HomeMy WebLinkAboutStaff Report - PLNPCM2025-00481
PLNPCM2025-00481 1 August 27, 2025
PLANNING DIVISION
DEPARTMENT of COMMUNITY and NEIGHBORHOODS
Staff Report
To: Salt Lake City Planning Commission
From: Nick Norris, Planning Director; Nick.Norris@slc.gov
Michaela Bell, Deputy Planning Director; Michaela.bell@slc.gov
Date: August 27, 2025
Re: PLNPCM2025-00481--Water Conservation and Land Use Element--General Plan amendment to Plan Salt Lake
General Plan Amendment-Growing Water Smart
PROPERTY ADDRESS: Citywide
GENERAL PLAN: Plan Salt Lake
REQUEST:
Mayor Mendenhall initiated a plan amendment to Plan Salt Lake, to formally integrate the city’s
land use plans with the City's 2022 Water Supply and Demand Plan & the Water Conservation
Plan completed by Salt Lake City Department of Public Utilities. This proposal updates the city’s
general plan to comply with Utah State Code 10-9a-403, which mandates the inclusion of a
water element in Plan Salt Lake by December 31, 2025. The Planning Commission is required to
provide a recommendation to the City Council, who makes the final decision on
this amendment. This proposal is citywide.
RECOMMENDATION:
That the Planning Commission recommend adoption to the City Council.
ATTACHMENTS:
A. ATTACHMENT A: Water Conservation and Land Use Planning Chapter for Plan Salt
Lake
B. ATTACHMENT B: Utah Code 10-9a-403 Requirements
C. ATTACHMENT C: Factors to Consider for Updates to the General Plan
D. ATTACHMENT E: Public Process & Comments
E. ATTACHMENT F: Department Review Comments
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APPROVAL PROCESS AND COMMISSION AUTHORITY
This proposal is an amendment to the General Plan. The Planning Commission is required to hold
a public hearing and make a recommendation to the City Council. The recommendation may be
to adopt the proposal, adopt with modifications, or not adopt the proposal.
KEY CONSIDERATIONS
Utah Code includes six main components of water and land use planning that need to be
addressed in the city’s general plan. Each of these components is discussed separately below.
This proposed amendment to update Plan Salt Lake includes initiatives for each of these six
components. The key considerations listed below were identified through the analysis of the
project:
1. The effect of current and future development on water demand and supply.
2. Methods to reduce water consumption per capita.
3. Opportunities to reduce water consumption in city operations.
4. Consideration of the regional water conservation goals.
5. Consideration of the city’s existing water conservation plans.
6. Consideration of policies related to the principles of sustainable landscaping.
Consideration 1: The effect of current and future development on water demand and
supply.
The proposal includes data from the city’s 2022 Water Supply and Demand Plan regarding the
first component (the effect of current and future growth and water use), with projected
populations and projected water use based on three different scenarios. Each scenario in the
Water Supply and Demand Plan considers different degrees of water demand and conservation.
The Water Supply and Demand Plan also includes consideration of the impact of drought,
climate change, wildfire, and other risks on water supply. In addition, the proposal recommends
that the Water Supply and Demand Plan continue to be updated every five years or as needed,
to ensure that historical water use, projections for growth, and water use and water supply are
properly evaluated.
This also addresses the fifth component, consideration of the city’s existing Water Conservation
plans, which are informed by the Water Supply and Demand Plan. Public Utilities manages the
Water Supply and Demand and Water Conservation Plans and is currently in the process of
updating both plans. It is anticipated that a draft of the Water Conservation Plan will be publicly
available Fall 2025 and go through the city adoption process.
Consideration 2: Methods to reduce water consumption per capita.
The second consideration is to identify opportunities to reduce water consumption per capita.
There are seven actions associated with this initiative:
1. Develop consistent future land use designations to better understand the impact future
development has on water demand and supply.
2. Identify land uses with high water consumption and develop water saving strategies.
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3. Support decreased lot size and configuration standards.
4. As water supply availability reduces, consider additional programs, policies and
regulations that can reduce water use.
5. Review allowed land uses in the zoning code and consider prohibiting land uses that
consume large amounts of water.
6. Consider incentives for new and existing developments to utilize low-water demand
landscaping and fixtures.
