1968-09-11 Regular MeetingKODIAK ISLAND BOROUGH
PLANNING & ZONIErG COMMIISSION MEETING - September 11, 1968
I CATS, TO ORDER
.Lhe meeting was called to order at 7.35 p.m. by Chairman John Waller in the
Courtroom of the Nev State Office Building, Kodiak, Alaska.
II ROLL CALL
Present Absent
John Waller, Chairman Harry Wallace
Ernie Brothers
Wilda Gellis
r Ed Haney
John Welch
Also present. Sam Best, Borough Chairman, Assemblywomen Jo Hajdu and Betty
Springhill; Assemblymen Don Arndt, Jim Barr, Don Bullod:;
Mayor Pete Deveau; Bob Summers, Assistant City Engineer;
Ivor Schott, Supt. of Schools; Harry Carter, Seafood
Sanitarian; Comprehensive Planning Ccmmrittee Members Dick
Berg, Ole Johnson, Frank Peterson, Doris Simon, and
approximately 15 people in the audience.
III NIIRVES OF PREVIOUS MEETING - 8/28/68
Mr.
A. Assembly
seconded by Mr. Welch, that the minutes be accepted as
1. Special Meeting - 8/29-30/68 -- Not yet completed
2. Regular fleeting - 9/5/68 - Not yet completed
v COMMUNICATIONS AND CORRESPZNDE= - None
KIBS272602
A. Rezoning Allman Addition, Blk 2, Lots 22-25, fron R-1, and
that the rezoning be approved. The meeting was recessed and public hearing
opened. Mr. Garoutte objected to the rezoning, since his hone is in the area.
Mr. Morton objected to the rezoning and to the high rate of taxes in Kodiak.
He also objected to individuals working on the Borough Staff who do not own
property in Kodiak. Mr. Dean asked for an explanation of the rezoning. Mr.
Waller explained that Mr. Chase had requested that his lots be zoned business,
and in order to make this rezoning an expansion of the Mill Bay Road business
area, rather than just a spot rezoning, the Cannission, on its own initiative,
had added the other lots to the rezoning. The question was raised as to whether
such a rezoning would liquidate the residential area. It was explained that
if the area were zoned business, homes could not be rebuilt or added onto. An
individual in the audience thought that this was harsh for people who have
lived in the area for many years. Another gentlemen felt that the rezoning
would make the land more valuable, but would provide no other advantages and
would only cause an increase in taxes. Another commented that more and more
land is being zoned for business, but no advantages are going with it such as
water and sewer lines. The rezoning procedure was questioned. Mrs. Hajdu
explained that if a certain percentage of protests are received from people in
the area, the Assembly would have to vote unanimously in favor of the rezoning
in order to pass it, after the P&Z Commission had recommended it to the Assembly.
r After further discussion, the hearing was closed and meeting reconvened. The
Comnnission felt that the lots in the area were too small for business zoning,
and that proper parking could not be provided. Motion failed by unanimous
roll call vote.
B. Phase I of the Borough Comprehensive Plan, Specifically the 1999 Land Use Plan.
Mr. Frank Nyman of T'ryck, Ili and Hayes, corrmented on the Plan which his
firm is preparing for the Borough. He stated that the Plan should consist of
the desires of the community for itself. In preparing the plan, it was
discovered that there vras a basic need for projection of growth, and this
projection is optimistic. Kodiak is located in some of the best fishing grounds
in Alaska. Many experts are predicting the great potential of the Continental
Shelf, especially for production of protein requirements. The firm has worked
diligently toward making the Plan Kodiak's own plan for itself. He said that
PLANNING & ZONIM. COfIMSION rZETING - September 11, 1968 2
the audience at this meeting was the best response they had had so far. ir.
Nyman said that he realizes that Kodiak carries vestiges of being one of the
last frontier areas, and that everyone hates to think of having a harness such
as a Comprehensive Plan, since many people come to Alaska to get away from
this very thing. However, he feels that without planning, Alaska is liable to
end up with the same problems that many people left the Lower Forty -Eight to
avoid. If the community cones up with ideas that are better than those put
forth in the Plan, it can be changed and the community can proceed in that
direction. But it is important to have sane frame of reference from which to
work.
Imo. John Chapman outlined the land use plan, which covers the Kodiak urban area.
He explained that this is not a zoning plan, but rather a future land use plan
which indicates the desirable goals for the community in 20 or 30 years. It
would be used as a guide when the ocmuni.ty considers changes in the present
zoning map. After 5 years it would have to be updated to ificorporate any
changes that have occurred in the community. The comtmmity should sincerely
feel that the land use plan is a desirable goal. The plan should not be
considered inflexible, and these projected changes will not occur immediately,
but rather over a long period of time.
