HomeMy Public PortalAbout2002 - Annexation Study - Phase I Analysis Preliminary Report - Shafer, Kline & Warren 2002-02-21 •� /��
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Table of Contents
List of Sections Page
Section I Introduction 1
Section II A Case for Annexation 4
Section III Regulatory Issues 8
Section IV Study Area 10
Section V General Demographic Information 12
Section VI Infrastructure/Utilities/Services 13
Section VII Annexation Planning Areas 18
Section VIII Recommendations 36
List of Maps Page
Map 1 Annexation Study Area 11
Map 2 Sanitary Sewer System 15
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Map 3 Fire Districts 16
Map 4 Annexation Planning Areas 33
Map 5 Drainage Basins 34
? Map 6 Land Use 35
Map 7 Detailed Study Areas 38
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Jefferson City Annexation Study page i
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Section P Introduction
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Section I
Introduction
The ability to annex is an important tool for local governments to provide orderly and
effective growth. Often, population growth and development take place at the City's
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fringe where laws concerning development are less restrictive and the costs are cheaper.
This growth impacts the City in a variety of ways, not the least of which is limiting the
ability of the City to logically expand to meet its development needs. The attractiveness
- ` of cheaper development at the City's fringe creates problems as infrastructure can't keep
pace with the growth. Cities often bypass these areas because the cost to upgrade the
infrastructure to City standards is far greater than the revenues produced. Over time
these areas become isolated pockets that are difficult to service, producing a negative
impact on surrounding areas.
While the City and outlying areas are separate politically, they are intrinsically or
inseparably tied together both economically and socially. Residents in these fringe areas
use City parks and recreational facilities, streets, utilities and other public amenities,
often without contributing a proportionate share of the costs borne by the City. These
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residents may expect services equivalent to what the City provides but located outside the
City because they think that the costs are too high. As "urbanization" occurs, population
density and development require greater control for stability.
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To resolve these concerns of orderly planning and growth, annexation is perhaps the most
logical solution for preserving urbanizing areas. It enables the existing and developing
areas that are economically, socially and topographically related to develop in a like
manner. Annexation helps to ensure that a more optimum level of resources is allocated
i for area needs. Developing areas in the urban fringe require the types of services
provided at the municipal level or growth can quickly become sprawl. In order for the
--j City to continue to encourage positive and rational growth, it must be able to expand in
those areas most natural for continued development.
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Jefferson City Annexation Study page 1
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Section L•Introduction
Annexation is a controversial issue for many communities because, in most instances,
when development has taken place outside the city, the reasons are perceived as valid by
those doing so. It is instructive to understand that there are basic arguments on both sides
of the annexation issue. Identifying them early and addressing them throughout the
process is a key to building support and defusing opposition if annexation is initiated.
The following is a partial list of the arguments concerning annexation. Where possible,
policy makers should consider what facts are necessary to prove or disprove the
arguments, identify special interests associated with the arguments and recognize any
misconceptions that may require correction.
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Arguments In Support Of Annexation
• Cities provide professional staff and experience; service duplication is avoided
and economies of scale can result from coordination of services over a larger area.
• Development is better coordinated through the implementation of planning and
zoning, particularly when those areas being annexed currently do not have any
planning or zoning mechanisms
s • Newly annexed areas have a greater voice in their governance.
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• Annexation provides uniformity of services rather than the fragmentation of
multiple local governments and special districts.
• Political boundaries will, to a greater extent, reflect the true social, economic,
cultural and physical boundaries of the city.
• The increase in population and developable land enhances the city's ability to
attract development and grant assistance.
• Annexation protects and enhances the city's tax base as well as expanding its
bonding capacity.
• Annexation may improve utility rates and provide for lower fire insurance
premiums.
• New services such as stormwater management may be offered to annexed areas.
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Jefferson City Annexation Study page 2
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Section I.Introduction
Arguments Against Annexation
• Annexation may be inappropriate if the community's needs or resources are
limited.
• Residents may already be receiving City services and have no desire to become a
part of the City.
• Residents outside the City may have chosen location to avoid being taxed for
services they do not want.
• Those desiring to maintaining rural character, perceive annexation as leading to
increased urbanization.
• Residents outside the City may harbor distrust of government and provision of
services.
- • Residents may have a concern about the City's ability to provide promised
services.
This report is intended to evaluate the suitability of annexation of land surrounding the
City of Jefferson. Issues evaluated include history of development, legal issues
associated with annexation, demographics, infrastructure (provision of services), and
detailed analysis of potential annexation areas.
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Jefferson City Annexation Study page 3
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Section IL-A Case for Annexation
Section II:
A Case for Annexation
The City of Jefferson has taken several approaches to annexation in the past. Even prior
to the Comprehensive Plan Update of 1996 and the 1996 Annexation Study, the
governing body has kept annexation a viable option for ensuring the proper development
of the City with such documents as "The Report of the Subcommittee on Future '
Annexations, Mayor's Committee for Long Range Planning, 1990." This current report
is a follow-up to all of these past efforts. This section of the current report gives an
historical perspective of the question of annexation as addressed in both the
Comprehensive Plan and Annexation Study of 1996.
Comprehensive Plan Update, 1996
A Comprehensive Plan identifies and provides general direction for areas of growth
within and outside the city limits of any given City, while ensuring orderly growth that is
in agreement with the City's zoning and subdivision regulations. A fundamental segment
of any Comprehensive Plan is the Future Land Use map—referred to as the
"Development Plan" in the City of Jefferson's Plan. It is common for Comprehensive
Plans to provide a future land use map that encompasses more area than may be required
for expected future growth. The City of Jefferson's Comprehensive Plan is no exception,
stating that the Development Plan provides "significantly more land area for
accommodating 0 odating future development than the projected requirement for the planning
horizon [of approximately 20 years]." Notably, the Comprehensive Plan continues by
stating "not all of this land designated for urban expansion is ideal for development (e.g.
steep slopes, floodplain, and availability of all utility services in close proximity)." These
factors which affect—and at times prohibit—future development exist both within and
outside of the city limits, evidenced by the fact that a majority of the vacant land within
the city is subject to one or more of these factors.
