EPA-908/4-78-001
Action Handbook
For Small
Communities Facing
Rapid Growth
"Case Study"
« SCOBEY
MONTANA
JUNE 1977
ENVIRONMENTAL PROTECTION AGENCY
REGION VIII
BRISCOE MAPHIS MURRAY & LAMONT INC.
BOULDER , COLORADO
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EPA-908/4-78-001
Action Handbook
For Small
Communities Facing
Rapid Growth
Case Study
SCOBEY
MONTANA
EPA
PREPARED JUNE 1977
ENVIRONMENTAL PROTECTION AGENCY
REGION VIII
CONTRACTED BY 68-01-3579
RIWIIUII BRISCOE MAPHIS MURRAY & LAMONT INC.
LJIVIIVIL. BOULDER , COLORADO
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Contents:
Preface i
1 INTRODUCTION 3
2 SCOBEY TODAY 7
POPULATION CHARACTERISTICS 7
ECONOMIC BASE 8
LAND USE 9
TRANSPORTATION 10
GOVERNMENT 11
UTILITIES 11
FACILITIES AND SERVICE 12
3 SCOBEY TOMORROW 16
POTENTIAL PROJECTS AND POSSIBLE
IMPACTS 16
PROBLEMS AND OPPORTUNITIES FROM
GROWTH 22
4 COMMUNITY INVOLVEMENT 26
COMMUNITY IMPACT COMMITTEE 27
TASK FORCES FOR COMMUNITY STUDIES 29
TASK FORCES RESPONSIBILITIES 35
SETTING COMMUNITY GOALS 43
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O CO.MMUN IT Y ORGAN IZ AT I ON 44
ASSESSING NEEDS AND IDENTIFYING
RESOURCES 45
SETTING PRIORITIES 49
mo DOES WHAT? 50
6 COMMUNITY ACTION 54
GETTING CONTROL 54
LAND USE PLANNING 56
PLANNING FOR FACILITIES AND
SERVICES 61
FINANCIAL PLANNING 66
HOUSING 69
GOVERNMENTAL MANAGEMENT 72
FOLLOWING UP 79
Appendices
A GOALS AND POLICIES 81
TASK FORCE PROGRAMS 89
11
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Tables
||-1 ENROLLMENT OF SCOBEY PUBLIC SCHOOLS, SCHOOL
DISTRICT NO. 1, DANIELS COUNTY 13
|||-1 POPULATION ADDED BY CONSTRUCTION AND
OPERATION PHASES 21
111-2 LAND USE, PUBLIC FACILITY, AND EMPLOYEE
IMPACTS 23
V-1 COMMUNITY NEEDS AND POTENTIAL SOURCES
OF ASSISTANCE 46
V"2 TAX LEAD TIME CHART - URBAN SERVICE
CHARACTERISTICS 53
Illustrations
HI-1 PROJECT LOCATION MAP ............................. 17
1 EXAMPLE OF TOPOGRAPHIC MAP MADE
FROM AERIAL SURVEY ............................... 33
IV" 2 EXAMPLE OF MAP SHOWING PHYSICAL
FEATURES AND LOT LINES ........................... 34
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*
*
Buffe
I
SASKATCHEWAN
*
I
Scobey
Falis
MONTANA
Bit tin
'9s
CANADA
UNITED STATES
REGIONAL LOCATION MAP
SCOBEY, MONTANA
Bismark
NORTH DAKOTA
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This report has been reviewed by EPA and approved
for publication. Approval does not signify that
the contents necessarily reflect the views and
policies of the Environmental Protection Agency,
nor does mention of trade names or commercial
products constitute endorsement or recommendation
for use.
DISTRIBUTION
This document is available to the public through
the National Technical Information Service, Spring-
field, Virginia 22151.
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Preface
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PREFACE
Scobey, its neighboring communities and Daniels County
may be facing major impacts from growth in the next five years.
The local government leaders recognize the uncertainty of the
potash companies' proposals, but they also recognize that if
they wait for a final decision, it will be too late for them
to act. They are concerned about what might happen to the
area, its way of life and its economy. They are concerned
about problems that will be created, not only for current resi-
dents, but also for those who would move into the area with
the potash development. They like their communities; and if
growth does occur they want to continue to have pride in their
area and still to have a desirable place to live. Consequent-
ly, in the spring of 1976, they agreed to participate in an effort
financed by the Environmental Protection Agency to evaluate
the nature of potential impacts; the capacities and readiness
of local plans, facilities and laws to cope with the impact;
and generate ideas on what should be done.
Mayor Clark Tousley and the City Council of Scobey, along
with County Commission Chairman Irvin Halverson and the other
commissioners, gave their support to this effort. The following
report is the result of the consultants' effort based on brief
visits and analysis of available information.
Basically we found political leadership and community
support to be excellent. Programs, facilities and the quality
of living are well above most rural areas. Consciousness of
state and federal programs to improve the social and physical
situation for area residents is excellent. If little, or slow,
growth occurs there is little reason to be concerned. However,
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if one or both potash operations go forward, growth could be
rapid and large. The codes, plans and facilities that presently
exist would be totally inadequate to cope with such growth
The area would have to accept development where and how it
happened. Unless federal, state or industry funding were
voluntarily given, local taxes to pay for the additional needs
will have to increase sharply. The local economy would be
jolted sharply and require significant adjustments in wages.
We are suggesting that there are some steps you can take
while there is still time to prepare for growth. Growth may
not happen, but if it does the community will be able to get
some of the groundrules if it is prepared. The process may
also provide some ideas about other opportunities. Certainly,
following this program will not eliminate all of the issues
Some, such as increased wages, are totally beyond local control.
Discussing what the residents would like to see happen
and taking actions to move in that direction is helpful with
or without growth. Land use controls in the county may or may
not be needed now, but if growth occurs they'll definitely be
needed. It will be too late to decide directions, adopt codes,
design facilities and find funding once the growth begins. The
boom will be the sharpest in the first three years. Then the
question will be how to adjust to a decline in population.
Who pays, when, and how much? We hope you'll find assistance
in dealing with those issues in this case study document. The
case study should lead you to the Action Handbook for detail
on those areas you need to pursue.
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Introduction
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1
INTRODUCTION
In the spring of 1976, the Environmental Protection
Agency (EPA) issued a contract to Briscoe, Maphis, Murray &
Lamont, Inc. (BMML), a government management consulting firm
in Boulder, Colorado, to prepare a handbook for use by local
communities that were anticipating growth impacts from energy
development in the Rocky Mountain region. The report is
entitled, Action Handbook for Small Communities Facing Rapid
Growth. As part of that contract, the EPA requested that two
communities be included as case studies. The purpose of the
case studies was to evaluate the preparedness of the communities
to deal with a large influx of workers from construction and
operations associated with new energy development in their
regions.
In order to select communities for the case studies, BMML
visited with various state planning agencies in an attempt to
select communities which would be open to working with the
consultants, which anticipated growth impact from energy develop-
ment, and which had not been studied to the point of exhaustion.
The Department of Community Affairs (DCA) recommended that the
City of Scobey would be a very good choice to work with as part
of the Action Handbook. Mayor Clark Tousley, the City Council,
and the Daniels County Commissioners (Irvin Halverson, Chair-
man) agreed to work with consultants in their effort.
During the ensuing months, representatives of BMML visited
Scobey, collected various data and information, and began an
overview analysis of the potential impact in Scobey from energy
development. Ironically, the power plant development in Canada,
which originally was expected to contribute to the impact
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problems in Scobey, ceased to be a consideration because of
laws passed in Canada requiring the employees to reside in Canada,
However, the possibility of potash development in the region
continues to be strong. Farmers Potash of Billings, Montana,
and PPG Industries, Inc., were two companies which had been
evaluating the potential for potash development in the immediate
vicinity of Scobey. Should these potash developments go forward,
each would be expected to have a major impact on a community
the size of Scobey. Therefore, BMML continued to work with
Scobey relative to its potential for growth impact, not from
energy resources, but from other new employment opportunities
in the area.
This document is not a comprehensive plan for Scobey; it
evaluates the current setting of the community as to its
capabilities and its opportunities should growth occur. It
also suggests areas in which the community might find itself
deficient if growth occurs. As a result, it suggests action
programs which are based on the goals and policies suggested
by the residents of the Scobey areas. It is not assumed that
the goals and policies contained in this report have been
totally accepted by the community; they have not been adopted
by the City Council or the County Commissioners. They have
been publicly reviewed and provide a sound basis from which
to begin a program in Scobey. The proposals for action are
based on the recommendations in the Action Handbook, applied
to the Scobey situation.
Scobey/Daniels County is a rural agricultural service
center. The population trend had been in a decline until the
upsurge in agricultural and food prices in the early 1970's.
Local opportunities to earn a living have been declining as
farms have consolidated and equipment has replaced manpower.
No new employment opportunities of any significance have
located in the area. There is a balance between the population
and the area's ability to support it. Minor fluctuations have
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occurred in recent years as state, telephone, or highway
projects have brought in temporary workers, but there have been
no new permanent employment opportunities of any significance.
Unemployment is low. Those unable to find a job to meet their
capabilities or desires move out.
The community appears comfortable with its present level
of government controls over development. Little has occurred
to create a crisis including the recent increase in home
building. There have been minor irritations over location of
heavy equipment in a residential neighborhood or the siting of
a mobile home, but because development has been largely locally
controlled and at a slow pace, the community has accommodated
the changes.
What of the future? The local governments appear in control
of the current situation. They have met changes and constantly
improved the community. Services schools, water, sewer,
medical, etc. are sufficient for the present population.
But if a rapid influx of up to 900 construction workers (for
one plant), followed by a permanent worker population of from
230 to 460 people occurs, the systems will not be geared to
meet this challenge. Total population during the construction
phase could increase by 4,600 people; permanent population,
after the construction phase is complete, could be up to 2,000
greater than it is today.
This brief overview report is intended to help you, the
residents of Daniels County, prepare for a situation in which
rapid growth might occur. It attempts to give you ideas on how
to gain local control over what happens. Without this leverage,
you must rely on outside agencies to carry your concerns. How
you choose to execute the control is a local issue.
We have made suggestions but we cannot substitute our
thoughts for yours. But, most important, you must face the
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potential now and be prepared. There is little cash outlay
necessary a lot of people's time and thought will get the
job done. The potash developments can be a very positive factor
or the results could change the local way of life in a manner
that no one will be happy with. The choice is yours I
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Scobey
Today
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SCOBEY TODAY
POPULATION CHARACTERISTICS
The Daniels County area has been declining in population
since 1930. The County's population fell from 3,755 in 1960
to 3,083 in 1970, a decrease of 17.9%. Rural areas throughout
the country have experienced this trend. However, in the last
three or four years a slight increase, due to the return of
former residents to the area, has served to stabilize the
population. The Montana State Department of Community Affairs
has made the following population estimates:
Daniels County
Flaxville
Scobey
Remainder
of County
1970 1971 1972 1973 1974 1975
3083 3000 3100 3100 3100 3000
185 178 189 189 189 183
1486 1470 1511 1528 1518 1492
1412 1352 1400 1383 1392 1326
The birth rate in Daniels County is lower than for the
State of Montana as a whole the rate for Daniels County is
7.6/1000 population as opposed to 17.3/1000 population for the
State as a whole. Likewise, the death rate is higher 14/1000
population for Daniels County, contrasted with 9.7/1000 popu-
lation for the State. The figures indicate that young adults
are not settling in the Scobey, Daniels County area.
The population of Daniels County has a higher proportion
1977 Commercial Atlas and Marketing Guide, Rand McNally and
Company
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of population over the age of 65 than the State 15% of the
County's population is over 65, as opposed to 10% of the State's
population. The median age of the County's population is 33,
while for the State as a whole, the median age is 27.
If the proposed potash developments occur, the County's
population will increase greatly. Even if these developments
do not occur, there may be a slight increase due to increasing
business activity which might be generated by the Canadian
power project.
ECONOMIC BASE
The County's basic economy is dominated by agricultural
and farm service businesses. However, farm population in
2
Daniels County has declined 19% between 1960 and 1970; the
decline in farm population is slightly more than the total
population decline in the County. Of the 923,520 acres in
4
the County, about 96% is used for agriculture. Small grain
farming comprises the majority of farms. Livestock income
accounts for between 20 and 25% of the County agricultural
income. Hog production has increased in recent years. The
average farm in Daniels County is 1,803 acres as opposed to
the average farm size in the State which is 2,522 acres.
Commercial businesses which provide retail and wholesale
activities in the area are located in Scobey. Small retail
2
City and County Data Book, 1972, U.S. Department of Commerce,
Bureau of the Census
3 Ibid.
Daniels County, Montana Situation Statement, Daniels County
USDA Committee for Rural Development
5 Ibid.
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outlets such as groceries, restaurants, bars, and clothing
stores, as well as agriculture-oriented businesses, are prevalent.
Employment estimates for Daniels County show a slight
increase in jobs in recent years.
1969 1970 1971 1972 1973
Total Employment 1558 1553 1592 1551 1618
Records also show that there is little unemployment in the
area. This would indicate that if new employment opportunities
develop, employees would have to be brought in from outside
the region (with the resulting need to house and provide
services for them), or people presently working at lower paying
jobs would be enticed to change jobs. These existing jobs would
either be filled by migrants into the area or by local people
presently not in the labor market. There does not appear to
be a pool of people actively looking for work in the region.
New employment would definitely cause changes by bringing
in new people, raising wage levels and/or providing opportuni-
ties for local people who want to enter the labor market. New
basic employment in the potash mines will cause an increase in
service and government employment in the County.
LAND USE
Communities in Daniels County are relatively compact.
There is little in the way of scattered non-farm housing.
"Leap frog" subdivisions have not occurred. Residential areas
are comprised primarily of single family homes and duplexes,
although a few apartments have been built in Scobey. Some
Profiles, Division of Research and Information Systems,
Montana Department of Community Affairs
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mobile homes exist in town, but mobile home parks are not
scattered in the countryside at this time.
Commercial uses are generally concentrated in downtown
areas. Some strip commercial development exists on the edge
of towns on the highways leading into the communities. Because
of the compact development of communities and their size, most
residents can walk or bicycle to all areas of town.
According to the census, there were approximately 1,222
housing units in Daniels County in 1970, with an average of
three persons per dwelling unit. The median value for single
family homes in Daniels County was $7,358, contrasted with
$14,202 for the State.7
In recent years a number of new homes have been built in
Scobey. Families moving into town from farms and in-migration
to the area have absorbed most of the new units. However,
there are very few units available which could meet the demands
of some additional growth.
TRANSPORTATION
State highways serve the area and are in good condition.
As a result of potash development, some minor local improve-
ments may be necessary, but no major improvements would be
anticipated.
Streets in Scobey are mostly paved and in good condition.
Depending on where new development occurs, the present street
system appears to be capable of handling 'the anticipated
growth if logical extensions were made.
City and County Data Book, 1972, U.S. Department of Commerce,
Bureau of the Census
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GOVERNMENT
Power to control and effect development basically rests
with the city and county governments. The State of Montana
has mandated that energy counties develop subdivision regulations,
Daniels County has adopted the State Model Code. No zoning
exists in the city or county at this time.
Revenues are primarily received from property taxes and
from other levels of government. For the fiscal year 1975
the following mill levies were charged:
Daniels County 52.54 mills
City of Scobey 72.50 mills (including bonds)
School District #1 40.88 mills
UTILITIES
Water
Scobey and Flaxville have the two central systems in the
county. Both would need to expand their system to accommo-
date new growth. Storage facilities for peak periods of
usage are the dominant need. All other communities utilize
individual private wells. Revenue bonds are outstanding
on the system.
USE?
CAPACITY?
BONDS?
Sewer
Scobey and Flaxville are the only communities in the
county which have central sewer systems (lagoon). All
the other communities are on private septic systems.
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Improvements would be required if substantial growth
took place in any community. Scobey is in the best
position to expand its system. The system has virtually
no debt and could be expanded if money were available.
