YSEALI PFP 2022: City of Cheyenne Planning and Development Department

Fellowship Report

City of Cheyenne Planning and Development Department

19th September- 14th October 2022

Young Southeast Asian Leadership Initiative (YSEALI) Professional Fellowship Program (PFP)

Aditya Purnomo Aji - Indonesia Urban Planner and Researcher

It has been a great honor to be part of the Young Southeast Asian Leaders Initiative (YSEALI) Professional Fellow Program. The program aims to strengthen ties between the United States and Southeast Asia. Professional Fellows Program allows me to spend four weeks working directly with U.S. counterparts. My fellowship aims to learn more about Public Participation in Planning and Policymaking Processes.

Thank you to the Cheyenne Planning and Development Department for having me. The program allowed me to learn more about the development planning dynamics of Cheyenne. Also, many gratitude to Charles Bloom, who has been a wonderful host and allowed me to shadowed in many of the department’s works.

This report aims to be a knowledge-sharing material for the Governance Institute Themes, YSEALI Alumni, and others who are interested. Hopefully, anyone who reads this can catch a glimpse of my fellowship experience.

Here’s to more impactful opportunities ahead!

Best regards,

Aditya Purnomo Aji

City of Cheyenne

Planning and Development Department Overview

The Planning Department is responsible for overseeing and guiding development activities in the City of Cheyenne. Major activities include administration of development regulations, assistance to the public, and processing City permit applications. Annually the Department Processes over 1,500 development applications. The Department strives to provide everyone with professional and courteous service in a fair and timely manner.

Planning and Development Department Overview

To manage growth and change and support economic development in a way that preserves and enhances the qualities that make Cheyenne a Community of Choice; and to facilitate the development review process by providing quality, effective, and efficient professional planning services.

Continue to oversee the implementation of adopted plans such as PlanCheyenne, West Edge Initiative, and the Reed Avenue Rail Corridor Master Plan.

Update the Belvoir Ranch and Big Hole Master Plan to recognize changes in development patterns on the ranch, incorporate newly obtained lands, fiscally balance proposed improvements with future staffing needs, and focus on alleviating access barriers presented by the Union Pacific Railroad.

Continue to improve transparency regarding the development process through continued improvement of the Department’s website, revising applications, and improving stakeholder communication between departments and outside agencies

Utilize current and upcoming technology to aide in development review, facilitate meetings, and streamline the development process.

Revise development regulations to provide clarity in development expectations, reflect best practices, and streamline the development process

Implement permit/project tracking software in collaboration with other departments.

Expand the newly formed Urban Renewal Authority.

Begin annexation of high priority county pockets

Explore and allocate, as available, resources to update the 2006 Parks and Recreation Master Plan.

Archive and digitize past projects

Planning and Development Department Overview

Office Manager

Organizational Structure

The Planning and Development Department is organized into three divisions comprised of thirteen staff members. The Department serves as the fiscal agent for the Metropolitan Planning Association (MPO). The MPO is also funded by the Wyoming Department of Transportation and subsidized by Laramie County and the City of Cheyenne

Development Division Planning Division

The Development Division works with developers, consultants, residents and the public to ensure that development complies with applicable plans, policies, and codes

The Planning Division provides long-range planning services, reviews development proposals within the City's nine historic districts, implements and manages the greenway system, coordinates future park planning, prepares long range planning documents, manages the Brownfield Revolving Loan Fund, and provides technical planning support to the City.

Metropolitan Planning Organization

The MPO facilitates the planning for transportation needs in the City and County. The MPO is funded by the City, Wyoming Department of Transportation and Laramie County

Director

Charles Bloom, AICP

Charles Bloom, AICP, has been the Planning and Development Director for the City of Cheyenne, WY since 2018 and serves as the Vice President of American Planning Association's Western Central Chapter.

Policies and Plans Review

Legal Basis of Planning in Wyoming

U.S. Constitutional Amendments That Influence Land-use Planning

1st Amendment protects an individual’s freedom of speech, the right to assemble, and the right to worship.