The excess of future land use acreage identified in the Development Plan serves two
` primary functions: (1) to ensure sufficient flexibility in development opportunities, and
(2) to show that urban growth can be accommodated within a relatively short distance
Jefferson City Annexation Study page 4
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Section IIIA Case for Annexation
from the current urbanized areas. Inasmuch as the Comprehensive Plan is a"policy"
document, it is intended to discourage remote, "leap-frog" development, when and if
such development occurs, even if said development can be served by public water and
sewer facilities. Additionally, the projected areas of growth identified in the
Comprehensive Plan, in conjunction with the land uses identified in the Development
Plan,provide a guideline by which the City can begin to assess strategic areas for
annexation. As growth continues outside the city limits, along the urban fringe, the City
must evaluate the benefits of continued expansion of services against the costs of
providing the services.
As stated in the Plan, Missouri Revised Statutes do allow for extraterritorial enforcement
of zoning, subdivision and building regulations within two miles of city limit boundaries
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in Counties without a formerly adopted Plan or established County Planning
Commission, with the formal approval of the County Commission. Recognizing that
development is currently occurring and will continue to occur along the urban fringe, it
would be in the City's interest to evaluate the extraterritorial option. However the cost of
enforcement of the aforementioned regulations in review and inspection costs is not often
- recovered in application fees alone. Absent a cost-sharing agreement with the County—
which generally makes the extraterritorial provision impractical to any specific County
the City is left with one other option: annexation.
In the section concerning annexation,the Comprehensive Plan makes very clear that
annexation within the planning area"provides the best opportunity to guide urban growth
in a manner that is consistent with the Comprehensive Plan." The simplest way to annex
land is through a voluntary annexation. In voluntary annexations 100% of the property
owners of property contiguous to the City petition the City to be annexed. Following a
public hearing and assuming no objections are filed, the City can then annex the territory
by ordinance. The second method of annexation, commonly known as "involuntary
annexation", is initiated by the City and requires the support of the majority of voters
within the City and the proposed annexation territory. This type of annexation is
discussed in greater detail in the "Regulatory" section of this document.
Jefferson City Annexation Study page S
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Section IIIA Case for Annexation
1996 Annexation Plan
The 1996 Annexation Plan, written in accordance with the Comprehensive Plan adopted
earlier the same year, examined thirteen areas outside the City for potential annexation,
ranging in size from 20 to 2,400 acres. The purpose was to identify those areas that were
most reasonable and necessary to the City's continued growth and prosperity. The
factors utilized in prioritizing each area for annexation included but were limited not to:
• contiguity with current City Limit boundaries,
• amount/level of population growth in each area,
• identification of existing land uses,
• types and conditions of local streets,
• existence of and need for utilities,
• access to emergency services,
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• comparisons of current and past dwelling unit counts,
current and projected revenues, and
• anticipated costs to the City should annexation occur.
The thirteen areas studied for annexation were organized into four(4)recommended
- annexation priority areas for the City. Priority One included Ventura(Area One), Frog
Hollow (Area Eight), and Algoa(Area Twelve). Of those three areas identified, Ventura
has since been annexed into the corporate limits of the City of Jefferson. The City
attempted through involuntary annexation to bring the Algoa Area into the City, but was
unsuccessful.
As with the Comprehensive Plan, the Annexation Plan stated that costs and revenues to
the City should not be the primary factor in determining whether an area should be
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annexed. Access to services, ability to provide continuity in the city limit boundary for a
particular area(as was the case for Ventura), and the amount of population growth should
contribute significantly to each consideration. The same philosophy is being used in this
Annexation Study, with the intent to build on the information presented in both the
Comprehensive Plan and the 1996 Annexation Study. Subsequently the City may better
Jefferson City Annexation Study page 6
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Section IIIA Case for Annexation
evaluate the viability of annexation for each particular area, as well as take into account
any changes that have occurred since the completion of both aforementioned studies.
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Jefferson City Annexation Study page 7
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Section III:Regulatory Issues
Section III:
Regulatory Issues
Introduction
Cities in Missouri wishing to annex are required to follow the provisions outlined in
Chapter 71 of the Missouri Revised Statutes. While this study is concerned with
identifying areas appropriate for future annexation and not with developing the actual
"Plan of Intent,"it is important to understand the legal requirements necessary for
annexation. This will permit much of the information provided in this report to be used
as specific annexation proposals are developed and presented.
The following information represents a summary of the steps required for involuntary
annexation, or for a voluntary annexation in which there was an objection. The summary
and any excerpts were taken from Section 71.015 RsMO. To reiterate, this is not a Plan
of Intent, rather it is intended only as a general overview of the process.
Annexation Procedures
The City must first establish that the area is contiguous to the existing city limits, and that
the length of the boundary is at least fifteen percent of the length of the perimeter of the
area proposed for annexation.
The City must then propose an ordinance setting forth the following: (1) description of
the area affirmatively stating that the contiguous requirement is met, (2) that such
annexation is reasonable and necessary to the proper development of the City, (3) that the
City has developed a plan of intent, and (4) the projected effective date of annexation.