Rates are relatively low with no tap or plant investment
fees.
USE?
CAPACITY?
REVENUE?
RATES?
Solid Waste
A central collection site for the county has been discussed.
At the present time, there are problems with the site being
used by Scobey, both in the operation and capacity of the
site.
FACILITIES AND SERVICE
Schools
The school system in the county is divided into three
districts. The population growth of the last few years
is evident in the district facilities serving Scobey.
The facilities are at capacity with 525+ students in
kindergarten through 12th grades. Table 1 shows school
enrollment in Scobey. There is virtually no debt. School
bonds have failed twice in the last ten years. Any
additional growth will create definite problems of capacity
and require additional classroom and related support
space.
HOW MANY SCHOOLS?
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TABLE II-l
ENROLLMENT OF SCOBEY PUBLIC SCHOOLS, SCHOOL DISTRICT NO. 1, DANIELS COUNTY - OCTOBER 15, 1975
GRADE K
1975-76 29
1974-75 31
1973-74 0
1972-73
1971-72
1970-71
1969-70
1968-69
1967-68
1966-67
1 2 3 4 5 6 " 7 8 9
28 24 26 41 28 35 40 47 43
21 30 41 28 37 37 49 43 43
23 42 31 36 38 53 47 43 50
39 29 37 39 50 44 42 48 61
28 37 40 51 47 41 48 59 50
40 37 50 44 42 48 58 50 40
44 48 40 40 48 63 51 39 57
38
48
51
10
45
47
62
47
38
53
42
50
53
54
11
50
56
47
35
52
39
52
52
54
53
12
59
46
35
56
38
50
49
50
46
38
Source: School District #1, Scobey, Montana
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Parks and Recreation
Recreation opportunities occur in an organized basis
through the schools, churches, private groups and towns
and heavily on an individual basis through horseback
riding, hunting, fishing and camping. There is a recrea-
tion orientation to outdoor, agricultural and ranching
activities. There is an outdoor swimming pool in Scobey.
The park is heavily used in the summertime.
Indoor activities center on the schools and churches.
Basketball and volleyball occurs in the church gym and
school gym. Commercial recreation or entertainment is
minimal. Wolf Point offers the closest commercial
entertainment opportunities.
PARKS?
AREA?
DEVELOPMENT?
Medical
The Daniels County Hospital and Nursing Home facilities
have some ability to expand. The fact that they exist is
a major positive factor. It is far easier to enlarge
existing facilities than to organize a totally new service,
The hospital was expanded in recent years.
CAPACITY? SERVICES?
AMBULANCE?
Libraries
There is a small public library in Scobey that serves the
county residents as well as the town.
USE?
CAPACITY?
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Government Offices
Government offices in Scobey include both city and county
facilities. (Scobey is the county seat.) The city govern-
ment has recently moved its offices into larger facilities,
with room available for expansion.
If many new employees become necessary to carry on the
county's functions, new or expanded county office space
will be required.
Fire Protection
Service is provided by volunteer firemen. This is satis-
factory and can readily be expanded with the provision of
additional equipment. Where central water systems are
provided, it is essential that the system's capacity for
fire fighting be assured by proper water main size and
storage facilities.
PROBLEM IN SCOBEY?
NO. OF FIREFIGHTERS?
VEHICLES?
Police Protection
NO. OF POLICE?
VEHICLES?
IS IT ENOUGH?
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Scobey
Tomorrow ?
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3
SCOBEY TOMORROW ?
POTENTIAL PROJECTS AND POSSIBLE IMPACTS
Three major projects have the potential to affect the
growth of Scobey and Daniels County.
The Saskatchewan Power Corporation generating plants -
power
The Farmers Potash Company (subsidiary of Burlington
Northern, Inc.) and CP Land Company - potash fertilizer
project
The PPG Industries' potash fertilizer plant
The general locations of these projects are shown on Illustra-
tion III-l.
P
Saskatchewan Power Plant
In September, 1974, the Saskatchewan Power Corporation
(SPC) proposed the construction of four 300 MW (megawatt)
thermal generating plants, a dam and reservoir, and a
lignite coal strip mine operation. The SPC, a Crown
company with offices in the provincial capitol building
in Regina, has nearly completed the construction of the
dam located 2-1/2 miles north of the Montana border
on the East Fork of the Poplar River. The sites of the
four power plants and the strip mine are to be four and
Q
The Plains Truth, Northern Plains Resource Center, Volume 5,
No. 2, February/March, 1976
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berta
Manitoba
Montana
SASKATCHEWAN
POWER PROJECT
North Dakota
South Dakota
ILLUSTRATION III-l
AREA OF POTASH OCCURRENCE
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six miles from the Montana border, respectively. Coal-
related industrialization on a much larger scale is planned
for the Saskatchewan Poplar River Basin. The Canadians'
plans for their portion of the basin include: four 300
MW power plants (as previously announced); one 1200 MW
power plant; one 1500 MW power plant; one 900 MW power
plant; two 250 cubic-feet-per-day coal gasification plants;
two 12,500 tons-per-day ammonia plants (each would be four
times larger than Burlington Northern's ammonia plant in
McCone County); and one 7500 tons-per-day ammonia plant.
The coal requirements for an energy complex of this magnitude
would be greater than 2 billion tons over the life of the
plants more than seven times the amount of coal to be
consumed by Colstrip Units 1-4. Water requirements for
the energy complex would be 74,000 acre feet of water
a year. The power plants are currently under construc-
tion..
Present estimates show that the Canadian power related
developments will have little or no direct effect on
jobs because the Canadian government has restricted
employment to Canadian residents. The major growth
impact caused by the power plants would be related
to the use of local roads, shopping, entertainment,
recreation, and other similar services and facilities
as a result of the Scobey Port of Entry. Housing and
related support facilities such as schools, water and
sewer systems, etc., would not be directly impacted.
However, some new jobs may be created since Canadian
employees may come across the border to avail themselves
of local services and businesses. This should be a
relatively small number. If the demand grew large enough,
such services and businesses would likely develop north
of the border. If services for employees and their
families were provided in Canada, Scobey would not serve
as a major service area.
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The major impacts which could occur in Daniels County
as a result of the SPC project would be environmental
water and air pollution. These impacts could have a sig-
nificant effect on area residents if no measures are
taken to alleviate or eliminate the problems. The
potential pollution of air and water involve technical
and legal issues which this study has not attempted to
address. However, the issues do provide an example of
the inability of a community to deal with impacts when
local decision-making is not involved.
Potash Developments
Potash developments are still in the thinking stage.
Two plants are under consideration north of Scobey.
Specific location of the plants is not known even if
mining should proceed. One plant (Farmers Potash) is
proposed by Burlington Northern and CF Industries and
the other by PPG Industries. These plants may be construc-
ted in the next five years. Estimates of direct permanent
peak operational employment have been made by PPG
Industries. They estimate that 230 operation employees
will be required for one plant.
No estimate on construction workers is available from CF
Construction Company. However, it is estimated by PPG
that up to 950 peak construction workers (an average of
500-600 workers) may be employed for its plant. It is
possible that the CF/Farmers Potash Company may be of
similar size as the projections are based on experiences
on actual potash developments in Canada.
Development of potash plants would result in substantial
population increase in Daniels County. Assuming that all
employees migrate into the area and that they all reside
in the area, the construction phase could result in
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approximately 4,633 added people, and the operation phase
could result in 1,895 additional people. (See Table III-l
for calculation of these estimates.)
If both plants are built, the numbers would approximately
double. Considering that the Daniels County population
is only 3,000, the magnitude of potential impacts is
tremendous.
In addition to the added population, impacts to facilities
and services would be substantial. Table III-2 illustrates
possible land, public employee and public facility require-
ments from construction and operation workers from one
plant. These numbers would increase if both plants are
built. (See Table III-2 for sources of the estimates and
Section II of the Action Handbook for procedures, assump-
tions, etc.)
It should be noted that the multipliers used to calculate
the impacts are general in nature. Precise impacts would
have to be developed utilizing local information. The
larger number of construction workers would result in greater
short-term impacts; however, due to the temporary nature
of the construction phase, the operation phase may have
a greater long-term impact. Operation employees and their
families may be permanent residents of the area.
Additional employment may develop as a result of these
three major projects, through development of ancillary
industries. However, the anticipated impact which would
result from the development of one or both plants would be
sufficient to require changes in community life and services.
It may be logical to assume there would be some reduction
in the total number of service employees if both plants
developed. But the volume in in-migration would be far
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TABLE IIHiPOPULATION AOOfo BY CONSTRUCTION AND OPERATION PHASES
STEP
1
2
3
4
5
6
7
TO DETERMINE
Peak Construction
Workers
Peak Operation
Workers
Single Construction
Workers
Single Operation
Workers
Married Construction
Workers and
Families
Married Operation
Workers and
Families
Peak Service Workers
from Construction
Phase
Peak Service Workers
from Operation Phase
Single Service
Workers from
Construction Phase
Single Service
Workers from
Operation Phase
Married Service Workers
and Families and
Construction Phase
Married Service Workers
and Families from
Operation Phase
TOTAL added Population
from Construction Phase
TOTAL added Population
from Operation Phase
COMPUTATION
Multiply the proposed output of the industry
for the construction phase. (See Table II-l)
Multiply the proposed output of rr.e industry
for the operation phase- (See T=cle II-l)
Multiply peak construction workers from
Step 1 times the percentage who are single
Multiply peak operation workers fr^r.
Step 1 times the percentage who are single
Multiply peak construction worker? from
Step 1 times the percentage marri d times
the average family size
Multiply peak operation workers f r~r-
the average family size
Multiply peak construction workers from
Multiply peak operation workers 5 ron
Step 1 times the service worker rario
Multiply peak service workers fror:
Step 4 times the percentage who are single
.Multiply peak service workers fror.
Step 4 times the percentage who are single
Multiply peak service workers from
Step 4 times the percentage married times
the average family size
Multiply peak service workers fror.
Step 4 times the percentage married times
the average family size
Add only the results contained in the boxes
Add only the results contained in the boxes
!
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( 2.30 )
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( 2-5O )
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w ( \
x ! n 1 5 )
x ( 0.75 J1 x ( 3.6 I1
* < ri as I2 x ( 3.7 )2
1
j
( 1*0 >j x (Of,)2
(i5e_,
x I 1 S I2
( S~lo >i x i n.is i2
( 3*r/5" ) x ( 0.15 ) 3
( S7e>
x ( 0.85 I1 x ( 3.6 I1
( 3*y.£" )x (0.85)3x {3.7 )2
Add results of
Steps 2, 3, 5 and 6
Add regal
Steps 2i
ts of
CONSTRUCT!-"* OPERATION
PHASE PHASE
h- 156
.. 230
g.
* ^D
m- ^S"
^ 2.5-65-
r 723
_^ S--70
*.<4*
_^ Bt> \
5-2.
^ nw \
m /DftS-
_ V*33
/MS-
1 Mountain West Research, inc., Construction
Worker Profile, A study for the Old West
Regional Commission, 1975.
2 Department of Housing and Urban Development,
Rapid Growth from Energy Projects, Ideas
for State and Local Actionf 1976.
3 Assumed to be the same as for the construction
phase.
NOTE; Service worker ratios include
public employees.
-21-
-------
more, even if the numbers were reduced slightly, than
could be handled by the area without major efforts to
cope and changes in local laws and processes.
PROBLEMS AND OPPORTUNITIES FROM GROWTH
Basic questions to be faced relate to environmental
impacts, socio-economic impacts, public costs, and ways to
control impacts. Many issues are raised: For example, what
would be the impact on the area's way of life, people's relations
with each other, as well as their demands on local government?
How would the local economy be affected; how would the agricul-
tural economy fare competitively for employees, resources and
supply costs. What about other local businesses?
There will be public costs and revenues resulting from
development. What will be needed in the way of additional
expenditures; when will they be required? On the revenue side,
when will the funds be available; who will receive the funds
and how much can be anticipated? Will the system provide the
necessary funds when needed, or are adjustments in the tax
system desirable?
How would the natural environment be affected? Water
supply and quality, air quality, vegetation and wildlife are
some of the areas of concern that need to be considered. It
j_s possible to reduce adverse environmental effects by antici-
pating such issues and building the types of safeguards that
will protect the current level of quality into plant design
and reclamation efforts. The question of potential effects
Of water use or pollution and air pollution on the agricultural
economy must also be considered. Impacts must be considered
before development occurs if there is to be any hope of influenc-
ing a compatible solution.
-22-
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TABLE III-2: LAND USE, PUBLIC FACILITY, AND
EMPLOYEE IMPACTS
This Table is included in pocket on back cover,
- 23 -
-------
Lastly, the question of control without leverage local
governments in Scobey and Daniels County are totally dependent
on the state and federal governments and the industry. Basically,
the state and the federal government would have little to say
about a potash fertilizer plant. The question is simply whether
to assume local control over what is happening in the area, or
to rely on the good intentions of someone else to deal with
potential issues and represent local concerns.
The fertilizer plants can prove to be beneficial. More
jobs for area residents, more taxes and more disposable income
to be spent in the area may result. When the problems are
anticipated and strategies developed to eliminate or control
the problems, these benefits can be realized without jeopardizing
the current quality of life the citizens enjoy.
The above questions must be faced by the community or
else it must be prepared to simply accept the results, both good
and bad. Awareness of costs of change and the problems other
communities have had in disruption of their way of life resulting
from failure to act would appear to encourage action before
impacts occur.
The impact figures strongly indicate that if two plants
are proposed, they should be phased and not constructed at the
same time. This will be difficult to accomplish if there is
no local leverage. Rather than trying to accommodate two
construction forces, and building the housing and public
infrastructure for the communities all at the same time, a
sequence of action is a far better and a less disruptive alter-
native. This would have to be carefully coordinated with the
potash companies. Incentives or disincentives should be
considered, i.e., if both "have" to proceed at the same time,
the companies should be required to bear the cost of all public
facilities that will be in excess of what is needed when the
construction force leaves. Committing public sales of bonds
to obtain lower interest rates can be an incentive for the
-24-
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companies if they agree to phase their plans. Phasing would
avoid part of the boom-bust situation.
Close cooperation between the local governments and the
two companies will be required. The local governments will
have to be the catalyst as the two companies could run into
federal laws if they collaborated on their own. They are
rivals and in competition, but the local residents shouldn't
allow themselves to stand by and get caught in the cross fire,
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Community
Involvement
-------
4
COMMUNITY INVOLVEMENT
Dealing with the impacts and facing the problems and
opportunities which will confront Scobey and the rest of
Daniels County will reguire the involvement of the entire
community not just its elected officials if the effort
is to be successful.
Placing the entire burden on the elected officials and
a few community leaders will not work. These people will not
have the time or the energy to accomplish what needs to be
done and yet be able to manage their everyday community obliga-
tions and their own business and personal affairs. Furthermore,
they cannot work in a vacuum without community input as to what
is desired and will be supported.
Ignoring the impacts and leaving all decisions to the
potash companies and other levels of government outside the
local area will not work either. The result will be a default
by the communities; Daniels County residents will have little,
if any, control or leverage over the future of the area.
Decisions as to the type of development, timing of development,
and provision of public facilities and services to the new
population will be made outside the county and imposed upon the
existing residents like it or not.
To deal with the potential impacts and opportunities, the
community should organize itself to involve and educate all
of its residents about the issues and opportunities.
A Community Impact Committee should be formed to take the
leadership in the process. Once this Committee has gotten its
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bearings and begun to look at the issues, specific task forces
made up of small groups of citizens should be created to pursue
individual elements of concern. Base maps of the community
should be obtained early in the process; these maps can be
used by the task forces and can continue to be used in the
planning and action programs.
COMMUNITY IMPACT COMMITTEE
The basis for a successful management program of the
anticipated impacts for Scobey and Daniels County will require
the involvement of many people. Based on past experiences in
Scobey and Daniels County, it is recommended that the City
Council, Mayor, County Commissioners, and Chairman of the
County Commissioners take the initiative in establishing a
Community Impact Committee to act as a community-wide lead
group on the issue. There is already considerable awareness
of the potential potash developments in the areas. It does
not appear that a program informing the community of the fact
that potash developments may occur in the county is necessary.
