser-
vation equipment at a
future time .
Continue and expand the
joint State-Municipal
Transportation Conserva-
tion Program . Intended to
reduce single occupant
vehicle work trips, this
program shall be de-
signed to coordinate the
areawide alternative
modes program .
Prepare and implement
an integrated Energy
Management Plan for the
Municipality that provides
an overall strategy to
community energy con-
servation, energy crisis
pla n ning, and energy
demand planning .
Policies
The Municipality shall requ ire transit waiting
stations and small vehic:le parking facilities at all
large public and private high activity centers
(such as shopping, recreational, social and
governmental centers).
The use of mass transit and alternative trans-
portation systems shall be encouraged as a
major means of reducing energy consumption .
Efficiently manage the public and private rights-
of-way to permit full utilization and coordination
of the circulation and t r ansportation facilities and to
maximize passenger and freight miles traveled
per unit of energy consumed in a manner
consistent with safety and convenience.
Medium to high density residential development
shall be encouraged at the periphery of the
Central Business · District, along primary transit
routes and near major transit stations .
53
54
3.1 URBAN DEVELOPMENT: PATTERN
AND PROCESS
This section of the Comprehensive Plan identifies the
relationship between the land use, public facility, and
urban development processes that affect the patterns of
urban development. It is important to understand that
the Comprehensive Plan deals not only with the patterns
of development, but with the processes that affect land
development over time as well . This latter aspect is par-
ticularly critical given the dynamic nature of the Anchor-
age economy.
The ex isting land use and density patterns reflect the way
in which people have organized space for recreation,
living, and productive activities. These activities tend to
recur, and they exhibit unique physical and spatial quali-
ties. Because of this uniqueness, land use patterns tend
to be segregated into geographically distinct areas. Cer-
tain uses prefer particular locations for given activities .
This reflects the capability of the site to accommodate
the activity as well as the tendency for certain functions
to locate in particular locations Land uses tend to be
largely organized on an economic basis, generally to
minimize travel costs and maximize market values, but
they also reflect social and cultural forces . From a plan-
ning standpoint, this last area of concern is critical, since
it reflects values that are often obscured by the overrid-
ing market forces .
The Comprehensive Plan maps express the way in which
the community wishes to develop over time and space
according to certain developmental goals. These pat-
terns of land use and residential densities attempt to
accomplish the following objectives of urban planning,
which are considered to be either functionally or eco-
nomically important:
• The ability to provide a ma x imum interaction of human
and economic activities . This is critical since all activities
are interrelated, but are separated by space .
• The opportunity to minimize disruptions between
activities so that social and environmental values are
preserved.
• The ability to properly locate public facility systems. A
close interation exists between land uses and the pub-
CHAPTER THREE
URBAN DEVELOPMENT: PATTERNS AND PROCESS
lie facilities required to support those uses. The careful
provision of urban services minimizes environmental dis-
ruption; and requires a smaller expenditure of public
funds.
Although the need exists to properly plan land use pat-
terns and densities for future conditions, land devel-
opment is a dynamic, changing process. Ma r ket forces
and community objectives interact in differe nt ways and
at different times, over space. Urban patterns tend to
change over time, particularly in areas of vacant land or
lands needing redevelopment. It is as important to plan
for the guidance of these forces as it is to identify the
desirable consequences. To reflect this dynamic per-
spective, planning theory has evolved to include the
concept of land guidance systems . These systems are
intended to guide and /or regulate the pattern, timing,
and densities of land uses as th ey evolved over a period
of time . This Plan includes such a component. It largely
focuses on the timing aspect of land development.
This chapter describes these two processes : that of
organizing land uses and the associated process of
influencing these forces over time and space. It is essen-
tial to understand the interaction of these elements, and
the land use maps should be viewed as an expression of
the application of these guidance mechanisms over the
next 20 years . The maps are also designed to represent
desired future land use patterns, not necessarily desired,
near-term patterns . The Short-Range Urban Develop-
ment Plan, proposed in the Implementation Chapter, is
intended to deal with land development patterns over
the next 6-10 years .
55
3.2 LAND USE ELEMENT
The purpose o f th e Land Use Plan , w ith its associated
Residential Intensity Map, is to : indicate how land uses
are to be organized over space, prov ide perspective on
the relation ship between these activities, and relate
activity patterns to f acility p r ogramming and systems .
The land use patterns identif ied in Map 3-1 are intended
to resolve a series of sign ificant issues as sociated with
the development and use of land. For this reason, the
depicted land patterns, plus the land policies associated
with that type of land, re present a resolution of the
competin g uses for land . Certain of the issues intended
to be resolved, for which Municipal policy has been
established in the revis i on of the Comprehensive Plan ,
include the follo w inq :
• Location of commercial activity. The Plan specifies a
strong orientation toward the development of mutual ly
complementary Downtown and Midtown areas, with
supporti ng comm u nity commercial centers in east,
south, and west A n chor ag e .
• Location of i n dustrial activity. The Plan ex presses
Municipal policy t o support such development and to
locate industrial growth in the Port-Ship Creek industrial
area, at the In t ernational Airport and Merrill Field, and
along the Alaska Railroa d in central and southern
Ancho rage .
• Identification of the preferred mix of single-and multi-
family housing. The Plan designates a strong orientation
toward the dev elopment of multi-family housing in the
more central ar eas of the community, particularly Mul-
doon, Fai rview, Mountain View and Spenard . This orien-
tation reflects the impact o f private market forces and
the changes in lifestyle now occurring in the community .
At the same time, the Plan recognizes the need to
improve buildin g and sit e design p r actices, provide
open space, and maintain the integrity of traditional
single-family communities . Th is last asp e ct is especially
critical and is reflected in the need to apply buffering
policies between residential patterns of markedly differ-
ent densities.
• Identification of appropriate location and density of
residential development. The land use policies repre-
sent an attempt to balance the needs for additional
56
multi-family housing with the need to provide as much
single-family housing as practicable. Multi-family housing
is primarily intended to occur in areas currently zoned
for multi-family use, which are either vacant and adjacent
to major open space resources, or have potential for
redevelopment to multi-family densities . Traditional
single-family development (subdivision type densities
with three to five dwelling units per acre ) is also encour-
aged, particularly in southern Anchorage--in portions of
western Sand Lake near Kincaid Park, The Abbett-
O 'Malley and Lake Otis communities, and in sections of
Campbeii-Kiatt. Rural low density single-family develop-
ment is intended to continue in the other portions of the
Hillside .
• Identification of the need for and the location of
public facilities . The land use patterns identified herein
provide the basis for the number, type, and phasing of
public facilities to be provided by the Municipality within
the foreseeable future. The densities given in the Resi-
dential Intensity Map are further intended to guide the
programming of facilities to serve residenti al uses in the
Municipal Capital Improvement Program.
3 .2.1 PROCESS OF LAND USE PLAN DEVELOPMENT
The land patterns and use densities identified in Map 3-1
reflect the results of a comprehensive analytic process.