- ; A public hearing must be held for the ordinance, with proper notice given to all residents
within the proposed annexation area, as well as publication in an approved paper for three
consecutive weeks. At the public hearing, the plan of intent shall be provided to the
public, as well as a list of major services provided by the City and a proposed time
schedule to provide said services to the newly annexed areas within three years.
Additionally at the public hearing, the City shall present information on how they assess
Jefferson City Annexation Study page 8
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jSection III:Regulatory Issues
j property, the rate at which property is taxed, how the City proposes to zone the property
and when the annexation shall become effective.
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The City is required to file an action in circuit court for a declaratory judgment
authorizing such annexation. The petition filed in court shall state the following: (1) that
the area to be annexed conforms with the contiguity requirement, (2)that the annexation
is reasonable and necessary to the proper development of the City, and (3) the City has
the ability to furnish normal municipal services to the proposed annexation area within a
reasonable time not to exceed three years.
Either before or after obtaining the court's approval, an election must then be held at
which the proposition for annexation is approved by a majority of the total votes cast in
�- the City and by a separate majority of the total votes cast in the unincorporated territory
sought to be annexed. If the ballot issue approved by the City voters, but disapproved
within the proposed area, a second election may be held at which all votes are combined-
and a two-thirds majority is required.
Should atwo-thirds majority of the votes from both the City and the unincorporated
territory not support the proposed annexation, the City may not attempt to involuntarily
annex any part of the same area for a period of two years.
This is a summary of the annexation procedures as described in Chapter 71 of the
Missouri Revised Statutes. In the event the City proceeds with an annexation proposal,
legal counsel for of the City will be responsible for ensuring compliance with all
applicable state statutes.
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Jefferson City Annexation Study page 9
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Section IV.-Study Area
Section IV:
t Study Area
This report is intended to evaluate the suitability of land adjacent to the City of Jefferson
for annexation into the City. General characteristics that determine suitability include
contiguousness,population, access to services, ability to provide services and need for
additional land for development. The study area for this report were primarily based on
these factors as well as physical barriers, such as rivers and ridges, and political barriers,
such as adjacent towns and census boundaries.
Based on these criteria, the general study area for the annexation report is outside the
existing city limits, extending from said limits to the following approximate boundaries:
West: Highway T, Highway D and Moreau Creek
South: Moreau River, Highway B, Highway M and Stoney Gap Road
East: County Line (Osage River)
North: Missouri River
Map 1, identifies boundaries of the study area for annexation.
The Study Area will be evaluated separately to allow for a more detailed evaluation of
specific issues. These areas are identified and evaluated in Section VII of this report.
Although a portion of Jefferson City extends north of the Missouri River, it is not
anticipated that any significant or large-scale annexations will occur in this area. The
ability to provide services, access and the presence of floodplain makes growth to the
north a difficult option. There will be some potential growth in this area for industrial
development in association with the airport and other transportation facilities, although
primarily in response to specific needs rather than general growth.
Jefferson City Annexation Study
page 10
Jefferson City, Missouri
Annexation Study
Map 1
Annexation Study Area
Legend
Lakes & Ponds
River & Streams
/V Roads
Study Area
Jefferson City
Cities
Missouri River
Scale: 1:100,000
Section V.• General Demographic Information
1 i Section V:
General Demographic Information
In the 1996 Annexation Study, population data was based on Jefferson Township as
opposed to the City alone. This was done primarily because the majority of people living
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in Jefferson Township, outside the city limits, commute to work within the city limits of
the City of Jefferson and therefore have an impact on City services. The Jefferson City
Chamber of Commerce maintains a list of"Major Employers." The current list contains
38 employers with a total of 30,841 employees. The 2000 Census indicates that there are
only 25,815 residents of the City of Jefferson between the ages of 18-64. If the number
of employees at only thirty-eight of the companies located within the City exceed the
number of workers currently residing within the city limits, it is clear that a large number
of people commute into the City for work. This impacts the infrastructure of the City,
specifically the condition of the roads and the ability to provide adequate traffic control
services, which include emergency response.
A demographic assessment of the study area for this project revealed certain trends in
-- population growth that further demonstrate the importance of evaluating annexation
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potential. As seen in the table below, between 1990 and 2000 the population growth
within the City of Jefferson grew by 11.7%. During the same period, the population
growth within the Study Area, outside the city limits of the City of Jefferson, grew at a
rate of 16.4%. With significant population growth on the outskirts of the City limits, it
becomes even more important for the City to have the ability to enact land use and
building regulations in order to ensure development that is compatible with the existing
uses and infrastructure found within the city limits.
! Place/Area Name 2000 Census 1990 Census # Change % Change
City of Jefferson 39,636 35,481 4,155 11.7
Study Area 18,895 16,226 2,669 16.4
Detailed demographics for each portion of the Study Area will be discussed in Section
VII of this document.
_ Jefferson City Annexation Study page 12
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Section VI.Infrastructure/Utilities/Services
Section VI:
Infrastructure/Utilities/Services
Development along the urban fringe of the City of Jefferson is continuing at an above
average rate. This growth exacts a substantial amount of resources and continued
maintenance from the City in terms of road construction and repair. Additionally, when
areas of land are considered for annexation, consideration must be given to the various
services provided such as water and sewer service, as well as fire and police protection.
Roads
In general terms, the roads in the annexation study areas are not equivalent to those
within the limits of the City of Jefferson. The requirements are not as strict, and thus a
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majority of the roads tend to be more narrow than what would be required in the City,
have a tendency toward a steep grade in some areas, and were generally built without
curb and gutter. Bringing these roads up to City standards would represent a significant
expense. However the sooner it could be accomplished, the fewer the number of streets
that will need to be upgraded. Another advantage of City regulations in these areas is
that they help to discourage new houses from fronting on main thoroughfares. Although
it is unlikely that the City would retrofit all existing streets with storm sewers, if
annexation were successful, new development would be required to meet city standards
for storm water management. This would help reduce storm drainage problems in future
developments, and could potentially aid in storm water collection for existing
developments.