It is probably essential, however, that the information that is
available be updated and that the potential impacts of a plant
or plants be explained to the community. The committee can
begin with its community assessment and strategy phase in getting
ready.
The Community Impact Committee should be viewed as the
coordinating agency having the responsibility for evaluating
the preparedness of the area to deal with the potential changes
and as a vehicle for communication and education. It should
act as a clearing house for information, generate official
statements, and have the responsibility for directing the
community involvement program. Attention can thus be focused.
Strategy of how to optimize the community's position and achieve
its goals while assisting the potash companies in making a smooth
entry into the area (if that's the goal) should evolve from this
-27-
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committee's efforts. For this reason, it is essential to have
a broad cross-section of representation.
There are four major tasks that the Community Impact Committee
(CIC) can undertake.
Community involvement. This task involves putting together
the various information regarding the proposed project,
calling public meetings, explaining the problem, explaining
the community approach to coping with the problem, develop-
ment of task forces to study specific areas in depth, and
insuring a coordination of the effort.
Community study. This task involves monitoring of the
task force activities; consolidating their reports and
refining the major questions raised by them; developing an
overview of what presently exists and what will be needed
as development might occur, and when it will be needed; con-
solidating the community goal recommendations and policies
and working for their adoption or endorsement by the affected
agencies.
Planning for action. Working with the local governmental
bodies and school district, the committee should develop
priorities for acting within the task force study areas, for
the community as a whole. Action strategies and a sequence
of actions should be established and explained to the com-
munity, and these actions monitored as they develop.
Follow-up. Depending on the speed with which development
is anticipated, regular meetings on a semi-annual or annual
basis, or when a major decision or action occurs, should be
called to assess progress, reevaluate the goals if necessary,
and deal with new problems or opportunities as they arise.
As development begins to take place, such meetings may have
to be called with greater frequency to monitor progress
-28-
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and keep the community informed.
Help in organizing and operating the Community Impact
Committee can be found in the Action Handbook (Sections
4 and 5).
TASK FORCES FOR COMMUNITY STUDIES
After the Community Impact Committee has informed the
community of the impact that might be expected and the present
capabilities of the community to deal with that impact, it
will be desirable for individual areas of concern to be identi-
fied for concentrated efforts on the part of small groups of
citizens task forces. These groups will have the responsi-
bility for investigating these special areas of concern.
The task forces should include people who have a vested
or expressed interest in the particular area; e.g., a realtor
should be on the land use task force; a banker should be on
the task force concerned with the economy. Contrasting views
should be represented the groups should not be stacked with
persons having a single viewpoint. Issues should be allowed to
come out at work sessions so they can be resolved before they
reach the entire community and become divisive. Even if agree-
ment is not reached, the issues should be clearly identified
and each side should have an opportunity to explain its views.
The Impact Committee would then be alerted to the fact that a
resolution was necessary.
The task forces should have the general responsibility to:
Inventory the current situation - existing resources
and conditions in the whole county as well as an
estimate if commuters are likely from outside the
county, i.e., Canada or Sheridan County.
-29-
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Identify and evaluate what has been happening -
trends and impacts.
Determine what the future holds, and examine the
issues related to the specific areas of concern.
Two alternatives should be considered. In one case, the task
forces should determine what is anticipated in the event that
the potash developments do not occur; continuation of past
trends; changes resulting from federal or state programs,
such as Section 208 (of PL 92-500), the Clean Water Act)
requiring improved wastewater treatment; local shifts in
attitudes or interests that are bringing about changes;
changes in national policies concerning energy, farm prices,
etc.; and other matters that are pertinent.
In the second case, the task forces should determine what will
be required if the potash developments do occur, based on the
impact information furnished to the task forces and the
projected needs.
Evaluate the preliminary Goals and Policies for
Scobey and Daniels County which were prepared as a
part of this case study (see Appendix A), and
make recommendations for changes or additions, based
on the information obtained by the task force.
Provide a written report, including the information
that has been obtained, any supporting maps, evalua-
tion of potential problems, and suggested solutions.
The preliminary Goals .and Policies (Appendix A) can provide
a basis for the organization of task forces, with one task force
appointed to deal with each area of concern or possibly
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two areas if desired:
. Natural Environment and Resources
. Community Character and Development Patterns
. Economy
. Government
. Land Use: Residential, Business, Industrial
. Transportation/Circulation
. Community Resources and Services
If there are additional local concerns which the community
identifies as needing special attention and there are people
who wish to concentrate on that subject (e.g., downtown business,
river preservation, recreation, mental health, etc.), it may
be desirable to create additional task forces to deal with these
concerns.
For further discussion of the organization and creation
of task forces for community study, refer to Sections 5 and 6
in the Action Handbook.
Obtaining Base Maps
Before the task forces progress very far in their work,
a reasonably accurate base map of the town and the immediate
surrounding area should be obtained. This map should be of
sufficient size that individual lots and properties can be
identified, but not so large that it is unwieldy in actual
use. If the town or county has no such map available, one
should be made which can be reproduced and used as part
of the team's permanent records.
Controlled flight aerial photographs at a scale of 1" = 200',
which can be reduced to 1" = 500' or enlarged to 1" = 100' or
1" = 50', are a good base. They can sometimes be purchased at
state agencies or the railroad companies. State or federal
-31-
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agencies or the potash companies might assist in paying for
these maps. The cost of obtaining a new map, if none are
available, should be from $3,000 to $4,000 for Scobey. Each
of the towns should be flown. The topography should be at
two-foot contour intervals as the area is relatively flat.
The area flown should include enough area outside of town to
include areas which will accommodate new development. Illus-
tration IV-1 is an example of a topographic map of the
proper scale.
Property maps maintained by County Assessors' offices
can be of some use; however, they are often done at a scale
which is too large for practical use where an entire town
is involved. Until aerial maps are available, smaller maps
can be made using assessors' maps as a guide. If the high
school has courses in geography or drafting, the making of a
base map of the community might be done as a class project.
Temporary summer help might be obtained from local college
students with training in mapping, surveying or engineering;
or a local citizen with training or interest in mapmaking
and available time might be given the mapping job.
The base map should be of a size that is useable. It should
show, at the minimum: town boundaries, railroad and street
rights-of-way, rivers, lakes and blocks. If property or
lot lines can be added, this is helpful. The location of
public or quasi-public property schools, parks, public
buildings, cemeteries, etc. might also be shown. Illus-
tration IV-2 is an example of a map showing lot lines and
other features.
The base map should be prepared on reproducible sepias or
Mylars. Once this is done, copies can be made and different
information recorded on separate maps.
-32-
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IV-1
p OF TOPOGRAPHIC MAP
- *°M AERIAL SURVEY
100'
(CONTOUR) INTERVAL
2 FEET
-33-
-------
VA
JUNIPER
AVENUE
y
1
r
i
v
1 8
1
|
|
H
J
nF
L_i_
1
i
1
f>
i
SEE i
1
I
PootM
1
left**
tcr
0.
1
ILLUSTRATION IV-2
XAMPLE OF MAP SHOWING PHYSICAL
FFATURES AND LOT LINES
1 it _ c n n i
-GALE:
-34-
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TASK FORCE RESPONSIBILITIES
The specific concerns and responsibilities which the
task forces should undertake are briefly discussed in the
following paragraphs. These discussions are meant primarily
to help the task forces set their courses and get started.
As each group delves into its area of concern, it will
undoubtedly find areas which should receive more (or less)
attention. When it does, it should go ahead and attack the
questions and problems as they are perceived. The task forces
should also refer to the task force guidelines in Appendix B
for guidance as to the elements which should be included in the
inventory and analysis, and for general resources.
Natural Environment and Resources
The primary concern us to evaluate the effect that a potash
development and increased population might have on the agri-
cultural industry, which is the basis of the local economy.
In addition, the task force would be concerned with the pre-
servation of the natural areas and resources of the region.
Contact with the industry would indicate what the nature of
the operations would be and what potential environmental
pollution concerns the community should be aware of. Assis-
tance in this area could be obtained from the University,
from the companies themselves (PPG and Farmers Potash), from
Environmental Impact Statements that have been furnished
for similar projects, and from the Department of Community
Affairs.
This knowledge will be essential should the proposed projects
move forward, so that the community will understand the types
of conditions that should be attached to any approvals.
Both companies have expressed a willingness to work with
the community in explaining their methods of operation and
potential needs.
-35-
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Community Character and Development
The principal task of this group is to evaluate what effect
the potash developments and the anticipated population in-
crease might have on the small town character of Scobey and
the other towns in the county, and on the physical develop-
ment of the communities. The task force should be concerned
with the direction which growth should take whether it
should occur within the existing community or on the edges,
or in both areas and how this physical growth can occur
and yet remain in harmony with the existing community and
not place a financial burden on existing residents.
This task force should seek input and information from the
task forces which are involved with natural environment and
resources and with land use. Assistance in this area can be
obtained from the University, the Department of Community
Affairs, Old West Regional Commission, Three Corners Boun-
dary Association, and from the High Plains District Council.
This task force, together with the land use task force, will
play an important role in the efforts of the community to
insure that new growth and development is orderly and does
not destroy those characteristics and traditions which are
essential to Scobey's attractiveness as a place to live.
Economy and Employment
This task force will be primarily concerned with investiga-
ting and evaluating the effects which the potash developments
will have on the area's economy and employment. The group
may wish to make efforts to answer such questions as:
? How will the potash development effect existing
employment supply and wages? Will it take people
away from necessary agricultural jobs?
-36-
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? What effects will the influx of short-term
population during the construction phase have
on prices for housing, goods, and services?
Will these effects tend to be short term, or
will they remain?
? Will the increased population create a business
climate that encourages chain stores to locate
in the community? Would these stores be an
asset to the area, or would they force local
businesses out?
? How can the existing property tax base be
supplemented to even out the tax burden among
existing residents, newcomers, property owners,
renters, and the industries?
The introduction of new job opportunities into a small com-
munity such as Scobey where little unemployment exists
often creates problems, as well as benefits, in the community's
economic picture. Lower-paid agricultural and service workers
are lured away from essential jobs in the area's economy,
and often cannot be replaced. A higher pay scale in the new
industry produces a ripple effect throughout the area which
can result in higher costs for existing community residents.
Additional growth can occur as a spin-off from the new
industry, and can result in a greater population increase
than was originally anticipated. These are only a few
examples of the concerns which the task force should be
addressing and attemping to find solutions to.
Assistance may be obtained from local businessmen, bankers,
the University, state and federal Labor Departments and
the potash companies.
-37-
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Government Resources and Services
The major concern of this task force will be to evaluate
the effects of increased population in the community on
local government, its ability to provide the needed facili-
ties and services at the proper time, and its ability to pay
for these facilities and services.
This task force must tie together the inputs from all of the
other groups in such a way that the local legislative bodies -
City Council, County Commission, and School Board can
begin to make decisions about what is needed, how it will
be financed, when and where new or expanded facilities will
be built, what new services will be required and how they
will be provided.
The work of this task force will be crucial in helping the
community to cope with the impacts of growth and develop-
ment. This is where it all comes together.
Assessment of the need for expanding the basic facilities
water and sewer should receive a high priority; solid
waste disposal, school, fire and police facilities and
services will also need to be evaluated early in the process.
The question of financing methods and sources of financing
to meet the needs of new growth without placing an undue
burden on existing residents will be a major concern
of this task force.
In addition, the task force must deal with the questions of
whether the town staff is adequate to deal with the problems
and challenges of growth; intergovernmental cooperation among
the various entities having jurisdiction and/or interests in
the area; and how both current and new residents can effecti-
vely participate and influence government decisions.
Assistance in these efforts may be obtained from the High
Plains Council, the County Commissioners and staff, the
-38-
-------
school district boards and staffs, the State Department of
Community Affairs, and the U.S. Department of Housing and
Urban Development.
Land Use: Residential, Business and Industrial
This task force would have the primary responsibility for
determining the effects of future growth on existing and
future land use patterns in the community. One of the major
concerns will involve housing and residential land uses; where
should housing be located; how much will be needed both
temporary and permanent; how will mobile homes be accommodated;
how much multiple family development will be necessary and
desirable and where should it be located; will land use
and subdivision regulations be necessary in the town? In con-
sidering these questions, the task force may wish to create
a subcommittee on housing which can do the type of investi-
gation and analysis outlined for the housing task force
in Appendix B.
The land use task force should also investigate whether land
is available in or adjacent to the community in adequate
quantities and located in a desirable area where there will
not be conflict with other uses for business and industrial
expansion or new development; and whether such development
can occur in areas where it will be compatible with residen-
tial land uses, can be accommodated by existing streets and
roads, and can be provided with the necessary utility ser-
vices. The questions of business and industrial land uses
and the downtown business area were not developed in suf-
ficient detail in the initial goal setting efforts; the task
forces should develop these further. For example, the task
force should look specifically at the current and future
role of the downtown business area as the center of the
community for business, cultural, office, financial
and government purposes, and make recommendations as to
the continuation of this role and what improvements will
-39-
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be needed to make the area more attractive to shoppers and
others; e.g., additional parking, bike racks, benches,
drinking fountains, and trees may be needed; signs might be
reduced in size; unsafe abandoned buildings might be cleared,
etc.
This task force may find assistance through the State Depart-
ment of Community Affairs, Division of Planning; the County
Planning Department; and the U.S. Department of Housing
and Urban Development Region VIII office in Denver. Publi-
cations of the American Society of Planning Officials
and the Urban Land Institute can also be helpful.
Transportation and Circulation
The major concern of this task force will involve investiga-
ting and evaluating the potential effects of the potash
developments and the increased population and housing areas
on existing road capacities in the area and on traffic cir-
culation. The task force should work closely with the land
use task force, as traffic patterns, volumes and potential
problems and solutions are highly dependent upon land use
patterns. Furthermore, plans for widening or improvement
of roads can be a major factor in decisions as to where
certain land uses should be located and on the timing of
development.
The task force should seek the assistance of the State
Highway Department, the County road supervisors, and the
railroad in making its inventory and examining the issues.
Community Resources and Services
This task force should be primarily concerned with the social
impacts of new growth on the community, and the community's
existing and potential abilities and resources to meet the
"people" needs which will be generated by new growth. The
community has, so far, done a very good job meeting the nee
-40-
-------
of its stable population. Rapid growth, however, will bring
major social changes to the community some will be desirable,
some may not be. Uprooted families can have internal problems
which will become external in a new location and affect the
entire community; people who are not familiar with the rural
way of life may have difficulty adjusting to the slower pace
and the tighter and more well-defined social structure of the
community. New people will bring new ideas and ways of doing
things, which may or may not be acceptable to the existing
residents. More leisure time will bring greater demands for
recreational and cultural opportunities. People accustomed
to a wide range of social services and recreational opportuni-
ties and programs will expect more than may now be available.
The task force will not only need to inventory and assess
what social, educational, recreational and cultural resources
are available in the community; they will also need to find
ways to include new residents in the community life, and to
use the potential which new people will bring to develop
community resources for the benefit of all the community's
residents. The task force should look at those resources
which are available and may be better provided by
private non-profit organizations, churches and service
clubs as well as those which are customarily provided by
governmental agencies in larger areas.
This is one area where local churches can provide valuable
assistance, both in assessing the need and in helping to
institute programs and services. Young people and senior
citizens in the community can be helpful. Indian Tribal
Councils should be included in the task force's work if it is
believed the Peak Reservation will be affected. Governmental
agencies which can be of assistance include the County health
and welfare departments, the University, and the school
districts.
-41-
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The preliminary Goals and Policies did not cover this subject
in as much detail as may be desirable. The policies which
have been suggested are extremely general in nature; the
task force should augment these with more specific recommen-
dations .
