2017 Spencer Comprehensive Land Use Plan

Spencer, Iowa  2017  Comprehensive Plan

C ity of SPENCER I owa

Giving You “Grand” Experiences Every Day

2017 COMPREHENSIVE LAND USE PLAN

Prepared with Planning Assistance from N orth w est I owa P lanning & D evelopment Sp ncer, Iowa

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Spencer, Iowa  2017  Comprehensive Plan

A CKNOWLEDGEMENTS

In Cooperation and Support from the: City of Spencer Reynold Peterson, Mayor Robert Fagen, City Manager Brian Weuve, Asst. City Manager/Finance Director Theresa Reardon, City Clerk Donald Hemphill, City Attorney

Mark White, Public Works Director Kirby Schmidt, Planning Director

City Council Frank Petska, Ward 1 William Orrison, Ward 2 Steve Bomgaars, Ward 3 LeAnn Jacobsen, Ward 4

Ron Hanson, Ward 5 Rich Prentice, At Large George Moriarty, At Large Planning & Zoning Commission

Zoning Board of Adjustment

Craig Wampler

Deb Feldman Don Baxter Mark Lykke

Donavon Wunschel

Eldon Goff Duane Bates Kari Roskens Travis Cooke Marjorie Eeten

Jason Manwarren

Steve Waller

Suzanne Harper Terry Peterson

City Clerk’s Office, 418 2 nd Avenue West Spencer, Iowa 51301 Office Hours: Monday-Friday 8:00 A.M. – 5:00 P.M. Phone: 712-580-7200 Fax: 712-580-7236

Prepared with Planning & Technical Assistance By: Northwest Iowa Planning & Development Commission 217 West 5 th Street, Box 1493, Spencer, Iowa 51301 712-262-7225 www.nwipdc.org

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T ABLE OF

C ONTENTS

EXECUTIVE SUMMARY ...................................................................................................................vii

Chapter 1. INTRODUCTION & PLANNING ELEMENTS ............................................................... 1

Chapter 2. SPENCER HISTORY .................................................................................................... 4 Places Promoting & Preserving Spencer’s History...............................................................................6 Historical Places in Spencer .................................................................................................................7 Chapter 3. PLANNING BACKGROUND & PUBLIC INPUT.......................................................... 9 Background of Comprehensive Planning in Spencer ...........................................................................9 Public Participation and Input..............................................................................................................9 Spencer Targeted Planning Survey Analysis ........................................................................................13 Chapter 4. PHYSICAL FEATURES & NATURAL RESOURCES.......................................................20 Geographic Location ........................................................................................................................... 20 Climate ................................................................................................................................................ 22 Topography and Landforms ................................................................................................................ 23 Soils ..................................................................................................................................................... 24 Aquifers and Groundwater ................................................................................................................. 26 Storm Water Management................................................................................................................. 26 Chapter 5. NATURAL HAZARDS & MITIGATION ACTIONS........................................................28 Hazard Mitigation Enabling Laws and Regulations ............................................................................. 29 Identification of Natural Hazards........................................................................................................ 29 Hazard Mitigation Risk Assessment Results ....................................................................................... 30 Hazard Mitigation Actions .................................................................................................................. 31 Plan Maintenance ............................................................................................................................... 32 Monitoring .......................................................................................................................................... 33 Incorporation into Existing Plans ........................................................................................................ 33 Emergency Management Services...................................................................................................... 33 Floodplain Mapping ............................................................................................................................ 33 Chapter 6. COMMUNITY TRENDS ...............................................................................................35 Historic Population Trends.................................................................................................................. 35 Current Population Structure ............................................................................................................. 36 Future Population Projections ............................................................................................................ 38 Housing Trends ................................................................................................................................... 40 Age of Housing .................................................................................................................................... 41 Housing Valuation............................................................................................................................... 42 Future Housing Needs......................................................................................................................... 43 Residential Building Permits ............................................................................................................... 44 Occupancy Conditions ........................................................................................................................ 45 Multifamily Housing............................................................................................................................ 46 Spencer Affordable Housing ............................................................................................................... 48 Chapter 7. CITY CHARACTER & PUBLIC SERVICES...................................................................49 Spencer City Hall ................................................................................................................................. 49 Police Department .............................................................................................................................. 49