Water Service Districts
Although the majority of the City of Jefferson and a portion of the urban fringe area are
served by one water provider—Missouri American Water—there are portions of the
annexation study areas that are served by either Water Districts#1, #2 or#4. WD#1
serves the northwestern portion of the study areas, outside city limits including all areas
north of Highway 50, as well as south of Highway 50 and west of Country Club Drive
near the southwest corner of the City. WD#2 serves the southwestern portion of the
Jefferson City Annexation Study page 13
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Section VI:Infrastructure/Utilities/Services
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study areas, including the Frog Hollow area, south to the Moreau River. WD#4 includes
the area east of the Moreau River in the Algoa area. Coordination between Missouri
American Water and the water districts is required to ensure proper flows for Fire
Protection should annexation occur.
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Sewer Service
The City adopted a Waste Water Master Plan indicating areas for expansion of the
existing sewer lines outside the city limits. At present, the City is already serving a
significant portion of the annexation study area. The topography in and around the City
of Jefferson certainly presents h
y p is a challenge to extension of sewer fines, and will definitely
be a limiting factor in identifying specific areas for annexation. Despite the limits of the
topography, the City intends to provide service in a number of areas that are being
considered for annexation. It is notable that any additional installation of sewer systems
will practically guarantee further development in any given area. This would thereby
render those areas identified for sewer extensions as having greater annexation potential,
virtually by default.
Fire Districts
Ideally, each Fire Station should cover a 11/2-mile radius, with the ideal spacing between
stations being three (3) miles. In the City of Jefferson, the spacing of all of the stations is
such that the entire City has almost seamless coverage with some small exceptions.
Because the Fire Districts cover much larger areas with smaller populations and fewer
stations, there are large gaps in coverage areas (see Map 3).
At this time all dispatching is done from one central location. The dispatching center
serves the County Sheriff's Department, the City of Jefferson's Fire and Police
Departments, and the four County Fire Departments. As with the Water Districts, it is
recommended that the City Fire Department work closely in coordinating with the
adjoining County Fire Districts to ensure that proposed annexation areas will receive
adequate protection.
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Jefferson City Annexation Study page 14
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Jefferson City, Missouri
Annexation Study
Map 2
Sanitary Sewer System
Legend
Study Area
Lakes & Ponds
River & Streams
El Missouri River
/V Roads
Ael Existing Sanitary Sewer
Jefferson City
Cities
AN
Scale: 1:100,000
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'Tr."
Jefferson City, Missouri
Annexation Study
Map 3
Fire Districts
Legend
* Fire Stations
Study Area
Lakes & Ponds
/V River & Streams
Roads
Jefferson City
Cities
Missouri River
Fire Districts
Cole County
Osage Fire District
Rural West
Holt's Summit
AN
Scale: 1:100,000
Section VI:Infrastructure/Utilities/Services
Police Services
+ The City of Jefferson Police Department patrols the entire City itself, but also patrols and
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responds to calls in several areas outside the City limits in conjunction with the County
Sheriff's Department. Isolated areas exist within in the study area requiring increased
attention from law enforcement. Specific law enforcement issues will be discussed in
r Section VII.
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Jefferson City Annexation Study page 17
Section VII:Annexation Planning Areas
Section VII:
Annexation Planning Areas
This section provides a more detailed analysis of the study area to provide direction for
policy-makers in determining the best course of action regarding annexation. The study
area is divided into five smaller segments,planning areas, for this analysis. Each
planning area will be evaluated based on demographics, services, land use, growth
potential and past annexation consideration.
Planning Area 1
Planning Area 1 is located north and west of the current city limits (see Map 4). Its
approximate boundaries are:
West: Highway T
South: U.S. Highway 50
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East: City Limits
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North: Missouri River.
This large planning area spans the `
developing area between the City of
Jefferson and the City of St. Martins.
Containing 27.2 square miles it is the largest of the five planning areas and only slightly
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smaller than the current City Limits of 28.4 square miles. A great deal of suburban
growth has occurred within Planning Area 1 due to better than typical roads and access to
sewer.
The 2000 population of Planning Area 1 is 6,130. This represents a 16.3% increase from
the 1990 population of 5,273. This population is primarily located in several large
subdivisions immediately adjacent to the City of Jefferson. North of Missouri Route 179
and along the western portions of the planning area, the population is much less dense.
For this reason, these areas do offer future development potential.
Jefferson City Annexation Study page 18
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y Section VII:Annexation Planning Areas
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Consistent with all of the planning areas, the roads in Planning Area 1 typically fail to
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meet the City's standards for public streets. Grades within Planning Area 1 are less
severe than most of the other planning areas, making improvements and the development
of new roads less costly from a physical standpoint. Water is provided by Water District
{ #1. Service is adequate for residential use with some limited commercial and industrial
use. Improvements to the transmission mains will most likely be necessary to provide
{ adequate fire flows throughout the planning area. Coordination will be necessary to
utilize multiple service providers.
Planning Area 1 is almost completely served by the City of Jefferson's public sewer
system. The Gray's Creek sewer main extends from the city limits westward to the City
of St. Martin's. This system allows for gravity service to all of the land within Planning
Area 1 south of Missouri Route 179 and south of Wade Road. It is also within this
serviced area that the land is most suitable for development.
Fire service provided by the Regional West Fire District. The District has a station
located at the intersection of Business Route 50 and Apache Trail in the Apache Flats
_7 area. This station is located in the southern portion of Planning Area 1 approximately
one mile from an existing City operated fire station located at the intersection of
Fairgrounds Road and West Edgewood Drive. These two stations provide overlapping
service within Planning Area 1, while the northern portion of the planning area is not
served by a station.
