HomeMy WebLinkAboutCouncil Workshop Packet 11.17.2020
AGENDA
CITY OF LAUREL
CITY COUNCIL WORKSHOP
TUESDAY, NOVEMBER 17, 2020
6:30 PM
ONLINE
Public Input: Citizens may address the Council regarding any item of City business that is not on tonight’s agenda. The
duration for an individual speaking under Public Input is limited to three minutes. While all comments are welcome, the
Council will not take action on any item not on the agenda. If a citizen would like to speak or comment regarding an item
that is on tonight’s agenda, we ask that you wait until the agenda item is presented to the Council by the Mayor and the
public is asked to comment by the Mayor. Once again, each speaker is limited to three minutes.
Be advised, if a discussion item has an upcoming public hearing, we would request members of the public to reserve your
comments until the public hearing. At the public hearing, the City Council will establish an official record that will include
all of your comments, testimony and written evidence. The City Council will base its decision on the record created during
the public hearing. Any comments provided tonight will not be included in the recor d or considered by the City Council.
General Items
Executive Review
1. Resolution - A Resolution of the City Council Authorizing the submission of a Big Sky
Economic Development Trust Fund Planning Project Grant Application and to Commit the
Matching Funds Required by the Creating Agency.
2. Resolution - Resolution Authorizing The Mayor To Execute An Agreement With Beartooth
Rc&D Economic Development District.
3. Resolution - Resolution Of Intent By The City Council To Adopt The 2020 City Of Laurel
Growth Policy Creating A Thirty (30) Day Public Comment Period. (Public Hearing on
11.24.2020)
Council Issues
Other Items
Review of Draft Council Agendas
Draft Council Agenda of November 24, 2020.
Attendance at Upcoming Council Meeting
Announcements
The City makes reasonable accommodations for any known disability that may interfere with a person’s ability to
participate in this meeting. Persons needing accommodatio n must notify the City Clerk’s Office to make needed
arrangements. To make your request known, please call 406 -628-7431, Ext. 2, or write to City Clerk, PO Box 10, Laurel,
MT 59044, or present your request at City Hall, 115 West First Street, Laurel, Mon tana.
DATES TO REMEMBER
1
File Attachments for Item:
1. Resolution - A Resolution of the City Council Authorizing the submission of a Big Sky
Economic Development Trust Fund Planning Project Grant Application and to Commit the
Matching Funds Required by the Creating Agency.
2
R20- Big Sky Trust Fund Grant Application – Infrastructure Expansion Project
RESOLUTION NO. R20-
A RESOLUTION OF THE CITY COUNCIL AUTHORIZING THE
SUBMISSION OF A BIG SKY TRUST FUND PLANNING PROJECT GRANT
APPLICATION AND TO COMMIT THE
MATCHING FUNDS REQUIRED BY THE CREATING AGENCY.
WHEREAS the City of Laurel is applying to the Montana Department of Commerce,
Office of Tourism and Business Development for financial assistance from the Big Sky Trust Fund
Grant Program to complete an infrastructure expansion project.
WHEREAS, the City of Laurel agrees to comply with all State laws and regulations and
the requirements described in the Big Sky Trust Fund Application Guidelines and those that will
be described in the Big Sky Trust Fund Project Administration Manual;
WHER EAS, the City of Laurel commits to provide the amount of matching funds as
proposed in the Big Sky Trust Fund application; and
NOW THEREFORE BE IT RESOLVED, the City Council hereby authorizes the Mayor
and/or Authorized Representative to submit a Big Sky Trust Fund application to the Montana
Department of Commerce, Office of Tourism and Business Development on behalf of the City of
Laurel, to act on its behalf and to provide such additional information as may be required.
Introduced at a regular meeting of the City Council on November 24, 2020 by Council
Member ______.
PASSED and APPROVED by the City Council of the City of Laurel this 24th day of
November 2020.
APPROVED by the Mayor this 24th day of November 2020.
CITY OF LAUREL
_____________________________
Thomas C Nelson, Mayor
ATTEST:
______________________________
Bethany Langve, Clerk/Treasurer
Approved as to form:
______________________________
Sam S. Painter, Civil City Attorney
3
File Attachments for Item:
2. Resolution - Resolution Authorizing The Mayor To Execute An Agreement With Beartooth
Rc&D Economic Development District.
4
R20-______ Beartooth RC&D MOU 2021
RESOLUTION NO. R20-__
RESOLUTION AUTHORIZING THE MAYOR TO EXECUTE AN AGREEMENT
WITH BEARTOOTH RC&D ECONOMIC DEVELOPMENT DISTRICT.
WHEREAS, the City of Laurel desires to retain the services of Beartooth RC&&D
Economic Development District for services relating to a regional economic development
planning program; and
WHEREAS, Beartooth RC&D Economic Development District provided such services
for the City of Laurel in the past and desires to continue the provision of such services for the
City in accordance with the terms and conditions of the attached Memorandum of
Understanding, including a membership contribution of $2,108.82; and
WHEREAS, the City of Laurel is satisfied with the services provided to date and desires
a continuation of its relationship with Beartooth RC&D Economic Development District.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Laurel,
Montana,
That the Mayor is authorized to execute the attached Memorandum of Understanding
with Beartooth RC&D Economic Development District.
Introduced at a regular meeting of the City Council on ____________, 2020, by Council
Member _____________________.
PASSED and APPROVED by the City Council of the City of Laurel this ___th day of
_______________, 2020.
APPROVED by the Mayor this __th day of ___________, 2020.
CITY OF LAUREL
___________________________
Thomas C. Nelson, Mayor
ATTEST:
_______________________________
Bethany Langve, Clerk-Treasurer
Approved as to form:
______________________________
Sam S. Painter, Civil City Attorney
5
A
MEMORANDUM OF UNDERSTANDING
Between
Yellowstone County Commissioners, Big Sky Economic Development Authority,
City of Billings, City of Laurel
And
Beartooth Resource Conservation & Development Area, Inc.
THIS MEMORANDUM OF UNDERSTANDING is made and entered into this ____ day of
____________, 202__, by and between Beartooth Resource Conservation & Development
Area, Inc., whose principal business address is P.O. Box 180, Joliet, Montana 59041, hereinafter
referred to as “Beartooth RC&D” and Yellowstone County Commissioners (in cooperation with
the City of Billings, City of Laurel, and Big Sky EDA), and hereinafter referred to as “the
Entity”.
WHEREAS, The Beartooth RC&D has been formally recognized by the U.S. Department of
Commerce, Economic Development Administration (EDA) as a designated Economic
Development District (EDD), and as a District, the Beartooth RC&D has been awarded funding to
carry out its Comprehensive Economic Development Strategy (CEDS). This funding will provide
a staff person, administrative support and operating costs. This is a continual grant, renewable
based on successful program operation and availability of federal funds. Local match is required.
WHEREAS, Each entity participating in the District will designate a representative and an
alternate to the regional Beartooth RC&D Board. This individual will convey the needs and
economic development goals of the community to the Beartooth RC&D board meetings. Regular
board meetings will be held every two months to assess project status and evaluate regional
economic development needs.
NOW THEREFORE IT IS UNDERSTOOD AS FOLLOWS:
ARTICLE 1: SCOPE OF WORK:
Beartooth RC&D employs an Economic Development Director to assist in the completion of the
Comprehensive Economic Development Strategy for the five county region. The Director’s time
will be allocated consistent with the goals in the CEDS by the Beartooth RC&D board of directors.
The board is composed of one representative and an alternate from business partners, county and
local elected officials and local economic development partners from our five county region. Input
from this board is essential for meeting the needs of the communities in our region.
Priority will be assigned projects of regional scope or projects with strong local leadership. Grant
funding for this position is from EDA, therefore, emphasis will be on regional economic
development planning and projects which have a correlation to job creation, economic
diversification and increased tax base. Matching funds are from participating entities and
emphasis will be placed on their specified projects.