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Fire Department.................................................................................................................................. 50 Spencer Ambulance Service................................................................................................................ 50 Healthcare Services............................................................................................................................. 51 Clay County Courthouse ..................................................................................................................... 55 Northwest Iowa Planning & Development Commission .................................................................... 56 Clay County Fair .................................................................................................................................. 56 Clay County Regional Events Center ................................................................................................... 57 Spencer Community Theatre .............................................................................................................. 57 Spencer Public Library......................................................................................................................... 58 Spencer Area Activity Center (SAAC) .................................................................................................. 58 Parker Historical Society ..................................................................................................................... 59 Religious Opportunities ...................................................................................................................... 59 Community Clubs & Non-Profit Service Organizations....................................................................... 60 Community Celebrations & Special Events......................................................................................... 61 An Artistic Identity and Cultural Community...................................................................................... 62 Chapter 8. EDUCATION ..............................................................................................................66 Spencer Community Schools .............................................................................................................. 66 Sacred Heart Catholic School .............................................................................................................. 70 Iowa Great Lakes Lutheran School...................................................................................................... 70 Iowa Lakes Community College .......................................................................................................... 70 Educational Attainment of Spencer Residents ................................................................................... 71 Chapter 9. OCCUPATIONAL & EMPLOYMENT DIVERSITY........................................................72 Employment........................................................................................................................................ 72 Labor Force Trends ............................................................................................................................. 73 Commuting Patterns ........................................................................................................................... 74 Employment by Industry..................................................................................................................... 74 Major Employers in Spencer............................................................................................................... 75 Occupational Employment Projections .............................................................................................. 76 Chapter 10. ECONOMIC DEVELOPMENT TRENDS ...................................................................77 Wages and Income Distribution.......................................................................................................... 77 Retail Trade Analysis ........................................................................................................................... 79 Pull Factor ........................................................................................................................................... 81 Trade Capture Area............................................................................................................................. 82 Spencer Chamber of Commerce ......................................................................................................... 83 Iowa Lakes Corridor Development Corp (Regional Economic Development) .................................... 84 Spencer Economic Development Incentive Programs & Opportunities............................................. 86 Chapter 11. INFRASTRUCTURE, UTILITIES & PLANNING.............................................................89 Spencer Infrastructure & Utilities ....................................................................................................... 89 Spencer Public Works ......................................................................................................................... 91 Spencer Municipal Utilities (SMU) ...................................................................................................... 93 Solid Waste Collection & Recycling..................................................................................................... 94 Northern Plains Regional Landfill........................................................................................................ 95 Spencer Planning & Zoning Services ................................................................................................... 96 Chapter 12. TRANSPORTATION DIVERSITY.................................................................................98 Transportation & Logistics .................................................................................................................. 98