This process involved an inventory of existing uses, the
Generalized Land Use Plan
Municipality of Anchorage
Anchorage Comprehensive Development Plan
1 Kilometers 2
Miles
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Generalized Residential Intensity Plan
ELMENDORF AIR FOR C E BASE
Municipality of Anchorage
Anchorage Comprehensive Development Plan
1 Ki lometers 2
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projection of the future demands for land1 and the
balancing of land supply with land demand. It was also
strongly influenced by community values and attitudes.
Because the land uses and residential intensities identi-
fied in the Plan Map are derived from an economic
balancing of land demand with land supply1 changes to
these patterns must be carefully considered . If changes
occur1 the patterns of uses and densities must be read-
justed to reflect the effects of this change on other parts
of the community. For this reason1 it will be necessary for
the Plan to be revised periodically. This aspect of plan
implementation will be discussed more fully in Chapter
Four.
The Plan development process involved the following
major steps:
• Land inventory. The land use inventory identified the
amount and type of developed land b y geographic area
within the Anchorage Bowl. It also identified developed
land uses by zoning category. In addition/ the inventory
specified the amount of remaining vacant land1 by small
geographic area1 according to existing zoning classifica-
tions . The inventory provided the starting point for the
distribution of land uses and for the identifi cation of
areas likely to accommodate future urban growth.
• Demand projections of residential and commercial-
industrial lands. The demand projections of residential
and commercial-industrial land were based upon dwel-
ling unit and employment forecasts1 and upon land ratios
between land requirements and activity types . Demand
projections were derived from State econometric fore-
casts stepped down to the Anchorage metropolitan
region . These population and employment estimates
were translated into land requirements for residential1
industrial1 and commercial land . In turn1 the areawide
land requirements were stepped down to smaller geo-
graphic regions in order to identify land needs for zonin g
and land use planning. These projections represent the
demand side of the planning process1 whereas the
inventory represents the supply component.
• Allocation and Reallocation Process: Land Demand/
Supply . The allocation process is repetitive1 involving
the balancing of land supply with land demand for each
of the various uses of commercial1 industrial/ and resi-
dential land . It inv olv es the initial allocation of demand
to particular geographic areas and1 later1 tlle allocation
of that portion of the land demand to other geographic
areas that cannot be accommodated under the first
allocation of demand. The results of the allocation and
reallocation processes are a balancing of land demand
and land supply for the design year (year 2000 ). The Plan
maps represent a balance between the various land
uses1 and changes to thi s distribution will require a
resorting of the depicted land supply/land demand
allocations.
3.2.2 PLAN MAP: DEFINITIONS
Effect of Directory Provisions
The provisions of this Ordinance are not intended to be
self-executing1 unless so spec ified by their terms. All
provisions which are not self-executing are deemed to
be directive and advisory . Directive and advisory provi-
sions are intended to establish a continuity of govern-
mental policy that are to be used as guidelines for future
actions of the Munici pal gov ernment. The Municipality
shall 1 when appropriate1 cons ider adviso ry provisions
and shall take positive actio n toward meeting directives
within a reasonable time .
Land Use Classification System
A vital part of any Compr ehensive Plan is the develop-
ment of a land use classifi c ation sys tem upon which
61
future zoning will be based. The principal objective of
such a classification system is to provide a rational and
consistent foundation, which will guide the entire land
use regulation system.
Previous zoning changes have resulted in a patchwork
pattern of various types and densities of land uses . Many
incompatible land uses presently ex ist. The Land Use
Classification System w i ll help eliminate future incon-
sistencies .
• Purposes of the regulatory system:
I. Provide a balanced, compatible land use mix, including
a range and placement of land use activities deemed
necessary to the community well-being;
2 . Separate incompatible uses and minimize conflict
between land uses ;
3 . Provide appropriate land use allocations, by category,
in keeping with a realistic ass essment of areawide and
localized community needs;
4. Assure that the functional classification of land
a c hieves stated community purposes;
5. Ensure the continued physical, social and economic
vitality of each community within the Municipality;
6. Provide incentives for reinvestment by the private
sector to achieve stated community objectives; and
7 . Accommodate changing li f e styles, technology and
economic conditions.
• Form
The land use classification system establishes functional
land use categories. These categories are physically
grouped in a manner which achieves complementary
relationships within and between category. The Plan
Map 3-1 graphically depicts the classification system and
provides guidelines regarding the scale and intensity of
development.
62
Residential: This classification would apply to those areas
which are substantially developed for residential pur-
poses and which are expected to remain that way within
the time frame o f the Comprehensive Plan .lt also applies
to those areas that are now vacant but are best suited to
future residential development. Residential land use
density ranges are applied to each community, which
generally indicate the number of residential units
achievable in a general location. The actual achievable
use of a given site will be further defined by the residen-
tial zoning, the nature of and adjacency by other uses,
the availability of public services and facilities , and envir-
onmental considerations. Future land regulations would
be guided by the designated intensities of the Plan Map.
This classification should have very little effect on existing
residential areas, except where redevelopment is occur-
ring or is anticipated to occur. In these instances, it
would serve to reinforce or enhance the quality and
character of the residential community and of those land
use policies contained herein.
Commercial : This classification would apply to those
areas which are substantially developed for commercial
purposes and which are expected to remain that way
within the planning period . It also applies to those areas
that are now vacant but are best suited to future com-
mercial development. The actual achievable use and
development criteria for any given site would be further
defined by the commercial zoning the nature of and
adjacency of other uses, public services and facility avail-
ability, and environmental considerations . The location
of all new neighborhood business areas are not de-
picted on the land use classifications map, because it is
impossible to determine the extent and location of
these areas at this time . It is anticipated that when
requests for neighborhood business zoning are submit-
ted in locations not depicted on the map, such requests
would be favorably considered, only if a need is shown,
and if the policies for the establishment of business areas
which are part of this plan are followed.
Industrial: This classification would apply to those areas
which are substantially developed for industrial pur-
poses and which are expected to remain that way during
the planning period. It also applies to those areas that
are now vacant but are best suited to future industrial
development. The actual achievable use and develop-
ment criteria for any given site would be further defined
by specific industrial zoning the adequacy of public
services and facilities, environmental considerations,
and existing or new performance standards.
Commercial-Industrial : This classification would apply to
those which are substantially developed for industrial-
commercial purposes and which are expected to remain
that way during the planning period. It also applies to
those areas that are now vacant but are best suited to
future commercial-industrial development. The actual
achievable use and development criteria for any given
site would be further defined by the specific zoning, the
adequacy and availability of public facilities, and envir-
onmental considerations . This classification reflects the
tendency for compatible and linked industrial-com-
mercial to locate within similar areas, and recognizes the
inter-dependency of these uses . It also stresses the need
to develop such uses, to the extent practicable, within
planned commercial-industrial tracts along major arte-
rials .
Public Lands and Institutions: This classification would
apply to all existing active uses of this type where devel-
opment plans have been completed and adopted, or
where it is reasonable to expect the use of recently
acquired state lands for some public purposes. It would
not apply to such lands where the permanent use is yet
to be determined.