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Annual Evaluation:
The performance of the Economic Development District will be evaluated annually by local
entities participating on the regional Beartooth RC&D Board. Progress and/or accomplishments
on each program/project will be reported and evaluated to ensure resources are being utilized in the
most effective and efficient manner possible. Annual Comprehensive Economic Development
Strategy updates and an annual plan of work will be developed with input from the Beartooth
RC&D staff and board. Annual reports on projects and economic development activities will be
provided to the board and participating entities along with the renewal of the Memorandum of
Understanding.
ARTICLE 2: PERIOD OF PERFORMANCE:
The term of this Memorandum of Understanding shall be from the date it is signed through
December 31, 2021, unless extended by mutual agreement by both parties. Such extension must
be in writing, signed by authorized representatives of both parties, and made a part of the original
Memorandum of Understanding by modification reference. This Memorandum of Understanding
supersedes the prior Memorandum for participation in the Economic Development District.
ARTICLE 3: PAYMENT:
The Entity’s annual contribution will be $4,500.00 as a “Membership” fee plus a per capita
assessment of .19 cents per person. These funds will provide the necessary match to obtain the
$70,000.00 in federal funds. Entities who do not participate financially in the match requirement
will not receive services from the Economic Development Coordinator. The calculated fee for
Yellowstone County is $34,926.03. This figure is a total of the $4,500.00 county fee plus
$30,647.00 per capita formula using a population of 161,300 as per the 2019 Census data.
Yellowstone County’s full payment will be separated into a four-way payment system. Each entity
within the county will pay a percentage (%) similar to the previous year. Big Sky EDA- 34% or
$11,949.98, City of Billings- 36% or $12,652.92, City of Laurel- 6% or $2,108.82 and
Yellowstone County- 24% or $8,435.28.
Annually, the Beartooth RC&D/EDD staff will provide a comprehensive report of the past year’s
activity. A new Memorandum of Understanding will be prepared and a request for the following
year’s match submitted. Entities will be billed for match funds after January 1, 2021, for the
current year’s assessment.
Payment as provided in this section shall be full compensation for work performed, services
rendered and for all materials, supplies, equipment, and incidentals necessary to complete the
work.
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ARTICLE 4: EXAMINATION OF RC&D RECORDS:
The Entity or its representatives shall have the right to examine any books, records, or other
documents of the Beartooth RC&D, directly relating to costs when such costs are the basis of
compensation hereunder.
ARTICLE 5: OWNERSHIP AND USE OF DOCUMENTS:
Reproducible copies of all documents and other materials produced by the Beartooth RC&D in
connection with the services rendered under this memorandum of understanding shall be provided
to the Entity for the Entity's use whether the project for which they are made is executed or not.
The Beartooth RC&D shall be permitted to retain originals, including reproducible originals, of
drawings and specifications for information, reference and use in connection with Beartooth
RC&D endeavors.
ARTICLE 6: WARRANTY:
The Beartooth RC&D warrants that all services performed herein shall be performed using that
degree of skill and care ordinarily exercised in and consistent with generally accepted practices for
the nature of the services and shall conform to all requirements of this Memorandum of
Understanding.
ARTICLE 7: SAFETY:
The Beartooth RC&D agrees to fully comply with the Occupational Safety and Health Act of
1970, all regulations issued there under and all state laws and regulations enacted and adopted
pursuant thereto. The Beartooth RC&D shall take all necessary precautions in performing the
services hereunder to prevent injury to persons or damage to property.
ARTICLE 8: CONFIDENTIALITY AND CONFLICTS OF INTEREST:
The Beartooth RC&D agrees to hold in strict confidence any proprietary or other data, findings,
results, or recommendations deemed to be confidential by the Entity and obtained or developed by
the Beartooth RC&D in connection with the work under this memorandum of understanding. The
Beartooth RC&D warrants and agrees they do not and will not have any conflicts of interest
regarding the performance of services hereunder.
ARTICLE 9: APPLICABLE LAW:
This Memorandum of Understanding shall be governed in all respects by the laws of the State of
Montana. No changes, amendments or modifications of any of the terms and conditions hereof
shall be valid unless agreed to in writing. Venue of any proceeding arising hereunder shall be the
Twenty-second Judicial District.
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ARTICLE 10: COMPLIANCE WITH LAWS:
The Beartooth RC&D shall in performing the services contemplated by this Memorandum of
Understanding, faithfully observe and comply with all federal, state, and local laws, ordinances
and regulations, applicable to the services to be rendered under this Memorandum of
Understanding.
ARTICLE 11: CHANGES:
The parties, by mutual agreement, may, at any time during the term of this Memorandum of
Understanding and without invalidating the Memorandum of Understanding, make changes within
the general scope of the Memorandum of Understanding. The Beartooth RC&D to perform such
changed services. The Entity's priority list for project work within their county can be changed at
any time. In such case, the District will be informed of this change at the Entity's earliest
convenience.
ARTICLE 12: TERMINATION:
This Memorandum of Understanding may be terminated in whole or in part, in writing, by either
party in the event of substantial failure by the other party to fulfill its obligations under this
Memorandum of Understanding through no fault of the terminating party, provided that no
termination may be effected unless the other party is given: (1) not less than ten (10) days written
notice (delivered by certified mail, return receipt requested) of intent to terminate, and (2) an
opportunity for consultation with the terminating party prior to termination.
Upon such termination the Entity shall pay the Beartooth RC&D amounts due and unpaid for
services rendered as of the effective date of termination, and the Beartooth RC&D shall provide to
the Entity all materials, surveys, reports, data, and other information performed or prepared as of
such date.
ARTICLE 13: INDEMNIFICATION:
The Beartooth RC&D agrees to and does hereby indemnify and save the Entity, its officers,
officials and employees, harmless against and from:
1. Any and all claims and liabilities, including but not limited to costs, expenses, and
attorney fees arising from injury to, or death of, persons (including claims and liabilities for care or
loss of services in connection with any bodily injury or death) and including injuries, sickness,
disease, or death to Beartooth RC&D employees occasioned by a negligent act, omission, or
failure of the Beartooth RC&D;
2. Any and all claims and liabilities, including costs and expenses, for loss or
destruction of or damage to any property belonging to the Beartooth RC&D or the Entity caused
by a negligent act, omission, or failure of the Beartooth RC&D and;
3. Any fines, penalties, or other amounts assessed against the Entity by reason of the
Beartooth RC&D failure to comply with all health, safety, and environmental laws and regulations
applicable to the services; resulting directly or indirectly from, or occurring in the course of the
Beartooth RC&D performance of the services. However, this indemnity shall not extend to claims
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and liabilities for (i) injury or death to persons or (ii) loss of or damage to property to the extent
that these claims and liabilities result directly from the Entity's negligence or willful misconduct.
ARTICLE 14: INSURANCE:
The Beartooth RC&D shall maintain and demonstrate the following types of insurance:
1. The Beartooth RC&D agrees that its employees and particularly the employees
designated to work on this memorandum of understanding are covered by applicable Worker’s
Compensation provisions. The Beartooth RC&D further agrees that if the Entity should legally
incur any costs whatsoever under the Worker’s Compensation laws by reason of the Beartooth
RC&D employees’ injury or death while engaged in the contract work, the Beartooth RC&D will
indemnify and hold harmless the Entity for such costs which the Entity may be legally be required
to pay to employees of the Beartooth RC&D.
2. Comprehensive general liability insurance for bodily injury, death, or loss of or
damage to property of third persons or other liability due to the negligent acts of the Beartooth
RC&D in the minimum amounts of $500,000 per occurrence and $1,000,000 aggregate for
personal injury; and $500,000 per occurrence/aggregate for property damage. Proof of coverage as
required by this section shall be delivered to the Entity within fifteen (15) days of execution of this
Agreement.
3. Professional liability errors and omissions insurance in a minimum amount of
$100,000.00.
ARTICLE 15: NONDISCRIMINATION:
The Beartooth RC&D will not discriminate against any employee or applicant for employment
relating to this project on the basis of race, color, religion, creed, political ideas, sex, age, marital
status, physical or mental handicap or national origin. All hiring associated with any project shall
be on the basis of merit and qualifications related to the requirements of the particular position
being filled.
ARITCLE 16: INDEPENDENT CONTRATOR:
The Beartooth RC&D and the Entity agree that the Beartooth RC&D is an independent
contractor with respect to the services provided pursuant to this Memorandum of Understanding.