5th Amendment affirms that private property cannot be taken for public use without just compensation.

th Amendment reserves to the states all powers not delegated to the federal government, including police power

14th Amendment offers equal protection and guarantees no person be deprived of life, liberty, or property, without due process of law.

Eminent Domain

• Eminent domain refers to the power of government to acquire private property for the purpose of putting the land to public use

• Although legal, eminent domain can be controversial, in part because of concerns about government overreach;

• in instances where a property owner refuses to sell or sets a price beyond the fair market value for the land, the local government may exercise its power of eminent domain, resulting in a condemnation action;

• In this case, “just compensation” will be determined by a court;

Home Rule Authority

• Home rule provides local governments the power to self-govern and establish laws or ordinances in all areas not denied them by a state’s constitution;

• Home rule authority in Wyoming was established by a 1972 amendment.

• The amendment provides municipalities complete power to determine their local affairs by ordinance, subject to state statutes.

Source: William J. Gribb and Jeffrey D. Hamerlinck, University of Wyoming, 2018

Policies and Plans Review

Legal Basis of Planning in Wyoming

Wyoming Planning Statutes

Title 9 – Administration of Government

Chapter 8 Land Use Planning

All local governments must develop a local land use plan and may cooperate with the county to develop such a plan. All counties must develop a countywide land use plan that incorporates the land use plans of all incorporated cities and towns within the county (Wyo. Stat. § 9 8 301 302).

Title 15 – Cities and Towns

Chapter 1 General Provisions | Article 5 Planning

A city or town may have a planning commission, and if the city or town elects to have a planning commission, it must adopt a master plan (comprehensive plan) for the physical development of the community…. (Wyo. Stat. § 15 1 502 506)

Title 18 – Counties

Chapter 5 Planning and Zoning | Article 2 Planning and Zoning Commission

A county may regulate the location, use, and condition of buildings and structures with consideration for the public’s health, safety, morals, and general welfare. The general forms of use are residence, recreation, agriculture, industry, commerce, public, and other uses within the unincorporated areas of the county.…(Wyo. Stat. § 18 5 201 202).

Source: William J. Gribb and Jeffrey D. Hamerlinck, University of Wyoming, 2018

Contents of a Comprehensive Plan

Recommendations for the development

Public buildings and other public property

Public utilities and terminals Change of use of any public utilities Zoning plan

Community centers and neighborhood units; Re-planning of blighted districts and slum areas

Policies and Plans Review

PlanCheyenne: Community Plan 2014

• PlanCheyenne is an integrated community master plan that defines the Cheyenne area’s future.

• The Plan that guides how and where growth will occur over the next 10-20 years.

• Created with extensive involvement of citizens, city and county officials, and planners and updated since initial adoption, PlanCheyenne represents a path towards growing as a “community of choice.”

• PlanCheyenne contains of several plan components with different dates of adoption :

• The Community Character Master Plan (2014),

• The Parks and Recreation Master Plan (2006),

• The Transportation Master Plan (2020),

• Future Land Use and Transportation Map (2020)

• The Community Plan can be accessed here

Figure 1. Future Land use and Transportation Plan Map (2020)

Policies and Plans Review

Unified Development Code

Unified Development Code (UDC) is the regulatory document developed in accordance with the policies established in PlanCheyenne.

Article 1: General Provisions

Provides the steps for applying the Unified Development Code standards to specific development applications

Article 2: Applications Procedures Criteria

Provides the foundation elements and operating mechanisms for the Unified Development Code

Article 3: Impact Studies

Provides tools and evaluation techniques for complex development projects

Article 4: Subdivisions Regulations

Provides standards for coordinating development across different areas and over time

Article 5: Zoning Regulations

Establishes zone districts, special purpose districts, and overlay districts

Article 6: Design Regulations

Provides standards that deal with coordinating components of development on an individual site in a manner that reinforces the character of districts and neighborhoods

Article 7: Form-Based Codes

Provides an alternative process and standards for doing master planned developments