• Residential Densities
To further define the land classification system, density
ceilings are established for each residential classification .
These ceilings serve to define the general level of desired
development. They are scaled according to factors such
as proximity to services, employment, and transporta-
tion . Thus, land next to the Downtown Business District
could accommodate greater density uses than outlying
land not located near such an employment center. Both
initial development, and the redevelopment of existing
uses, are to be subject to these density criteria. Areas
designated for future residential land uses are also to be
subject to these density criteria . See Map 3-2 .
These densities are meant to express gross density levels;
as such, they provide a general indication of total
number of dwelling units in a contiguous geographic
area for the purposes of facility planning and as an
indication of the overall distribution of population and
of desired housing type (s). In certain areas, especially
in wetland and marginal soil environments, selected
densities may exceed the gross density ranges providing,
however, that assurances are made for internal circula-
tion, sufficient open space, and buffering. When the
buffering and open space areas are included with the
developed area, the overall density should be within the
gross density range.
Land Use Goals
and Objectives
The previous discussion
focused on the infrastruc-
ture requirements and the
goals / objectives required
for the maintenance of the
other functional systems . :;:;·
Goals and objectives are
identified for the land use
component in Table 3-1 .
They are specified by geo-
graphic area and by type
of land use . These goals /
objective s repre s ent
"more specific statements
as to the manner in which
the community" wishes to
develop, to organize the
predominant land uses
within the community.
They constitute a further
explanation of the spatial
patterns expressed in the
Plan Map, and are, there-
fore, a more ex plicit defini-
tion of those planning
criteria to be used in site
planning, subdivision, and
zoning/rezoning case re-
views. They are also to be
followed in the evaluation
of changes to the Plan Map
of this Comprehensive
Plan.
63
Comprehensive
Plan Element
or Sub-Element
Element: Land Use
Sub-Element :
Residential
64
TABLE 3-1
GOALS, POLICIES, OBJECTIVES: LAND PATTERNS
Goals
To develop an enforceable land use plan for
the social and economic needs of the com-
munity, consistent with the natural characteris-
tics of the area .
To develop and maintain residential c ommuni-
ties t hat provide a safe and healthful environ-
ment and are protected from incompatible
land uses and land activities.
Long Term
Objectives
Adopt and implement
Short Term
Objectives
Develop flexible and
policies and prog r ams cluster use zoning
that reduce land use con-ordinances that afford
flicts and nonconform-
ities .
Establish residentially
zoned neighborhood
should be protected
from the intrusion of in-
compatible facilities and
land uses and their
effects (noise, glare,
dust).
The reservation of land
incentives, such as
density bonuses, to
developers that provide
amenities or specialized
housing needs .
Develop and implement
acoustical standards for
multi-family construction
impacted by vehicular
noise .
Revise the Official Streets
and Highways Plan to
required for public facili-create planned internal
ties (parks and school, circulation systems for
storm drains) shall be en-sub-areas, to reduce the
couraged through the effects of vehicular infil-
use of flexible and cluster tration into predomi-
zoning . nantly stable residential
neighborhoods.
The development of Develop and implement a
passed over vacant land manual of design and
and revitilization or older,
closer-in areas shall be
encouraged as given in
the Municipal Land
Management System.
construction practices for
vacant multi-family resi-
dential areas that in-
cludes but is not limited
to flexible lot design,
landscaping, acoustical
construction practices,
and improved internal
circulation standards .
Policies
Enhance residential communities by incorporat-
ing open space, park, trail system intercon-
nections.
Future land development should incorporate
and protect natural land forms, vegetation, and
scenic vistas .
The Municipality shall ensure that open space
and public facilities are provided to enhance
the continued livability of neighborhoods
where facility deficits ex ist.
Higher residential densities should be permitted
had encouraged in areas where amenities can
be provided, where the land is suited for such
development, where access may be provided
without consistuting a hazard of overloading
residential streets, and where development can
be designed to minimize conflicts with other
uses .
The development of major public facilities
(water, sewer) should be encouraged prior to
the urbanization of large tracts of vacant. resi-
dential land .
Provision shall be made for multi-family housing
in areas close to the downtown; in clusters
around commercial, office, and public buildings;
and in areas that have convenient access to
major transportation corridors.
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
Comprehensive
Plan Element
or Sub-Element
Commercial
TABLE 3·1
GOALS, POLICIES, OBJECTIVES: LAND PATTERNS
Goals
Long Term
Objectives
The conservation of exist-
ing housing by the reha-
bilitation of substandard
units and such other
methods shall be encour-
aged, including the relo-
cation of existing struc-
tures and the conversion
of nonresidential struc-
tures to residential use,
provided such actions re-
flect planned densities
for the subject area.
The area's supply of
sound housing in stable
neighborhoods shall be
encouraged through
code enforcement,
appropriate zoning, re-
habilitation programs,
and by discouraging con-
Short Term
Objectives
Re-evaluate and amend,
as appropriate, the R-2
zoning district relative
to housing density levels,
lot size and coverage,
and other zoning
standards.
Develop community sub-
area plans that include
land use, facility, and ser-
vice recommendations.
Evaluate and develop
a series of buffering
and transitioning policies
and standards between
area of differing
residential densities.
Amend the Zoning
ordinance to include a
versions to nonresidential Master site plan review
uses.
To encourage the effective location and design Discourage the develop-
of commercial structures. ment of new strip com-
mercial areas and focus
To encourage the development of commercial future activity to create a
uses and commerical areas required to accom-more clustered pattern of
modate demographic increases commercial development.
process. This process
could involve a site plan
review procedure that
establishes densities
as a result of an
evaluation of site
characteristics and
off-site impacts.
Improve the delivery of
goods through the pre-
paration and implemen-
tation of an Urban Goods
Movement Study.
Policies
Encourage cooperation between public, private
and consumer sectors of the area's housing
market.
Subdivision and other development
reviews shall evaulate the effects of the pro-
posed project upon adjacent land uses and
shall consider mitigation measures for
secondary impacts, including but not limited
to landscaping, acoustical requirements,
internal circulation patterns, off-set drainage,
impacts, the effect upon public facilities and
services, and the need for transitional zones
and/or buffering.
Commerical development shall be concentrated
at strategic locations, rather than allowed to ex-
pand along major arterials.
In locating commercial uses, criteria shall be con-
sidered such as accessibility, existing or plan-
65
66
Comprehensive
Plan Element
or Sub-Element
TABLE 3-1
GOALS, POLICIES, OBJECTIVES: LAND PATTERNS
Goals
Long Term
Objectives
Major commercial devel-
opments shall be plan-
ned to encourage and
permit the greatest
level of accessibility
for a variety of
transportation modes,
including pedestrian
movement to and within
such developments
Develop joint commerical
industrial use districts
clustered in areas adjoin-
ing major arterials or at
areas served by rail.