7. When needed, require new development to contribute water to increase the water supply.
Unlike most cities, Salt Lake City uses a collection of community plans to address future growth
in the city. This approach allows more neighborhood context to be reflected in the land use policies
of each community plan. However, it also results in each plan having its own future land use maps
and designations, which has resulted in nearly 60 different designations. This has resulted in
discrepancy between plans when it comes to the density identified in each plan. Low density
residential, for example, is found in most of the community plans. The Avenues Plan defines low
density residential as up to five dwellings per acre, while the adjacent Capitol Hill Plan defines it
as up to 15 dwellings per acre. These types of differences are found across each of the plans. This
makes it difficult to project future growth, future infrastructure needs, and future water needs
because different densities use different amounts of water. Reducing the number of designations
and updating the community plans will improve the accuracy of water planning in the future.
In the last five years the city has reviewed zoning regulations and water consumption of certain
land uses to identify how much water certain types of development use. Tracking water use helps
the city better understand how much water different categories of land use consume, which in
turn will allow the city to cater water conservation actions to specific land uses.
Public Utilities and the Planning Division have been reviewing the impact that lot size and lot
configuration have on water consumption. The review of a random selection of properties in single
family zoning districts does show that there is some relationship between lot size and water
consumption. Larger lots tend to use more water, likely because the homes on the lot are larger
and contain more people, more fixtures, and likely use more water for irrigation. Smaller lots tend
to have smaller homes, which in turn have fewer people, less fixtures, and smaller yards that
require less irrigation. By allowing smaller lots with smaller dwellings, the overall water demand
within single family zoning districts may be reduced on a per capita basis.
In the future, the city may desire to utilize additional programs and policies to reduce water. The
Conservation Plan also lays out programs and strategies for the City. Below are examples, some
of which are already in place but could be expanded or enhanced, including:
• Additional changes to the tiered water rate structure;
• Additional reductions in uses that have high depletion rates, such as outdoor watering or
inefficient cooling systems.
• Contributing to programs that help property owners change their landscaping to more
water-wise landscaping or support existing regional programs;
• Time restrictions for outdoor water use; or
• Establishing water budgets for certain land uses.
A few years ago, the city adopted land use regulations that placed a daily cap on the amount of
water that could be used by any specific water use. As a new use is proposed, some land uses are
required to provide an estimated daily water consumption study. This requirement could be
expanded as water consumption data of existing users is studied. The maximum daily use amount
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PLNPCM2025-00481 August 27, 2025
could also be further restricted based on the water use data. In addition, some land uses could be
prohibited or the size of high-water using land uses restricted to limit water use. The city has
banned some specific land uses, such as bottling facilities, due to large quantities of water that are
depleted from the system in such operations.
The city’s zoning code includes incentives for affordable housing and historic preservation.
Development incentives could be added to the code to promote more water conservation in new
developments. This could work by either increasing the development potential or reducing other
requirements in exchange for providing water conservation methods, such as lower water use
fixtures and appliances, on-site storm water storage (as allowed by Utah Code) that can be used
for irrigation. However, the city should be thoughtful about the scope of incentives utilized. The
more things that are incentivized, the less likely any of the incentives will be used extensively to
achieve the goal of having the incentive. For example, if it is easier to use water conservation
incentives to build a taller building or have more density, the affordable housing incentives may
not be utilized as much.
Consideration 3: Opportunities to reduce water consumption in city operations.
Public Utilities had a comprehensive assessment of City property water use and efficiency. The
report can be found here. The primary actions related to water conservation in city operations are
focused on improving and updating utilities and improving the irrigation systems at city facilities.
Public Utilities does plan and budget for upgrades to the water, sewer, and storm water
infrastructure. Two significant projects include rebuilding the wastewater treatment plant and the
City Creek Water Treatment plant; A current list of major active projects can be found here.
The initiative in Plan Salt Lake also discusses upgrading the city’s irrigation systems, mostly
found in parks and golf courses. The recent parks and open space bond passed by city voters will
upgrade irrigation systems at several parks and is a sign of the ongoing actions the city is taking
to reduce water consumption. Parks typically have their own maintenance and upgrade plans that
are not typically adopted as part of the general plan. More information on the various park
improvements and asset management plans can be found here.
Consideration 4: Consideration of the regional water conservation goals.