1. Business Areas. Since the present business area is off to one end of
Kodiak, there will be more business areas in outlying areas later on than
in most cities. However, experience has sham that it is wise to make
business areas compact. If people are able to park and shop without havin§
to move their car, it encourages the sharing of customers between stores.
This encourages stores to specialize in certain items, and to provide
better variety, and better prices, which causes people to shop locally
instead of by catalogue. There is less chance for stores outside the City
to share customers. This is why it is important that the outside -of -city
business areas be compact. Tryck, Nyman & hayes is recommending that the
City encourage all of the outlying businesses to locate in one spot if at
all possible, and that the area be near major streets. Two miles from
downtown is an ideal location. If it were closer to town, people would
shop downtawn instead. Also, it would he inconvenient for those people
living on the opposite fringes of town. The 1999 plan shows 20 acres of
land zoned business. It is comprised of the area of the proposed Island
r — Bay Subdivision, at the corner of Mill Bay Road and the Cutoff Road, which
is now zoned Business, along with additional acreage in that area. This
is contrary to the way development has been progressing along :7i.11 Bay
Road. However, Tryck, Nyman & Mayes feel that the prime area for business
development would be the proposed area, and that the businesses located in
other areas outside the city would not be able to compete with those which
locate in the prime area. It is also felt thatadditional parking space
will have to be provided for the downtown business area in the future.
2. Industrial Areas. Based on previous growth of the fish processors, it is
predicted that 230% more land will be needed for cannery sites in 1999.
A 250% increase in light industrial area is predicted. Gibson Cove has
been suggested for marine oriented industry other than processors. Cannery
raw, the north side of ileac Island, and all of Uski Island have been
suggested for cannery sites. The East end of Near Island is suggested for
a small boat harbor and fishermen's warehouse. Construction of a bridge
to Near Island is predicted by 1999, probably preceded by a ferry, since
a bridge would have to be justified by traffic counts. The area beyond
the present commercial dry dock at Tidoman's Bay, now part of the Naval Base
Reserve, is suggested as another possible future cannery site. It is felt
that further development of canneries along the north side of the channel
should not be encouraged, since it interferes with the residential land
nearby, as well as the proposed Baranov Mansion National Park. This area
is suggested instead for light industrial use, The area next to the present
r- City Dock is suggested for heavy storage, fuel storage, and expansion of
the dock. 80 acres is the area now occupied by the airstrip in tam is
proposed for light industrial use. It is suggested that the City join with
the airlines and obtain permission to use the Naval Base airport, since
FAA will not provide funds for the expansion of the present in -town airport.
However, if the airstrip is not re -located, Bells Flats between Sargent
Creek and the highway is suggested for a light industrial area.
3. Low Density Residential Areas. The areas at Island Lake, 1�bnashka Bay,
and Spruce Cape are na! shown as low density areas. The problem
will be to get utilities into these areas, since the cost is four times
that for higher density areas, and the soil in Kodiak is not suited to
septic tanks and wells. The only reasonable outlook is that some of
these areas will bave to be re -subdivided so that utilities can be
KIBS272603
PLAIN= & ZONING COI•T•7ISSION LEETING - September 11, 1968 3
provided feasibly. Trost of the remaining low density areas will then be
in the Monash]ca Bay area. Suggested re -subdivision schemes have been
included in the Plan. There are a few areas in Bells Flats for which the
soil might allow septic tanks and wells. In this case, large lots are
acceptable and desirable, and their size should be based on septic tank
capability.
4. ?7edium Density Areas. These areas by definition are the same as the present
R-3 areas. One area recommended for medium density use is the area along
the base of Pillar Hountain, from Aleutian Homes through the low -rent
housing, and on to the northeast. This area is convenient to town and
is so steep that any other type of building would not be feasible. A part
r` of Leite Addition between Potatopatch Lake and the Channel is also recaurended
for medium density housing. It is one of the few areas in which higher
buildings could be constructed without destroying the view from dwellings
behind it. This area is conceived as a high -quality area. An additional
medium density area is reconsended near the proposed shopping area in the
Island Bay Subdivision.
5. Trailer Parks. Ten to twenty percent of the population in Alaskan cities
today live in trailers. They are generally regarded with disfavor, since
no provision has been made for them in zoning ordinances, they have been
pushed into the outside areas, and have not been subjected to proper
controls. However, trailers are here to stay and provide adequate and
low cost housing. Tryek, Nyman & Hayes feels that well -managed and
properly laid out courts are a definite asset to a community. The areas
proposed for trailer parks are U.S. Surveys 3233, 3099, 3512 (First Addition
to Fadiak Subdivision), part of USS 1682, and the portions of USS 3101 and
3100 on the north side of Spruce Cape Road. Suggested controls for trailer
parks are. 1) adequate land, 2) proper site plan and street layout, 3)
proper construction and maintenance of utilities, 4) sufficient recreation
for children, 5) 1-1/2 parking spaces per unit, 6) adequate surface drainage,
7) adequate laundry facilities, 8) screens provided between the park and
adjoining residential areas, and 9) good management.