Appendix

Supplemental information and regulations

• Each year, the Department sends a request for feedback and suggestions related to the UDC;

• The purpose of this process is to address any formal issues or concerns regarding the code and to provide an opportunity to review the code in a comprehensive manner;

• The form can be access here

Unified Development Code Annual Review

Fellowship Project

First Impression Report of Cheyenne

A report on the first impression of the first week at city of Cheyenne. There are five takeaways concluded:

Great Walkability

What I like the most about Cheyenne is that it is very friendly to pedestrian. We can walk to downtown safely by the sidewalks Beautiful Parks

There are many parks around the city. These are great places for the community to meet and socialize.

Preservation of Historic Buildings/Sites.

It is very apparent that Cheyenne really cares about the historical building and sites. The buildings and the area surrounding it are well preserved and great tourist attractions.

The absence of Public Transportation

Even though the center of the city and the economic activity are very dispersed, a better transportation will help the city’s economy.

City’s Density

Because of the absence of public transportation, as a tourist (so to speak) It is very difficult if we want to explore more areas of the city or to go to some of the public utilities.

Fellowship Project

Urban Form Development Mapping

Problem:

• When first adopting Unified Development Code as the Spatial Plan of Cheyenne, it did not account for the current city form;

• Thus, the given zoning in the UDC may not be suitable with the existing developed form.

• The zoning evaluation process conducted in a piecemeal-style only at the time the land/area will be developed.

Objectives:

• This project aims to have a comprehensive look of the city of Cheyenne’s Urban Form and development pattern.

• The long term goal for this project is to provide guidance for the government in implementing zone changes.

Urban Form Development Mapping

Table

2. Urban, Suburban, and Rural Characteristics

Object Rural Suburban Urban Street

Unpaved, swales, no sidewalks Wide Narrow Driveways Long Wide (often prominent front loaded garage) Narrow (or rear loaded)

Lot size Very large Medium Small Block size Measured in miles Large Small Buildings Far from the street Far from the street Close to the steet Parking lots Often far from the street Between building and street Behind or to the side of the building Landscape Mostly native Large, informal spaces Smaller, more formal spaces Orientation Car Car Pedestrian

There are some areas classified as ‘other’ that does not or to distinct with other form: Cheyenne Regional Airport Industrial Area Union Pacific Depot Some Parks

Fellowship Project

Urban Form Development Mapping

Urban Form Development Mapping

Findings 1: Cheyenne’s Urban Form are Mostly Suburban

• Most of Cheyenne’s built area have a suburban form (47%) or approximately 11 sq miles in total;

• While the Urban form and Rural form almost the same size, they cover 20% and 21% of Cheyenne respectively;

• If compared with the zoning map, there are several ‘urban zoning’ (MUR and MUB) that is classified in Suburban form areas.

• By observation, most of the Rural form that exist at Cheyenne are commercial or industrial area.

MUR

- Mixed-use Residential District

The MUR District is intended for a mix of Residential, Retail, Service, Employment, and Civic uses where the predominant use will be Residential, with moderate or higher densities and a range of housing types

MUB

–

Mixed-use Business District

The MUB District is intended for a diverse mix of Residential, Retail, Service, Employment and Civic uses integrated into a walkable compact development pattern.

Cheyenne Urban Zoning Unified Development Code

Urban Form Development Mapping Fellowship Project

Findings 2: Cheyenne Transitional Area

• During the analysis process, there are several areas that have 2 or more characteristics in 2 different

• Each blocks in the area can have different form compared to the block next to it;

• In these areas highlighted at the map those blocks have both suburban and urban form characteristics;

• The general form is not as obvious from area to area.

• The common case that I found is that the area has wide street, small to medium lot, and the blocks are large; but the driveways are narrow and the parking lots are in the alley.