Short Term
Objectives
Amend the zoning ordi-
nance to include a mixed
use commercial/industrial
zone.
Develop and implement
a commercial arterial de-
sign manual identifying
preferred site design
practices and ingress-
requirements.
Policies
ned utilities and facilities, suitability of terrain
and environment, and the location of existing or
proposed compatible or complementary uses.
Neighborhood centers shall be established with
convenience shops trading in those goods and
services required on a day-to-day basis by the
population of the immediate area.
The location and need for small commercial areas
serving neighborhoods not depicted on the Land
Use map shall be guided by the following criteria:
• Adequate current and future accessibility to
the proposed site.
• Compatibility with neighborhood develop-
ment patterns and neighborhood needs.
• Adequate public utilities and services.
• Evidence of economic need for commercial
services within the affected neighborhood.
• Utilization of buffering and other design
techniques to mitigate off-site impacts.
Commercial areas should have the following
existing or planned characteristics:
*A range of utilities and business service appro-
priate for the category of development.
*Adequate and efficient access to major trans-
portation systems without reliance on residen-
tial streets.
*Adequate transit related facilities at major
commercial centers.
*The existence of major natural or man-made
barriers or buffers that separate commercial
areas and their effects from other existing or
anticipated noncompatible land use.
*Supporting business services, which comple-
ment commercial use, should be encouraged.
Uses such as light manufacturing, construction
contracting, warehousing, wholesale distribution
u
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
Comprehensive
Plan Element
or Sub-Element
Downtown Business
District
TABLE 3·1
GOALS, POLICIES, OBJECTIVES: LAND PATTERNS
Goals
To promote the continued development of a
downtown business district having a full-range
of urban uses and activities.
Long Term
Objectives
Promote a mixture of
financial, retail, cultural,
recreational, govenment
and service-oriented
development in the CBD
and encourage more high
density residential
development in the close
to the CBD.
Develop the Central
Business District to a
Short Term
Objectives
Develop and implement
an Urban Design Plan for
the Downtown.
Implement the concepts
of pedestrian malls, tran-
sit malls, and landscape
beautification within the
Downtown.
Develop and implement
an Urban Development
human scale inter-relating Plan for the Downtown.
open space, structures
and pedestian movement,
safety and comfort.
Develop better access to
and around the DBD,
while removing through-
traffic from the internal
street system.
Policies
activities and offices shall be developed to the
extent practicable in clearly defined districts
convenient to major arterials or rail. lines. Retail
and office functions generating little traffic to or
from the district by the general public shall also
locate in these districts.
Commercial uses that generate high traffic
volumes shall be located in areas convenient to
major traffic ways, with primary access through
non-residential areas.
Encourage and maintain transit-rela~ed com-
mercial centers along designated major transit
corridors, as given in the Transportation Plan.
Encourage the preservation of historical re-
sources in the original townsite area and the
development of a historic railroad town com-
plex.
Provide a balance between transit and parking
facilities in order to maintain normal economic
growth consistent with the air quality standards
given in the Air Quality Management Plan.
Encourage the development of the downtown
as a multiple-use district, structured for the
development of entertainment, lodging, govern-
mental, and selected high-value retail functions.
The Municipality shall locate all major office func-
tions within the downtown and shall encourage
both State and Federal agencies to locate within
this area, as ~ppropriate to their functions.
67
Comprehensive
Plan Element
or Sub-Element
Industrial
68
TABLE 3-1
GOALS, POLICIES, OBJECTIVES: LAND PATTERNS
Goals
To design and locate needed industrial facil-
ties, and to encourage the development of
such facilities required to support the eco-
nomic base of the Anchorage area and related
Long Term
Objectives
To concentrate industrial
activity in areas with ap-
propriate infrastructure
and having satisfactory
natural resource and transportation activities at access.
a regional and state level.
To protect and preserve
the integrity of industrially
classified areas for indus-
trial use and related com-
plementary activities.
Short Term
Objectives Policies
Medium and high-density residential develop-
ment at the periphery of the downtown and
areas immediately adjacent to it shall be encour-
aged, especially along arterial corridors identi-
fied as potential redevelopment sectors in the
Residential Intensity Map.
Major new activity centers shall include
adequate provision for transit facilities
and parking.
To concentrate industrial activity in areas espe-
cially suited for intensive development.
Industrial areas should have the following exist-
ing or planned characteristics:
*A range of utilities and business services appro-
priate for the industry.
*Adequate and efficient access to major trans-
portation systems without reliance on residen-
tial streets.
*The existence of major natural or man-made
barriers or buffers that separate industrial areas
and their effects from other existing or antici-
pated noncompatible land use.
Supporting business services which complement
industrial use should be encouraged.
Develop and maintain single-use industrial dis-
tricts through the provision of adequate
amounts of contiguously zoned industrial land
and through necessary public facilities and
service.
Resource extraction areas adjacent to residential
areas should be confined to their present areas
of operation; all extraction areas must also even-
tually conform to the patterns identified in the
Land Use Plan map.
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3.3 LAND GUIDANCE SYSTEM
The land guidance system emphasizes the management
of urban spatial processes. It recognizes the dynamic
nature of urban growth and the need to respond to
basic economic forces. It also ackowledges the very real
impact of public decisions upon urban form and the
need to effectively organize these decisions. The land
guidance system is intended to influence the patterns of
urban forces that operate over time in order that the
spatial patterns and densities given in the Comprehen-
sive Plan can be fully realized.
The types of control measures that may be applied
under community growth management systems range
greatly in both diversity and emphasis. They vary from the
use of conventional subdivision and zoning controls to
the more innovative forms of urban services provision
and preferential land taxation. Certain of the controls
tend to be prescriptive and are expressed in a regulatory
form; others are more flexible in their application and
are oriented toward providing sufficient incentives to
redirect normal market forces. The types of methods that
are used include administrative, planning, public facility,
and timing techniques. The range and types of controls
are identified at length in the report, Municipal Land
Management System. The land guidance system recom-
mended in the Comprehensive Plan focuses upon the
use of incentives and flexible land guidance mechanisms
The intent is to strengthen the current set of regulatory
controls dealing with land development, and to orient
them increasingly to time and spatial processes.
The types of controls that are selected and later applied
are also geared to particular land development patterns.
Certain of the more inflexible regulatory mechanisms are
geared to the development of controlled forms of urban
growth. The approach recommended herein reflects
and reinforces the moderate infilling developmental
strategy expressed in the Alternative Land Use Study,
and in the Plan Map Technical analyses found that the
more restrictive land guidance mechanisms are only
necessary under very concentrated growth patterns.
Such patterns were not determined to be appropriate
at this time.
69
3.3.1 RECOMMENDED LAND GUIDANCE APPROACH
The land guidance system recommended here emphas-
izes the use of incentive mechanisms, and is geared
toward the attainment of moderate levels of in-filling
within areas of vacant land either served or about to be
served, by water and sewerage systems. This approach
provides the timing component necessary to achieve
the land use patterns of the Comprehensive Plan. See
Map 3-3.