6. Areas Designated for Public Use.
a) a central school complex of 80 acres from the present ACS site to
loth Avenue, containing the Vocational School, high school, Armory,
eleatrtary school, a community college and junior college.
b) a Civic Center for Borough, City, and State offices, an auditorium,
and police and fire stations, located where the present City Hall is,
and containing additional acres than the site now contains.
c) Baranov Mansion National Park, including the Russian Church and old
Russian dock site.
d) the water supply reserve north of the City to prevent contamination of
the water.
e) the sanitary fill site in the ".,onashka Bay area. KIBS272604
f) the Spruce Cape LORAN Station area. Projections indicate that this
area will not be needed for any other purpose by 1999. It is a good
location for development of institutions, such as the Marine Institute.
g) an elementary school in the Mill Bay area. One and possibly two more
elementary schools will be needed by 1999, in addition to East Elementary
and the one in the Central School Complex. The school site and tL%?o
playground areas in the Mcnashka Bay Subdivision, already reserved by
r— the Borough, are recommended for these uses. Ideally, the schools
should not be located over 1/2 mile from their most distant students.
h) the drainage area along Mill Creek from Island Lake will make an ideal
public park after the pollution has been removed from Island Lake.
i) the proposed sewage treatment plant site on Spruce Cape Road, including
the area now set aside for a Borough camper park, and a portion of
USS 3100. Studies which have been conducted indicate this is the best
site, but further studies may indicate a better location.
j) the area between Mission Lake and the Channel is proposed for a
recreation area if it can be obtained at a reasonable price. This is
the only land which could be used as a part: on the sea coast, and to
which people could walk.
PIM-KING & ZONIYG MHISSION DJEETING -- September 11, 1968 4
k) a 40-acre site north of the East Elementary School for a junior high school.
1) the following areas are recommended for park, recreation or playground
areas:
North side of Potato Patch Lake - recreation
Dry lake bed in East Addition - playground
Area between industrial and residential zones on Tagura Road - park
Beach southwest of Gibson Cove - recreation area
Boy Strout area - park
m) Near Island - the southern end of the island is proposed for the Marine
r'- institute or a recreation area. There should also be public buffer
zones between the industrial and residential areas on the island, if
the center area is used for residential purposes.
Mr. Johnson asked if additional boat harbor space had been provided for. Mr.
Chapman replied that the Corps of Engineers' proposal for a breakwater to be
constructed from the end of Near Island to Gibson Cove had been recommended.
But since that would be several years in the future, the City's proposal for
a harbor and fishermen's warehouse at the east end of Near Island should be
encouraged.
An objection was raised to the Base airport being used by the City of Kodiak,
since it does not have FAA approval either.
it was felt that the part of the Plan which would be implemented first would
be the water supply. Mr. Nyman pointed out that many communities have had to
tear out utility installations and re -construct them due to lack of planning.
Also, a Plan is absolutely necessary in order to obtain Federal funds. Obtain-
ment of immediate goals should be aided by planning ahead.
Mr. Chandler felt that the Plan was being too optimistic in its population
projection, and pointed out the fact that crab may be running out. Mr. Nyman
replied that experts have predicted the tremendous potential of the Continental
Shelf, including a broad range in fish species, if it is managed wisely.
r An objection was raised to people being imported from outside of Alaska to
work here, when Alaskans should he the ones who are employed. Mr. Nyman agreed
that if outsiders are imported, only five to ten percent of their income stays
in Alaska. He suggested that planning ahead is one way of learning how to
get people to stay and develop industries here.
it was pointed out that if Phase I is approved, the land use plan will be
official until it is changed, and the P&Z Camassion would consider it as
a guide. Par. Arndt did not feel that the oomrunity could live udth the land
use plan. Mr. Waller felt that the previous 1980 Plan had been used as a
crutch to oppose rezonings. Mrs. Hajdu agreed, and felt that the new Plan
would be similarly used, and therefore should be a plan that meets the needs
of the community. Mr. Arndt stated that the reason he had cone to Alaska in
the first place was to get away from the regimentation of a Plan such as this.
Mayor Deveau stated that the City would have a hard time catching up on
installation of utilities for the areas now in the city. It will probably take
from 5 to 10 years to accomplish this. Sane people are being forced out now
because their taxes are running $100 a month, and the community is going to be
faced with tightening their belts and doing without some things. P1r. Nyman
stated that they are not advocating immediate improvements, and that it is
mentioned in the plan that it will be difficult to accomplish all that needs to
be done. But he gave an example of the necessity for planning ahead --the day
after the Plan was begun, the Borough Clerk asked what size the new hospital
r water main should be.