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Traffic Flow.......................................................................................................................................... 98 Street Classifications ........................................................................................................................... 102 Spencer East & West Beltways ........................................................................................................... 104 Railroad Services ................................................................................................................................. 105 Farm to Market Road System ............................................................................................................. 105 Public Transportation Services............................................................................................................ 106 Northwest Iowa Regional Airport ....................................................................................................... 106 Chapter 13. PARKS & RECREATION ...........................................................................................108 Spencer City Parks............................................................................................................................... 109 Spencer Neighborhood Parks ............................................................................................................. 112 Nature & Wildlife Areas in and Near Spencer .................................................................................... 114 Spencer Recreation Uses & Activities ................................................................................................. 116 Spencer Trails...................................................................................................................................... 120 Spencer Parks & Recreation Master Plan ........................................................................................... 122 Chapter 14. PLANNING GOALS & LAND USE POLICIES...........................................................124 Land Use Definitions ........................................................................................................................... 125 Overall Goal of the Comprehensive Plan............................................................................................ 126 General Land Use Development Objectives ....................................................................................... 126 Land Use Characteristics & Community Growth Trends .................................................................... 127 Future Land Use Planning and Implementation Policies .................................................................... 132 Agricultural, Conservation and Undeveloped Land Uses ................................................................... 133 Population, Housing and Residential Land Uses................................................................................. 135 Commercial and Retail Land Uses....................................................................................................... 138 Industrial Land Uses and Economic Development ............................................................................. 141 Public & Civic Land Use and Community Facilities ............................................................................. 144 Parks and Recreation Land Uses ......................................................................................................... 146 Transportation, Infrastructure and Utility Land Uses ......................................................................... 149 Chapter 15. ADDITIONAL DEVELOPMENT ISSUES .....................................................................152 Annexation.......................................................................................................................................... 152 Zoning in Spencer................................................................................................................................ 156 Extraterritorial Zoning and Land Use .................................................................................................. 157 Smart Growth Principles ..................................................................................................................... 158 Low Impact Development and Best Management Practices.............................................................. 160 Chapter 16. PLAN IMPLEMENTATION ........................................................................................163 Strategic Plan ...................................................................................................................................... 164 Updating Control Ordinances and Capital Improvements Planning................................................... 164 Comprehensive Plan Implementation Strategies ............................................................................... 165 Cited References and Information Sources ................................................................................................. 167 Referenced Website Resources ................................................................................................................... 168

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F IGURES, T ABLES & M APS Figure 1 – Map of Grand Avenue Historic District Buildings ....................................................................................8 Figure 2 – Spencer Location Maps .........................................................................................................................21 Figure 3 – Climate Patterns for Spencer Area ........................................................................................................22 Figure 4 – Topography Map of Iowa ......................................................................................................................23 Figure 5 – Landform Regions of Iowa .....................................................................................................................24 Figure 6 – Soil Associations Map in and around Spencer.......................................................................................25 Figure 7 – Map of Dakota Aquifer in Iowa and the Jordan Aquifer in Iowa ...........................................................26 Figure 8 – FEMA Floodplain Map for Spencer ........................................................................................................34 Figure 9 – Historic Population Trends for Spencer.................................................................................................36 Figure 10 – Age Distribution of 2010 Population for Spencer, Clay County & Iowa ..............................................37 Figure 11 – Age Distribution Pyramid for Spencer and Clay County, 2010 ............................................................37 Figure 12 – Population Projections, 2020-2050 .....................................................................................................39 Figure 13 - Age of Housing for Spencer, Clay County & Iowa.................................................................................41 Figure 14 – Comparative Years Housing Units Were Built .....................................................................................41 Figure 15 – Valuation of Homes, 2000, 2010 & 2013 in Spencer...........................................................................42 Figure 16 – Median Housing Value.........................................................................................................................43 Figure 17 – Residential Housing Building Permits in Spencer, 2005-2014 .............................................................45 Figure 18 – Spencer Cultural District Map and Asset Buildings .............................................................................64 Figure 19 – Spencer Community School District Map ............................................................................................68 Figure 20 – 2010-15 Spencer School District Enrollment & 2016-2020 Projections ..............................................69 Figure 21 – 2010-15 Comparative School District Enrollment for Spencer and Six Other Cities ...........................69 Figure 22 – Educational Attainment of Spencer, Clay County and Iowa Residents, 2014 .....................................71 Figure 23 – Unemployment Rates for Clay County, Iowa and U.S., 2005-2016 .....................................................72 Figure 24 – Labor Force Trends in Clay County, 2006-2016...................................................................................73 Figure 25 – Spencer Commuting Methods.............................................................................................................74 Figure 26 – Employment by Industrial Sector, City of Spencer ..............................................................................74 Figure 27 – Employment by Industrial Sector, Clay County ...................................................................................75 Figure 28 – Comparative Median Household and Family Income .........................................................................78 Figure 29 – Total Taxable Retail Sales in Spencer, FY07-FY16................................................................................80 Figure 30 – Region Map showing Total Taxable Retail Sales for area cities...........................................................81 Figure 31 – Region Map showing the Pull Factor for area cities ............................................................................82 Figure 32 – Map of the Iowa Lakes Corridor Development Corp. Service Area .....................................................85 Figure 33 – Spencer TIF Districts Boundaries Map .................................................................................................87 Figure 34 – Spencer FY2018-2022 CIP Plan ............................................................................................................92 Figure 35 – Regional Location Map Showing Spencer’s Presence in the Midwest ................................................98 Figure 36 – IDOT Traffic Flow Map, 2015 ...............................................................................................................99 Figure 37 – IDOT Federal Functional Classification Map ..................................................................................... 103 Figure 38 – Spencer Transportation Map – East and West Beltways.................................................................. 104 Figure 39 – Detail from the IDOT Iowa Railroad Map, 2016 ................................................................................105 Figure 40 – IDOT Farm-to-Market Road Map...................................................................................................... 105 Figure 41 – Layout of the Northwest Iowa Regional Airport in Spencer............................................................. 107 Figure 42 – Leach Park Campground Map........................................................................................................... 117 Figure 43 – Spencer Trails Map ........................................................................................................................... 121 Figure 44 – Spencer to Iowa Great Lakes Trail Connection Map, 2016............................................................... 122 Figure 45 – Spencer Parks & Recreation Master Plan ......................................................................................... 123 Figure 46 – Land Use Composition for Spencer .................................................................................................. 128 Figure 47 – Land Use Composition for Developed Land in Spencer.................................................................... 129 Figure 48 – Smart Growth Chart ......................................................................................................................... 159