Nothing in this Memorandum of Understanding shall be considered to create the relationship of
employer and employee between the parties hereto. Neither the Beartooth RC&D nor any
employee of the Beartooth RC&D shall be entitled to any benefits accorded Entity’s employees by
virtue of the services provided under this Memorandum of Understanding. The Entity shall not be
responsible for withholding or otherwise deducting federal income tax or social security or for
contributing to the state Worker’s Compensation program, nor shall the Entity be deemed in any
way to assume the duties of an employer with respect to the Beartooth RC&D, or any employee of
the Beartooth RC&D.
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ARTICLE 17: ASSIGNMENT:
The Beartooth RC&D shall not sublet or assign any of the services covered by this Memorandum
of Understanding without the express written consent of the Entity.
ARTICLE 18: NON-WAIVER:
Waiver by the City of any provision of this memorandum of understanding or any time
limitation provided for in this memorandum of understanding shall not constitute a waiver of any
other provision.
ARTICLE 19: NOTICES:
Any Notice to be served hereunder may be served upon the parties personally or served by
certified mail, return receipt. Notice served by mail shall be deemed complete upon deposit of said
notice in any United States Post Office, postage prepaid, directed to the party to be served, at the
following addresses:
ENTITY: City of Laurel____ RC&D: Beartooth RC&D
P.O. Box 10______ P.O. Box 180____
Laurel, MT 59044 Joliet, MT 59041
ARTICLE 20: INTEGRATED AGREEMENT:
This Memorandum of Understanding together with attachments or addenda represents the entire
and integrated Agreement between the Entity and the Beartooth RC&D and supersedes all prior
negotiations, representations, or agreements, written or oral. This Memorandum of Understanding
may be amended only by written instrument signed by both the Entity and the Beartooth RC&D.
IN WITNESS WHEREOF, the parties have hereunto set their hands and seals to this
Memorandum of Understanding the day and year in this instrument first above written.
CITY OF LAUREL BEARTOOTH RC&D/EDD
____________________________________ ___________________________________
Tom Nelson Ryan VanBallegooyen
Mayor Chairman
ATTEST: ____________________________ Date: ________________________
11
2020 Laurel Projects
Revolving Loan Fund
o Eight loans totaling $400,195.52 (plus one approved but not funded for $200K)
Yellowstone Valley Food Hub
Yellowstone Valley Farms
Yellowstone County Sports Facilities Feasibility Study
o LARC planning
Exploring options for infrastructure expansion at new interchange
o Researching Scope of Work and/or grant opportunities for City expansion westward.
LURA
o Joint meetings with Big Sky EDA to assist City and planning board.
Laurel Chamber of Commerce
o Pryor Mountain Wind Farm outreach
Exchange Club
o Healing Fields
406 Bovine LLC
o BTSF grant funding
Calculation of 2021 EDA dues:
Est Census
(as of
07/2019)Per Capita Base Total Share
% share Per Capita Base Fee Assessment % of County
County (Population x .19)Assessment
Big Horn 13,319 $2,530.61 $2,250.00 $4,780.61
Big Horn County 1/3 $843.54 $750.00 $1,593.54
City of Hardin 1/3 $843.54 $750.00 $1,593.54
Two Rivers Authority 1/3 $843.54 $750.00 $1,593.54
Carbon 10,725 $2,037.75 $2,250.00 $4,287.75 $4,287.75
Stillwater 9,642 $1,831.98 $2,250.00 $4,081.98 $4,081.98
Sweet Grass 3,737 $710.03 $2,250.00 $2,960.03 $2,960.03
Yellowstone 161,300 $30,647.00 $4,500.00 $35,147.00
Big Sky EDA 34.00%10,419.98$ $1,530.00 $11,949.98
City of Billings 36.00%11,032.92$ $1,620.00 $12,652.92
City of Laurel 6.00%1,838.82$ $270.00 $2,108.82
Yellowstone County 24.00%7,355.28$ $1,080.00 $8,435.28
Total $51,257.37 $51,257.37
(Est Census Population x .19 ¢ Base Assessment Fee) + Base Assessment Membership = Total Dues to County
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File Attachments for Item:
3. Resolution - Resolution Of Intent By The City Council To Adopt The 2020 City Of Laurel
Growth Policy Creating A Thirty (30) Day Public Comment Period. (Public Hearing on
11.24.2020)
13
R20-______ Resolution of Intent Adopt Growth Policy Update
RESOLUTION NO. R20-__
RESOLUTION OF INTENT BY THE CITY COUNCIL TO ADOPT THE 2020
CITY OF LAUREL GROWTH POLICY CREATING A THIRTY (30) DAY
PUBLIC COMMENT PERIOD.
WHEREAS, the City Council tasked the Planning Board with the preparation of
an updated Growth Policy for City of Laurel; and
WHEREAS, the Planning Board approved an action plan incorporating public
input and an approximate timeline for the adoption of an updated Growth Policy for City
of Laurel; and
WHEREAS, the Planning Board conducted a series of public meetings, surveys
and outreach to encourage public participation in the preparation of the updated Growth
Policy; and
WHEREAS, the Planning Board considered several strategies and policies that
could be adopted by the City Council to implement the updated Growth Policy; and
WHEREAS, the Planning Board encouraged both written and verbal testimony on
issues and items of concern related to the future growth and development expected to
occur during the life of the new Updated Growth Policy; and
WHEREAS, the proposed Growth Policy update addresses all the statutory
components of a Growth Policy found in §76-1-601 MCA to the extent acceptable to the
City Council; and
WHEREAS, the Planning Board conducted a public hearing on the Growth Policy
update on October 21, 2020. Additionally, the Planning Board, by Resolution Number
20-01, currently recommends the adoption of the updated Growth Polic y and
Implementation Strategy by the City Council; and
WHEREAS, the City of Laurel continues to work cooperatively with Yellowstone
County through their Planning Board on planning, subdivision, and land use related
issues; and
14
R20-______ Resolution of Intent Adopt Growth Policy Update
WHEREAS, the City Council desires to establish and maintain up to date growth
management regulations including but not limited to Zoning Regulations, Design and
Development Standards, Subdivision, and Floodplain Regulations; and
WHEREAS, the City is statutorily required to examine and update the Growth
Policy on a time frame not to exceed five (5) calendar years; and
WHEREAS, the City Council desires to provide persons who may be affected by
the adoption of the Growth Policy update ample opportunity for involvement in the
adoption process; and
WHEREAS, the City Council conducted a public hearing on November 24, 2020,
regarding the Growth Policy update; and
WHEREAS, §76-1-604 of the Montana Code Annotated provides the process for
the adoption, revision, or rejection of a growth policy by the City Council.
NOW THEREFORE BE IT RESOLVED, the City Council hereby adopts this
Resolution of Intent and formally opens a public comment period for thirty (30) calendar
days during which persons may comment upon the Growth Policy update. The comment
period will expire upon December 24, 2020. Further, notice of the passage of this
Resolution of Intent shall be published in a newspaper of record not less than twice
during the comment period.
Persons who desire to comment on the Growth Policy update shall submit
comments in written form to:
City of Laurel
GROWTH POLICY UPDATE COMMENTS
115 West 1st Street
P.O. Box 10
Laurel MT 59044
BE IT FURTHER RESOLVED, that following the closure of the comment period
the City Council will consider adopting with revisions, or rejecting the Updated Growth
Policy prepared by the Planning Board at a subsequent council meeting.
Introduced at a regular meeting of the City Council on ____________, 2020, by
Council Member _____________________.
PASSED and APPROVED by the City Council of the City of Laurel this ___th
day of _______________, 2020.
APPROVED by the Mayor this __th day of ___________, 2020.