Law enforcement is provided by the Cole County Sheriff s Department. Dispatching
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services for the City's police and the Sheriff s Department are shared. Annexation of all
or a portion of Planning Area 1 will require a reconfiguration of the Police Department's
patrol areas.
Land use is diverse and based on the transportation system. There are significant areas of
commercial and industrial development within the Apache Flats area adjacent to U.S.
Highway 50. Several small lot subdivisions have developed just outside of the current
Jefferson City Annexation Study page 19
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Section VII:Annexation Planning Areas
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city limits with access to public sewer. There are also several large lot subdivisions
scattered throughout the planning area. The City operates Binder Lake Park in the
j southwest portion of the planning area. This park is not currently adjacent to the city
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limits, so annexation would allow for a more seamless provision of services in this area.
j There is very little development north of Missouri Route 179 or Wade Road. This is
primarily due to steep slopes and lack of roads in the area. It should be noted that the
Central Missouri Correctional Center does own and operate a large facility in this part of
the planning area.
The City's Comprehensive Plan Update, prepared in 1996, identified future urban
development within Planning Area 1. The majority of this development was projected to
occur between Binder Lake Park and the existing city limits. Development would be
directed primarily to the southern portion of the planning area, with little or no urban
development north of the northern boundary of Binder Lake Park.
- While this type of development pattern makes a great deal of sense in a short-term
planning framework, long-term annexation considerations are somewhat different. The
City of Jefferson has already developed a sanitary sewer system that can support
development as far north as Wade Road and Missouri Route 179. These areas will
continue to develop in a primarily large lot residential fashion if left unincorporated.
This large lot development pattern will have along-term impact by ultimately limiting
municipal growth to the west.
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Jefferson City Annexation Study page 20
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Section VII: Annexation Planning Areas
Planning Area 2
Planning Area 2 is located west of the current city limits (see Map 4). Its approximate
boundaries are:
West:
Highway D
and Moreau River
South:
Highway C
East:
City Limits
North:
U.S. Highway 50
This planning area has the characteristics
of a transitional area from urban to rural that is displayed along its border highways and
adjacent to city limits. The area is characterized by sporadic commercial and industrial
development, one small lot residential subdivision and scattered large lot development.
Services are limited and existing development could create problems attracting new
development. The planning area is the smallest of the five areas at 8.8 square miles
The 2000 population of Planning Area 2 is 4,124. This represents a 19.8% increase over
the 1990 population of 3,441. This population is primarily located in the Westview
Heights development. Further west of Westview Heights, the topography slopes west to
the Moreau River and away from existing sanitary sewer lines, limiting development
potential.
Consistent with all of the planning areas, the roads in Planning Area 2 typically fail to
meet the City's standards for public streets. Grades within Planning Area 2 are
acceptable for road development and improvement in areas adjacent to the existing city
limits and along U.S. Highway 50. Development has typically taken place with direct
access to most of the collectors within the planning area. This will impact the ability to
upgrade roads to current City standards due to acquisition needs. Water is provided by
Water District #1. Service is adequate for residential use with some limited commercial
and industrial use. Improvements to the transmission mains will most likely be necessary
Jefferson City Annexation Study page 21
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Section VII: Annexation Planning Areas
to provide adequate fire flows throughout the planning area. Coordination will be
necessary to utilize multiple service providers.
Planning Area 2 is partially served by the City of Jefferson's public sewer system. The
Gray's Creek sewer main can be extended to serve development immediately south of
U.S. Highway 50. The Westview Heights development is located in a drainage basin that
flows westward, away from the city's sewer system. Service to this development is
provided with the use of lift stations and force mains into the City's gravity system. All
other undeveloped areas of Planning Area 2 flow away from the City's sanitary sewer
service and would have to be developed with lift stations or another treatment facility.
Fire service is provided by both the Regional West and Cole County Fire Districts. The
Regional West Fire District serves the area south to Lohman Road and west of Meadows
Ford Road. The District has a station located at the intersection of Business Route 50 and
Apache Trail in the Apache Flats area. This station is located in the southern portion of
Planning Area 1 but has a coverage area that serves portions of Planning Area 2,
primarily the area between U.S. Highway 50 and Lohman Road. The Cole County Fire
District has a station located on County Park Road just north of Rock Ridge Road (in
Planning Area 3). This station does provide service coverage for the most densely
developed portion of Planning Area 2, Westview Heights. This station is also
approximately one mile from the existing City operated fire station located at the
intersection of Country Club Drive and West Edgewood Drive. These two stations
provide overlapping service within the small, developed portion of Planning Area 2.
Law enforcement is provided by the Cole County Sheriff's Department. Dispatching
services for the City's police and the Sheriff's Department are shared. The Westview
Heights area accounts for a large portion of calls. Annexation of this area would have a
significant impact on the provision of police services.
Land use is primarily limited to scattered commercial and industrial development along
the south side of U.S. Highway 50 and a large residential development immediately
Jefferson City Annexation Study
page 22
}
j Section VII.- Annexation Planning Areas
j adjacent to the City known as Westview Heights. There is also a large lot development
t,
located in the western portion of Planning Area 2 between Scruggs Road and Highway C.
this development is in an area that drains to the west and does not have access to the
City's sewer system. The lots are sized in a manner that would discourage future
connection to any sewer system if it were available.
The City's Comprehensive Plan Update, prepared in 1996, identified future urban
development within Planning Area 2. The majority of this development was projected to
occur immediately adjacent to the city limits and include Westview Heights and land
adjacent to Big Horn Drive just south of U.S. Highway 50.