It should be emphasized that the areas depicted on this
map are intended to represent the major areas of facility
expansion in future years. Certain smaller acreages may
not be depicted, because of cartographic scale. In these
instances, the adjacent identifiable service timing areas
should be used to indicated the appropriate phasing
period. Larger, vacant areas unidentified on this map are
not intended to receive organized sewerage and water
services. These are intended to remain as rural, low-
density of vacant areas, and are so identified, in detail, in
the Hillside Wastewater Management Plan and Wetlands
Management Plan, respectively. Of course, the other
services of (but not limited to) fire, police, and schools
must be provided to the developing rural areas of the
Anchorage Bowl as population increases. It is expected
that Stuckagain Heights will not require organized water
and sewerage services. Phasing strategies for the
southwestern Campbeii-Kiatt Bog will depend upon the
outcome of the on-going wetlands study.
Urban development is intended to occur in an orderly,
sequential fashion from the current urban periphery. In
this way, public facilities can be economically extended
and fully utilized to design capacities. It will also make
possible the more efficient provision of such urban ser-
vices as transportation, social services, and health and
educational facilities. The principal characteristics of this
strategy are the following:
• Redevelopment of areas within the Mountain View,
Downtown, and F·airview communities to realize higher
multi-family densities. The development of these densi-
ties will serve to: 1) provide sufficient multi-family hous-
ing stock for the growing multi-family market, and 2)
insure that certain environmentally sensitive areas in
south Anchorage are preserved and/or conserved in
their natural state or at conditions close to that state.
• Preservation and/or conservation of certain critical
areas in the south Anchorage area. Certain ofthese areas
include wetlands, coastal marshlands, and critical habi-
tat areas for wildlife. Development at higher urban densi-
ties in the more central areas of Anchordge will allow
certain of these environmental areas to be retained in
their natural state; this will also achieve other environ-
mental objectives as well as avoid high site preparation
costs in marginal soil areas with excessive peat over-
burdens.
• Increasing concentration of development in the south
Anchorage area. This region contains most of the deve-
lopable vacant land in the Anchorage Bowl. The growth
of this area is to be separated into near-term and far-
term planning periods.
Near-Term: Within 1-10 year period, facility develop-
ment should occur within the large, remaining vacant
tracts of land designated for development in the Land
Use Map and Residential Density Map. To the extent
practicable, services should be provided as a unit during
the same phasing period in normal design sequence.
Water, sewerage, storm drainage and the other major
infrastructure elements should be provided initially.
Demand responsive services, as schools and parks,
should be planned prior to infrastructure placement but
provided in close response to demand.
Within this time period, major new water, storm drain-
age, and sewerage facilities should be concentrated
within the following areas of south Anchorage: portions
of Sand Lake west of' Sand Lake Road, in the Abbott
Loop area between the New Seward Highway and the
Campbell Airstrip Tract; in the area of Campbeii/Taku
and Sand Lake adjacent to the Minnesota Bypass Corri-
dor, except immediately adjacent to Connor's Lake; in
the Campbeii/Kiatt area adjacent to the Minnesota
Drive-Victor Road extension projects north of O'Malley
Road (extended), and the western portions of the Hill-
side identified in the Hillside Wastewater Mangement
Plan. Development in these areas is to occur at higher
urban densities, as identified in the plan maps and, in the
areas of wetland and other environmentally sensitive
areas, preferably under versatile design approaches
involving either flexible or cluster zoning and Planning
Unit Development design. Environmentally sensitive and
important open space resources, identified in the Plan
Map, are to be retained in or near their natural state, to
the extent practicable.
The provision of other public services and facilities in the
aforementioned areas, and in the :other parts of the
Anchorage Bowl, should occur consistent with pro-
jected increases in demographic and economic growth.
Far-term: Facility provision should primarily involve an
in-filling process of the remaining vacant lands not pro-
vided services during the near-term period. Organized
sewerage services are not to be provided in areas desig-
nated as rural, low-density in the Residential Intensity
Map.
3.3.2 PACKAGING OF LAND AND G.UIDANCE
STRATEGIES
Land guidance/maraagement strategies tend to be
mutually reinforcing, and are structured to achieve par-
ticular patterns and densities of land uses. Both these
strategies and their associated policies are tied to the
ways that the community wishes to manage and develop
urban land.
The strategies identified herein create the bridge be-
tween the private and public sectors in the urban
growth process. They focus on mechanisms designed to
be flexible in approach, and are geared to a strengthen-
ing of current regulatory systems.
In order to be effective, the conceptual basis of growth
management planning must be transferred to a particu-
lar set of planning and programming actions. In general,
the Municipal growth management system is organized
about four major strategy areas:
• Timing and Phasing Strategies-General
The Comprehensive Plan is intended to provide the main
rationale for the use of growth management mecha-
nisms. This Plan specifies that the implementation tools
used to stage growth, including the Capital Improvement
Program and U~ban Development Plan, are to emphasize
the sequential provision of services at the periphery of
the existing, built-up areas. The Plan also shall establish
the timing of facility provision and provide the basis for
the sizing and siting of public services and facilities.
• Timing and Phasing Strategies-Specific
The land management system recommended herein
includes a facility timing component. The phasing of
growth in the South Anchorage area-specifically-the
areas of the western Hillside, Campbeii-Kiatt, Abbott
Loop and Campbeii-Taku-is recommended within the
next 10 yearsi thereafter services should be provided in
an infilling manner. It is also recommended that the
sewerage system be used as the key to manage the rate
and location of development. This system is wholly
within Municipal control and exerts extensive influence
over land patterns and the rates of land development.
• Site Design Improvements
These strategies are designed to improve the quality of
development and increase the number and range of
facilities to be provided within developing areas. Site
design techniques include the use of flexible/cluster
zoning, the application of land banking techniques, the
use of the "master plan" concept in site reivew, and the
requirement for the evaluation of secondary impacts
and mitigating design procedures in subdivision plat
review. These procedures do not greatly impact the
timing and location of growth, but are effective in pro-
ducing better site design. This is achieved by allowing
increased flexibility in design and preserving certain crit-
ical environmental areas from development, or by mit-
igating the impacts of such development.
• Strategies Involving Improvements to Administrative
Process
The growth management system incorporates recom-
mendations designed to improve the permitting process
for private urban development projects. These recom-
mendations are designed to enhance site desi.gn and the
rapidity of development.
The Municipal Growth Management System is intended
to provide for public involvement in land use manage-
ment decision making while providing clear and defini-
tive guidance to the development process. The proce-
dures recommended herein concentrate upon phasing
and timing strategies. They also include techniques to
improve the quality of site design and increase the
number of needed urban services when required.
Together these approaches should provide a mecha-
nism whereby development can be managed as to its
location and density in a more effective way than has
previously been the case.
The goals and objectives identified in Table 3-2 indicate
how development should occur as a process over time
and space. In a sense, then, they represent the dynamic
aspect of land use policies. They are intended to provide
guidance to decision-making on the timing and rate of
development, as well as on the location of growth.
