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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 Page 001 PLNPCM2025-00481 August 27, 2025 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. Page 002 PLNPCM2025-00481 August 27, 2025 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 Page 003 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. Page 004 PLNPCM2025-00481 August 27, 2025 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. Page 005 PLNPCM2025-00481 August 27, 2025 ATTACHMENT A: Water Conservation and Land Use Planning Chapter for Plan Salt Lake Page 006 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. DRA F T Page 007 43SALT LAKE CITY | PLAN SALT LAKE 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. DRA F T Page 008 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 DRA F T Page 009 [ THIS PAGE WAS INTENTIONALLY LEFT BLANK ] DRA F T Page 010 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: Page 011 PLNPCM2025-00481 August 27, 2025 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. Page 012 PLNPCM2025-00481 August 27, 2025 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. Page 013 PLNPCM2025-00481 August 27, 2025 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. Page 014 PLNPCM2025-00481 August 27, 2025 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. Page 015 PLNPCM2025-00481 August 27, 2025 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 Page 016