Regional water conservation goals were developed in 2019 by the Division of Water Resources in
the Utah Department of Natural Resources after several studies and action by the Utah
Legislature. For the Salt Lake Region, the goal is to reduce water use over time, reducing the
statewide goal by 25%. The Salt Lake Region is identified with an 11% decline in water use per
capita to 169 gallons per day per capita. In 2023, the per capita water use in the area served by
Public Utilities was 154 gallons per day. Public Utilities and the water users have achieved the
regional goal established by the state 40 years ahead of the target date. The table on page 2 of the
proposed update to Plan Salt Lake shows the statewide goal (converted to acre feet).
The Salt Lake City Water Supply and Demand Plan includes three scenarios for water demand
and conservation: Scenario 1 requires the least amount of conservation. Scenario 2 requires
increased levels of conservation, and Scenario 3 requiring the most. Since the regional water
conservation goal for 2065 has already been established within the Public Utilities service area,
Plan Salt Lake sets the goal of at least achieving the goals identified in Scenario two of the Water
Supply and Demand Management Plan.
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Consideration 5: Consideration of the city’s existing water conservation plans.
The Water Supply and Demand Plan explores the water supply needs under different water
demand and conservation scenarios. The Water Conservation Plan is informed by the Water
Supply and Demand Plan and identifies specific strategies for water conservation. As discussed
above, Plan Salt Lake identifies at least achieving the goals established in Scenario Two of the of
the Water Supply and Demand Plan and references use of the current adopted Conservation
Plan. Scenario two includes increased water conservation and the development of the City’s
remaining water rights by the year 2060. This is subject to change, as long-range water plans are
regularly updated Public Utilities to incorporate new information. This aligns with the initiative
of Plan Salt Lake.
Consideration 6: Consideration of policies related to the principles of sustainable
landscaping.
Salt Lake City has already implemented most of the principles of sustainable landscaping best
practices by adopting specific landscaping regulations into the zoning code. The zoning
regulations include most of the recommendations in the State Code. Those that have not been
adopted into the zoning code are included in the proposed update to Plan Salt Lake and may
result in future zoning changes. Placing restrictions on swimming pools, ponds, and other bodies
of water that may result in water loss through evaporation has not been included, primarily
because there has not yet been research on water use associated with properties that contain
swimming pools or large ponds.
STAFF RECOMMENDATION
Staff recommends that the Planning Commission recommend adoption by the City Council.
NEXT STEPS
After the commission makes a recommendation, the proposal will be forwarded to the City Council for
a decision. If the council adopts the proposal, it becomes the official policy of the city.
Utah Code requires the City Council to adopt a water element for the general plan by December 31,
2025. This proposal fulfills that requirement. In the future, each update to the Water Supply and
Demand Management Plan and Conservation Plan, both managed by the Department of Public
Utilities, will also be adopted as part of the water element of the general plan.
This is the first step in a long-term effort to link water and land use planning. In the future, the city will
consider more actions to implement the initiatives proposed, further study water consumption based
on land use, and is likely to recommend other changes to ensure that the city has adequate water supply
for the demand. The commission can expect ongoing presentations, studies, recommendations,
policies, and regulations aimed at linking water and land use planning.
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ATTACHMENT A: Water Conservation and
Land Use Planning
Chapter for Plan Salt Lake
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42 SALT LAKE CITY | PLAN SALT LAKE
14/ WATER CONSERVATION AND LAND USE PLANNING
GUIDING PRINCIPLE/ Grow in a manner that ensures water supply meets demand and provides sufficient
redundancy to respond to water supply risks.
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14/ WATER CONSERVATION AND LAND USE PLANNING
POLICIES
1.Update water supply and demand plans every
five years, or as appropriate, to maintain an
understanding of the effect current development has
on water demand and water infrastructure needs.
2.Utilize current Conservation Plan strategies tomeet the Water Supply & Demand Plan goals.
3.Update community plans and zoning regulations
to reduce the amount of water demand and per
capita water use for future development.
•Develop consistent future land use regulationsacross all community and small area plans
to better understand the impact future
development has on water demand and supply.
•Identify land uses with high water consumption
and develop water saving strategies.•Support decreased lot size and
configuration standards.
•As supply availability reduces, consider
additional programs, policies, and regulations
that can reduce water use.•Review allowed land uses in the zoning code
and consider prohibiting land uses that
consume large amounts of water.