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TABLES Table 1 - Hazard Risk Assessment Results............................................................................................................ 31 Table 2 - Historic Population Trends, City of Spencer .......................................................................................... 36 Table 3 - Projected Population for Spencer, 2020-2050 ...................................................................................... 38 Table 4 - Spencer Housing Valuations, 2000, 2010 & 2013 ................................................................................. 42 Table 5 - Projected Housing Units Needed in 2020, 2030 and 2040.................................................................... 44 Table 6 - 2005-2014 Residential Building Permits, New Dwelling Built and Valuation of Housing...................... 45 Table 7 - Occupied Housing Units in Spencer, Clay Co. and Iowa ........................................................................ 45 Table 8 - 2010-2015 Spencer Community School District Enrollments & Projected Enrollment......................... 68 Table 9 - 2016 Clay County Unemployment Rates by Month .............................................................................. 73 Table 10 - Spencer’s Largest Employers (More than 50+ Employees) ................................................................. 75 Table 11 - Iowa Workforce Development Region 3-4 Employment Projections.................................................. 76 Table 12 - Household, Family & Per Capita Income - Spencer, Clay Co. & Iowa .................................................. 77 Table 13 - Household and Family Income Comparison of Spencer and other cities ............................................ 78 Table 14 - Iowa Workforce Development Wage Survey for Region 3-4............................................................... 79 Table 15 - Number of Retail Firms v. Constant Sales per firm, Spencer............................................................... 79 Table 16 - Retail Trade Overview for Spencer, 2010-2016................................................................................... 80 Table 17 - Trade Area Capture analysis for Spencer ............................................................................................ 83 Table 18 – Spencer Infrastructure & Utilities ....................................................................................................... 89 Table 19 - Existing Land Use Composition of Spencer ......................................................................................... 128 Table 20 - Land Use Composition of Developed Land in Spencer ........................................................................ 129 MAPS Spencer Community Facilities Map...................................................................................................................... 65 Spencer Parks, Trails & Recreation Map .............................................................................................................. 115 Spencer Existing Land Use Map ........................................................................................................................... 130 Spencer Future Land Use Map ............................................................................................................................. 131 Spencer Comprehensive Plan Annexation Map ................................................................................................... 154

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2017 S PENCER

C OMPREHENSIVE

L AND

U SE

P LAN

E XECUTIVE S UMMARY

The comprehensive land use plan is an essential planning document for those communities in Iowa intending to enforce zoning regulations, annexations, urban renewal tax benefits and other land use controls. This document is created to be Spencer’s primary guide for future land use policy decision making. The comprehensive plan is general in nature and broad in scope, assessing past and current conditions and making projections for population, housing, economic conditions, and land use issues. The core of the plan is comprised of two primary sections to be supported by the remainder of the data and statistical analysis in this plan.