For example, the question of providing expanded services and
opportunities for senior citizens may need some specific
recommendations as to how this can be done. Daniels County
has a higher-than-average proportion of residents over the
age of 65. Many of these people are undoubtedly still very
active in business or farming activities, and find no need
for special programs or services in the immediate future.
On the other hand, there are those who are no longer working,
due to preference or to physical disability, but who still
have much to contribute to the community; they may also
need an occasional special consideration in the way of
help to insure that they do not become lost in the shuffle
as the community grows.
There are many opportunities for older citizens to help
newcomers adjust to the community and learn of its history
and traditions; the Retired Senior Volunteer Program active
in many communities, can be a major force in affecting
improvements in the community which busier people have
insufficient time for.
The effect of growth on the community and the almost inevitable
rise in taxes and housing costs can make the housing needs
of older people on fixed incomes a major problem. The task
force may need to explore ways to insure that people do
not have to lose their homes, or that there are good
housing units available at reasonable prices for those
who wish to sell their present homes and move into smaller
quarters.
-42-
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SETTING COMMUNITY GOALS
The final product of the task forces is a recommended set
of goals and policies for the community. Once each task force
has completed its review and submitted a written report with
its findings and recommended adjustments to the preliminary
goals and policies statement you already have (Appendix A),
the Community Impact Committee and the task forces should
review the total list. A general meeting of the Committee
and the task forces should be held to clear up any conflicts
and/or overlaps, and to insure that the policies, which will be
used as guides to direct decisions, are as explicit as possible
to permit everyone to understand them.
When the goals and policies have been adjusted, they
should be submitted to the County Commissioners, City Councils,
and School District Boards. If these bodies accept them for
consideration, public meetings should be called to explain the
impact and the goals and policies to the citizens at large.
public discussion and reaction should be encouraged. Meetings
might be held in Peerless, Flaxville and Scobey. As many
meetings as necessary should be held in order to reach a con-
sensus on the content.
Publicity and copies of the Goals and Policies (similar
to the Daniels County Leader supplement of January 20, 1977,
or printed reports) should precede the meetings. It is impor-
tant that the citizens understand the impact issue, what is
needed to cope with the growth, and what goals are being set
to guide the future of the area.
It is highly desirable for the County, the towns, and
tne School District officials to adopt the Goals and Policies
a& a joint statement, to insure that everyone concerned is
in common direction.
-43-
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Community
Organization
-------
PAGE NOT
AVAILABLE
DIGITALLY
-------
5
COMMUNITY ORGANIZATION
When the task forces and the Community Impact Committee
have completed their initial work and the Goals and Policies
have been adopted, the residents of Scobey and Daniels County
will have a fairly good picture of the job that lies ahead.
The task forces will have assessed the needs of the community
for the present and the future; the community will have achieved
a consensus on the community's goals and the policies needed
to implement the goals. The next step is to organize for
action.
The City Council and the County Commissioners, with the
help of the city and county staffs, should now begin to get
ready to deal with the potential impacts of the potash develop-
ments. By this time, the potash companies may have firmed up
their plans and made further public announcements concerning
the magnitude and timing of the developments. If they have,
the local governments will know more or less where they stand.
If they have not, the Council and Commissioners can still begin
to organize and formulate an action program which can be based
on assumptions that the developments will go ahead generally
as has been proposed.
If the developments do not occur, the community will at
least have a handle on its current needs. If they do occur as
proposed, the community will be ready to take some action.
Even if only one development goes ahead, or if one or both go
ahead but with lower or higher estimates of employment, the
community will be in a position to make any necessary modifica-
tions in the assessments of anticipated needs and continue
from that point.
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In a community the size of Socbey, it is unrealistic to
assume that the entire burden of assessing available resources,
setting priorities, coordinating of governmental and non-
governmental resources and providing all the needed services and
facilities should fall on the shoulders of the local government
officials and agencies. The Council, School Board, and Commis-
sioners still have the overall responsibility and make the
final decisions. But other sources of help should be sought
wherever they can.
ASSESSING NEEDS AND IDENTIFYING RESOURCES
Table V-l is an example of the type of worksheet that
can be used to list existing community needs and to continue
the process of identifying future needs, resources and capa-
bilities.
All services which may require some action should be
listed. (The worksheet does not include examples of such
actions as developing a comprehensive plan, adopting land use
regulations, etc. The actions needed in these areas could be
listed on a separate and shorter worksheet which would identify
the need, responsible agency or group, and possible sources
of technical and financial assistance.)
Using the information gathered by the task forces and the
suggestions in Section VII of the Action Handbook, list the
existing needs of the community, the anticipated needs if one
potash development occurs, and the anticipated needs if both
developments occur at the same time. The City of Scobey will
be particularly concerned with the needs for water and sewer
service, police protection, solid waste disposal, parks and
recreation facilities, general administrative services, and
housing. The volunteer fire department will be concerned with
the needs for fire protection; the school district will be
concerned with school facility needs; and the County with flood
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COMMUNITY NEEDS AND POTENTIAL SOURCES OF ASSISTANCE
Existing Status
Anticipated Status
SERVICE
PRESENT
CAPACITIES/
PRESENT
A ANTICIPATED
GROWTH
IMPACT
CNEEDS
WITH
GROWTH
POTENTIAL
SOURCES OF
ASSISTANCE
Schools
Police
Fire
Hospitals
Health Services
Streets and Roads
Airport
Electricity
Gas
Telephone
Water
Sewer
Flood Protection
Solid Waste
Parks
Recreation
Housing
Welfare/Human
Resources
Library
General Adminis-
trative Service
Cultural Facilities
Government Buildings
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protection, solid waste disposal, government buildings, and
welfare.
The facility and employee needs shown above in Table III-2
might be used as the starting point for determining anticipated
needs. (It should be remembered, however, that Table III-2
estimates needs resulting from only one potash development.)
The task forces may make some recommendations which should be
substituted for the needs shown in Table III-2 wherever appropri-
ate; in addition, the community may decide to use its own
standards for determining needs in which case these standards
should be used.
In assessing the anticipated needs, the community should
also make an estimate as to how much of the anticipated new
growth will occur in Scobey and how much in Peerless and
Flaxville. It can probably be assumed that few, if any, new
people will reside in the rural areas. Because Scobey's present
population is about half of the total county population and
Scobey is able to provide more of the needed facilities and
services, it may be reasonable to assume that from 1/2 to 3/4
of the new population will reside in Scobey.
4
Once the needs have been listed, potential sources of
assistance financial and technical, governmental and non-
governmental can be identified. Local government which
means local taxpayers cannot and should not be expected to
carry the entire load. Neither can the new population be
expected to foot the bill for facilities which are needed to fill
existing needs.
The Eastern Field Office of the Montana Department of
Community Affairs (in Glendive) can help in identifying sources
of technical and financial assistance provided by the state,
and can also be of help in establishing contacts with Federal
agencies and regional organizations.
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The Departments of Housing and Urban Development, and
Health Education and Welfare, the Bureau of Outdoor Recreation
(Department of the Interior) and the Soil Conservation Service
can be of assistance. Regional offices for most of these
agencies are located in Denver, Colorado. State or area offices
may be located closer to Scobey; if so, they should be contacted
first.
Technical assistance is often available from colleges
and universities. Montana State, Eastern Montana College, and
other state and area colleges might be good sources of help.
The Old West -Regional Commission has long been concerned
with the problems of rapid growth in the plains states; they
should be able to provide advice and supply information.
Many of the recreational and human resources needs of
small communities are already being met by 4-H clubs, local
service clubs, and churches. Churches, in particular, are
often deeply involved in efforts to provide decent housing
for low income and elderly people. Even if the local churches
have not gotten into this field, the national and regional
synods and conferences have often been involved and have people
on their staffs who are knowledgable about the use of non-profit
corporations to provide needed new housing or to rehabilitate
existing housing.
It has become customary for builders of new housing
developments to provide for the basic requirements of their
developments: water and sewer lines, parks, streets and side-
walks, and storm sewers. Requirements for the provision of
these improvements by the subdivider are included in the Daniels
County Subdivision Regulations.
Last but by no means least are the potash companies.
They are the ones creating the impacts. They should also be
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the ones who help to provide for the needed facilities, provide
at least some of the temporary housing needed, and help the
community in establishing contacts with outside resources. They
frequently have experience in other areas where they have
developed the resources and can provide not only the facilites
they need but can also provide technical expertise. This is
one source of assistance that should certainly not be over-
looked.
SETTING PRIORITIES
When the anticipated needs and potential sources of
assistance have been identified but before any specific
help is requested the Council and the County Commissioners,
together with the School Board, the Community Impact Committee,
and the task force chairmen, should set priorities.
Priorities for action should include specific actions
which must be undertaken in the area of land use planning as
well as those which must be undertaken to provide the faci-
lities and services which will be needed. The community's
needs should be weighed and grouped according to a priority
system which categorizes:
Actions which must be undertaken, or basic facili-
ties which must be built, before growth begins.
It may be necessary and desirable to undertake
some actions even before the potash companies
have firmed up their plans, so that the community
will be ready once the companies are ready to
move ahead.
Actions which can be undertaken, or facilities
which can be developed, while growth is occurring.
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Actions or facilities which can be planned for
but which will not become operational until the
new population has arrived.
Table V-2, Urban Service Characteristics, can be used as
a guide in setting priorities for services, as well as in
helping the community identify financing alternatives, providers
of services and lead time requirements. This chart is intended
primarily as a guide; local desires and capabilities should
be given considerable weight in the establishment of priorities.
WHO DOES WHAT?
The Scobey City Council and the Daniels County Commissioner
will need to determine what the city or country can and should
do; what can and should be done in a joint effort by the City
and Daniels Count; what can and should be done by the companies;
what can and should be done by private organizations; and what
can and should be done by or with the assistance of state
and federal agencies. (Table V-2 can provide some guidance.)
People in rural areas have traditionally been wary of
depending upon the Federal government for help, preferring instead
to do things on their own. If the impact from new developments
which is generated from outside the community is great enough,
however, some federal assistance may be necessary, particularly
where expenditures for major facilities such as water and sewer
treatment plants are concerned. In looking to the Federal
government, though, the community must remember that federal
assistance rarely, if ever, comes without strings attached.
Federal aid programs are increasingly dependent upon require-
ments for local comprehensive planning, good management and
accounting practices, and provision of matching funds by local
or state governments. The requirements of federal programs are
often so complicated that contact must be maintained with the
officials administering the programs on a nearly constant basis.
if the community is not ready and willing to comply with the
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requirements of the federal programs, it had better find some
other sources of help.
The Council and the Commissioners should also give some
major attention to the local tax base - where are the funds
to operate the government coming from? Local governments are
often highly dependent upon property taxes, particularly in
Montana where local sales taxes have not been authorized by
the State Legislature. Property taxes are not, however, respon-
sive to growth, and they do not accurately reflect benefits
received or costs generated by individual properties. The
community should consider what other revenue sources may be
available, and legal, in the state of Montana. (Illustration
VIII-16 in the Action Handbook lists various alternative sources
of revenues and discusses the various considerations of each
source. This chart was prepared for Colorado governments; the
legal situation in Montana will be somewhat different and the
chart should be checked against enabling legislation.)
If and when the potash companies decide to move ahead,
and the dimensions of the impact are more closely defined, the
City of Scobey should consider hiring a city administrator or
manager or elevating the city clerk position to this role.
If someone is not officially designated and paid to deal with
the myriad of day-to-day problems resulting from growth, and
to be in charge of coordination and operation of the city
facilities and services, these jobs will either not get done
or will fall upon someone, such as the mayor, who may not have
sufficient time to take care of everything that is involved and
continue his own business affairs. Volunteers, whether they
are elected officials or simply interested citizens, cannot
be expected to do it all when major growth impacts occur.
An alternative to a full-time city manager has been
explored in some areas where communities are too small to
support a full-time manager at a reasonable salary and there
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is not enough work to keep a full-time person busy after the
major problems have been dealt with. This is the circuit-
rider approach: one person serves on a part-time basis in two
or more communities which are relatively close to one another.
This, of course, has disadvantages both to the town which
often does not have the manager there on the day he is most
needed and to the person himself, who must do extensive
travelling, keep the interests of more than one community
in mind, and may find his home life is adversely affected.
Other alternatives for part-time managers or time-sharing
systems could also be explored. The International City Managers'
Association (ICMA), headquartered at 1140 Connecticut Avenue, N.W.,
Washington, D. C. 20036, could be contacted to provide information
on the circuit-rider system and other alternatives. The Denver
Regional Council of Governments has sponsered such a system
for three communities in the Denver area and could be a source
of do's and dont's when establishing such a program.
A recommended program for immediate action by the County
and the City of Scobey is presented in the following chapter.
This recommended action program deals primarily with those
actions which must be taken before growth begins. Even if the
potash companies do not move ahead with their planned develop-
ments on schedule, or if the plans are completely abandoned,
these actions will not result in time wasted. They will still
j-,e valid in helping the community prepare for any evantual
growth.
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TABLE V-2: URBAN SERVICE CHARACTERISTICS
This Table is included in pocket on back cover.
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Community
Actions
-------
g
COMMUNITY ACTION
Based on our brief evaluation of the Scobey and Daniels
County situation and the preliminary Goals and Policies that
have been formulated, we would recommend the following actions
as being necessary in the beginning. There will be addition-
al actions found to be necessary or desirable by the citizen
task forces; however, these initial recommendations should be
viewed as a starting point, from which the County and the indi-
vidual communities can begin to look ahead toward coping with
anticipated growth.
GETTING CONTROL
The first steps in getting control of the anticipated
development impacts are to identify where growth can best be
accommodated and served at the least cost, and determine the
pattern of growth.
Each community Peerless, Flaxville, and Scobey
should decide whether it wishes to grow; and if it does,
where and how this growth should happen.
Once the potential impacts of growth have been identi-
fied by the task forces, the citizens in each community
can assess their own situations and make their decisions
decisions which should be community decisions, rather
than being thrust upon the communities from outside.
The County should not permit or encourage the develop-
ment of an entirely new community in Daniels County.
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Given the amount of investment in public funds which has
occurred in the existing communities, the development
of a new community appears to be unwarranted. New develop-
ment should be channelled into the existing towns.
Logical service area boundaries should be identified
for each community, preferably through mutual cooperation
and agreement among the communities and with the County.
Service areas should include land areas which the
communities are willing and able to provide with utility
and other town services, and where these utility and
community service extensions can occur in a logical
manner.
The natural drainage patterns of the area should be
used to provide the lead as to what is logical, in order
to avoid having to commit capital and operations costs
for pumping of water and sewage.
Growth should be contiguous to existing development and
should occur where schools, roads and other public
services and facilities are most easily extended or
developed, or where excess capacity exists.
This approach avoids costly investments in capital facili-
ties through undeveloped areas and unnecessary extensions
of the distances required for police patrols, fire
protection, road maintenance, trash hauling, utility
lines, etc.
All urban^type uses should be required to locate within
the communities' urban or service areas, subject to each
community's development controls and policies.
Competition among the communities in this context is
acceptable and desirable, in that it provides people with a
choice as to which community they prefer to live or operate
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a business in. But developers should be discouraged from
building in unincorporated areas and thus placing the burden
for providing facilities and services on the County.
LAND USE PLANNING
Using the information base generated by the task forces,
the Goals and Policies which have been adopted, and the deci-
sions which have been made concerning the general location and
pattern of development, the County and the communities can
begin the more detailed process of planning for future develop-
ment.
The cities and the County should develop and adopt
Comprehensive Plans, public statements concerning where
development is desired and can best be accommodated.
(Montana Law requires that a comprehensive plan be adopted
if towns or counties wish to adopt zoning regulations.
Stan Steadman in the Eastern Montana Field Office of
the Department of Community Affairs in Glendive can
provide guidance in the requirements of the state law.
The plan should be based on the Goals and Policies and
should include:
Sfc The desired patterns and directions of growth.
(Locations of various land uses, roads, extent of
growth in given directions, areas to be preserved
from development, etc.)