15
R20-______ Resolution of Intent Adopt Growth Policy Update
CITY OF LAUREL
___________________________
Thomas C. Nelson, Mayor
ATTEST:
_______________________________
Bethany Langve, Clerk-Treasurer
Approved as to form:
______________________________
Sam S. Painter, Civil City Attorney
16
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Contents
CHAPTER 1: INTRODUCTION AND PURPOSE ................................................................................................................ 1
Introduction ...................................................................................................................................................................... 1
Historical Context ............................................................................................................................................................. 1
Purpose ............................................................................................................................................................................. 2
Community Vision ............................................................................................................................................................ 2
Regulatory Requirements ................................................................................................................................................ 3
CHAPTER 2: PUBLIC INVOLVEMENT .............................................................................................................................. 4
Overview ........................................................................................................................................................................... 4
Prior Efforts ....................................................................................................................................................................... 4
Outreach ........................................................................................................................................................................... 4
Timeline of Meetings for the Growth Management Policy Update .............................................................................. 5
CHAPTER 3: GOALS, OBJECTIVES, AND STRATEGIES ..................................................................................................... 6
Overview ........................................................................................................................................................................... 6
Land Use Goals and Objectives ........................................................................................................................................ 6
Annexation Goals and Objectives .................................................................................................................................... 7
Housing Goals and Objectives ......................................................................................................................................... 7
Infrastructure Goals and Objectives ................................................................................................................................ 8
Transportation Goals and Objectives .............................................................................................................................. 9
Economic Development Goals and Objectives ............................................................................................................. 10
Public Facilities and Services Objectives, Policies and Strategies ................................................................................ 11
Recreation Goals and Objectives ................................................................................................................................... 12
Natural Resource Goals and Objectives ........................................................................................................................ 13
Intergovernmental Coordination Goals and Objectives ............................................................................................... 13
CHAPTER 4: COMMUNITY PROFILE ............................................................................................................................. 15
Population Trends .......................................................................................................................................................... 15
Ethnic Characteristics ..................................................................................................................................................... 16
Households and Families................................................................................................................................................ 17
Education ........................................................................................................................................................................ 17
Work Commute .............................................................................................................................................................. 17
CHAPTER 5: EMPLOYMENT AND POPULATION FORECASTS ....................................................................................... 18
Employment Forecasts ................................................................................................................................................... 18
Housing ........................................................................................................................................................................... 19
19
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Population Forecasts ...................................................................................................................................................... 20
CHAPTER 6: Land Use.................................................................................................................................................. 21
Overview ......................................................................................................................................................................... 21
Trends ............................................................................................................................................................................. 21
Existing Land Uses .......................................................................................................................................................... 21
Residential and Rural Residential .................................................................................................................................. 25
Commercial ..................................................................................................................................................................... 25
Public ............................................................................................................................................................................... 25
Parks ................................................................................................................................................................................ 25
Industrial ......................................................................................................................................................................... 25
Urban Renewal ............................................................................................................................................................... 26
CHAPTER 7: FUTURE LAND USE .................................................................................................................................. 27
Overview ......................................................................................................................................................................... 27
Residential Districts ........................................................................................................................................................ 27
Vacant Land .................................................................................................................................................................... 27
Development Standards ................................................................................................................................................. 27
Extraterritorial Zoning .................................................................................................................................................... 28
Infrastructure Extension................................................................................................................................................. 28
Future Land Use Goals and Objectives .......................................................................................................................... 30
CHAPTER 7.5: ANNEXATION ....................................................................................................................................... 31
Overview ......................................................................................................................................................................... 31
Purpose ........................................................................................................................................................................... 31
Importance...................................................................................................................................................................... 31
Priority Areas .................................................................................................................................................................. 32
Annexation Policies ........................................................................................................................................................ 34
Infrastructure Extension................................................................................................................................................. 34
Annexation Goals ............................................................................................................................................................ 34
CHAPTER 8: HOUSING ................................................................................................................................................. 35
Overview ......................................................................................................................................................................... 35
Households and Housing Units ...................................................................................................................................... 35
Housing Affordability ...................................................................................................................................................... 36
Housing Programs and Incentives ................................................................................................................................. 37
Housing Goals and Objectives ....................................................................................................................................... 38
CHAPTER 9: INFRASTRUCTURE ................................................................................................................................... 39
Overview ......................................................................................................................................................................... 39
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Wastewater System........................................................................................................................................................ 39
Water System ................................................................................................................................................................. 40
Stormwater System ........................................................................................................................................................ 41
Solid Waste Services ....................................................................................................................................................... 41
Infrastructure Goals and Objectives .............................................................................................................................. 41
CHAPTER 10: TRANSPORTATION ................................................................................................................................ 43
Overview ......................................................................................................................................................................... 43
Local Routes & Maintenance ......................................................................................................................................... 43
State Highways ............................................................................................................................................................... 44
Federal Highways............................................................................................................................................................ 44
Railroad ........................................................................................................................................................................... 45
Roadway Classifications ................................................................................................................................................. 47
Public Transportation ..................................................................................................................................................... 47
Funding Sources ............................................................................................................................................................. 48
Transportation Goals and Objectives ............................................................................................................................ 48
CHAPTER 11: ECONOMIC DEVELOPMENT .................................................................................................................. 49
Overview ......................................................................................................................................................................... 49
The Local Economy ......................................................................................................................................................... 50
Economic Development Organizations ......................................................................................................................... 50
Economic Development Objectives and Policies and Strategies ................................................................................. 52
CHAPTER 12: PUBLIC SERVICES AND FACILITIES ......................................................................................................... 53
Overview ......................................................................................................................................................................... 53
City Administration ......................................................................................................................................................... 53
Laurel Police Department .................................................................................................. Error! Bookmark not defined.
Fire Protection and Emergency Medical Services......................................................................................................... 55
School District ................................................................................................................................................................. 56
Public Library .................................................................................................................................................................. 57
Public Services and Facilities Goals and Objectives ...................................................................................................... 58
CHAPTER 13: RECREATION PLAN ................................................................................................................................ 59
Overview ......................................................................................................................................................................... 59
City Parks ......................................................................................................................................................................... 60
Parks Funding, Governance, and Operations ................................................................................................................ 60
Community Sponsored Events ....................................................................................................................................... 60
Recreation Objectives and Policies and Strategies ....................................................................................................... 60
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CHAPTER 14: NATURAL RESOURCES ........................................................................................................................... 62
Overview ......................................................................................................................................................................... 62
Groundwater Resources ................................................................................................................................................ 62
Wildlife Habitat ............................................................................................................................................................... 63
Agricultural Land ............................................................................................................................................................. 64
Wildland-Urban Interface .............................................................................................................................................. 67
Natural Resource Goals and Objectives ........................................................................................................................ 67
CHAPTER 15: GROWTH POLICY IMPLEMENTATION .................................................................................................... 68
Overview ......................................................................................................................................................................... 68
Implementation Tools .................................................................................................................................................... 68
Land Use Goals and Objectives ...................................................................................................................................... 79
Annexation Goals and Objectives .................................................................................................................................. 81
Housing Goals and Objectives ....................................................................................................................................... 82
Infrastructure Goals and Objectives .............................................................................................................................. 83
Transportation Goals and Objectives ............................................................................................................................ 87
Economic Development Goals and Objectives ............................................................................................................. 89
Public Facilities and Services Goals and Objectives ...................................................................................................... 92
Recreation Goals and Objectives ................................................................................................................................... 93
Natural Resource Goals and Objectives ........................................................................................................................ 95
Intergovernmental Coordination Goals and Objectives ............................................................................................... 96
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CHAPTER 1: INTRODUCTION AND PURPOSE
Introduction
The Growth Management Policy is a guide for the development of the City of Laurel over the next five
years. The purpose of this plan is to provide general guidelines to develop and maintain Laurel as a safe,
livable, and economically viable community that residents, institutions, and businesses are proud to call
home. This document presents information about the City, its residents, and the goals and objectives
the City will work towards in the long term.
This document is focused on the City of Laurel and
its surrounding zoning and planning jurisdictions.
Laurel is at a crossroads both in place and time. It
is located at a vital junction for agriculture,
transportation, and industry that helped develop
the area over the past 130 years. The timing of this
policy update is also essential given a growing
population, changing demographics, a fast-
growing municipality nearby (Billings), and the
need for updated regulations and policies to face
21st century technological, economic, and land-
use challenges.