1) GOALS, OBJECTIVES & POLICY RECOMMENDATIONS for the next 10 to 15 years in Spencer 2) FUTURE LAND USE MAP creating a visual depiction of proposed land use development.

Included within this executive summary are the general comprehensive plan goals, plan implementation strategies, and the future land use map. Supporting data is available within the main body of the plan, as well as specific policy recommendations addressing each land use classification in Spencer. SUMMARY OF OVERALL COMPREHENSIVE PLAN GOALS & OBJECTIVES The comprehensive planning and visioning process provides tools for directing change in Spencer. A community vision will only happen if local leaders continue to consider new or nontraditional planning methods and techniques, and address land use problems that may arise.

Significant commitments are required to make the planning process and implementation of this document successful. The Planning and Zoning Commission must continue to work with city leaders to guide the implementation of this plan and other development issues. This plan is not a “quick fix” to the future economic and community development actions

Maintain diversity of land uses while minimizing future land use conflicts

Provide long term planning guidance through land use controls

for Spencer. With that said, this comprehensive plan should serve as a guide for future development decisions. A comprehensive land use plan needs to be modified and updated over time to maintain current plan goals and support control ordinances. The extent of growth experienced within the community will play a significant role in determining how often and what types of adjustments are required.

Preserve the character of

developed areas while designating future land uses

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Spencer’s comprehensive plan is based on the previously stated overall goal. Additional land use objectives and policies will guide the comprehensive planning process. General development objectives guide the comprehensive planning process and are summarized as follows: 1. Land Use Development & Planning - Maintain planning efforts and programs which direct planned development of the city and facilitates the orderly growth and development of the community. Promote the best land uses possible for areas to be developed, including considerations for flood prone areas. 2. Residential Development & Housing – Collaborate with private developers, public housing and funding agencies to assure quality and affordable housing opportunities, including single and multiple family housing along with senior and assisted care housing, is made available to all. 3. Commercial Activities - Develop a diversified local commercial base that will provide the city with a wide range of goods and services. Encourage future development to locate within the historic Downtown Spencer and along Highway 18/71 business corridors to maximize existing infrastructure resulting in efficient land use patterns. 4. Industrial Activities - Continue efforts toward acquisition of future industrial growth, as well as emphasizing the support and retention of existing industrial development. Encourage Industrial development in planned industrial parks or existing industrial sites, where utility demands can be met without costly upgrades. 5. Economic Development - The city should broaden the base of its economy through the attraction and retention of industry and maintaining, broadening, and strengthening the retail and service sectors of the economy. 6. Community Facilities - The quality of services and facilities should be maintained, and modern technologies should be incorporated when available, feasible and cost-effective. 7. Recreation/Open Space - Provide residents and visitors with choices for types and amounts of recreational activities desired. 8. Transportation - Strive to sustain a planned transportation system designed to enhance the efficiency of movement of people and goods throughout the community. 9. Utilities - Ensure quality utility services are made available to all residents and businesses of the city at the lowest possible rates. 10. Annexation - Encourage orderly and structured growth of the city by first utilizing available land if applicable; but do not reject opportunities to voluntarily annex property or use involuntary annexation if in the best interest of the city. IMPLEMENTATION OF THIS PLAN The Spencer Comprehensive Land Use Plan is to be used as a guide by both public and private sectors in land use decision-making processes. The private sector, including developers, investors, industry, and businesses will use this document to become informed of the general positions of the city regarding land use objectives and policies. This land use plan along with the existing and future land use maps will provide the public with an outline and guide to make individual land investments, purchases, or development decisions. The public will become more informed as to the city’s policies regarding land uses that are permitted, encouraged, prohibited, or protected. With this knowledge in advance, the public will be able to make informed and knowledgeable decisions complimentary to the city’s comprehensive plan.