Planning Area 2 offers little in the way of desirable land for annexation. The ground
generally slopes to the west, away from the drainage patterns necessary to provide sewer.
Existing development within the Planning Area may have a negative impact on future
development and necessitate a greater level of services than other potential annexation
areas. One area within Planning Area 2 that is appropriate for annexation is land located
between U.S. Highway 50 and Lohman Road. This land can be served by the existing
Gray's Creek trunk line, is relatively level and has highway access. Annexation of this
area will also allow the City to control the development pattern along a major entry to the
City.
Jefferson City Annexation Study page 23
Section VII:Annexation Planning Areas
Planning Area 3
Planning Area 3 is located south and west of the current city limits (see Map 4). Its
approximate boundaries are:
West: Highway C
_ � r
South: Moreau River r �`
East: U.S. Highway 54
North: City Limits
This planning area is partially
surrounded by the current city limits.
- �
This medium sized planning area of 15.5
square miles is just more than half the size of the current City Limits. With major
transportation corridors along two sides and the City adjacent on the third, it offers
significant development opportunities. Sporadic residential and commercial development
has taken place within the planning area. These development patterns are beginning to
have an impact on the road system since most development takes place with direct access
to the collectors and arterials.
The 2000 population of Planning Area 3 is 3,622. This represents an increase of 20.3%
from the 1990 population of 3,012. The population is scattered throughout the planning
area, typically adjacent to the major roads: Rock Ridge Road, Highway C and U.S.
Highway 54. Additionally, there is a significant amount of developable land within
Planning Area 3.
Roads in Planning Area 3 tend to follow the ridge lines, are generally narrow and fail to
meet the City's standards for public streets. The City's Thoroughfare Plan identifies
several improvements and significant new construction within Planning Area 3.
Currently, work is progressing on the Route 179 extension that will connect U.S.
Highway 50 and U.S. Highway 54 through the planning area. These improvements,
Jefferson City Annexation Study page 24
ry .
Section VII:Annexation Planning Areas
^? together with improvements to the existing streets, will serve to open this area to
significantly higher density development than currently exists.
Water is provided by Water District#2. Service is adequate for residential use with some
limited commercial and industrial use. Increased development will begin to strain the
existing system and major improvements to the supply may be necessary. Improvements
to the transmission mains will most likely be necessary to provide adequate fire flows
throughout the planning area. Coordination will be necessary to utilize multiple service
providers.
Planning Area 3 is almost completely outside of the City's sanitary sewer service. The
extreme eastern portion of Planning Area 3 is served by sewer lines and there are long
range plans in place to extend sewer service to the west. The area north of Rock Ridge
Road drains to the north and could be served by gravity sewer into the City's existing
sanitary system. Proposed extensions will open additional areas for development. These
areas include: the eastern half of land between Rock Ridge Road and Highway C and
land along both sides of Zion Road south of Highway C. These are prime areas for
residential growth with some limited commercial applications as well.
Fire service is provided by the Cole County Fire District. The District has a station
located near the intersection of County Park Road and Rock Ridge Road. The City's fire
station located at Country Club Drive and West Edgewood Drive also provides some
overlapping service to portions of Planning Area 3. The City's fire station located on
Ellis Drive can also be used for service to the eastern edge of the planning area.
Law enforcement is provided by the Cole County Sheriff s Department. Dispatching
_v services for the City's police and the Sheriffs Department are shared. Annexation of all
or a portion of Planning Area 3 will require a reconfiguration of the Police Department's
I° patrol areas.
a
t .
Jefferson City Annexation Study page 25
,I �
r-1,
t !, Section VII:Annexation Planning Areas
Land use is a mix of scattered residential and commercial uses. There are isolated areas
with mobile home park developments and multi-family developments. The County
Fairgrounds and park is also located in Planning Area 3. The development has occurred
primarily along the major transportation corridors, and as such, has begun to impact the
road system. Continued development with direct access to the existing street network has
held down development costs because fewer internal roads are required. The negative
side to this development pattern is that minimal development begins to reduce the street
network's ability to effectively handle traffic. Development to a higher standard
requiring internal street systems will allow more development to occur without reducing
the effectiveness of streets.
The City's Comprehensive Plan Update, prepared in 1996, identified future.urban
development of the Frog Hollow area within Planning Area 3. This development is
projected to occur north of Rock Ridge Road. Development would also be directed to the
southeastern portion of the planning area.
This development pattern makes a great deal of sense because it identifies areas that can
be served by sewer, are adjacent to the current city limits and will be supported by long-
range transportation improvements. Based on proposed sewer extensions, the
development area can be extended to the west to pick up additional land between Rock
Ridge Road and Highway C and to serve land adjacent to Zion Road. Annexation of
these areas will provide prime residential development areas as well as limited
commercial development opportunities.
, a
n ,
Jefferson City Annexation Study page 26
4
Section VII:Annexation Planning Areas
Planning Area 4
Planning Area 4 is located south of the current city limits (see Map 4). Its approximate
boundaries are:
West: U.S. Highway 54
South: Moreau River
and Highway B
and Highway M \
a
East: Bald Hill Road
and Roling Road
t.
North: City Limits L
a vi
This planning area is divided by the Moreau River and extends around the northern half
of the City of Wardsville. This planning area is another medium sized one containing
approximately 15.2 square miles. Growth in this planning area has been minimal due to
the Moreau River floodplain, steep terrain and lack of connecting roads.
Planning Area 4 is the smallest of the areas in terms of population with a 2000 population
of 1,731. This population is 21.6% higher than the 1990 population of 1,424. This
represents the highest percentage population increase of the five planning areas. This
growth is primarily located in five subdivisions laid out along ridgeline roads.