Urban Form Development Mapping

Findings 3 : East Airport County Pockets Urban Form

• The piecemeal development process of the east airport area causes the urban form of each block to vary from one area to the other;

• The zoning map also shows that there are many types of zoning in the area;

• This development pattern is mainly caused by the county pockets;

• The difference in taxes and services cause many landowners within county pockets to refuse to be annexed into the city;

• Thus resulting in rural form pocket area in the middle of the city.

• County pockets are unincorporated areas of land surrounded by the City that are typically not served by City services and have been developed in accordance with County rules and regulations.

• Within the boundaries of the City exist 65 County pockets.

• The City Council identified the annexation of county pockets as a 2022 priority

• Annexing properties will also require establishment of a City zone district

• County pockets 100% surrounded by the City can be found online at this interactive map

County Pockets

Fellowship Project

Public Participatory Process

Boards’ and Commissions’ Public Meetings

• The government has a commitment to continue to improve transparency regarding the development process;

• Public hearings are being held to ensure the public involvement in any changes made in the planning and policy process.

• Board and commission meetings date, time, and agenda can be accessed through website;

• The same public meetings system also occurs in the county and state level.

Current Issues: Annexation

• One of the current issues at the city council and planning commission meeting right now is High Plain Business Park Area Annexation

• The city has response several disapproval response from the county landowners

Public Services Meeting 20th September 2022

Planning Commission Meeting 3rd October 2022

Downtown Development Authority Meeting 7th October 2022

Fellowship Project

Public Participatory Process

Website as the Media To Enhance Public Transparency

The Cheyenne Government websites provided past (and upcoming) meeting agendas and minutes.

The public can also join the meeting by Zoom or watch the recording at the website.

Fellowship Project

Public Participatory Process

Online Development Projects Map

• The public can find the development projects that has been developed in the city through online interactive map.

• The Map shows some categories: Current Development Projects. West Edge Re-Zoning, East Cheyenne Community Park, Approved Site Plans, and Approved Plats;

• The public can view the details of projects: project name, process, sub. Date, project number, planner assigned, address, status.

• The map can be accessed here

Activities: City Observation Fellowship Project

Thursday, 29th September 2022

Brownfield Loan Survey: West Edge Area

Key Takeaways:

• A brownfield is a property where expansion, redevelopment, or reuse may be complicated by environmental contaminants.

• Lack of information may contribute to the stigma of a brownfield site. If left alone, a brownfield can pose numerous challenges for investment, can limit the potential of a neighborhood, and can be a threat to safety and health.

• The City of Cheyenne's Revolving Loan Fund can make subsidized loans and subgrants for cleanup brownfield sites in Laramie County. The RLF is a flexible, low interest alternative to a traditional loan.

Activities: City Observation Fellowship Project

Thursday, 13th October 2022

Thursday, 13th October 2022

Brownfield Loan Survey: The Hynds Building Public Safety Center

The public safety center serves as the building for the Fire Rescue and Police Department offices.

Activities: City Observation

• Cheyenne LEADS is a non-profit corporation serving as the economic development entity for the City of Cheyenne and Laramie County, Wyoming.

• LEADS is funded by small businesses, larger corporations, and individual dues paying members.

• It also supported by funding from the City of Cheyenne and Laramie County

Lessons Learned

Lessons Learned

The UDC has been well enforced in planning process

Government has provided many public channels

Stakeholder interests in city development is high

Historic preservation is one of the focuses in planning

The level of public enthusiasm remains moderate

Continue to improve development process digitally

Water availability and housing are the current city challenges

The Planning and Development is a progressive sector, and finds some challenges in a generally conservative state.

Acknowledgement

I would like to thank several institutions that have made this happen. The US Department of State is our main sponsor of the Young Southeast Asian Leadership Initiative (YSEALI). American Council for International Educations (ACIE) and American Council for Young Political Leader ACYPL) who have been wonderful hosts, organizers, and institute partners, for all of us. Also, the City of Cheyenne Planning and Development Department for allowing me to have a wonderful fellowship experience. Thank you Charles, Seth, Lonnie, Jen, Valerie, Jean, Connor, Erin, Tom, Ginni, and Chris for having me!