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The Spencer Comprehensive Plan may be amended as deemed necessary by the planning and zoning commission, with amendments recommended to the city council for approval. While actual or literal enforcement of the land use policy statements included in this plan may be difficult, the city should consider the policies established within this document as enforceable through the city’s zoning ordinance and subdivision regulations. The intent, spirit and policies established in this comprehensive planning document are often cited, referenced, and utilized in the city’s other enforcement regulations. All governmental bodies, businesses, individuals, and corporations are strongly encouraged to comply with the spirit and intent set forth in the goals and land use policies outlined in this comprehensive plan. The proceeding Chapters in this document form the core of the Spencer Comprehensive Plan with narratives, maps, charts, tables, and statistics concerning desirable future development patterns. This chapter addresses a means of implementing those objectives and policy recommendations identified in Chapter 14. Because the scope of the Spencer Comprehensive Plan is long term in nature its policy recommendations and the idea of implementing such policies may seem daunting. It is for this reason that city officials and specifically the planning and zoning commission should utilize the plan to assist in developing annual or short term improvement programs such as a parks and trails plan, capital improvements plan, or financial budgeting. Additionally, the planning and zoning commission should evaluate the comprehensive plan on an annual basis in consideration of changing development patterns which may occur in any given year. Community leaders and city officials are charged with the task of identifying, leading, and being the first to accept and embrace Spencer’s future growth and development. Suggested implementation measures the city may wish to review, address and incorporate include: 1. Establish a benchmark from which future community growth will be measured against. Create a three to five-year action or strategy plan addressing specific growth, economic development, and annexation policies. 2. Consider creating and implementing a separate annexation plan for the community in which specific areas or parcels of land are identified and prioritized for potential future annexations. Begin assessing which annexations will likely be voluntary versus an 80/20 or involuntary annexation area. 3. Encourage city officials, planning and zoning commission members, board of adjustment members, and key community leaders to attend training opportunities to gain new perspective on current or innovative trends in planning and regulatory ordinances. 4. Establish an annual comprehensive plan review process in which public input is encouraged regarding progress in the community. The planning and zoning commission will review the city’s future land use map and policies and make a report to the city council to determine if changes are needed to reflect current development projects. 5. Create a plan to attract and/or retain young professionals and promote a younger population in Spencer. Far too many communities see younger populations leave upon graduation from schools for larger metropolitan areas. Monitor results through affordable housing options, younger demographic trends, and recreational or entertainment activities intended for this age demographic.

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6. The City of Spencer should promote and exhibit a welcoming and accommodating feeling to new residents, businesses, and visitors to the community. This may be accomplished through creating and sustaining a “welcoming committee” along with disseminating information to new residents and businesses to the community. 7. Upon review and implementation of new or existing land use policies, remember to protect the rights and interests of property owners in Spencer. 8. When implementing new land use policies, city leaders and elected officials must remember that consistency and fairness is necessary for all residents and businesses in Spencer. The exact amount of land to be devoted to each future land use category in the year 2030 is not known and cannot be accurately estimated. Instead, a realistic estimate of land areas is made relative to the following methodology. First, trends in past, current, and projected populations are examined and analyzed to determine the impact on existing and future planned land uses. Secondly, additional land use areas (future growth areas) are shown on the future land use map. This is done to assure the city’s Planning and Zoning Commission has future direction for making land use decisions. The future land use plan is a valuable tool upon which development decisions and zoning controls are based. SPENCER FUTURE LAND USE PLAN

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C HAPTER

1 .