Developing a well-connected street network in Planning Area 4 is extremely difficult due
to the nature of the Moreau River as it bisects the planning area. There are four bridges
across the river into the planning area, however, to support increased development, they
would need to be improved or replaced. Other roads in the area run along the ridges and
would be difficult to connect to the larger road network. There is little opportunity in
much of the planning area to create a road system that encourages development off of the
collectors and arterials already built. Water is provided by Water District#2. Service is
adequate for residential use with some limited commercial and industrial use.
Improvements to the transmission mains will most likely be necessary to provide
Jefferson City Annexation Study page 27
Section VII:Annexation Planning Areas
adequate fire flows throughout the planning area. Coordination will be necessary to
utilize multiple service providers.
Planning Area 4 is not currently served by a public sanitary sewer system. The
combination of topography and the Moreau River make construction of a sewer system in
the planning area extremely costly. Potential growth to support such a system would be
y
very difficult to achieve. There are long range plans for limited sewer extensions within
the planning area. One would extend south from the City Limits along Bald Hill Road to
a point south of its intersection with Glovers Ford Road. The western extension would
ti begin at the Green Meadows Development in the City and extend west to U.S. Highway
54. These extensions would enable the City to serve existing development as well as
_ open up prime lands within the planning area for development.
Fire service is provided by stations in the Cole County and Osage Fire Districts. Cole
County Fire District serves everything north of the Moreau River. This area is served by
the station located near the intersection of Fairground Road and Rock Ridge Road. The
City has two stations, Station#2 and Station#4, closer to the planning area than the Cole
County station. The remainder of the planning area is served by the Osage Fire District.
This area is located south of the Moreau River and is served by a station located in the
y Village of Wardsville.
- Law enforcement is provided by the Cole County Sheriff's Department. Dispatching
t
services for the City's police and the Sheriff's Department are shared. Annexation of all
or a portion of Planning Area 4 will require a reconfiguration of the Police Department's
P patrol areas.
- Land use is primarily agricultural and scattered large lot residential. There are small
--,i pockets of multi-family and commercial development in the western portion of the
planning area along U.S. Highway 54. The physical nature of the planning area is can be
characterized by long steep ridges running between large areas of floodplain along the
Moreau River. Development has primarily taken place along the ridges with direct
Jefferson City Annexation Study page 28
1
Section VII:Annexation Planning Areas
access to the road system. Few internal or interconnecting streets have been developed to
support additional development.
The City's Comprehensive Plan Update, prepared in 1996, identified limited future urban
development within Planning Area 4. The majority of this development was projected to
occur between Highway B and U.S. Highway 54 north of the Moreau River. Additional
limited development was projected immediately south of the existing City Limits along
_ Bald Hill Road in the eastern portion of the planning area. These growth projections
make a great deal of sense since these areas can be supported by existing services in
addition to limited extension of sanitary sewer service. Annexation across the Moreau
River greatly increases the service levels needed to support development. Bridge
maintenance, sewer, police and fire protection all become more costly and difficult to
provide. The potential growth to support these services is limited at best.
i
,
Jefferson City Annexation Study page 29
Section VII:Annexation Planning Areas
Planning Area 5
Planning Area 5 is located east of the current city limits (see Map 4). Its approximate
boundaries are:
West: City Limits,
Bald Hill road
and Roling Road '
South: Highway M and '
Stony Gap Road
East: County Line '
s
North: Missouri River. � 5
i
This large planning area covers the eastern section of the study area and extends from the
City Limits to the County Line. The second largest of the planning areas with 26.1
square miles, it is the second smallest in terms of population. Planning Area 5 wraps
around the northern portion of the City of Taos, similar to Planning Area 4 wrapping
around a part of the Village of Wardsville. The planning area is bisected by U.S.
Highway 50, which runs from west to east. The Moreau River cuts through the western
portion of Planning Area 5 as well. The State of Missouri operates several facilities
within the planning area and industrial development is occurring along Algoa Road.
Planning Area 5 has shown very little growth during the past decade. With a 2000
population of 3,288, the planning area gained only 6.9% of its 1990 population of 3,076.
This lack of growth can be explained by the industrial nature of much of Planning Area 5.
Also, a great deal of the land within the planning area is owned by the State. Other uses
include a landfill and a quarry. Clearly, this planning area is more suited to commercial
and industrial uses rather than residential uses. That said, there are several large
subdivisions scattered throughout the planning area.
Jefferson City Annexation Study page 30
i
Section VII:Annexation Planning Areas
The condition of the road network within Planning Area 5 depends largely upon the
location and surrounding land use. Like Planning Area 4, roads in the western portion of
Planning Area 5 follow the ridgelines and are older and narrow. The street system north
of U.S. Highway 50, although incomplete, is in better shape to support the industrial
1 ! development and State uses that have located there. The planning area is served by two
interchanges from U.S. Highway 50 as well as Algoa Road/Militia Drive extending
eastward from the City.
Water is provided by Water District#4. There is a water tower located just north of U.S.
Highway 50 along Highway J. This provides good service to the northern portion of the
planning area and helps to serve to higher intensity users located in this area. Two other
water towers are located south of U.S. Highway 50. These towers primarily provide
residential service to the immediate surroundings. Improvements to the transmission
mains will most likely be necessary to provide adequate fire flows throughout the
planning area. Coordination will be necessary to utilize multiple service providers.
Most of Planning Area 5 is not served by the City's sanitary sewer system. The City is
currently extending a trunk line eastward from the City limits to serve the existing
industrial uses and the new prison facility. There is a treatment lagoon located at the
Algoa Correctional Center and one at the National Guard facility. City improvements to
one of these facilities could provide for more intense development of the area.