•Consider incentives for new and existing
developments to utilize low-water demandlandscaping and fixtures.
•When needed, require new development to
contribute water to increase the supply of water.
4.Support zoning regulations that promote sustainable
landscaping practices to reduce outdoor water use
and stormwater runoff, including:
•Water wise landscaping that limits the use of
high-water consuming turf and prohibits turfon steeper slopes, in small, landscaped areas,
and in park strips.
•Prioritize the maintenance, water,
and planting of trees.
•Reduce the amount of water used to irrigate park strips within city rights of way through
elimination of overwatering and water waste.
•Promote the maintenance and update of
irrigation systems to reduce water waste.
•Establish regulations that reduce storm water runoff, including appropriate grading,
landscaping, and limits on impervious surfaces.
5.Support actions that improve the City’s water
resiliency, including:
•Strategies identified in the current WaterConservation Plan.
•Ensure water is conserved and used efficiently at
City facilities and operatus.
•Investments into the City’s water, stormwater, and
wastewater infrastructure.•Strategies promoting the health of Great Salt Lake,
the City’s Wasatch Mountain watersheds, the
Jordan River, and its tributaries.
•Climate adaptation and mitigation.
Salt Lake City provides water services not only to
properties within the city boundaries, but to properties
outside of the city as well. This creates a great responsibility to manage water resources responsibly
for current and future generations.
The City is also expected to grow significantly between
now through at least 2040. Planning our growth is
necessary to ensure that the city can provide clean, safe drinking water for residents and visitors while also
ensuring water is available for businesses.
To accomplish this, the city will continue efforts to
reduce water demand and eliminate water waste,
through changing development patterns, reducing overall water use, improving delivery systems, and
appropriately pricing the cost of water based on the
amount of water consumed.
The following policies and initiatives will help the city
ensure future residents, visitors, and businesses have adequate water in the future.
GUIDING PRINCIPLE/ Grow in a manner
that ensures water supply meets demand
and provides sufficient redundancy to
respond to water supply risks.
2060 METRICS:
1.CITYWIDE PER CAPITA WATER USE.
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44 SALT LAKE CITY | PLAN SALT LAKE
Salt Lake City Public Utilities provides water service to
areas outside the city that include other cities on the
eastern side of the valley, south of Salt Lake City. Public
Utilities prepares a new 40-year Long Range Water
Supply & Demand Plan approximately every five years,
with the most recent plan prepared in 2022, primarily
using 2018 data. The water demand projections are
based on the water service area population below.
In 2023 the service area used 154 gallons of water per
capita per day. This amount takes the daily water use
for all land uses (not just residential) and divides it by
the service area population. The population projections
for the service area are from the 2022 Water Supply &
Demand Plan.
Salt Lake City is expected to grow up to 272,468 people
by 2060, with the city’s water service area population
growing to 447,804. The anticipated demand, with the
regional goal reduction of 25%, will be 122,300-acre feet
of water. This exceeds the anticipated supply (during
dry years).
The current Water Supply & Demand Plan outlines three
conservation planning scenarios to test the ability of
the city’s water supply to reliably meet demand by
the year 2060.
• Scenario 1 - Water savings primarily by improved
efficiency. Does not represent significant changes
in lifestyle or development patterns.
• Scenario 2 - Additional water conservation
efforts through partial conversion to higher-
efficiency household fixtures and lower water use
landscaping methods.
• Scenario 3 - Maximum likely conservation,
including full conversion to both higher-
efficiency household fixtures and low water use
landscaping methods.
For planning purposes, the City is incorporating
Scenario 2, which includes increased water
conservation and the development of the City’s
remaining water rights by the year 2060.
The City also utilizes the current Conservation Plan,
which is informed by the Water Supply & Demand
Plan, for strategies to meet this goal. This is subject to
change, as long-range water supply and demand plans
are regularly updated to incorporate new information.