Finally, they specify which mechanisms are to be utilized,
and how these mechanisms are to be applied to achieve
desired development patterns.
70
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Facility Phasing
Municipality of Anchorage
Anchorage Comprehensive Development Plan
1 Kilometers 2
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Comprehensive
Plan Element
or Sub-Element
Ur ban Land
Ma n agement Process
TABLE 3-2
GOALS, POLICIES, OBJECTIVES: LAND MANAGEMENT PROCESS
Goals
To develop the community in an orderly, se -
quential w ay to achieve a moderate i n-fi lling
o f vacant urban lands served or about to
be served by p u b li c facilities.
Long Term
Objectives
Short Term
Objectives
Utility installation shall be I mplement the recom-
coor dinated to achieve mendatio ns of the Muni-
savings and prevent con-cipal Land Management
flicting uti lity placement, System report, i ncluding
and to a chieve the re-the devel opment of fl ex-
commen dations of the i ble and cl uster use
Comprehensive Develop-ordinances, the prepara-
ment Plan . The utilization tion of an official map,
of existing fa cilities shall
be optimized.
To the extent practicable,
t h e costs of improve-
and a process of land
ba nking for Municipal
lands.
Develop an Urban Devel-
ment, extension, and con-opment Plan to specify
struction of publ ic facili -areas and densities of
ties sha ll be d istributed development, and the
between the private and r equisi te services for su c h
public sectors. growth, over a 1-6 yea r
planning period.
The scheduling, design,
and installation of public
fa ci lities shall be under-
ta ke n to a ch ieve desired
l and use patterns and
densities.
Adopt the cluster and
alpine slope ordinances.
Develop and impl e-
ment the ma ster plan r e-
view and land-banking
co ncepts.
Policies
The priorities for the sc heduling, d esign, and in-
stallation o f public uti lit i es shall be i n accord-
with the Comprehensive Development Plan , the
Urban Development Plan , and the Municipal
Lan d Management System.
Where dev elopment is proposed in areas be
yond the planned extensio ns of public ser-
vices, the Municipality shall carefully relate
proposed uses and d ens ities to site character-
tistics to precl ude future water pollution,
inaccessibil ity, or emergency service problems.
Minimize the ext ension of utilities through
areas w h ich are to be preserved for creation or
are defined as floodplains, hazardous l ands, or
wetlands desig nated for protection in the Wet-
lands Management Plan .
Municipal utility system shall be o nly extended
to those areas where it is economica l to provide
both sewer and water and where res idential
densities (including and greater than 3 units per
arce ) can be reasonably anticipated and accom-
modated within an entire planning com mun ity.
Utility syste ms sha ll not be extended to areas
designated for rural, low density development in
the Re side ntial Intensity Map, except to resolve
public health needs.
Where the economic exte nsion of both sewer
and water util ities is unfeasibl e and where natu-
ral site limitations exist relating to soi l s, topo-
graphy, and water, on-site sys tems and land
development practices shall be related to the
general capa city of the area to accommodate
such systems.
73
74
Comprehensive
Plan Element
or Sub-El e ment
TABLE 3-2
GOALS, POLICIES, OBJECTIVES: LAND MANAGEMENT PROCESS
Goals
Long Term
Objectives
Short Term
Objectives
Devel op a master school
facility and site l ocation
plan for the Anchorage
Municipality.
Policies
Where on-site utility systems are requi r ed and
where natural site limitations exist, community
uti lity systems and clustering of dwelling units
shall be encouraged.
Al ternative methods of treatment and d isposal
of on-site sewage shall be encou rage d w h ere
site and engineering practices are d etermined to
be satisfactory. These systems sha ll correspond
to t he r ecommendations of the Hil lside Was te-
water M angement Plan.
When utilities ar e install ed, they shall be design-
ed w ith capacity to meet th e p l an ned land use
intensities give n in the Residential intensity Map.
Desig n capacities sh all not exceed the holding
ca pacities identified in th is Map.
Where practicable, utili t ies shall only be pro-
vided as extensions from build-up areas or to
undevel oped lands w here the extensi on is con-
sistent w i th the staging recommendations of the
Comprehensive Plan and Urban Development
Plan.
Land u se decisions and o ther ac ti ons by the
Municipal ity sha ll co nsider the need for and
effective l ocation of school faci lities
and educatio nal services. Thes e r equir ements
sha ll be reflect ed in zoning and subdivision
p la t reviews, and in all adopted stu dies and
p lans of the Mun ici pality.
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4.1 INTRODUCTION
The purpose of comprehensive planning is, of course, to
affect the patterns and densities of land development.
The traditional planning focus has been on physical
development patterns, as identified 20-25 years in the
future. But increasingly, planning has been concerned
with the means by which development decisions can be
influenced over time in order to manage the process of
urban growth to achieve desired patterns of land use .
This section identifies the implementation measures
which will carry out the recommendations of the Com-
prehensive Plan , as well as identify the relationship
intended to exist between this Plan and other programs
and activities. The Plan should not be viewed as a device
for limiting the further development of the Anchorage
Bowl, but, rather, as a mechanism to ensure its enhance-
ment as they are continues to grow. Both the design of
the implementation measures and the adoption of this
Plan will depend heavily upon the involvement and sup-
port of the Anchorage community.
4.2 LAND USE IMPLEMENTATION MECH-
ANISMS: LAND USE PATTERNS
The mechanisms used to achieve the patterns and den-
sities of land uses given in the Comprehensive Plan focus
upon the traditional methods of subdivision and zoning
review, as well as the newer forms of innovative zoning
and performance controls that strongly affect land
development. These patterns are also controlled, to a
very large degree, b y the strategies associated with the
land guidance system described in Chapter Three.
4.2.1 THE PLAN MAP
The Plan Map is adopted to supplement and explain the
written text of this Plan and to establish a rational guide
for the future application of land use regulations.
• Land Use Classification Map
Form and Purpose: The Land Use Classification Map iden-
tifies those areas which, on the basis of the entire Com-
prehensive Plan, are best suited for the functional classi-
fications indicated. The Map further identifies those
ar eas, regardless of classification, which should be gov-
erned by more flexible regulation . The functional cate-
gories neither affect current zoning regulations nor
place additional regulations on specific property.
Further land use regulation decisio ns such as rezoning,
subd ivision and special exceptions, must conform to the
indicated functional categories in the absence of excep-
tional circumstances. Exceptio ns could be recognized
where existing uses are co mpatibly integrated into the
area or where future us es could comply as compatible
land uses b y meeting appropriate standards pertaining
to access, noise, landscaping, screening, structural, or
other improvements required by circumstances (see
Map 3-1).
CHAPTER FOUR
PLAN IMPLEMENTATION
• Residential Intensity Map
Form and Purpose : The Residential Land Use Intensity
Map depicts generally desirable densities or intensities
of future residential development. Th e Reside ntial Inten-
sity Map will not affect current zoning regulations nor will
it place additional regulations on specific property.