% The nature of, and areas to be occupied by various
land uses:
Residential
Business
Industrial
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Agricultural
Public
Parks and Recreation
Natural areas
H* Circulation pattern. (Location and type of major,
secondary, and local roads and streets.)
5f« Location and nature of public facilities:
water
sewer
power
schools
hospitals
fire stations
Sfc Definition of community character. (Aspects of
the community which should be preserved or en-
hanced, neighborhood densities, desired housing
types, etc.)
The Plan should be developed with the total community
in mind. The entire county should be considered, with each of
the population concentrations considered as a part of the whole.
Each town should be permitted to decide its own character and
the details of the planning for its service area. County
responsibilities are to control the areas outside of the
immediate area of the communities and to reinforce the planning
programs of the individual communities.
In developing the Comprehensive Plan, the County
and the communities should attempt to insure that
new development will:
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jfc be avoided in areas which the communities
determine should be preserved (e.g., in the
flood plains along the river);
fc be located where it is the least disruptive to
existing residents and where traffic circula-
tion to and from the development will not
create major problems for existing neighbor-
hoods ;
fc not disrupt or destroy the better agricultural
lands;
S|» not be in conflict with other land uses, such
as the rodeo grounds or the historical town
buildings in Scobey;
Sf» be located, and lots sited, where it will not
be affected by incompatible land uses, such
as drive-in theaters, the railroad, gravel
pits, solid waste disposal sites, or highway
traffic.
After the Comprehensive Plan has been adopted,
the County should develop and adopt land use con-
trols based on the Plan, for all unincorporated
areas.
Without such controls there will be little available
to the county or the towns in the way of review
power over the potash development proposals, loca-
tion of temporary housing and mobile home parks,
subdivisions, new businesses or ancillary industries.
Scattered and uncontrolled uses of land could
adversely affect the agricultural industry, and will
increase the capital and operating costs of the
country and the school districts. Furthermore, the
resulting land use patterns could be highly mar-
ginal from the standpoint of livability.
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Without some leverage being available to the county
and/or towns, both the potash companies could choose
to develop their projects at the same time, causing
major crises in the level of impacts that would occur.
Regulations requiring county legislative approval
and input by the individual communities could help
to prevent such a situation from occurring, or, at
any rate, require some phasing or mitigation by
the companies.
Scobey and the other communities in the County should
develop and adopt land use controls, based on the
Plan, for the unincorporated area.
Adopting such controls will permit the community to
determine where and how development will take place
and to insure that it occurs in a manner which will
protect existing neighborhoods, preserve the com-
munity's small town atmosphere and reinforce the role
of the downtown business area. Without at least
minimal land use controls, developers from outside
the area could influence Scobey's future in a
manner which is not acceptable to the citizens.
In developing land use controls, the county and the
city should:
ST Require that all urban types of uses housing
subdivisions, business and commercial activities,
and industrial uses be located within or
adjacent to existing communities. (Some
exceptions may be necessary where activities
or uses are tied to a specific location; e.g.,
a mining or milling operation; business or
industrial uses directly related to agricultural
areas, such as farm equipment sales, etc.)
sfc Consider the possibility of permitting some
temporary housing for construction workers
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at the potash site, similar to the construc-
tion housing at the Poplar River dam site,
with the intent of removing it when the construc-
tion is completed. (No business uses should
be permitted at the site.)
One advantage of this type of approach is that it reinforces
the separation between temporary and permanent residents.
H» Also consider an alternative approach, which
may be preferable, of identifying an area in
or adjacent to the towns which is suitable
for permanent homes; permitting the land to
be subdivided, and streets, sidewalks, utilities,
and power lines to be built. Two or three
mobile homes could be replaced by permanent
housing. Without adequate land use control,
however, this type of phasing of uses would be
difficult to achieve.
»fc Reinforce the downtown areas. Regional busi-
ness and office uses should be encouraged to
locate in the downtown areas and development
of shopping centers in outlying areas should
be prohibited, although convenience stores and
highway-oriented commercial uses might be
permitted to locate outside the downtown areas.
This pattern will help to maintain the down-
town areas as the social, governmental, financial,
office and retail centers of the communities
and help to give them strong identity. There
will not be enough growth in the area to justify
a shopping center in competition with the down-
town businesses. If one is built, both areas will
end up with marginal uses and neither will be
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able to justify the amenities needed to make
the areas attractive to shoppers and other
users. The downtown, as a strong center, is
an excellent focal point for bringing the
people of the community together.
H? Emphasize the concentration of shopping,
lodging, government offices, financial insti-
tutions, professional offices, restaurants
and library in Scobey. It is desirable to
have a variety of activities both day and
night in the area to justify the public
and private investments that have been made
in the area. Concentration of activities can
help to support additional improvements in
the area, where there is ample room for filling
in.
If land speculation occurs, local powers may
have to be used to make land available for
redevelopment; otherwise, the entire down-
town concept will be jeopardized and a new
outlying center could become a necessity. If
the town only permits certain kinds of develop-
ment to take place downtown, the landowners
there will gain in return they should have
the responsibility of improving the area and
not discouraging desirable new facilities by
arbitrarily inflating rentals or land costs.
PLANNING FOR FACILITIES AND SERVICES
Based upon the anticipated impact, the information generated
JPY the citizen task forces (particularly the task force concerned
v/ith governmental resources and capabilities), the Comprehensive
Plan (which should have considered the physical capabilities of
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the utility systems, schools, parks, streets, natural areas,
etc.), and the preliminary priorities which have been established,
the community should begin developing plans for the various
physical systems and for governmental services which will be
required.
Initially, the community should decide which facilities
are needed first and which ones can be delayed until after the
population growth begins. Water and sewer service are obvious
needs before any housing can be provided. Schools, parks, and
fire stations can wait and occur when the housing is constructed.
Mental health and other social programs can be planned for but
not activated until the new population has arrived.
To insure that growth occurs where and when the community
wants it to occur, the basic services must be supplied where
and when they are needed. The basic services water and sewer
facilities have the longest lead time between identification
of the need, securing of financing, design of the facilities,
and actual construction.
The communities should begin by:
H Completing the basic studies (with industry, federal
or state assistance and technical support): where
the facilities should be located, what is the
necessary size, what the design will be, and how
the facilities can be financed. No commitment to
actual construction will be necessary until the
potash companies make their commitment to proceed.
There is no need at this time to add facilities;
however, the communities should be ready. They
should pin down financial resources, determine
how quickly financing can be obtained, find out
what paperwork is necessary, etc.
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Sfc Keying the approval of zoning or construction permits
for the potash operations to that point in time when
the influx of workers can be accommodated.
Although the present water storage facilities are
inadequate due to the hot, dry weather, the present
utilities may have some ability in the near future
to handle minor increases in use maybe enough to
permit the first phases of construction to occur.
If additions are necessary, however, both the utilities
should be ready for use before the arrival of the
people to be served.
Functional planning should begin for those facilities
that can be developed while growth is occurrring; i.e., local
street improvements or construction, added school facilities and
police and fire protection, solid waste disposal facilities, etc.
These facilities need not be totally developed before the
new population arrives. However, planning for these services
and facilities should begin well in advance of the new growth,
in order to insure that the facilities and services will be
available when they are needed. Construction of facilities and
addition of personnel can begin before the new people come into
the area, and continue as the population increases.
General planning not in detail should begin for
those facilities and services which need not be put into opera-
tion until after the population arrives (e.g., parks and
recreation facilities, social services, additional library
facilities, social services, additional library facilities,
etc.)-
Details and actual development of these facilities will
Depend in large part upon the actual needs and desires of the
new population factors that usually cannot be determined
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before the growth occurs.
In planning for facilities and services, Table V-2 should
be used as a reference.
In planning for the facilities which Table III-2 indicates
will be necessary (or which the task forces identify as needed),
the community should look first at the land and factilities
requirements for the operations phase these land and facilities
needs will be of a permanent nature, but will be needed for both
phases of the development. Then the needs for the temporary
construction phase should be considered, and possible adjustment
or compromises weighed. For example, the total land requirements
for school facilities in the construction phase are 16 acres more
than the requirements for such facilities in the operations phase.
Thought might be given to acquiring this land to meet most of
the permanent needs for park land (total requirement 19 acres),
and placing temporary classroom facilities on the land during
the construction phase. It is questionable whether the total
park land needs for the construction phase should be provided
for just a few years. Ball fields and activity fields are
probably the greatest needs in the construction period. The
dual use of school land initially, and park land later, is the
type of strategy that the community should consider for other
elements as well.
There are other facilities and services which may have to
operate in somewhat overcrowded circumstances or in leased
space during the construction phase (e.g., police station
facilities, library, etc.), in order to avoid overbuilding for
the needs of the permanent population. Knowing what to expect
and planning accordingly can save many unnecessary expenditures.
Functional planning for other than the basic services and
facilities can follow the establishment of priorities and the
planning for basic facilities. Functional plans should cover
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the physical design, location, operation, management, financing,
timing of expansions, and interrelationships with other programs
or elements, for each separate item (parks, schools, etc.).
Each function should have standards which are clearly spelled out
governing these items, so that the public, staff, advisory boards
and elected officials will know what is proposed. These standards
should reflect the Goals and Policies, and further the implementa-
tion of them.
Each agency or task force should develop its own functional
plans and programs. The policy body responsible for the function
should review and adopt the plans; i.e., the school board should
review and adopt the school standards and plans, the County
Commissioners should review and adopt highway and road standards
and plans, etc.
Functional plans and standards should be developed for social
services as well as for physical facilities and services. These
plans may, however, carry a lower priority than plans for
facilities which must be constructed.
All functional plans will not be completed at the same time.
The level of detail will vary, depending in part upon the data
available and the priorities the community has established.
Some programs will be done in detail, while others will only
be in generalities. Accept this. Do not feel you have to have
all plans completed in great detail before using them; i.e.,
the highway plan may be fairly simple and merely reflect a few
minor changes from the existing system, whereas the water system
may be more complicated and take an engineering firm several
months to complete or it may have to wait until a following
year when utility planning funds can be budgeted. Take what
is available and being putting it together to see if there are
conflicts with the community goals. Put a price tag on the
capital improvement needs (e.g., new section of road, bridge,
trunk line, etc.) and estimate the operation costs (e.g., new
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fire station, sewer plant, etc.
During the process, an attempt should be made to identify
where the revenue to build and operate each system is to come
from: fees, bond issues, special taxes, government grants,
energy impact funds, industry, etc. Some of the sources may
be very speculative in the beginning, but all ideas that can
be pursued should be listed.
FINANCIAL PLANNING
V
Financial planning for new physical facilities and for
added government services can begin early in the action program.
Initial identification of revenue sources need not wait until
the comprehensive plan and the physical facilities planning have
been completed. Of course, costs will not be known until more
detailed planning has been done, but the community should have
some idea where the money is coming from who will be paying
for the growth before it begins to budget for capital opera-
tions expenditures.
In this initial stage, the community should:
Investigate sources of outside assistance
federal and state governments and the industry
are the three most logical sources.
Investigate ways in which developers can finance
improvements. Each development should be required,
through subdivision or other regulations, to
install the basic facilities required by his
development: local streets, water and sewer
lines, sidewalks, drainage facilities, street
lights, and street sign*. The developer might
also be required to share in the total cost of
widening or otherwise improving existing streets
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and in the cost of providing utility lines which
are in excess of the size which would be required
without the development. Developers should be
required to contribute land and/or cash for the
acquisition and development of park and recreation
facilities needed to serve the development. Some
communities require that the developer plant a
minimum number of trees in residential developments.
Off-street parking facilities and landscaping
are often required in multiple-family, commercial
and industrial areas.
Begin to operate those services which can be
operated as self-supporting enterprises as such.
Water, sewer and trash removal are three services
that fall into this category.
Plant investment (tap) fees should be collected
to pay for the proportionate share of the capital
facilities each user requires.
. Rates should be set to reflect operation,
maintenance, and depreciation costs.
Consider requesting state legislators to sponsor
and promote state legislation which will allow a
local option sales tax to be adopted.
We realize that the sales tax is not very popular
in many areas, but it is preferable to marginal
facilities and services or to raises in property
taxes where only property owners pay. Sales tax
would collect some revenues from the Canadian dam
and power plant workers, tourists, and temporary
workers who will not pay property taxes but who
use county and city roads, parks, sheriff and police
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services, government, and social services. In
many areas, a portion of the sales tax collected
is returned to elderly and low income families,
thus removing the adverse effects of this tax on
those who are least able to afford it.
A local sales tax will be increasingly justified
if a large influx of construction workers occurs.
The sales tax is immediately responsive it is
collected as soon as growth begins whereas the
property tax collection may not be received for
up to 18 months. The demand for services is
immediate; therefore, a tax that brings in
revenues quickly is important if governmental
services are not to fall too far behind.
Discuss with the county and the school districts
the issue of tax distribution, and attempt to
develop a possible solution to the problem.
The property tax from the potash plants and mines will accrue
to the county and probably to one school district. However, the
impact of the developments will be felt most strongly in the
towns, and the towns will carry much of the financial burden of
the impact. Some equitable manner of sharing the revenue or
expenditures should be created. Annual "hat in hand" requests
by the have-nots do not work and lead to hostility between the
representatives of the various governmental bodies and school
boards.
Intergovernmental agreements before the conflicts occur are
advisable. A technique frequently discussed, but seldom execu-
ted, is for the towns to disincorporate if no relief is received,
and allow the county government to assume the provision of all
services. However, this is not a desirable solution. Among other
disadvantages, this solution creates undesirable competition
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among formerly incorporated areas; it also removes the decision-
making powers farther from the communities where the population
is concentrated.
A better approach is for the towns and the county to explore
areas where joint operation of facilities or provision of services
can be accomplished, based on amicable agreements.
HOUSING
One of the most difficult issues in a rapid growth situation
involves meeting the needs for housing. Housing automatically
requires many other services in order for it to be something
other than merely shelter. For a temporary period of time,
minimum shelter is acceptable if there are other activities or
amenities available parks, entertainment, or work some
place for people to go in order to avoid the living quarters.
In preparing for the impact of growth, the community should
give some consideration to the following recommendations:
3fc Explore alternatives to permanent housing.
Not all housing to accommodate the increased
population expected from the potash developments
should be permanent. This is especially true for
the construction phase, when housing requirements
will be greater, and different, from the requirements
for permanent housing later on. Mobile homes;
temporary dormitories, for single people, which can
be moved to another site when the need is no longer
there; or apartments which can later to converted
to a motel, or vice versa, are some of the answers
to the temporary housing needs.
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Adopt minimum standards for temporary housing sites?
these standards should be high enough to assure
livability of the areas, yet less than the normal
permanent requirements so that major expenditures
are not needlessly required (e.g., plastic water
lines, minimum pavement, etc.)
Complications arise when water and sewer lines and paved
streets need to be provided. But the cost in social
problems as witnessed in other boom situations,
such as in Gillette and Rock Springs, Wyoming, or
Grants, New Mexico should demonstrate the need
for minimum standards which are high enough to avoid
the tensions which can result from blowing dust,
crowded and consequently noisy living units,
lack of sufficient water supply, health hazards
from inadequate septic systems, or a lack of a place
such as parks to escape to with children.
Require some guarantee that temporary developments
will not linger on as marginal permanent housing
after the construction phase is over.
Consider the approach recommended previously of
locating mobile homes on lots which can eventually
be converted to permanent housing sites.
Take steps to preserve existing housing.
The only low cost housing units available are those
that already exist. These units should be preserved
wherever possible. The community should consider
ways to assist the elderly and low income families
with rehabilitation programs to keep existing units
in good condition.
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}» Work with the potash companies in an effort to
obtain sufficient mortgage money. Contact other areas
to find out what has worked for them and what hasn't.
The risk factor is the biggest problem in attracting
mortgage money into boom situations. The potash
companies may be the only ones capable of over-
coming this problem. There may be other communities
that have solved the problem; Colstrip, Montana, and
the Wyoming Development Corporation in Wheatland,
Wyoming, may be of some assistance.
r Consider the use of prefabricated housing.