Historical Context
The Crow was the principle Tribe in the Yellowstone Basin when European explorers first arrived. In July
of 1806, Captain William Clark and his expedition floated down the Yellowstone River from current-day
Livingston in crude canoes on their return journey. Clark and his expedition camped at the mouth of the
Clark's Fork of the Yellowstone River near Laurel's present site and noted it as a possible location for a
trading post. Chief Joseph later led the Nez Perce over the Yellowstone River near Laurel during their
retreat to Canada in 1877. Colonel Sam Sturgis and his cavalry caught up and battled the Tribe at Canyon
Creek approximately six miles north of present-day Laurel. The Nez Perce escaped the cavalry and
continued their flight to Canada after the battle. Laurel is located on both the Lewis & Clark and Nez
Perce National Historic Trails that commemorate these events.
European settlement of the area began in 1879. The railroad reached Billings by 1882 and reached
current-day Laurel by that fall. The City of Laurel, initially called Carlton, was established in 1882 along
the newly laid railroad tracks. The western legend of "Calamity Jane" Canary was associated with Laurel
in its early years after she came to Laurel in 1882 and had her dugout near the Canyon Creek
Battleground.
Laurel's population and its economy boomed during the early years. By 1920, the population had
reached 2,338 residents. The rail yards were a permanent fixture of the local economy and became a
dependable employer due to the consistent demand for agricultural products nationwide. The three
major industries which have played a significant role in the growth of the City have been agriculture, the
railroad, and oil. Local farms near current-day Laurel were settled before any official town being
established. Popular crops for area farmers and ranchers included alfalfa, grains, and sugar beets.
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This agricultural production was a significant draw for the region outside of the rail yard's ability to ship
goods. These farms were an essential driver of the local economy despite the railyard's outsized role as
a shipping center.
The Northern Pacific, Great Northern, and Chicago, Burlington, and Quincy Railroads all made their
junction in Laurel by 1906. The Northern Pacific was building terminal yards in 1907, which would
eventually lead to Laurel being the largest terminal and classification station between St. Paul,
Minnesota, Seattle, and Washington. The yards would eventually have a fifty-five-stall roundhouse,
machine shop, ice-making plant, loading docks, water tank, and disinfecting plant. The yard is currently
operated by Montana Rail Link, which is leased from the Burling Northern/Santa Fe Railroad. Laurel
remains the largest rail yard between Minneapolis and Seattle.
The area was repeatedly drilled for oil exploration in the early 1920s. The Northwest Refining Company
bought a site for a proposed 2,000-barrel refinery in 1922. In 1927, productive oil fields were discovered
in the nearby Oregon Basin of Wyoming. The existing regional rail infrastructure made Laurel an ideal
location for the refining and exporting of crude oil from Wyoming and other regions. The refinery in
Laurel has been operated by many companies, including the Independent Refining Company, Farmers
Union Central Exchange, and now CHS Inc.
Purpose
The Growth Management Policy is a statement of the community goals and objectives that will guide
the City's development. The policy is a comprehensive document covering many different study areas,
including demographics, land use, infrastructure, public services, transportation, and housing. The
purpose of this Growth Management Policy is to:
Establish Community Goals and Objectives
Present an updated profile of the community
Provide projections for housing, natural resources, population, land use, and other subjects
Ensure an orderly set of policy priorities for the expansion of the City
Put forward an implementation guide for the established Goals and Objectives
Act as a guide and resource for city staff and other local stakeholders
Community Vision
The Growth Management Policy allows
local stakeholders to create a future vision
for the Laurel community. A well-thought-
out vision is important because it informs
the structure and form of the document
and influences the City's work long after it
is published. This vision can involve where
the City wants to grow, what types of
business residents would like to see,
priorities for project funding, and the
quality of life residents would like to have.
The Growth Management Policy's goals,
objectives, and recommendations for implementation are developed from this community vision. City
staff worked with Planning Board members to develop a community vision for Laurel.
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In the future, Laurel will have:
A diverse array of residents, businesses, and institutions,
Greater employment opportunities,
Connected and accessible neighborhoods,
A variety of housing options and levels of affordability,
A thriving downtown and commercial district,
Well-functioning public services and amenities,
Clear and consistent regulations for development, and
An engaged community.
Regulatory Requirements
The Growth Management Policy is a statutory necessity for local governments. Montana Code
Annotated Title 76, Chapter 1, Part 6 provides the foundation for establishing a municipal growth policy.
These statutes require certain general items to be included, but the direction, focus, and contents of the
policy are the local governing body's responsibility. These statutes were established to enable local
governments to proactively envision their future and implement change in a coordinated way.
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CHAPTER 2: PUBLIC INVOLVEMENT
Overview
The update process for the 2020 Growth Management Policy began in November 2019 and continued
through October of 2020. Much of the plan was developed in the spring and early summer of 2020. The
Planning Department convened multiple meetings of the Planning Board to discuss and review draft
chapters and information and reached out to local, county, and state officials for input.
The onset of the COVID-19 pandemic and subsequent shelter-in-place directives disrupted the Laurel
City-County Planning Board's in-person meetings. The Planning Department continued to draft sections
of the plan, met with stakeholders virtually, and compiled chapters despite this disruption.
Prior Efforts
Before this update, the most recently approved Growth Management Policy was completed and
approved by Laurel City Council in December of 2013. Before adopting the 2013 Growth Management
Policy, The City of Laurel had prepared and adopted a Growth Management Policy in 2004.
Outreach
Outreach efforts were made during the late winter and early spring of 2020. The City reached out to
many local, regional, and state groups. These groups and organizations were identified as essential
stakeholders in the development of the plan. Many groups were unable to comment due to the COVID-
19 pandemic, which caused significant scheduling and contact issues. The chart below shows the groups
that the City met with and those contacted but who did not follow-up or could not provide direct
information due to the pandemic.
Laurel Growth Management Policy Update Outreach
Groups with which Meetings were held Groups Contacted
Laurel Urban Renewal Agency Laurel Chamber of Commerce
Laurel School District Big Sky Economic Development Authority
City of Laurel Public Works Montana Department of Commerce
City of Laurel Fire Department Yellowstone County Disaster & Emergency Services
City of Laurel Police Department Yellowstone County GIS
Laurel Rotary Club Montana Department of Justice
Yellowstone County Board of County Commissioners
Yellowstone County Sheriff's Department
Department of Natural Resources and Conservation
Montana Department of Transportation (Billings District)
Beartooth Resource Conservation & Development
Montana Department of Environmental Quality
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Timeline of Meetings for the Growth Management Policy Update
The onset of the COVID-19 pandemic curtailed meetings of the Planning Board between March and June
of 2020. Compiling the policy components and preparation of narrative portions continued during this
time under the previously established schedule. The chart below shows the Planning Board and City
Council meetings in which the Growth Management Policy Update was presented.
Laurel Growth Management Policy Update 2020 - Meeting Schedule
Date Purpose Task Outcome
December 11, 2019 Approve Schedule and
Contacts Initial Visioning Discussion Invites to
Agencies
January 8, 2020 Disc: Chapters 1&3 Introduction, Purpose and Common Goals Work Session
February 12, 2020 Disc: Chapters 4&5 Community Profile, Employment Forecast Work Session
February 26, 2020 Disc: Chapter 6 Land Use Work Session
March 11, 2020 Disc: Chapter 7 Future Land use Work Session
March 25, 2020 Disc: Chapter 8 Housing Work Session
April 8, 2020 Disc: Chapter 9 Infrastructure Work Session
April 22, 2020 Disc: Chapter 10 Transportation Work Session
May 13, 2020 Disc: Chapter 11 Economic Development Work Session
May 27, 2020 Disc: Chapters 12&13 Public Services, Facilities & Recreation Plan Work Session
June 10, 2020 Disc: Chapters 3, 14, 15 Community Goals, Natl Resources &
Implementation Work Session
June 24, 2020 Review Document Review Completed Chapters Work Session
July 22, 2020 Planning Board Review Chapters 3, 7, 7.5, 8, 9, 10, 11, 13 Work Session
August 19, 2020 Planning Board Review Review Draft Document Schedule Public
Hearing
October 21, 2020 Planning Board Public
Hearing Full Document Review and Approval Resolution of
Adoption
November 3, 2020 City Council Discussion
Session Full Document (PB Approved) Preliminary
Presentation
November 17, 2020 City Council Workshop Full Document (PB Approved)
City Council
Review and
Comments
November 24, 2020 City Council Public
Hearing
Receive Public Comment, Approve Resolution
of Adoption
Resolution of
Adoption
December 24, 2020 Final Adoption 30 Day Comment Period
Adoption of
Growth
Management
Policy
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CHAPTER 3: GOALS, OBJECTIVES, AND STRATEGIES
Overview
The community goals and objectives presented in this chapter were established to transform the
community vision into a concrete reality. These goals, objectives, and strategies were developed
through research, data collection, interviews, and public meetings that the City and the planning board
conducted throughout the planning process.