Future land use decisions must conform to the indicated
intensity except in those circumstances where a greater
specific intensity would not alter the plan for the area .
Unless there is a clear and overriding benefit to the
immediate neighborhood, densities l ower than those
indicated on the Plan Map are to be stro ngly discour-
aged since they affect the implied balanced distribution
of residential, commercial, and industrial land use s given
in Map 3-1.
75
Development at su c h l ower densities must establish a
strong factual basis for such change an d must demon-
strate that no re3sonable alternative exists to the pro-
posed action . Somewhat greater intensity may be pro-
vided through p l anned un it developments, the use of
the proposed cluster or flexible use zoning ordinances,
o r near establ ish ed high-density nodes or in areas im-
mediately adjacent to suc h nodes where the rezoning
process determin es that these densities are consistent
with the overall intent of concentrated housing at a focal
location. Likewise, greater density may be suitable
around neighborh ood shopping centers or along prin-
cipal transit corr idors. (See Map 3.2)
The Comprehensive Plan Map provides guidelines for
land use decisions. Because the Map represents a sum-
mary of a ll the written data and policies o utlined in the
Comprehensive Plan report, it is necessari ly generalized.
Since generalization is requisite, the exact boundari es
are subject to interpretation. Areas c learly within any
particular classification should be treated as indicated.
Areas at or near the boun daries may be analyzed under
either or both classifications, utilizing the goals and
objecti ves contained in the text, provided that the
imprecision of the boundaries is not used as a basis for
cumulative encroachment. Ultimately, these Compre-
hensive Plan Maps must be precisely defined and i mple-
mented through l and use regulation, ordinances, and
the preparation of sub-area lan d use plans.
4.3 ADOPTION OF CERTAIN ADDITIONAL
ELEMENTS AS PART OF THE COMPRE-
HENSIVE DEVELOPMENT PLAN
Certain studies are essential to imple me ntation of the
Comprehensive Plan , since they both affect and support
the location and densities of devel opment. The fo ll ow-
ing studi es are adopted by reference as part of the
Comprehensive De velopment Plan:
Coastal Zone Ma n agement Plan
Street and Highway Landscape Plan
Long Range Element of the Transportation Plan (AMATS)
Areawide Trails Plan
Water Quality Management Plan
Comprehensive Library Services and Facilities Plan
Official Streets and Highway Plan
Wetlands Management Plan
Hillside Wastewater Management Plan
76
These plan elements should be considered as expan-
sions of the Comprehensive Development Plan and the
Plan Map.
4.4 URBAN DEVELOPMENT PLAN
Th e long-range land u se plan has a number of va lid
objectives, some of which can only be addressed by
resolving general, complex development issues. Certain
of these functions include the allocation of land to their
more suitable uses; the promotion of economic effi-
ciency by coordinating the size and location of public
facilities; and the development of a unified, large-sca le
urban design. Nonetheless, it is increasingly evident that
long-range planning is an inadequate guide to current
decisions. Because of this, greater regard must be given
to short-term programming and to the impact assess-
ment of actions designed to solve present land use
problems. Increased attention to the short-range pro-
gramming of actions should also enhance the likelihood
of achieving the long-range objectives in the 20 to 25
year land use plan. Accordingly, the future Municipal
p lannin g program shal l include a short-range 1-6 year
land devel opment plan, and, as the basis for the budget
process, a one-year plan of improvements.
The Urban Development Plan is to concentrate on a
program of specific short-term actions to be undertaken
in a stated sequence, within stated time limi ts, and by
specific units of l ocal government. It is to be based on
specific targets or objectives derived from the Compre-
hensive Plan and Municipal Land Management System,
and is to i nclude an analysis of financial impa ct and
feasibility. The Planning Department is to be responsibl e
for the development and maintenance of the Urban
Development Plan . This Plan shall be reviewed by the
Planning Commission and Assembly.
4.5 RELATIONSHIP OF COMPREHENSIVE
DEVELOPMENT PLAN TO MAJOR
PLANNING PROGRAMS AND
ACTIVITIES
The Comprehensive Development Plan is supported and
implemented by studies and programs that deal with
urban services, urban facilities, and the process of urban
development. Because these studies are central to plan
implementation, the relationships between and among
these stud ies are identified below. The intention is to
describe the purpose of the individual studies in impl e -
menting the Comprehensive Plan and the role that the
Plan p l ays in forming the ge neral structure and focus of
these studies and programs.
4.5.1 URBAN DEVELOPMENT PLAN
The Urban Development Plan is intended to be the short-
range component of the Comprehensive Plan. It shall
identify the principal areas of urban development, the
areas to receive major urban services, and the mechan-
isms to be used by the Municipality in guiding urban
development over the short term ( 1-6 years ). The Com-
prehensive Development Plan is designed to provide the
long range focus of the Urban Development Plan (UDP),
and it is intended that a strong interrelationship exist
between the short-range solutions of the UDP and the
long-range strategies of the Comprehensive Develop-
ment Plan.
4.5 .2 MUNICIPAL CAPITAL IMPROVEMENT PROGRAM
The Municipal Capital Improvement Program shall specify
the public faci lities necessary to the i mplementation of
the Comprehensive Development Plan. The Capital Im-
provement Program (CIP) is also to be directly tied to the
Urban Development Plan . The latter identifies the areas
to receive urban services by given time periods. The
Comprehensive Development Plan is designed to iden-
tify the general areas of urban development, and the
Capital Improvement Program sha ll schedule those facili-
ties and services necessary to the support of l and pat-
terns at the times specified in the Urban Development
Plan.
4.5.3 MUNICIPAL LAND MANAGEMENT SYSTEM
The Municipal Land Management System shall ge nerally
specify the areas and time periods for which develop-
ment is to be encouraged. This report provides the
rationale for the phasing strategies recommended
herein and describes in detail the methods to be used in
achieving this strategy. The so uth Anchorage area is
intended to receive the majority of new services. There
shall be both near-term and long-term strategies to the
0
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RELATIONSHIP BETWEEN FUNCTIONAL PLANS AND COMPREHENSIVE PLAN
Environmental
Plans
Coastal Zone
Management Pl an
Wetla nds Man agement Pl an
Co asta l Access Trai l Pla n
Water Quality
Management Plan
Wetl and M anagement Pl an
Hil lside Wastewater
Man agement Plan
Comprehensive
Plan
Transportation
Long Range
Element -
Areawide Trails
Plans
Transp ortat ion -
Sys tem Management
Ele ment
Street & Highway
Landscaping Plan
I Official Streets and
Highway Plan
Pub l ic Facili ties
Areawide Tra ils Plan
Comprehensive Library
'--
Service and Fa cilities Plan
Areawide Parks -O p en Sp ace Plan
Water Supply Study
77
provision of urba n serv ices. The Comprehensive Devel-
opment Plan is to provide the overall rationale for the
timi ng and devel opment of t hose densi ties t o be
achieved at given time periods. Th e land gu i dance sys -
tem i dentified in the Munici pa l Land Management Sys-
tem shall be compatibl e with t h e timing and urban den-
sity rec ommendations containe d herein.