Ar. Carter asked how people in low density areas would be able to re -subdivide,
since they probably would not be served by utilities, and utilities are required
under the Subdivision Ordinance. He did not feel that people in the outlying
areas would want to form service districts. Mr. Nyman urged logical development
of the community, from the areas now populated, and working outward, but stated
that people disagree with this method and communities usually end up with an
urban sprawl.
Mrs. Springhill felt that if the tax burden were equalized, the Plan would make
more sense to the people, but all they can think of right now is how high their
taxes are. Mr. Nyman said that the problem of champagne appetites and beer
pocketbooks is not unique to Kodiak, but is found in every community. He said
KIBS272605
PLANNING & ZONING CG24ISSION MEETING - Septemter 11, 1968 5
that in the financial section of the plan, it will be recommended that at
least a portion of the costs of utility installation be assessed to the
areas served.
Mfrs. hajdu agreed with the necessity for equalization of taxes. She also felt
that one of the reasons for the high taxes is because of lack of planning in
the past. People have paid once for installation of their own utilities, and
are now having to pay again through assessment. Also, utilities have been
installed which are not adequate, and more money will have to be spent correcting
them. She stated that the Plan is also necessary to obtain Federal funding.
However, she suggested that it be kept flexible and not used as a rigid law.
?Iaycr Deveau stated that the Plan should be accepted as it is, and amended as
changes are found to be necessary, since Kodiak can't afford not to obtain
Federal matching funds for improvements.
Mir. Barr stated that he did not like to think of the Plan as completely
flexible. He felt that it should be considered Kodiak's goal, and should be
studied now and given thought, so that it will be as nearly correct as
possible. He felt that Kodiak should choose directions in which they wish
to go, and then everyone should push together in these directions. fie felt
that the lack of coordination in the past has caused the State and Federal
government to overlook Kodiak for funding. He felt that personal desires
would have to be submerged in order to make a unified stand. Iie suggested
that those who wished to be isolationists would have to move further away, and
that everyone who is part of the community will have to work together.
The hearing was closed and meeting reconvened. Mr. fianey moved, seconded by
Ar. Brothers, that it be recommended to the Assembly that the Plan as present
iy Tryck, Nyman and Hayes be accepted. Motion carried by unanimous roll cal:
VII ZONIM ITEMS, PRELIMNARY REVIEW - None
VTII SUBDIVISIONS, PRELIMINARY
A. Request for Extension of Deadline for Filing Final Plat - Holland Acres
Subdivision - Argo Corp. (172•-A). Mr. Brothers pointed out that this would be
r ' the third extension for this plat. Mr. Best felt that it was in the Borough's
interest to keep preliminary plats alive, since it is a way of making the
subdivider live up to the plat. Otherwise, it could be changed at will from
the original plat. He felt that the deadline should be extended indefinitely.
After some discussion, Mr. Haney moved, seconded by Mr. Welch, that the deadline
for filing the final plat be extended fnr 12 mnntha _ Nnr;n„ tea,- i=A h.,
B. Request for Revision. of Lotting for Bells Flats, Alaska Subdivision - State
Division of Lands. The letter from the State was read, su9gesting that thn
tracts of land along the water be added in order for the Borough to retain
them for public lands. Also, another road was found usable and extra lots
on the ridge between Russian Creek and Middle Bay Road were suggested. Mr.
Best felt that these are reasonable changes. They have been discussed with
Mr. Barr. Mr. Haney moved, seconded by Mr. Welch, that the logical plan of
Mr. Best and Mr. Barr be accepted. Motion carried by unanimous roll call w
IX SUBDIVISIONS, FINAL - None
X OLD BUSINESS - None
XI PIANNIDZ & STAFF IT114S - None
XII AUDIENCE COMMENTS
r--
A. Mr. Nyman re Printing of Phase I. Mr. Nyman asked if the Assembly could give
him approval to print Phase I. He stated that he needed this answer as soon
as possible. He suggested that the printing be accomplished, and addendums
could then be added later. They are obligated under the contract to print 100
copies. 14r. Best did not yet have the number of copies required by ASHA, and
felt that there will be a great demand for copies. He asked if 200 copies
could be printed now, and additional copies later on. Mr. Nyman explained that.
there would be little additional cost for more copies on one run, but that an
additional run later would be very expensive. Mr. Barr suggested that an extra
100 copies be made of the land use plan. Mr. Nyman suggested that 50 be made
for the Dorough and 50 for the City, and that a charge be made for them to the
public. B1rs. Hajdu cemiented that even if Phase I is approved, the proposed
zoning map and new zoning ordinance should not be approved.
XIII AWGURNIOU - The meeting adjourned at 10e20 p.m. KIBS272606
Respectfully'
7s tted
v� / 9l/ CJa/cX�e -'-� Secretary