Finding contractors or subcontractors capable of
providing the amount of housing needed may be
difficult. Prehab housing that requires a minimum
of skilled labor is one answer.
H* Tie approval of zoning for industrial development
to resolution of the housing problem.
This is an area which local government cannot
solve by itself. The problem must be resolved
before it occurs. Once development starts, it is
too late. People will accommodate themselves, but
often to the detriment of other residents of the
community.
Jj The community should investigate the possibility of
taking a "cooperative" approach (as is done with
grain elevators, telephone and power systems) toward
providing the necessary land to developers at a
reasonable price.
Land speculation is almost always a by-product of
rapid growth situations. When it occurs, it is a
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major factor in discouraging better development to
occur in appropriate locations; it nearly always
leads to scattering of development into the rural
areas where land prices are lower and to unreasonably
inflated housing prices. Some strategy must be
devised and used to avoid these effects.
GOVERNMENTAL MANAGEMENT
Proper management is the key factor in the efficient and
effective provision of services. Good management is critical,
particularly under a rapid growth situation, if a community is
to avoid building long-range problems into the system when, due
to "necessity," quick decisions are made just to keep things
moving.
Management implies decisions on the philosophy and methods
of funding the services, operational decisions, coordination
with other community decisions, planning for expansion and
improvements to the system, development of standards and policies,
organizational decisions (e.g., in-house versus consultant staffing),
timing and priorities for expansions, and fixing of responsibilities.
Many urban services (see Table V-2, Urban Service Character-
istics) can be operated by entities other than general purpose
governments; for example, water or sewer districts, recreation
districts, private trash haulers, fire districts, private or
nonprofit hospitals and ambulance service. Sometimes local
government contracts for these services; sometimes the users
contract directly with the district or other agency providing
the service. As a community grows in size, it is preferable
to bring as many of these public services as possible under
the control of the general purpose government, through direct
provision of the service, a contract, or a license or franchise.
This provides a safeguard for the citizens while still permitting
private enterprise to serve where it can do so profitably.
Without such a safeguard, some residents of the community could
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be excluded from receiving an essential service or using an
essential facility, or, because of a monopoly, residents could
be paying higher costs than are justified. In smaller communi-
ties like those in Daniels County, services are usually provided
by a combination of these techniques.
The following recommendations may help Scobey and the other
communities in the county to prepare for the expanded role that
local governments will play in dealing with the impacts of
growth resulting from the potash developments. Each of the
recommendations should be tailored to fit the desires and needs
of the community and the capabilities of the city government.
More in depth discussions of each can be found in the Action
Handbook.
3JC Those services that can be operated as enterprises
separate from, but under the control of, general
government activities should be operated that way.
Water, sewer, and solid waste disposal services are
the prime candidates for this approach. Parks, rec-
reation, and drainage are candidates for a partial
use of this approach. These services can and should
be run like businesses. Capital costs and operation
and maintenance costs should be collected in direct
proportion to the need for and benefit from the service,
Funds should be accounted for separate from the general
fund. No general funds should be used to subsidize
utility rates, nor should utility funds be used to
subsidize the general fund. However, payment for
services received, (e.g., office space, equipment
use, management) are legitimate expenses for which
the utilities should compensate the general purpose
government. A "plant investment fee" should be
charged for the individual user's proportionate
share of the operation and maintenance costs. This
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approach maximuzes the philosophy of new growth
paying its own way.
Be responsive to the desires and concerns of the
residents. They are the ones for whom the services
are provided. Seek their input and continually
monitor the services to be sure the users are
receiving the best service possible. It is very
easy to be comfortable and assume the services are
being provided efficiently. Deliberate measures of
performance should be used to make sure the "best"
is always sought after in providing public services.
Continue to use and plan for facilities jointly with
other agencies or groups, such as the schools or
churches.
This will insure that the best possible use is made
of existing facilities and services and the taxpayers'
dollars, and avoid duplication of services and higher
costs.
Keep good records of users, amount of services,
costs, problems, and development.
This allows the government and the citizens to
know how the money is being spent, who is receiving
the benefits, what needs to be improved upon, and
what adjustments may be necessary in services
provided or in rates being charged.
Fix clear lines of responsibility for policy decisions
and staff operations.
The City Council should have the responsibility for
setting policy, but should delegate to the city
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administrative staff the authority and responsi-
bility for carrying out the policies. The city
staff and the citizens of the community need to
know where the responsibilities lie and who is
accountable.
H» Each service should be tied to and reinforce the
community goals and policies and programs.
Sfc A five-year capital improvements program should be
adopted. Capital improvements must be coordinated
to avoid patch-work results, such as the classic
example where streets are paved one year and then
torn up the next year for installation of utility
lines. A capital improvements program can avoid
such occurances and provide a coordinating tool.
(» "Empire building" by individual departments or
agencies should not be tolerated.
There is not a problem in Scobey now because of the
small city staff; however, it is always a danger if
growth occurs and each department or agency begins
to consider itself as the most important function
in the community or acts with tunnel vision consider-
ing only their task.
fc Plan for expansion and maintenance by programming
services for logical growth.
This will permit advance acquisition of, or obtaining
options on, key parcels of land; a target for fund-
ing; and direction for policy makers and developers.
The planning for services should be tied to key
benchmarks, such as when a percent of capacity of
the system being used is reached (e.g., when the
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sewer plant is at 85% of its design capacity,
start design on the addition; when 90% capacity
is reached, be under construction) or when a certain
population size is reached. These thresholds should
be anticipated and planned responses considered
before the thresholds are reached. Community desires
may alter the planning by demanding a facility
before it would normally be provided. (For example,
an indoor swimming pool may be so popular that the
citizens are willing to have an additional tax levied
to finance one.) A regular program of soliciting
citizen response at to what they perceive as community
needs can perform a role that humanizes the use of
adopted standards for service.
A definite program of funding operation and mainten-
ance costs should be adopted when the initial
decision to build a facility is made.
Maintenance and operation of facilities is frequently
overlooked when initial construction is contemplated.
No new facility should be considered purely on the
basis of its capital costs. Capital costs are often
only a fraction of the total cost of providing a
facility or service. Operation requires manpower,
resources and material make sure these inevitable
costs are anticipated before committing to additional
capital facilities.
Record keeping should be kept simple and up to date.
The accounting system is the foundation. Detailed
knowledge of how much money is coming in and being
spent, its source, and when it is due or must be
paid is critical.
Receivables should be billed and collected promptly.
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Excess funds in the public coffers for even
relatively short periods of time should be invested.
Checking accounts with large balances do nothing
for the community. Interest should be earned
whenever possible, and maximized through the care-
ful choice of investments and maturities. (See
Section VIII of the Action Handbook.)
Create standards of service and performance.
These are the targets to shoot for and to guide
the provision of public services. Legislative
bodies, advisory boards, developers, citizens and
staff will all know how to judge the performance of
a service. Levels of service can be tied to funding
and the effect of increasing or decreasing funding
can be measured.
Establish clear policies on extension of services.
A service area should -be defined, and conditions
under which applicants may receive service stated
who pays and when. The community should not get
itself into a position of financing development
unless it is a special case where the community
wishes to encourage the development in a given
area. Logical service extensions should be encouraged,
as opposed to leap-frogging of development, which is
a costly pattern of growth where provisions of public
services is concerned.
The city should consider the use of consultants
or technical assistance from the state in lieu of
developing a staff which is capable of serving the
large, but short-term, construction work force.
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Before hiring a consultant, the community should
know what it wants and then make sure the consultant
is producing a workable program. Check with other
communities that have used the consultant to see
if the consultant is responsive and sensitive to
local needs while still doing a professional job.
Know what you need from a consultant and then hold
them to the intent (versus the letter) of the contract.
"Farm out" tasks that are of short duration or where
the cost of having the job is less than maintaining
a permanent staff to do it.
Trash hauling, snow removal, paving projects, are
examples of the type of jobs that can be done by
private business under contract with the govern-
ment.
Set priorities.
This recommendation is repeated here because of
its importance in any management program. A five-
year capital improvements program will permit a
logical approach to planning for and financing needed
facilities. Integrating all of the community's needs
into a program which reflects priorities will avoid
costly oversights and permit greater confidence
that the facilities will be available where and when
they are needed.
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FOLLOWING UP
The Community Impact Committee and the task forces can
complete their initial work, and base maps can be made, before
the potash companies have made firm commitments to development
plans. Most of the recommended action steps can be undertaken
based on the underlying assumption that the potash developments
will go ahead. Development of Goals and Policies and the Com-
prehensive Plan on the basis of these Goals and Policies can
occur, and initial planning for basic services can be started.
By the time these are completed, the companies may have made
their commitments to proceed and the community will know
where it stands and be ready to take the next steps.
The development and adoption of land use regulations by the
County may have to be postponed. Unless all the citizens of
the County are well informed as to the potential impacts and the
effects that new development can have on the County in the
absence of land use regulations, adoption could be stymied by
the state law prohibiting enactment of zoning regulations if
40% of the residents petition in opposition.
Actual construction of the necessary basic facilities may
also have to be delayed until funds can be obtained, particularly
if the potash companies are being considered as sources of finan-
cial assistance.
Once the companies have made their commitments, however,
the City of Scobey and Daniels County must be ready to meet
the challenge. The citizens must be kept informed and involved,
even after the development has begun. The community must main-
tain communications with the potash companies and be aware of
new plans and developments.
The recommended action programs which have been undertaken
should be continually reviewed and evaluated to determine if they
are doing the job for which they were intended and meeting the
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community goals. The community must stay on top of the develop-
ments which are occurring to make sure that programs are work-
ing, processes are operating smoothly, and problems are being
solved. If they are not, do not hesitate to make the changes
which are necessary.
The attitude in the community should be monitored from
beginning to end. Attitudes of existing residents may change
over time as the effects of the new development becomes evident.
New residents will undoubtedly bring new attitudes to the commu-
nity some of which will be at odds with those of the long-
time residents; these attitudes must also be taken into account
and problems resolved or differences accommodated.
The citizens and community leaders in Scobey and Daniels
County are now aware that there are impending problems as well
as opportunities from the potash developments. Through the
community impact management process and the subsequent actions,
they will become even more cognizant of the situation and what
must be done if the communities in the county are to retain
their quality of life and not be swallowed up by events beyond
their control. In following up, they will be able to keep tabs
on what is happening and to anticipate problems in advance so
they can be solved.
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Goals +
Policies
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A
GOALS AND POLICIES
NATURAL ENVIRONMENT AND RESOURCES
Scobey and Daniels County are characterized and dominated by
the wide open wheat fields of the northern Great Plains. The
natural environment and agricultural resources of the area
have played the major part in shaping the economy and way of
life of the town and surrounding rural areas. It is a goal
the area to preserve and protect its natural environment
resources, maintain its agricultural resources, and
preserve those fragile natural areas and features which are
j-mportant elements in the present character of the area/
while allowing new growth and development to occur.
In order to achieve this goal, the area should adopt and
implement policies which:
Protect prime agricultural lands (particularly irrigated
lands) from development, and direct future non-agricul-
tural open space uses toward less productive areas.
Prohibit residential, commerical or industrial develop-
ment in natural hazard areas: flood plains, unstable
geological areas, etc.
Preserve unique and sensitive or critical natural areas:
resevoirs, creeks and rivers, unique natural areas,
unique scenic areas, wildlife habitats, and aquifer
recharge areas.
Minimize or eliminate potential negative effects on air
and water resources from any proposed commercial, mining
or industrial use.
Encourage both the County and the various Towns to adopt
policies to preserve the natural environment and prime
agricultural lands.
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COMMUNITY CHARACTER AND DEVELOPMENT
Scobey has a distinct and pleasant atmosphere of small town
friendliness and a quality of life which provides its citizens
with a sense of place which is often lacking in larger communi-
ties. A primary community goal is to maintain and improve* this
community attitude and cohesive character as new growth occurs.
Development should occur within a framework that is in keeping
with the existing community character, which balances growth
and development with the need to preserve the agricultural
economy and way of life, and which avoids negative social,
economic and environmental effects on the community.
Policies which aid in achieving this goal include:
Allowing new growth to occur in a logical manner and
only where urban services (water, sewers, fire protection,
streets, etc.) can be efficiently and economically
extended in or adjacent to existing communities rather
than permitting development to occur in a random and
haphazard manner throughout the rural areas.
Coordination of all policies dealing with the issues
created by growth (i.e., utility extensions, land use,
town vs. rural needs and costs, annexations, fringe
area development and subdivision controls).
Definition of a service area for Scobey and the other
towns in the County based upon their existing and future
ability to provide needed services to new development.
Encouraging the county to support the service area
principle and to preserve the areas outside the service
area in an open and productive rural character.
Encouraging new growth to occur only at a rate which is
consistent with the capacities of the towns to provide
necessary public facilities, utilities and services.
Discouraging the formation of special purpose districts
within the County unless the creation and control of
the district is by the City or Town Councils.
Encouraging the use of vacant areas within the town's
boundaries before approving new development on the
periphery.
Encouraging annexation of land to the town before it
is developed.
Provision of adequate methods for land use and develop-
ment control through subdivision, zoning, and building
codes.
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Develop a program whereby new development will build,
or pay for its fair share of providing public services
needed as a result of the added growth (i.e., water,
sewers, streets and parks).
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ECONOMY
Scobey and Daniels County's agriculturally based economy has
been sufficient to sustain the area in the past, but it has
not provided expanding opportunities for many of the community's
young people to be able to remain in the area. The introduction
into the regional economy of power generation and potential
mineral extraction activities will add some degree of diversi-
fication and growth in the area's economy. On the other hand,
the characteristics of these energy-related and mining activities
often are such that the stability and continued health of a
local economy are threatened by the boom-bust cycle which has
occurred so often in the past in Montana and throughout the
West.
It is a major goal of the area to maintain its strong agricul-
tural base, while allowing for the development of other
industries. The agricultural base provides stability to the
economy of the area after the initial growth of mining has
occurred. Diversity is to be desired in the local community
and should be encouraged.
Efforts to achieve this goal should include adoption and
implementation of policies which:
Encourage the development of economic activities which
will aid in leveling out the potential boom-bust cycle
from mining as well as agriculture.
Encourage location in the community of business and
industry which will provide job opportunities for local
residents.
Encourage business and industry to locate within or annex
to the towns, in order to stabilize the tax base and pay
for the added population service demands.
Encourage new development of all types to pay for its
fair share of the municipal capital costs which are a
direct result of the development (i.e., sewers, water,
parks and streets).
Develop revenue sources which will keep pace with the
demands of growth and inflation, but will not place
an undue burden on the elderly or families with low
or fixed incomes.
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GOVERNMENT
The ability of local governments to provide the necessary
management, services and facilities to cope with a community's
growth depends to a great extent on the attitude, support and
acceptance of the citizens for such efforts. A fundamental
goal of the local governments is to meet the challenge of
growth while at the same time respecting the desires and rights
of the current residents of Scobey as well as the newcomers.
Public policies aimed at achieving this goal should include:
Continuing encouragement and solicitation of citizen
participation and involvement in public decision making
and problem solving.
Encouragement of continuing cooperation with and among
other governmental bodies County, Regional Agencies,
School District, Indian Tribal Governments, State,
Federal, as well as Canadian National and Provincial
Governments toward common goals.
Improvement of the capacity and ability of local govern-
ments to deal with the impacts of growth on the community.
Development of a capital improvements plan and priorities
for providing new and/or expanded public facilities to
meet the needs of the community.
Establishment of priorities for government spending for
service and facilities so that common community goals
can be realized.
Coordination of the policies and actions of local govern-
ments in the effort to achieve the community's goals;
each policy or action should support the common goals.
Maintenance of maximum local control over revenue sources,
while taking advantage of outside funding sources
(private, state, and Federal) to cope with the needs
of growth.
Provision of efficient and effective delivery of
public services.