Rece nt planning theory has stressed the need to de-
velop short-range i mpleme ntati on projects and pro-
grams to implement the long-range recommendations of
the Co mprehensive Plan . Pre vious com prehensive plan-
ning effo rts in other communities, as well as those of
A n ch orage, have resu lted i n less than o ptima l near-term
so lutions for land uses an d densities because of the
long-range o r ie ntatio n of comprehensive plans. Th e pre-
vi o usly mentioned short-range me c hanisms, incl u ding
the Municipal Land Management System, Urban Devel-
opment Pr ogram, an d Municipal Capital Im prove me nt
p r ogra m, should have t he effect of, and are i ntende d to
p r ovi de, mechani sms to rela t e the Comprehensive Plan
to short-range decis i on ma ki ng. Th ese strategies are
therefore intended to i mplement, i n a d i rect and clear
way, the recommendations of the l o n g-range Compre-
hensive Plan .
4.6 PROCEDURAL LAND USE IMPLEMEN·
TATION MECHANISMS
Ce rtain programs ad min istered b y the Municipality has
an important affect upon the p rocesses of urban growth.
Included in this type are t he Coastal Zone Management
Program and the admi nistration of r ecentl y selected
State lands. Be cause o f the ir actual and potential impact,
th ei r re la tionship t o the Comprehensive Pl an is de-
sc ribed:
4.6.1 COASTAL ZONE MANAGEMENT PLAN
Th is program provides a fr amew ork for decision-maki ng
w ithin the coasta l zone on both natu ral and manmade
fe atures. It is intended that t he l an d use recommenda-
tions contained In this Plan are to be an expression o f the
p reservation, conserv ation, and utilization areas with i n
the developed porti o ns of the A nch orage Bow l and are
to represe nt the r eso lution of the zones initiall y i denti-
fied as "marg inal" and "confl ict " withi n the Coastal Zone
78
Management boundary. It is further i nte nded that the
spatial patterns given i n the Land Use Map and its asso-
ci ated goals and polici es are to guide the management
of an d d ecision-making process es on lands withi n t he
j urisdiction o f the Coastal Zon e Manag ement Plan .
4 .6.2 MUNICIPAL LAND SELECTION
The Municipal En titlement A ct prov id es for the se lection
of certai n State lands w ithin the corporate bo u ndari es
of t he Mun ici pality. The Municipality has f iled upon, and
r eceived from the State, various tracts of la nd through-
out the Municipality. Much of this la nd re ma ins vaca nt
and ava ilable for a vari ety o f potenti al uses. It is intended
that the u l t i mate use o f M unicipal selecti on l an d s be
consistent with this Plan and oth er approved planning
docume nts. To fu rth er such consi stency, the Municipality
has devel oped a systematic l and management program
w ith th e following key e l ements:
• Muni cipality owned la n d s presently required f or spe-
cific public uses wi ll be r eserved for such uses in accor-
dance with Munic ipal regulations.
4 .6 .3 WETLANDS MANAGEMENT PLAN
This Plan designates ar eas of wetlands protection, con-
servatio n, and development. It also establis hes the
proper mi x and t ype of la n d manageme nt co ntrols to be
used in the p rotection or development of these critical
envir o nmental areas. It is i nte nded that the land u se and
reside ntial i ntensity recommendati ons o f this Plan are t o
control the use and mana ge ment of wetlands withi n the
Anc horage Bowl. By inference, both the Coasta l Zone
and Water Quality Management Plans are to be consist-
ent with the land use policies of this Plan to the ext e nt
that they relate to wetlands.
• Municipally owned la nds
requ ir ed for specific, fu-
ture public uses will be
cla ssified and reserve d for
such u ses.
~,~E!!&i~
• Ad d itional la nds wi ll be
r eserved, primarily on a
r egional basis, for unspeci-
fied future public uses .
• Lands not requ i red for
present or future public
use w ill be consid ered for
d is p osal, consistent wi th
applicabl e lan d u se r egu-
lations.
Adopted land manage-
ment policies and identi-
fied land u ses will, to the
ma ximum extent pos-
sible, fu rther the goal s
and objectiives of this
Plan .
r
0
4.7 LAND USE IMPLEMEN TATI O N: PRO-
CESS MECHANISMS
As indicated, the success of the community to realize its
desired land use patterns will greatly depend upon our
ability to guide and manage urban growth. The basis for
growth management planning, as recommended in this
Plan, is to focus on the strengthening of current land
control ordinances, the use of ince ntives to he l p guide
growth, and t h rou gh the schedu l ing of sewerage facili -
ties . This last compone nt is critical to gu iding the rate,
density, and pattern of urban growth. It shall be Munici-
pal policy to implement a growth management process
of the type given in the Urban Dev elopment Patterns and
Process Se ction of this Plan . These mechanisms are des-
cribed at length in the Munici p al Land Management
Sy stem report.
4.8 PLAN REVIEW PROCESS
Th is plan is i ntended to represent a broad policy toward
land dev elopment and management within the Anchor-
age Bowl. As such, it w as developed around a given set
of community attitudes, and demographic data and
trends. It is certain that these attitudes and trends will
change over time. For this reason it is necessary to estab-
lish a process for p lan review and reevaluation . Beca use
this review need not nec essari ly result in the co mp l ete
revisio n of this Pl an, three l eve l s of review are identified:
• Plan Reevaluation. A reevaluation of the major trends
and/or policies of the Anchorage Comprehensive Plan
must occur five years from the time of its ini tial adoption.
If major deviat ions from those anticipated in the init i al
Plan are not i dentified, a com plete revision of the Plan is
not required . If major discrepancies are noted in this
reevaluation, a revision of the Plan is warranted and shall
be initiated.
• Plan Rev ision. The Plan must be reviewed and revised at
least once every ten years, preferably following the
decennial Census .
• Plan Review. The plan sha ll be reviewed once every
two years from its time of adopti on i n order to make it
c onsi stent with economic and demographic trends and
with recent l and use decisions and adopted studies and
plans, and such other decisions as may be appropriate at
the time of review.
It is intended that the adoption of this Plan will indicate
that the abov e processes are to be followe d in study
reeva luation in order to ensure that the basis framework
for decision-maki ng re mai ns cu rr ent. The ana lytic pro-
c ess use d to develop t his Pl an invol ved an inventory of
land availability and a forecast of land demand. It identi-
fied a potenti ally serious shortfall of res•dential land
supply i n the 1990-2000 period. Because of the possible
magnitude of this problem, it is recomme nded that
future plan reviews critically examine the characteristics
of the projected land supply-land demand relationship,
to determine if the recommendations con tinued herein
remain va l id or should be changed. It is further recom-
mended that this review ana lyze additions to the
Anch orage Bowl l and supply, to incl ude adjacen t mi litary
l ands and lands north of the Kn ik Arm.
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