I NTRODUCTION &

P LANNING

E LEMENTS

A comprehensive plan is a collection of material and information designed to guide future growth and development of the community. It is general in nature and provides a framework and policy context within which to make land use decisions relevant to future development. The comprehensive plan is long range, looking forward 10 to 15 years, and does not plan a highly specific course. Rather, the plan

Comprehensive Planning is a transparent, public process in which communities establish a future vision and locally designated standards in order to promote public health, safety and prosperity. Successful planning attracts economic development, protects and preserves the city’s resources, and encourages a strong community identity.

Defined by the Rebuild Iowa Office “Iowa Smart Planning” 2010

points toward land use goals and general policies that the city should consider when making development decisions. While short term planning is important, such as capital improvement planning, strategic action plans, economic development strategies, or municipal budgeting, it is not within the scope of this plan. Short term plans may be incorporated into the comprehensive plan by reference. The comprehensive city plan or master plan must therefore be first, a balanced and otherwise attractive general design, which is best suited to present and future needs. Second, the plan must be in scale with the population and economic prospects of the community, and third the plan must be in scale with its financial resources. The comprehensive planning process consists of utilizing past and present planning efforts and integrating this information into a vision for the future. What exactly is a “vision?” A vision is an image or foresight into where the community wishes to see the city grow and develop in the future. A common vision is critical for the development of a comprehensive plan, because once a vision statement has been established; it serves as a focal point for all other long range plan goals and specific policy statements for which to aim.

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The Spencer Comprehensive Plan is an intense study into specific components that make the city work, including the physical growth and development of the community. Changes in land use patterns, infrastructure, transportation, municipal facilities and services, population, housing, and other features are very important in determining the current condition of the city. This information is useful in determining objectives and land use policies relating to the natural environment, built environment, land uses, and other such activities

Photo of Thunder Bridge in Spencer

that directly affect the physical aspects of Spencer. The plan’s overall goals and policies; and future land use designations are intended to be updated and amended as needed. As the community grows or changes from year to year, so will its needs. Therefore, the comprehensive plan should reflect recent changes and new objectives or policies intended for specific actions. Ideally, the comprehensive plan will be updated on an annual basis. Actions recommended by the planning and zoning commission and approved by the City Council can amend this plan to reflect current trends or simply a change in philosophy regarding one or more policy statements. According to Chapter 414, Iowa Code, if a city is to create zoning districts then “The regulations shall be made in accordance with a comprehensive plan” . All cities involved in zoning and land use regulations need to have an updated plan to guide future development activities. In general, this comprehensive plan should and will contain sections regarding population and housing trends, socioeconomic data, transportation & infrastructure, hazard mitigation actions, parks & recreation, city services & community facilities, economic development, smart growth and future land uses. Once the working definition of planning has been internalized by those involved, the steps of the actual process should commence. According to the Iowa Land Use Planning Notebook published by Iowa State University Extension, a comprehensive plan serves the following functions for a community. ▪ The plan provides continuity . A comprehensive plan allows continuity within the city and provides successive public bodies a framework for addressing common land use issues. ▪ Balancing competing private interests . A thorough comprehensive plan can provide a balance between competing demands on land by establishing a plan for identifying future development patterns in an orderly and rational manner. A plan should be created to support the greatest benefit for individuals and the community. ▪ Protecting public interests . A comprehensive plan is also a means by which the city avoids costly infrastructure expenses on low priority or non-beneficial projects. It is much less expensive for a city to provide public services to well-planned, orderly, and phased developments versus a haphazard or scattered low density development that may only provide benefit to a few properties.