CONSIDERATION OF WATER CONSUMPTION
FOR EXISTING AND FUTURE POPULATION
Source: 2022 Salt Lake City Water Supply & Demand Plan
Year
25% Reduction in Per
Capita Use in Acre Feet (current state goal)
Conservation
Scenario 1 in Acre Feet
Conservation
Scenario 2 in Acre Feet
Conservation
Scenario 3 in Acre Feet
Service Area
Population
2025 105,100 103,500 91,000 74,500 378,838
2030 111,300 109,600 96,600 79,300 401,049
2040 117,400 115,700 102,300 84,600 424,671
2050 122,300 120,500 106,700 88,600 447.804
2060 127,200 125,200 111,200 92,600 470,704
ANNUAL WATER PRODUCTION REQUIREMENTS
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PLNPCM2025-00481 August 27, 2025
ATTACHMENT B: Utah Code 10-9a-403
Requirements
Utah Code 10-9a-403 requires cities to update their general plan to include a water use and
preservation element by December 31, 2025. The code requires cities to address the following:
• The effect of permitted development or patterns of development and future development
on water demand and water infrastructure.
• Methods of reducing water demand and per capita consumption for existing development
and future development.
• Opportunities to modify the city’s operations to eliminate practices or conditions that
waste water.
The state code directs the planning commission to consider the following when drafting the water
use and preservation element of the city’s general plan:
• Applicable regional water conservation goals recommended by the Division of Water
Resources.
• The city’s existing water conservation plan (2022)
In addition, the commission is required by state code to make a recommendation for water
conservation policies to be added to the general plan and Landscape options within a public street
for current and future development that do not require the use of lawn or turn in a park strip. The
commission is also asked to make recommendations for changes to ordinances that promote the
inefficient use of water.
State code also asks the commission to consider policies related to the principles of sustainable
landscaping that include:
1. Reduction or limitations on the use of lawn or turf.
2. Promotion of site-specific landscaping design that decreases stormwater runoff or water
used for irrigation.
3. Preservation and use of healthy trees that have a reasonable water requirement or are
resistant to dry soil conditions.
4. Elimination of or regulation of ponds, pools, and other features that promote unnecessary
water evaporation.
5. Reduction of yard waste.
6. Use of irrigation systems best adapted to provide the optimal amount of water to the plants
being irrigated.
It should be noted that most of the items (1, 2, 3, and 6) related to principles of sustainable
landscaping have already been adopted into the zoning code and the city has a yard waste program
that diverts yard waste from going to the landfill and instead converts yard waste to mulch. The
only item the city has not addressed is item 4.
State code also requires the city to consider how implementing the land use element and water
use and preservation element may affect water supply planning, including drinking water source
and storage capacity; and water distribution planning (mostly infrastructure).
The state code also says that the commission may include recommendations for additional water
demand reduction strategies that include:
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A. Creating a water budget associated with a particular type of development. For example,
the city caps daily water use for any single use at 200,000 gallons per day.
B. Adopting new or modified lot size, configuration, and landscaping standards will reduce
water demand for new single-family development. This is one of the issues addressed in
the R-1 study that led to the city council initiating code changes to the R-1 (and other low
density zoning districts) earlier this year.
C. Providing incentives to reduce water use for existing developments, such as modification
of landscaping and installation of low use water fixtures’
D. Adopted water concurrency standards requiring that adequate water supplies and
facilities are or will be in place for new development.
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ATTACHMENT C: Factors to Consider for
Updates to the General
Plan
The factors to consider for amendments to the general plan are listed in Chapter 19.06.070 of the Salt
Lake City Code of Ordinances.
Consideration Factors: In reviewing a proposal to modify the general plan, the planning commission
and city council should consider, but are not limited to, the following factors:
1. Whether the proposal is consistent with citywide policies.
Finding: This proposal incorporates the goals found in the adopted Water Supply and Demand Plan and Community Plans that link water and land use planning. The state requirements for the
city to adopt a water element to the general plan and include specific requirements outlined in Utah
Code have been incorporated into the proposal.
2. Whether the proposal is consistent with the goals, policies, or implementation actions of the general
plan, including applicable element plans.
Finding: This proposal establishes a new chapter into Plan Salt Lake that addresses water
conservation and land use planning.
3. Whether significant change has occurred that warrants the creation of a new plan or an update to
an adopted plan.
Finding: This proposal is mandated by recent changes to Utah Code that require the city to adopt
a water element and include specific considerations. The proposal is also consistent with the
adopted Water Supply and Demand Plan, which tracks changes in water supply, demand, and
conservation over time.
4. Whether the goals, policies, or implementation actions of the plan to be amended have been
achieved, are no longer relevant to or capable of addressing the current issues or needs of the
neighborhood or the city, or are no longer aligned with policies in citywide plans.