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RESIDENTIAL DEVELOPMENT
When rapid growth occurs in a community, it often brings with
it a major shortage of decent housing together with a signi-
ficant rise in the price of both new and existing housing. When
the initial growth boom is due in part to a large influx of
construction workers, many of whom may not remain in the area
beyond the initial construction period, the immediate housing
problem is often solved by the use of mobile homes, which add
a different dimension to the housing problem.
Residential developments in rapidly-growing areas frequently
occur without adequate attention being given to developing
a sense of neighborhood character and pride, providing a
choice of housing types, and accommodating the needs of lower-
income families. The rise in housing prices contributes to
the difficulties faced by existing residents with low and/or
fixed incomes who find themselves priced out of the market and
forced into conditions which are unhealthy, unsafe, and un-
attractive.
It is a primary goal of the area to insure an adequate supply
of housing that satisfies the needs and desires of all ages
]and income groups in the community, which offers an attractive
JLiving environment, which contributes to neighborhood and
^community pride, and which fosters interchange between new
'and long-time residents.~
In order to achieve this goal, the local governments should
adopt and implement policies which:
Encourage maximum variety in types and prices of housing.
Insure an adequate supply of decent housing for elderly
and lower-income residents at prices they can afford.
Support the maintenance of existing neighborhoods.
Encourage maximum compatibility among different types
of housing.
Promote good design development requirements (street
improvements, utilities, spacing, density, etc.) and
a pleasant and healthy environment in mobile home
parks, including protection of mobile home parks from
other uses which will detract from their liveability.
Require impacting industries to make provision for
housing for their construction workers with the plans
of the area's governments.
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TRANSPORTATION/CIRCULATION
The Scobey area's existence depends primarily on the automobile;
if and when railroad passenger transportation again becomes
available to the area, it will only supplement, but not replace,
the automobile as the primary method of transportation.
Construction of power generation facilities and mining activities
in outlying areas will significantly increase traffic into, out
of, and through the community. It is a goal of the area to
insure that roads and highways in the County and the towns are
capable of handling the increase in traffic without disrupting
the communities and causing congestion, problems of safety,
increased costs to existing users and conflicts with farm-to-
market travel patterns.
In order to achieve this goal, policies should be adopted and
implemented which:
Improve the maintenance of existing roads.
Insure that secondary and state roads can handle both
present and future demands.
Provide for adequate road capacity to serve both
current and future needs as new development occurs.
Anticipate possible conflicts between rail and auto-
mobile traffic and provide for solution of problems
before they occur.
Require impacting industries' participation, if state
or federal funding is unavailable, to improve key roads
that will be in need of upgrading.
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COMMUNITY RESOURCES AND SERVICES
Towns such as Scobey and others in Daniels County which have
had fairly stable and homogeneous populations have usually
been able to keep in touch with and satisfy most of the needs
of their residents for social, educational, recreational,
cultural and other human services. As the community expands
and grows, new needs and opportunities will become evident.
New residents often bring with them both greater needs and
desires and higher expectations for such services, as well as
the potential to contribute to the development and success of
programs and services. Furthermore, these community services
and resources can often provide a much-needed means of inte-
grating newcomers into a community.
It is the goal of the community to continue to develop its
social, cultural, educational, recreational and other human
resources in such a manner as jto benefit all its citizens.
In an effort to achieve this goal, the area should adopt and
implement policies which:
Promote and support the development and expansion of
activities and opportunities for the youth of the
community.
Encourage the provision of expanded services for senior
citizens and opportunities for seniors to participate
in the community.
Encourage the planning, development and maintenance
of high levels of medical services to meet the needs
of all residents.
Provide adequate parks and recreational resources and
activities to meet the needs and desires of all ages
and interest groups.
Promote and support the development of adequate
educational resources for residents of all ages,
interests and abilities.
Encourage the cooperation and support of other govern-
mental and private agencies in the provision of needed
human services.
Encourage programs to welcome and integrate new residents
into the community and assist them in adapting to the
living patterns of the area.
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-:. . r.
: -
.-.',«
Task Force
Programs
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B
TASK FORCE PROGRAMS
TASK FORCE
NATURAL ENVIRONMENT AND RESOURCES
CONDUCT AN'INVENTORY OF THE CURRENT SITUATION, INCLUDING AT
LEAST THE FOLLOWING ELEMENTS:
. Agricultural resources
. Mineral resources
. Natural hazard areas
. Water resources, quality and drainage areas
. Scenic views and settings
. Wildlife habitats
. Soils
. Vegetation
. Topography
2 EVALUATE TRENDS AND POTENTIAL IMPACTS
. Determine what has been occurring with respect to the natural
environment areas being lost to development, preservation
actions, current problems, etc.
. Determine potential impacts from proposed development upon
the environment, both directly from the energy development
and indirectly from population growth.
DETERMINE ISSUES THAT DESCRIBE PRESENT PROBLEMS, POTENTIAL IMPACTS
3 AND DESIRABLE FUTURE COURSES OF ACTION WHICH INCLUDE AT LEAST THE
FOLLOWING:
. What is the nature of the natural environment in which your
community is located? (Soil types, topography, climate,
water resources, and quality, etc.)
. Does your community have any natural advantages such as
wildlife habitats, rivers and streams, trees, historical
sites, scenic views, open space, prime agriculture land,
etc. that should be preserved or enhanced?
. Are there natural conditions such as unstable soil, high water
tables, mineral resource areas, natural hazard areas (flood
plains, slopes, areas susceptible to subsidence, etc.)
that should be avoided?
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. If future development is to occur, where should this take
place to avoid hazard areas and natural areas that should
be preserved?
. What laws, policies and programs does the community have
related to the natural environment and resources?
DEVELOP A BASE MAP OF YOUR COMMUNITY WITH OVERLAYS SHOWING THE
A DISTRIBUTION OF THE VARIOUS NATURAL ENVIRONMENT FEAUTURES,
RESOURCES AND HAZARDOUS AREAS
WRITE A NARRATIVE DESCRIBING THE DETAILS OF ENVIRONMENT FEATURES,
RESOURCES AND HAZARDS IN YOUR COMMUNITY THAT ARE OF PRIMARY CONCERN,
AND RECOMMENDED COURSES OF ACTION IN THESE AREAS RELATED TO THE
GOALS AND POLICIES
DEVELOP PRELIMINARY GOALS AND POLICIES BASED ON THE INVENTORY
AND COMMUNITY NEEDS WHICH WILL:
. Protect unique, sensitive and critical natural areas
. Minimize adverse environmental impacts of all types of
development
. Encourage efficient use of non-renewable resources
. Avoid development in areas of natural hazards
RESOURCES
. Federal agencies, e.g., U.S. Geological Survey, Soil
Conservation Service, Environmental Protection Agency,
Energy Research and Development Association, Department
of Housing and Urban Development, Bureau of Outdoor
Recreation and the Federal Energy Administration
. State agencies
. Regional planning programs
. County Extension Services
. Universities
. Environmental organizations
. Observation
. Studies
- Multi-state planning programs
- Old West and Four Corners Regional Commissions
- 208 waste water programs
- Transportation studies
- Consultants' reports and energy company's impact analyses
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TASK FORCE
COMMUNITY CHARACTER AND DEVELOPMENT
CONDUCT AN INVENTORY OF THE CURRENT SITUATION INCLUDING AT LEAST
THE FOLLOWING ELEMENTS:
. Population and historical development of the community,
including population, income, age and sex characteristics,
etc.
. Physical character of the man-made community; buildings,
roads, parks, etc.
. Unique community characteristics; such as, historical sites,
building styles, and local traditions
. Patterns of physical community growth, including subdivision
activity, building permits, and annexations
2 EVALUATE TRENDS AND POTENTIAL IMPACTS
. Population trends and changes
. What potential impacts would new development have on the
character of the community?
. What development trends have occurred; i.e., location of
building activity, styles, types, etc.?
. Has development been in harmony with town character; i.e.,
design and architecture?
^ EXAMINE ISSUES RELATED TO COMMUNITY CHARACTER, INCLUDING, BUT NOT
3 LIMITED TO, THE FOLLOWING:
. What are the distinctive physical and human features of your
community?
. What physical and human features of your community should be
preserved or enhanced; i.e., smallness, neighborliness,
historic sites, architecture?
. Where and how should future physical development occur and
how should the new growth be related to the present community;
i.e., renovation, redevelopment, areas to be "filled-in,"
annexation, etc.?
. What should be the character (style) of future physical
development?
. What laws, policies and programs related to community develop-
ment does the community have? Are they adequate?
Note: Include information from the "natural environment and
resources," "housing," and "land use" task forces
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A DEVELOP A MAP OF THE COMMUNITY SHOWING PATTERNS OF PHYSICAL GROWTH
^ AND EXPANSION OVER THE YEARS
K DEVELOP PRELIMINARY GOALS AND POLICIES BASED ON THE INVENTORY AND
& ISSUES AND COMMUNITY NEEDS WHICH:
. Protect or enhance past and present human and physical
characteristics and traditions.
. Guide the orderly and systematic physical growth of the
community, i.e, contiguous growth, annexation policy,
extension of services, etc.
. Establish the desirable direction of growth.
. Encourage or require new growth to pay its fair share of
new public facility costs.
WRITE A BRIEF HISTORY OF YOUR COMMUNITY, DESCRIBING BOTH ITS PEOPLE
O AND PHYSICAL CHARACTERISTICS OVER THE YEARS
7 DEVELOP A SLIDE SHOW OF COMMUNITY CHARACTER, HISTORY AND TRENDS
Q ILLUSTRATE THROUGH PHOTOS AND/OR SKETCHES THE COMMUNITY'S BUILDING
O STYLES, AND AREAS TO BE PRESERVED AND ENHANCED
WRITE A REPORT WHICH EXAMINES VARIOUS GROWTH AND DEVELOPMENT
9 ALTERNATIVES RELATED TO THE GOALS AND POLICIES (WITH INPUT FROM
OTHER TASK FORCES)
RESOURCES
. Federal - Department of Housing and Urban Development
. State Agencies
. Local
- Library
- Observation
. County - Planning and Building Departments
. City - Planning and Building Departments
. University, college classes
. Organizations
- Urban Land Institute
- American Institute of Planners
- American Society of Planning Officials
- Universities
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Studies
-208 waste water programs
- Transportation studies
- Regional planning programs
- Multi-state planning studies
- Local (Utilize college and high school students)
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TASK FORCE
ECONOMY AND EMPLOYMENT
-i CONDUCT AN INVENTORY OF THE CURRENT SITUATION; ELEMENTS SHOULD AT
' LEAST INCLUDE:
. Number and types of industries, and number of employees for
each type.
. Number and types of wholesale and retail businesses, and
number of employees for each type.
. Number, types and employees of ranches and agricultural
enterprises.
. Number and types of governmental services and number of
employees.
. Number and types of professional and service people (archi-
tects, doctors, lawyers).
. Number and skills of unemployed people in the community.
. Number of regional high school students and young adults.
. Number and types of welfare cases in the community.
. Per capita and median family income.
. Income distribution.
. Wage levels for major industries.
2 EVALUATE TRENDS AND POTENTIAL IMPACTS
. Determine what trends and patterns have developed; have there
been major employment shifts? Have new industries come into
the area?
. Analyze what impacts major development have upon existing
employment characteristics and employees.
O DETERMINE ISSUES RELATED TO THE ECONOMY AND EMPLOYMENT WHICH AT
** LEAST DEAL WITH THE FOLLOWING:
. What are the major employment opportunities in the community
(agriculture, tourism, mining, manufacturing, government, etc.)?
. Does the community have a secure economy, offering sufficient
employment opportunities to its population; i.e., women, the young
and elderly? Is it subject to large swings?
. If there is unemployment or underemployment; why is this the
case?
. Are there people leaving or coming to the community for
economic reasons? If so, why? Where have recent high school
graduates gone? Would they have stayed if jobs existed?
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. What are realistic opportunities to change the economic
base based on resources, location, transportation, labor
pool, etc.?
. What economic opportunities exist in the community that
are not being realized?
What kinds of jobs and/or training is needed in the communi-
ty to more fully utilize opportunities that may develop as
a result of the energy development?
Does the community want to promote additional economic growth?
. How do local codes, taxes and policies affect the local
economy and employment?
DEVELOP PRELIMINARY GOALS AND POLICIES BASED UPON THE INVENTORY,
TRENDS, AND ISSUES WHICH WILL:
- Protect and enhance the economic stability of the community.
. Provide for long range economic security for the community's
entire population.
. Provide adequate employment opportunities for all segments
of the population.
. Meet the needs of the disadvantaged.
REPORT INCLUDING CHARTS AND GRAPHS WHICH DEAL WITH
NEEDS AND GOALS
RESOURCES
Federal - U.S. Department of Labor
- U.S. Department of Commerce, Bureau of the Census
State - Division of Employment/Labor
- Department of Revenue
County - Extension Office
- Welfare Department
Local - Chamber of Commerce
- School Districts
Other - University Department and Research Bureaus,
- Surveys by high school students (college students,
too)
- Regional Planning Programs
- Multi-State Planning Projects
- Consultant's reports and impact analyses
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TASK FORCE
GOVERNMENT RESOURCES AND SERVICES
-I CONDUCT AN INVENTORY OF THE CURRENT SITUATION WHICH WOULD INCLUDE
AT LEAST THE FOLLOWING ELEMENTS:
. Current tax and revenue sources of local governments
. Projected tax base and revenue sources
. Intergovernmental relations
. Local codes and programs
. Local government personnel and organization
. Citizen groups
Public facilities and services; e.g., community buildings,
schools, parks and recreation, libraries, medical, policeand
fire protection, solid waste, airports, streets, etc.
Utilities, e.g., water, sewer and storm drainage capacities
Note: Include input from "land use" and "community resources
and services" task force.
2 EVALUATE TRENDS AND POTENTIAL IMPACTS
Examine recent trends and actions.
Determine potential impacts from development, both directly
from energy activities and indirectly from population
growth associated with energy development.
3 J5TERMINE ISSUES RELATED TO GOVERNMENT WHICH INCLUDE AT LEAST THE .
FOLLOWING:
. What are the major sources of local government taxes and
revenues?
What are the current and projected administrative costs of
local government?
Are the tax base and sources of local government revenues
increasing or declining?
To what extent are taxes and sources of government revenues
proportionate to the demand for facilities and service both
now and projected into the future?
What does the picture of local government financial resources
versus expenditures look like for the near future?
Under state laws are all sources available to the local
government being utilized, e.g., sales tax?
Are public facilities presently adequate? Will they be with
growth?
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. What area can the utilities sytems serve efficiently?
Economically?
. Are utilities adequate to meet future community needs?
. Are local codes and regulations adequate to meet future
needs?
. Is there cooperation among local government units, counties,
the state, the federal government and special districts?
. Could local residents be given a more meaningful role in the
decision making process?
. Is local government structured, organized and staffed to meet
current and future problems?
Note: Input from other task forces is essential for this group
to do its job.
4 DEVELOP PRELIMINARY GOALS AND POLICIES, BASED ON THE INVENTORY,
^ COMMUNITY NEEDS AND TRENDS WHICH:
. Encourage cooperation among other government bodies.
. Encourage meaningful citizen involvement.
. Maintain maximum local control over revenue sources.
. Improve the capacity of local government to control develop-
ment impacts
. Assure adequate revenue to support local government needs.
. Encourage efficient provision and delivery of public services,
. Recommend development of a capital improvements program.