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▪ Protects the city’s valued resources . Planning can identify environmental features and other natural resources and suggest strategies or policies to protect and preserve those resources from destruction or degradation by development. ▪ Shapes the appearance of the community . A comprehensive plan can establish policies that create and promote a distinct sense of place. ▪ Promotes economic development . A comprehensive plan contains valuable information that can aid firms and the city’s economic development organizations in determining where to locate new businesses and industries. ▪ Provides justification for decisions . A comprehensive plan provides factual and objective basis for support of zoning and subdivision decisions, of which can be used to defend a city’s decision if challenged in court. ▪ Expresses a collective citizen vision for the future . The comprehensive planning process allows residents of the community to participate in a discussion, debate and visioning process to plan for their community. A plan developed with a proactive public participation process will enjoy a strong community support. Decisions that are consistent with the comprehensive plan’s policies are less likely to be subject to public controversy. Planning is a key element in the development of any comprehensive plan. The “planning” steps of the comprehensive plan process should include: 1. The primary stage of a planning program is research and data collection . It is from this supply of data that decisions will be based. Broad or general areas of information needed for the base inventory of data include, but not limited to population, housing, economic development, physical features, land use, transportation, public works, community facilities, parks and recreation, and natural resources. 2. Analysis of the data collected is an ongoing activity conducted at the same time the research and data collection is being pursued. Analysis involves the collection and presentation of data in written and/or graphic form to establish a complete base of existing conditions. Once this base has been established, the analysis proceeds into projection of future trends and growth. Dynamic forces are identified as well as their relative effect on the future. 3. All this input in turn will facilitate the evolvement of certain broad general goals for the planning area that aims towards which effort is to be directed. Objectives involve bringing the goals closer to reality and specifically establishing those accomplishments that are desirable and closer to realizing established goals. 4. The objectives and policy recommendations are the framework for plan preparation. The technical personnel involved in the planning effort prepare the actual comprehensive plan document. Before submission of the plan to the legal bodies concerned, it should have been studied and commented upon all the involved sectors and altered accordingly. 5. Legalization of the plan involves the plan adoption by the local legislative body. Public hearings and wide distribution of the plan should take place before formal adoption proceedings. The plan must meet with the approval of those in the planning area to function properly. 6. Implementation of the plan is not carried out by any one department or agency, but is out of necessity a combined effort of all government, private and related entities. It cannot be emphasized enough that cooperation and coordination are the keys to an effective plan implementation.

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C HAPTER H ISTORY Early prairie settlers made their way to a flat area of Midwest prairie land at the confluence of the Ocheyedan and Little Sioux rivers which is now known as the City of Spencer, Iowa. Since 1871, Spencer has been the county seat for Clay County. With that said, the site of the first courthouse in Clay County was originally in the City of Peterson, in southwestern Clay County, until Spencer was formally platted. Since Spencer was more centrally located its residents felt the courthouse needed to be in Spencer. An election was held in 1871 in which Spencer was named the county seat by a mere 159 votes. The first courthouse in Spencer was built for $1,333 and later sold to the City of Spencer. A second courthouse was built in 1884 at a different location for $5,000, but was later criticized for being too boring. Finally, in 1900 Clay County voted on a new courthouse at a cost of more than $60,000. The new courthouse opened in 1901. This is the courthouse that stands in Spencer today. 2 . S PENCER

Spencer’s history began in 1859, when George E. Spencer gave his name to the City of Spencer. Mr. Spencer lived in Iowa prior to serving as a U.S. Senator from Alabama. Shortly after the City of Spencer was founded, the community started growing quickly. The first residential dwelling and the first schoolhouse were both built in 1866. The town’s first business or store opened in 1869. By 1871 the town of Spencer was platted for the first time. With a growing population, the Chicago, Milwaukee & St. Paul Railroad was built in Spencer in 1878 to make trade and transit easier. Spencer was officially incorporated as a town on March 26, 1880 and organized as a city on March 21, 1892. From 1880 until 1892 the town grew from 884 to 1,800 and had 166 businesses at that time. Spencer’s Clay County Fair was established early in the community’s history, and the impact of the fair was felt early on. In 1917, the Clay County Fair Association was organized. Spencer hosted the first modern Clay County Fair in 1918. Originally, the race track was completed in 1918 along with the two ornamental entrance ways to the fairgrounds. The two entrance ways (one on the east side and one on the north side) were constructed with archways and towers on either side. The historic entrance way on the fairgrounds east

Historic photo of Railroad Depot in Spencer Photo courtesy of www.epodunk.com

Historic Photo of Clay County Fair entrance Source: Dennis Beck, Northwest Iowa & Spencer Iowa Photos on Pinterest

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