These goals cover a wide range of topics, including Land Use, Transportation, Housing, Economic
Development, Infrastructure, and more. This collection of community goals and objectives is meant to
be exhaustive to provide the City, developers, residents, and business owners with comprehensive
guidance to inform local efforts across different sectors, topics, and areas of influence.
Land Use Goals and Objectives
Land use policy is one of the most potent tools a city has. Zoning and subdivision codes influence growth
patterns, infrastructure placement, road connectivity, and much more. The City of Laurel is focused on
the effective use of land in and around the City. The City also plans to conserve open space and
traditional land uses by focusing on smarter, denser development clustered along significant routes and
commercial areas.
This plan's overall goals are to conserve open space while maximizing the areas currently in and directly
adjacent to the City. Laurel's downtown and Southeast 4th Street rehabilitation are possible through a
mix of infill development, mixed-use buildings, improved infrastructure, and updated façade and signage
standards.
Goal 1: Conserve open space and traditional land uses
Encourage cluster developments to incorporate open space into new developments
Provide options for landowners for conserving portions of their land
Study and Implement strategies to create an interconnected system of parks and greenways and
open space that are accessible to area residents
Goal 2: Develop downtown Laurel into a vibrant place to live, work, and play
Encourage mixed uses for living, working, and shopping local
Identify priority parcels for infill development
Implement Placemaking projects to create a more livable and enjoyable downtown
Partner with local groups to support community businesses, events, and gatherings
Connect with regional agencies to access project funding, receive technical support, and boost
the visibility of Laurel development opportunities
Goal 3: Update Subdivision Code to meet the needs of Laurel and the surrounding area
Provide clear and consistent standards
Ensure the proper scale and scope of regulations
Include trails, open space, and greenway considerations in parkland subdivision review
Regularly review and update the Subdivision Code as needed to remain current
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Goal 4: Update the Zoning Code to provide for greater flexibility of allowable uses, clearer
requirements, and more efficient land use
Study the inclusion of different types of housing within residential districts
Update Overlay Districts, Parking Requirements, and the Sign Code to better fit the City's needs
and character
Allow mixed-use live/work opportunities in commercial areas
Enable property owners to use their land more effectively and efficiently
Goal 5: Use long term planning documents to identify funding and address priority needs
for infrastructure and development
Establish an Annexation Plan to develop priority growth areas and strategies
Develop a Capital Improvement Plan for vital infrastructure to support the City as it grows
Prepare a Commercial and Industrial Development Study for land adjacent to major
transportation routes in the Laurel area
Annexation Goals and Objectives
Municipalities need to seize growth opportunities. Having strategies to address challenges for
developing a community and preparing priorities for expansion are vital activities. Two overarching goals
have been designated to help the City of Laurel grow through annexation.
Goal 1: Adopt a long-range view for the growth of the City
Establish a growth-conscious set of policies to expand the City and its services
Create priority growth areas for extension of services
Develop and approve an Annexation Plan for the Laurel Planning Jurisdiction
Support the creation of a long-term Capital Improvement Plan for the extension of essential
infrastructure
Goal 2: Manage fiscal responsibility with established and proposed annexation standards
Ensure that the established standards are right and proper for the City of Laurel
Ease the burden for developers to annex into the City while meeting established standards
Allow greater flexibility in development patterns
Determine the cost and benefits of annexation
Housing Goals and Objectives
Housing is a necessity in any community. The goals presented below are a means to ensure that people
can find affordable, accessible, comfortable, and attractive housing in the community. To date, Laurel
has not struggled with significant housing affordability issues. One housing trend that Laurel might
consider is the growing demand for closer-knit, denser, and connected neighborhoods near commercial
areas. Many younger Americans have abandoned the traditional single-family home for other housing,
including rowhouses, tiny homes, condominiums, and apartments. Many older Americans are also
focusing on downsizing to housing that is more accessible to local services, including restaurants,
medical services, and grocery stores.
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Housing is closely connected with transportation and economic development. Updating the zoning code
to allow a more comprehensive array of housing options such as tiny homes, accessory dwelling units,
and multi-family housing is an important goal. This update will ensure that currently developed parcels
and vacant parcels within the City can be developed with more options for prospective buyers or
renters. It is also crucial for Laurel to have standards and code that allow for the efficient use of space
already within the City while enabling the effective use of land in the surrounding area.
Goal 1: Encourage a mixture of housing types to meet the demand of all market sectors
Maintain a diverse array of housing and affordability levels
Promote higher density housing types in the downtown area and adjacent to major
transportation corridors
Study mixed-use housing and other alternative housing types and styles
Provide options for a full spectrum of housing from rentals to retirement housing
Goal 2: Provide information on housing-related grants, loans, and ownership programs
Develop a list of resources for renters and homeowners
Collect information on federal, state, local, and philanthropic rental and homeownership
programs
Advise Laurel area residents as to available support for housing, rent, and homeownership
Infrastructure Goals and Objectives
Infrastructure is the foundation of the community. It will be vital for the City to utilize long-range
planning to establish infrastructure standards, map current infrastructure facilities, and identify
infrastructure development costs for necessary and prospective projects.
The drafting of planning documents, including master plans and preliminary engineering reports (PERs)
relating to the Laurel water system, wastewater system, and stormwater system, is critical to ensure
orderly and effective growth of the City. A Capital Improvement Plan (CIP) is another vital infrastructure
planning document that should be completed. Plans and engineering reports should provide useable
data, allow for inclusion in grant applications, and present direct insight into necessary current and
future projects.
Goal 1: Maintain an Effective and Efficient Public Infrastructure System that Adequately
Serves the Needs of the City
Develop a data-driven infrastructure maintenance schedule
Determine any existing gaps in services and other infrastructure deficiencies within the City
Adopt up-to-date infrastructure standards that are appropriate for the needs of the City
Study using public spaces within floodplains, watercourses, and wetlands to be used as passive
recreation areas such as parks and greenways
Study the feasibility of recycling programs and other means to reduce solid waste
Incorporate stormwater system planning into roadway and other infrastructure planning
processes
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Goal 2: Establish the Long-Term Capital and Infrastructure Needs for the City
Develop a Capital Improvement Plan for the improvement and expansion of infrastructure
Prepare a Water System Master Plan
Create a Wastewater System Master Plan
Complete a Stormwater Management Plan
Ensure infrastructure planning documents are routinely updated.
Confirm that the established infrastructure priorities are adequate
Goal 3: Seek out Possible Funding Sources for the Expansion and Improvement of
Infrastructure and Essential Community Services
Study the physical and financial needs for the extension of infrastructure to priority growth
areas.
Collaborate with Montana agencies on major projects and studies
Explore federal, state, and philanthropic infrastructure grant opportunities
Determine positive impacts from the expansion and improvement of infrastructure
Apply for funding opportunities that are appropriate for city priorities and projects and assist in
keeping user fees reasonable
Transportation Goals and Objectives
The transportation network brings people together. This network is a patchwork of streets, roads,
sidewalks, bike paths, trails, and rail. It is crucial to couple transportation development with land use. To
this end, a goal is the development of a more multi-modal approach to streets and pathways.
Implementing bicycle and pedestrian improvements such as bike lanes, greenways, improved signage,
and sidewalk improvements is critical. Furthermore, traffic and speed data should be studied on
significant routes to determine street safety and determine possible resolutions to improve motorized
and non-motorized traveler safety. Laurel seeks to make neighborhoods and commercial areas more
accessible and connected by improving pedestrian facilities, including sidewalks, accessible curb cuts,
signage, and road markings. Establishing a road network master plan is also vital to create a concrete
plan for street expansion and continuity to support orderly and consistent growth patterns.