Finding: This proposal is a new section to Plan Salt Lake and does not replace any outdated or
irrelevant policies or goals.
5. For petitions submitted by a property owner, the extent, effectiveness, and proportionality of the
public benefit proposed by the petitioner to the increase in development potential if the proposal were
to be adopted by the city council.
Finding: This factor is not applicable.
6. The potential for displacement of people who reside in any housing that is within the boundary of
the proposed amendment and the plan offered by the petitioner to mitigate displacement.
Finding: This proposal does not displace any people or housing and is not applicable.
7. The potential for displacement of any business that is located within the boundary of the proposed
amendment and the plan offered by the petitioner to mitigate displacement.
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Finding: This proposal does not displace any business but may result in future regulations that
limit businesses that consume large amounts of water.
8. The potential impacts to properties in the immediate vicinity of the proposal.
Finding: This proposal is likely to result in additional regulations that limit water use, and it may
impact some properties as a result.
9. The potential impacts on the city to provide safe drinking water, storm water, and sewer to the
property based on the additional development potential of future development.
Finding: This proposal is intended to ensure that the city can provide adequate drinking water,
address storm water impacts, and treat wastewater to benefit the Great Salt Lake.
10. The potential impacts to public safety resources created by the increase in development potential
that may result from the proposed amendment.
Finding: Ensuring safe and adequate drinking water is a benefit to public safety.
11. The potential impacts to any other city service, infrastructure, or resource that may be impacted by
the increase in development potential that may result from the proposed amendment.
Finding: This proposal does not increase development potential in the city.
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ATTACHMENT D: Public Process &
Comments
Public Notice, Meetings, Comments
This proposal requires a 45-day public input period.
• May 25, 2025 – The proposal and background information was posted on the Planning
Division Open House Website.
• May 25, 2025 – All required notice for the 45-day public input was provided, including
notice as required by Utah Code and City Ordinance regarding intent to update the City’s
General Plan.
• July 9, 2025 – The 45-day public input period officially ends, although public input is
accepted through the Planning Commission public hearing.
Notice of the public hearing for the proposal included:
• August 15, 2025
o Public notice posted on City and State websites and emailed to the Planning
Division list serve
Public Input:
No public input has been received.
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ATTACHMENT E: Department Review
Comments
This proposal was reviewed by the following departments. Any requirement identified by a City
Department is required to be complied with.
This proposal was reviewed by the following departments.
Engineering: I have a comment about the zoning regulations regarding park strip
landscaping and irrigation. Some people have commented on
Engineering’s roadway projects that we should be redoing park strip
areas to meet current zoning requirements while we are
reconstructing the roadway. If zoning requirements were enforced
that way, it would have a tremendous impact on every project we
manage. A very large portion of our CIP budget would end up going
towards landscaping rather than roadway reconstruction. It would
also be problematic from a risk perspective for the city to make major
changes to private irrigation systems as part of roadway
reconstruction. I would recommend that the policy be clear that the
responsibilities to meet zoning regulations lie with the adjacent
property owner or future developer and that roadway reconstruction
is not considered development. Josh Willie
Fire: No comments.
Building Services: I don’t see any conflicts in the International Plumbing Code on
this. I’m good with it. Troy Anderson
Sustainability: Consider both water conservation methods but also any unanticipated
nexus to heat increases that may occur in the environment via future
regulations or water conservation strategies. Where turf grass is
allowed by zoning code and in high-use public spaces, prioritize low-
water seed, as some turf grass can have beneficial neighborhood
cooling effects. Prioritize water for the maintenance and growth of the
tree canopy with climate-adapted species and consider innovative
ways the City can support tree watering. Consider water reuse actions
to improve the City’s water resiliency in a decentralized way. This
would still allow for prioritization of the Great Salt Lake water coming
from centralized reuse. Some cities, especially in water-scarce
regions, are moving towards policies and regulations that promote
and incentivize the reuse of greywater as a water conservation strategy
on-site, knowing more studies need to be done on our soils. Carolina
Navarro-Gomez & Sophia Nicholas
Police: There are no public safety concerns. Andrew Cluff
Public Utilities: I have reviewed and coordinated with Holly and Laura. I have no
additional comments. Kristeen Beitel
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