. Establish government spending priorities
c DEVELOP A REPORT ON GOVERNMENT PROBLEMS AND NEEDS RELATING TO THE
3 GOALS AND POLICIES
6 ESTABLISH LIAISONS WITH OTHER GOVERNMENTS AND DISTRICTS
7 PRODUCE LIST OF AVAILABLE RESOURCES AND FUNDS
O DEVELOP MAPS OF WATER, SEWER AND STORM SEWER LINES, INCLUDING
° SIZES, AND PLANNED OR NEEDED EXTENSIONS, AND PROPOSED SERVICE AREAS
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RESOURCES
. Federal Agencies
- Farmers Home Administration
- Department of Housing and Urban Development
- Economic Development Administration
. State agencies
. Regional organizations
. County Governments
. Special Districts
. University departments and research bureaus
. Studies
. Observation
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TASK FORCE
LAND USE
.i CONDUCT AN INVENTORY OF THE CURRENT SITUATION INCLUDING, BUT NOT
' LIMITED TO THE FOLLOWING ELEMENTS:
. Commercial areas, including floor area, uses by zone, vacant
land and buildings, building condition, retail sales trends,
property tax, architecture, circulation, downtown versus
other commercial areas, etc.
. Industrial areas, including employment, land uses, vacant
land, etc.
. Parks, recreation, and open space including area, facilities,
use by type of group, location (with input from "natural
environment and resources" task force and "community resources
and services task force)."
. Other public or semi-public areas including public buildings,
schools, churches, etc.
. Residential land use, including delineation of neighborhoods
(if applicable), land use including vacant land,(with input
from "housing"task force).
2 EVALUATE TRENDS AND POTENTIAL DEVELOPMENT IMPACTS
, Recent activity relating to business and industrial expansion
and location.
. Impact of energy and related development upon land use.
3 EVALUATE ISSUES RELATING TO LAND USE
. Are town codes and policies adequate to meet future needs?
Are other development controls necessary, i.e., landscape
guidelines, sign codes, dedication policies, etc.?
. Are commercial areas adequate in size and location to serve
the community?
. How can the downtown be preserved and enhanced?
. How much industrial land is needed and where should it be
located?
. What undesirable external impacts are created by industry?
. What park, open space, and recreation resources are needed?
. How can residential neighborhoods be improved?
DEVELOP MAPS OF PRESENT LAND USE
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5 DEVELOP PRELIMINARY GOALS AND POLICIES WHICH WILL:
. Promote a desirable living environment.
. Promote shopping areas that serve community needs.
. Encourage the development of the downtown.
. Assure that commercial and industrial areas are attractive
and are compatible with surrounding land uses.
. Provide space for land uses that conform to community goals.
. Encourage development of adequate parks, open space and
recreation resources
DEVELOP REPORTS OF LAND USES AS TO PRESENT LAND USES, LOCATION,
6 VACANT LAND AND LAND NEEDED AT VARIOUS POPULATION LEVELS RELATIVE
TO GOALS AND POLICIES
RESOURCES
. Federal - Department of Housing and Urban Development
. State agencies
. Local
- Building and Planning Departments
- Chamber of Commerce
. Other
- American Institute of Planners
- American Society of Planning Officials
- Association of Commerce and Industry
- Universities
. Studies
- Local surveys (utilize high school and college students if
available)
- Old West and Four Corners Regional Commission studies
- Multi-state planning studies
- Regional studies
0 Note: This task force may be divided into a number of sub-task
forces if necessary. Information from other task forces
should be used by this task force to function efficiently.
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TASK FORCE
HOUSING
.j CONDUCT AN INVENTORY OF THE CURRENT SITUATION INCLUDING, BUT NOT
1 LIMITED TO:
. Number and types of standard and sub-standard residential
units in the community
. Land area occupied by housing
. Vacancy rate
. Number, types, and location of residential units constructed
in the past five years
. Current prices of homes for sale and rental units
. Sources and availability of residential financing
. Vacant city land zoned for residential use
. Housing needs of all segments of the community
Note: Information for this task force may be developed in
conjunction with the "land use" task force
2 EVALUATE TRENDS AND POTENTIAL IMPACTS
. Has housing quality generally improved in recent years?
. Has housing supply kept up with demand?
. Is there adequate supply of housing to meet impacts of develop-
ment, both caused by temporary construction workers, perma-
nent operational employees and service workers?
O EXAMINE ISSUES RELATED TO HOUSING INCLUDING, BUT NOT LIMITED TO THE
° FOLLOWING:
. What is the condition of the current housing stock in the
community?
. What are the major housing needs or problems?
. In the future, how many and what types of residential units
should be constructed?
. Do residential units need remodeling and improvements?
. How much temporary housing should be provided and where
should it be located?
. Are there adequate controls over mobile homes?
. What sources of funding exist for new and older residential
units?
. How and where should elderly housing be provided?
. How and where should low income housing be provided?
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4 DEVELOP MAPS SHOWING HOUSING QUALITY, HOUSING TYPES AND VACANCIES
C DEVELOP PRELIMINARY GOALS AND POLICIES BASED ON THE INVENTORY,
& ISSUES AND COMMUNITY NEEDS WHICH WILL:
. Encourage the conservation and improvement of the current
housing stock in the community.
. Provide for the future development of adequate housing
in keeping with the financial resources of community
residents.
. Provide neighborhood identification.
. Provide a balance of housing types.
. Encourage innovative housing design.
. Encourage energy conservation and efficiency.
WRITE A REPORT DESCRIBING EXISTING HOUSING TYPES, NUMBER, QUALITY,
6 NEW TYPES OF HOUSING NEEDED, ISSUES AND RECOMMENDATIONS RELATED TO
GOALS AND POLICIES
RESOURCES
. Federal
- Department of Housing and Urban Development
- Bureau of the Census
- Farmers Home Administration
. State agencies
. County - Building Department and extension service
. Local
- Builders, realtors, banks
- City Building Department
- Surveys (College and high school students should be utilized)
. Other
- Urban Land Institute
- American Society of Planning Officials
- Universities
. Studies
- Consultants' reports and energy company impact analyses
- Regional planning studies
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TASK FORCE
TRANSPORTATION AND CIRCULATION
1
CONDUCT AN INVENTORY OF THE CURRENT SITUATION, INCLUDING AT LEAST
THE FOLLOWING ELEMENTS:
. Federal, state and local roads in the region, including
size, function, carrying capacity, conditions and hazards.
. Other modes of transportation, i.e., railroads, airports,
bus routes, sidewalks, paths, bike paths, horse trails, etc.
. Future transportation plans of federal government, the state,
regional agencies and counties.
. Sources of transportation revenues.
. Number of parking spaces and location.
. Local construction and maintenance programs.
2 EVALUATE TRENDS AND IMPACTS
. Have roads been of adequate capacity and condition?
. What changes and trends have occurred relative to transporta-
tion needs?
. What impacts would large scale development have upon transpor-
tation facilities and routes?
Q EXAMINE ISSUES RELATED TO TRANSPORTATION, INCLUDING BUT NOT LIMITED
TO THE FOLLOWING:
. Are roads in the area capable of serving future demand?
. Are roads in adequate condition?
. Do plans of other agencies conform to local plans?
. Are there traffic hazards, e.g., dangerous intersections,
railroad crossings, etc.?
. Are there transportation needs for special populations, e.g.,
elderly, handicapped or youth?
. What public transportation needs exist?
. What types and sizes of streets are desirable for newly
developing areas?
. How could pedestrian access be encouraged?
DEVELOP MAPS DESCRIBING VARIOUS MODES OF TRANSPORTATION, INCLUDING
4 CAPACITIES, TRAFFIC COUNTS, AND LOCATIONS OF PLANNED/NEEDED
IMPROVEMENT
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C DEVELOP PRELIMINARY GOALS AND POLICIES, BASED ON THE INVENTORY,
^ ISSUES AND COMMUNITY NEEDS WHICH WILL:
. Insure adequate capacity of roads.
. Avoid conflicts among various transportation modes.
. Encourage development of alternative forms of transportation,
e.g., public transportation, bikeways, and pedestrian ways.
. Assure safety and adequate maintenance of roads.
. Serve the needs of all segments of the population.
6 WRITE A REPORT WHICH DESCRIBES PROBLEMS, ISSUES AND AREAS NEEDING
IMPROVEMENT RELATIVE TO THE GOALS AND POLICIES
RESOURCES
. Federal - Department of Transportation
. State Agencies
. Regional Agencies
. County - Transportation and Planning Departments
. Local Governments
. Local Surveys (Utilize college and high school students)
. Universities
. Studies
- Regional planning programs
- Multi-state planning studies
- Old West and Four Corners Regional Commission sponsored
studies
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TASK FORCE
COMMUNITY RESOURCES AND SERVICES
I CONDUCT AN INVENTORY OF THE CURRENT SITUATION, INCLUDING AT LEAST
1 THE FOLLOWING ELEMENTS:
. Civic and community organizations, including: welfare
agencies, social service agencies, public, private and
voluntary health service organizations, counselling, mental
health and referral services.
. Public and private schools and education programs.
. Cultural and recreational programs (input from "land use"
task force) . "
. Health, welfare, recreational and special needs, especially
related to specific populations such as the elderly, youth,
handicapped and the disadvantaged.
. Major sources of funding for organizations and programs.
. Local government role in providing human services.
2 EVALUATE TRENDS AND POTENTIAL IMPACTS OF LARGE SCALE DEVELOPMENT
. What recent developments and needs affecting community
resources and services have occurred?
. What impacts would energy and related development have upon
these resources and services?
ao ISSUES WHICH RELATE TO THE PROVISION OF COMMUNITY RESOURCES
AND SERVICES
To what extent are the health, welfare, cultural, educational
and recreational needs of the community being met?
To what extent is there duplication or lack of coordination
among the various community resources and service agencies?
. What role should local government have in planning and/or
coordinating these programs and services?
DEVELOP PRELIMINARY GOALS BASED ON THE INVENTORY, ISSUES AND
COMMUNITY NEEDS WHICH:
. Develop social, cultural, educational, recreational and other
human resources.
. Provide services and programs for needs of special populations
such as the elderly, youth, handicapped and the disadvantaged.
. Encourage cooperation of government and private agencies in
the provision of needed human services.
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DEVELOP A DIRECTORY OF ALL EXISTING HEALTH, WELFARE, SOCIAL,
EDUCATIONAL, CULTURAL AND RECREATIONAL ORGANIZATIONS AND AGENCIES
IN YOUR COMMUNITY, PROVIDING THEIR NAMES, ADDRESSES, PHONE NUMBERS,
SERVICES RENDERED AND SOURCES OF FUNDING, INCLUDING LOCATION MAPS
WRITE A DESCRIPTION OF THE CURRENT STATUS OF SERVICES AND HUMAN
NEEDS IN THE COMMUNITY RELATIVE TO THE GOALS AND POLICIES
RESOURCES
. Federal
- Department of Housing and Urban Development
- Department of Health, Education and Welfare
. State agencies
. Regional planning programs
. County Health Departments
. Private and Voluntary organizations
. Survey of local agencies/programs
. Studies of human resources/needs
- Multi-state planning projects
- Old West and Four Corners Regional Commissions
- Consultants' reports and energy company impact analyses
- Universities
-106-
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your notes .
o
o
CD
-107-
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TECHNICAL REPORT DATA
(Please read Instructions on the reverse before completing}
i. REPORT NO.
EPA -908/4-78-001
2.
3, RECIPIENT'S ACCESSION NO.
4. TITLE AND SUBTITLE
Action Handbook for Small Communities Facino Rapid
Growth "Case Study" Scobey, Montana
B. REPORT DATE
June 1977
6. PERFORMING ORGANIZATION CODE
7. AUTHOR(S>
William Lament, Jr.; James A. Murray
8. PERFORMING ORGANIZATION REPORT NO
9. PERFORMING ORGANIZATION NAME AND ADDRESS
10. PROGRAM ELEMENT NO.
Briscoe, Maphis, Murray
Boulder, CO 30302
Lament
11. CONTRACT/GRANT NO.
68-01-3579
12. SPONSORING AGENCY NAME AND ADDRESS
U.S. Environmental Protection Aqency, Rea. VIII
1860 Lincoln Street
Denver, Colorado 8029.5
13. TYPE OF REPORT AND PERIOD COVERED
Case Study (Final)
14. SPONSORING AGENCY CODE
15. SUPPLEMENTARY NOTES
Tfre main report, entitled "Action Handbook for -Small Communities Facinn Raoid Growth",
is to 6e published in March, 1978,
16. ABSTRACT
The FPA issued a contract to Briscoe, Maphis, Murray * Lament, Inc., a government
management consultinq firm to prepare a handbook for use by local communities that
were anticipating growth impacts from enerqy development in the Rocky Mountain Reqion.
EPA requested that case studies be conducted in conjunction with preparation of the
Action Handbook.
This "Case Study" document evaluates the current settinn of the Scobey Community as
to its capabilities arM opportunities should arowth occur. It suqaests action pro-
drams which are based on the aoals and oolicies suqqested by the residents of the
Scobey area. They have not necessarily been totally accepted by the community, but
have been publicly reviewed and provide a sound basis from which to beqin a prodram
in Scobev.
7.
KEY WORDS AND DOCUMENT ANALYSIS
DESCRIPTORS
b.IDENTIFIERS/OPEN ENDED TERMS
c. COSATI Field/Group
nrowth. manaoement, eneray development
community action nroararos
public involvement
citizen task forces & committees
local government
state government
iconomic base
Scobey/Daniels County,
Montana
fiffl
use, transportation, housing utilities
RIBUTIONSTAtEMENT *,,.{, l '+. TUT!
Distribution Unlimited
19. SECURITY CLASS (ThisReport}
Unclassified
21. NO. OF PAGES
20. SECURITY CLASS (This pagef
22. PRICE
EPA Form 2220-1 (Rev. 4-77) PREVIOUS EDITION is OBSOLETE
-------
INSTRUCTIONS
1. REPORT NUMBER
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2. LEAVE BLANK
3. RECIPIENTS ACCESSION NUMBER
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4. TITLE AND SUBTITLE
Title should indicate clearly and briefly the subject coverage of the report, and be displayed prominently. Set subtitle if used in smaller
type or otherwise subordinate it to main title. When a report is prepared in more than one volume, repeat the primary title add volume
number and include subtitle for the specific title.
5. REPORT DATE
h6fafc of °«ry rart^f '"dicating at least month and year Indicate the ba«'s on which it was selected (e.g., date of issue, date of
6. PERFORMING ORGANIZATION CODE
Leave blank.
7. AUTHOR(S)
Give name(s) in conventional order (John R. Doe, J. Robert Doe, etc.). List author's affiliation if it differs from the performing organi-
8. PERFORMING ORGANIZATION REPORT NUMBER
Insert if performing organization wishes to assign this number.
9. PERFORMING ORGANIZATION NAME AND ADDRESS
Give name, street, city, state, and ZIP code. List no more than two levels of an organizational hirearchy.
10. PROGRAM ELEMENT NUMBER
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Include ZIP code.
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Indicate interim final, etc., and if applicable, dates covered.
14. SPONSORING AGENCY CODE
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IS. SUPPLEMENTARY NOTES
ta e"" fUl> SUCH 3S: PrePared " C°OPerati0n «*- Tra"Slati0n Of' Prese"ted/at conference
16. ABSTRACT
Include a brief (200 words or less) factual summary of the most significant information contained in the report. If the report contains a
significant bibliography or literature survey, mention it here. F "«iuuii» a
17. KEY WORDS AND DOCUMENT ANALYSIS
(a) DESCRIPTORS - Select from the Thesaurus of Engineering and Scientific Terms the proper authorized terms that identify the major
concept of the research and are sufficiently specific and precise to be used as index entries foY cataloging.
IDENTIFIERS AND OPEN-ENDED TERMS - Use identifiers for project names, code names, equipment designators etc Use open-
ended terms written in descriptor form for those subjects for which no descriptor exists. »««««», eu.. use open
(c) COSATI FIELD GROUP - Field and group assignments are to be taken from the 1965 COSATI Subject Category List Since the ma
jority of documents are multidisciplinary in nature, the Primary Field/Group assignment(s) will be specific discipline, area of human
?he PrKVosPtin0g!s?yS1C J6Ct' aPPUcation wiu te cross-referenced with secondary Field/Group assignme^s tha? wU
18. DISTRIBUTION STATEMENT
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EPA Form 2220-1 (Rev. 4-77) (Reversa)
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