These transportation goals are a way to increase the quality of life, connect people to their community,
increase safety, and plan for current trends and future growth. There are three overarching
transportation goals, including objectives and strategies.
Goal 1: Preserve, Maintain, and Improve the Existing Transportation System
Update the Long-Range Transportation Plan (LRTP)
Establish a systematic approach for the maintenance and repair of the road network.
Develop a Capital Improvement Plan to identify and prioritize significant transportation projects
Establish a Road Network Master Plan to ensure street continuity, traffic flow, and
neighborhood connectivity,
Promote fiscal responsibility and high return on investment
Coordinate roadway improvement projects to coincide with underground infrastructure
improvements
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Goal 2: Improve the Mobility, Safety, and Accessibility for all users and modes of travel
Implement bicycle and pedestrian improvements and traffic calming measures to transform the
downtown area into a pedestrian-friendly place
Create a looping bicycle/pedestrian trail and street system that connects different areas of
Laurel
Adopt pedestrian and multi-modal friendly transportation standards and safety measures
Explore options to improve and expand the Laurel Transit program and strategies to create
other multi-modal transportation connections.
Partner with local, regional, and statewide groups to further integrate Laurel into the more
comprehensive passenger transportation network
Goal 3: Connect Transportation Decisions with Land-Use Decisions
Integrate land-use planning and transportation planning to manage better and develop the
transportation network.
Utilize transportation projects to encourage intensive development patterns along significant
routes and existing areas of the City.
Adopt and implement consistent system policies and maintenance standards
Ensure the development of a sustainable transportation system that minimizes environmental
impacts
Economic Development Goals and Objectives
The Laurel economy has changed dramatically in the past few decades. The emergence of online retail
has shifted the focus away from traditional brick and mortar downtowns businesses to easy to use and
seemingly more convenient online or delivery options. Recently, small towns and cities across the
country are finding that thoughtful economic development and land use planning can rehabilitate their
downtowns and neighborhoods to reverse some of the losses related to the emergence of online retail.
The City has established focus areas for economic development. These areas include Laurel's traditional
downtown core, the Southeast 4th St. Commercial district, the 1st Avenue Corridor, and Old Route 10
running west from the City. This chapter's primary focus is to establish a smarter, more sustainable
development that adds character and connectivity to commercial areas. Commercial areas of Laurel
should be attractive places to visit. Placemaking and beautification projects are useful to encourage
residents and visitors to explore different areas of the City. Increasing walkability and mixed-use
development can also create better housing and commercial opportunities.
The goals presented below are an effort to increase the attractiveness, usefulness, and quality of the
community's commercial and economic sectors. The expansion brings new opportunities, and the area
near the West Laurel Interchange has significant growth potential. This area could become a central
area for the Laurel community's growth and development through the effective use of placemaking
strategies, smart growth concepts, and cohesive zoning and development standards. Four main goals
with related objectives have been established related to Economic Development as follows:
Goal 1: Develop downtown Laurel as a destination to live, work, and play
Institute placemaking projects to further enhance district character
Increase live-work opportunities for current and future residents and businesses
Apply TIF funding to beautification, blight removal, and public improvement projects
Identify and find solutions for unused or underused parcels as candidates for development
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Goal 2: Create a resilient local economy
Strengthen core businesses and industries through communication and connections with
technical support
Ensure that local economic activities are inclusive and accessible to all stakeholders
Implement policies that create stable and sustainable economic growth
Work to highlight the shared benefits of working together as a community with local businesses
stakeholders, and developers
Provide an economic ecosystem that allows for a wide array of businesses, industries, and
developments to thrive
Study and implement policies to enhance local business demand and alternative strategies for
value creation for the community
Goal 3: Collaborate with area organizations to support economic growth and local
employment and training opportunities
Communicate with local groups to determine any needs and assistance
Create partnerships with local and regional groups to fill local service gaps and create needed
programming
Take part in events and workshops to support local business initiatives and activities
Establish common ground with local and regional groups to provide resources and assistance
Connect residents and businesses with like-minded economic, financial, and entrepreneurship
resources and opportunities
Goal 4: Study options for new commercial and industrial properties in anticipated high-
growth areas
Create a Corridor Master Plan for growth in and around the intersection with Old Route 10 and
the West Laurel Interchange
Study options and determine priorities for the possible establishment of Tax Increment
Financing Districts (TIFs) and Targeted Economic Development Districts (TEDDs)
Review and pursue opportunities for clustered commercial or industrial parks
Develop funding strategies to provide services for priority growth areas.
Public Facilities and Services Objectives, Policies and Strategies
Effective and efficient public services are a significant draw for prospective residents, developers, and
businesses. Above all, public facilities and services must be accessible, useful, and dependable for
everyone residing, working, and visiting the City. Laurel should identify current gaps and determine the
projected needs of public facilities as the City grows. It is crucial to work with public stakeholders and
departments to include the whole population. Providing consistent and stable service delivery is
essential.
Goal 1: Provide consistent and high-quality public services to the community
Develop standard operating procedures to ensure consistency for city departments
Develop maintenance procedures for parks, facilities, and public areas.
Study current facilities and services to identify gaps and determine projected needs in services
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Goal 2: Respond to the changing nature of the community
Plan for the expansion of public facilities in priority growth areas
Invest in public facilities that are accessible to everyone in the community
Study how to improve city services to boost the quality of life for residents, businesses, and
institutions
Goal 3: Work with city departments and local stakeholders to determine the priority
expansion of public facilities and services
Open lines of communication between city departments and local stakeholders to gather input
on major projects
Consider the public service requirements of large-scale projects before their approval and
implementation
Develop plans for the expansion of Fire, Police, and EMS facilities
Recreation Goals and Objectives
The wide array of Laurel city parks is a great asset to residents. It is the goal to ensure that current and
future city parkland is an essential amenity. Parks should be developed and improved to act as
neighborhood focal points. Many of Laurel's parks are very small, with some located in less than optimal
locations. It is a goal to ensure that parkland is a useable and enjoyable amenity for residents. The City
should study underutilized or burdensome parkland parcels and consider re-use scenarios.
Historical Riverside Park has been a staple of the community for almost one hundred years. The
Riverside Park Master Plan was developed in 2018 to provide a blueprint for improvements and the
park's use. It will be essential to continue the ongoing improvement efforts and develop policies to
attract visitors. Riverside Park should be maintained as a historical, recreational, and economic asset in
the future.
Goal 1: Develop parkland as an essential and enjoyable amenity for residents
Ensure new developments have appropriate park space for recreation and general use
Study how existing parks can be improved through new facilities, changed layouts, or additions
Review current park infrastructure and determine if improvements are necessary to serve the
needs of the surrounding area better
Goal 2: Promote Riverside Park as a vital historic, civic, and recreation resource for
residents and visitors
Adhere to the projects and strategies presented in the 2018 Riverside Park Master Plan
Seek grant funding for structural and site improvements
Develop historic markers for Riverside Park and its historic structures
Study options for connecting Riverside Park to the city proper through infrastructure
improvements, civic engagement, or other means
Establish signage and marketing for the assets and resources of Riverside Park to area residents
and visitors
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Goal 3: Create an interconnected system of parks, greenspace, and trails that are accessible
to all
Create a city-wide Park System Master Plan to develop project priorities
Consider the creation of a City Parks Department to oversee park operations and maintenance
Identify unused land that can be transformed into green space or trails for use by the public
Update the zoning and development codes to encourage the creation of bicycle and pedestrian
trail corridors
Natural Resource Goals and Objectives
The Laurel planning jurisdiction contains a variety of terrain types and environments. The natural
environment should be preserved and enhanced to balance environmental sustainability with economic
growth, recreational opportunities, and development. Natural resources and the natural environment
can be managed with growth activities to provide social, economic, and community benefits to people
over time while continuing their natural functions. The natural resource goals and objectives have been
developed with this balance of activities in mind.