Fire service is provided by the Cole County and Osage Fire Districts. Cole County Fire
District serves everything north of the Moreau River, which include the western edge of
the planning area. This area is served by a fire station located near the intersection of
Fairground Road and Rock Ridge Road. The City has a fire station located on McCarty
Street that is significantly closer to provide fire protection for the area. If additional
industrial development takes place within the planning area, adequate fire protection
should be determined and either a relocated or new fire station provided. The remainder
of the planning area is served by the Osage Fire District. This area is located south of the
Jefferson City Annexation Study page 31
ii
Section VII.-Annexation Planning Areas
Moreau River and is served by a stations located in the City of Taos and the Village of
Wardsville.
Law enforcement is provided by the Cole County Sheriff's Department. Dispatching
services for the City's police and the Sheriff's Department are shared. Annexation of all
or a portion of Planning Area 5 will require a reconfiguration of the Police Department's
q g P
patrol areas.
Land use is divided primarily between institutional, industrial, agricultural and
residential. That part of the planning area north of U.S. Highway 50 is developing with a
pattern of very intense uses. Currently there are several industrial uses, a quarry, an
active landfill, the Missouri National Guard facility and a juvenile detention facility. The
State is currently beginning construction of a new prison just east of the Algoa
Correctional Center. Mixed in with these intense uses is some scattered residential
development along U.S. Highway 50 and in the extreme northwest corner of the planning
area. South of U.S. Highway 50, there are scattered residential developments and
agricultural land. Although not directly a land use issue, school districts do impact land
use decisions. The area generally south of U.S. Highway 50 and east/south of the
Moreau River is located in the Cole County R-2 school District. The other planning areas
are located within the Jefferson City School District. This may have an impact on the
potential development of land if annexation occurs.
a! ,
The City's Comprehensive Plan Update, prepared in 1996, anticipates little City growth
to the east. This may be due to the fact that much of the land is already controlled by the
State and extension of sanitary sewer is required. Annexation of this area does make
sense, however, to control the industrial development and benefit from increased
development. With sewer extensions currently underway, this is a prime area for
annexation.
Jefferson City Annexation Study page 32
Jefferson City, Missouri
Annexation Study
Map 4
Annexation Planning Areas
Legend
Jefferson City
% River & Streams
A/ Roads
Cities
MI Missouri River
Study Areas
1
2
3
4
5
AN
Scale: 1:100,000
Jefferson City, Missouri
Annexation Study
Map 5
Drainage Areas
Legend
Jefferson City
A/ River & Streams
Roads
Ae Ridges
Cities
1111.1 Missouri River
Study Areas
1
2
3
4
5
AN
Scale: 1:100,000
'�
a e Mykee To
Jefferson City, Missouri
Annexation Study
Map 6
Land Use
Legend
Jefferson City
Land Use
Single Family
Two Family
Multi Family
NM Mobile Home
I. Commercial/Industrial
Parks/Recreation
IM Public
Undeveloped
River & Streams
/\/ Roads
Cities
MI Missouri River
Study Areas
1
2
3
4
5
Scale: 1:100,000
.sficsjv
Section VIII:Recommendations
Section VIII:
Recommendations
This report provides a preliminary evaluation of almost 93 square miles surrounding the
City of Jefferson. With a population of just under 19,000, the Study Area provides a
beginning point to evaluate potential annexation areas for the long-term growth and
development of the City. This section summarizes the findings of the report and provides
the City with general recommendations for further analysis.
To accurately evaluate the Study Area, it was broken down into smaller planning areas
along major transportation or river corridors. The following table provides a breakdown,
both in area and in population of the smaller planning areas.
Size 000 % Growth
Place/Area Name
(Square Miles) Population • •0 000
Area 1 27.2 6,130 16.3
Area 2 8.8 4,124 19.8
- Area 3 15.5 3,622 20.3
Area 4 15.2 1,731 21.6
Area 5 26.1 3,288 6.9
Total 92.7 18,895 16.4
City of Jefferson 28.4 39,636 11.7
Based on an analysis of each Study Area, this report recommends that the City of
Jefferson refine the Study Area to concentrate annexation efforts within a smaller portion
of each of the Planning Areas. The determination of concentrating the analysis to a
j smaller portion of the overall Study Area has been based on the following criteria:
the transportation network, existing developments, land available for new development,
access to infrastructure, access to services and consistency with adopted plans and
policies.
Jefferson City Annexation Study page 36
II
Annexation Study
Map 7
Detailed Study Areas
Jefferson City
A/' River & Streams
A/ Roads
Cities
▪ Missouri River
Detailed Study Areas
▪ 1
▪ 2
3
NM 4
IM 5
Study Areas
Section VIII:Recommendations
This reduced area that is recommended for additional detailed analysis includes the
following portions of the five Planning Areas (see Map 7):
-f
1. Planning Area 1
The area served by the Grays Creek sewer trunk line. This covers all of
Planning Area 1 south of Missouri Route 179 and Wade Road.
2. Planning Area 2
The Westview Heights development and the area located north of Old
Lohman Road and south of U.S. Highway 50.
3. Planning Area 3
The area located north of Highway C and the area east of Oakridge Road
between Highway C and U.S. Highway 54.
4. Planning Area 4
Those parts of Planning Area 4 located north of the Moreau River
5. Planning Area 5
--. That part of Planning Area 5 located west of Highway J and north of
Liberty Road and U.S. Highway 50.
The detailed analysis of these areas is intended to identify the information necessary to
initiate the annexation process. Efforts will be focused on meeting the requirements of a
- Plan of Intent. Finally, prioritization and phasing will be determined during this portion
of the Study.
Jefferson City Annexation Study page 37
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