Goal 1: Protect Laurel's natural resources and traditional environment
Provide options for landowners for conserving portions of their land while developing others
Achieve a balanced pattern of growth to ensure environmental concerns are considered during
the development
Manage the local water resources as a healthy, integrated system that provides long-term
benefits from enhanced environmental quality
Goal 2: Incorporate sustainable development patterns in the Laurel subdivision and land
use codes
Review and update existing zoning and subdivision regulations to ensure environmental
preservation and conservation are addressed
Review and update landscaping ordinances as needed to best suit Laurel's natural environment
Manage rivers, floodplains, wetlands, and other water resources for multiple uses, including
flood and erosion protection, wildlife habitat, recreational use, open space, and water supply
Goal 3: Connect with local, regional, and state agencies and stakeholders to improve the
natural environment in and around Laurel
Sponsor environmental cleanup and rehabilitation programs that include the City, school
district, community organizations, and residents
Participate in regional watershed studies to achieve adequate long-term flood protection
Explore the possibility of creating a conservation corridor along the Yellowstone River
Intergovernmental Coordination Goals and Objectives
Intergovernmental coordination and collaboration are essential to ensure that the City of Laurel can
sustainably develop, seize growth opportunities, and improve residents, visitors, and businesses' quality
of life. Consistent intergovernmental coordination will allow Laurel to be a partner and participant
rather than a bystander in regional growth.
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It will be necessary for the City to regularly communicate with local, county, and state partners to seize
grant and development opportunities, provide the Laurel perspective, and connect local groups to those
in the broader region. It is envisioned that the City will help direct residents, businesses, developers, and
groups to helpful county, state, federal and institutional resources and supports.
Goal 1: Establish lines of communication with local, county, and state partners
Create an accurate directory of government representatives and staff
Update governmental stakeholders regarding ongoing projects and work in the Laurel area
Develop working relationships with legislators, staff, and stakeholders at different levels of
government
Goal 2: Coordinate with local and regional institutions to support and grow the Laurel
community
Work with economic development groups to seize opportunities for business growth
Connect area businesses with institutions and governmental groups that can support their
mission
Communicate with area legislators to provide information on growth patterns and development
in the Laurel area.
Maintain open communications with state agencies and the Board of County Commissioners to
confirm compliance with statewide codes and operational needs.
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CHAPTER 4: COMMUNITY PROFILE
Population Trends
The City of Laurel was incorporated in 1908. The population of Laurel grew steadily after the early boom
years of railroad and oil development. The nearby City of Billings has also contributed to the overall
growth and development in Yellowstone County in the past few decades, with Laurel playing a
somewhat lesser role. City staff anticipates a continuation of steady growth despite certain
developments that may impact this, such as establishing the West Laurel Interchange for interstate I-90.
U.S. Decennial Census, 2013-2017 American Community Survey 5-Year Estimates
Laurel has grown slowly over the past forty years. It is anticipated that Laurel will reach a population of
7,000 after the 2020 U.S. Census is completed.
U.S. Decennial Census, 2013-2017 American Community Survey 5-Year Estimates
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
180,000
1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 2018
Est.
Yellowstone County Population
0
1000
2000
3000
4000
5000
6000
7000
8000
1890 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 2018
Est.
Laurel Population
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Residents of Laurel tend to be older. The chart below shows that most residents are above 25, with
almost 40 percent of the population between the ages of twenty-five and fifty-nine.
2013-2017 American Community Survey 5-Year Estimates
Ethnic Characteristics
The charts below provide a summary of the ethnic makeup of the City of Laurel. The current Census
estimates indicate that Laurel is not a very diverse community. The lowest estimate for white/Caucasian
residents is 95.11 percent, which is displayed in the “Hispanic or Latino and Race” Chart below.
Race Estimate Percent
Total Population 6,885 100.00%
White 6,775 98.40%
Black or African American 11 0.16%
American Indian and Alaska Naïve 192 2.79%
Asian 0 0.00%
Native Hawaiian and Other Pacific Islander 0 0.00%
Some Other Race 16 0.23%
2013-2017 American Community Survey 5-Year Estimates
Hispanic or Latino and Race Estimate Percent
Total Population 6,885 100.00%
Hispanic or Latino (of any race) 178 2.59%
Mexican 101 1.47%
Other Hispanic or Latino 77 1.12%
Not Hispanic or Latino 6,707 97.41%
2013-2017 American Community Survey 5-Year Estimates
0.00%
2.00%
4.00%
6.00%
8.00%
10.00%
12.00%
14.00%
Laurel Age Distribution
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Households and Families
There are an estimated 2,882 households and 1,907 families in the City of Laurel. Households in Laurel
have a median household income of $50,778, while Laurel families have an estimated median income of
$68,575. An estimated 9 percent of Laurel residents are below the poverty level compared with 5.5
percent of families. It is forecasted that Laurel’s overall population will increase by 1.3 percent between
2019 and 2024, with an increase in total households of 1.1 percent and families of 8.6 percent.
Education
Laurel is a well-educated community. 94.07 percent of the population over the age of 25 has attained a
high school diploma, with 51.21 percent having at least completed some college or an associate degree
program. Laurel spends less per student than the United States average but maintains a more positive
student per librarian and student per counselor ratio.
Education Laurel, MT United States
Expenditures Per Student 8,629.00 12,383.00
Educational Expenditures Per Student 7,897.00 10,574.00
Instructional Expenditures per Student 5,080.00 6,428.00
Pupil/Student Ratio 15.87* 16.80
Students per Librarian 464.70 538.10
Students per Counselor 348.50 403.20
Education in Laurel, Montana. Bestplaces.net. Accessed 2/3/2020.
*Figure 25: Student to Teacher Ratios (2013), Towncharts.com
Work Commute
Seventy-nine percent of Laurel residents commute to work alone in a car, truck, or van. This percentage
is slightly higher than the national average of 76.4 percent. Laurel does have a higher than average
carpool rate, with 13.66 percent versus the national average of 9.2 percent, according to the American
Community Survey. Laurel residents travel an average of 21.5 minutes to work, which can be partially
attributed to the fact that several Laurel residents travel to the nearby city of Billings for employment
purposes. (Billings is approximately 17 miles away).
Commuting to Work Estimate Percent
Workers 16 Years and Over 3,528 100.00%
Car, Truck, or Van - Drove Alone 2,787 79.00%
Car, Truck, or Van - Carpooled 482 13.66%
Public Transportation (excluding Taxicab) 22 0.62%
Walked 82 2.32%
Other Means 15 0.43%
Worked at home 140 3.97%
Mean travel time to work (minutes) 21.50
2013-2017 American Community Survey 5-Year Estimates
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CHAPTER 5: EMPLOYMENT AND POPULATION
FORECASTS
A diverse mix of businesses helps a city thrive and allows residents to live, work, and play in their
communities. A diverse array of businesses also keeps a community more resilient in the case of
economic downturns. Laurel has been blessed with two long-term stable employers; the Montana Rail
Link railyard and the CHS Refinery. These two institutions are well established and are not anticipated to
disappear. The City of Laurel hopes to diversify the local economy further and attract various businesses
and related employment. The growth policy focuses on revitalizing Laurel’s downtown businesses,
assessing how zoning can be updated to meet the needs of businesses and employees better, and
connecting Laurel neighborhoods with the existing business communities to help increase traffic to
existing establishments.
Employment Forecasts
66.92 percent of the estimated 5,362 residents of Laurel aged 16 years and over are in the labor force.
Only 2.69 percent are unemployed, and 30.40 percent are not in the labor force, according to the 2017
U.S. Census estimates. The unemployment rate has remained steady, with the current rate at
approximately 2.5 percent. Laurel also has a balanced split of occupations, with no general sector
having more than 16 percent of the total labor pool. This type of mix of industries and employment is
suitable for a community as it helps to insulate it from major economic shifts.
Industry Estimate Percent
Total Civilian Employed Population 16 years and over 3,588 100.00%
Agriculture, Forestry, Fishing and Hunting, and Mining 153 4.26%
Construction 262 7.30%
Manufacturing 315 8.78%
Wholesale Trade 157 4.38%
Retail Trade 603 16.81%
Transportation and Warehousing, and Utilities 206 5.74%
Information 66 1.84%
Finance and Insurance, and Real estate and rental and leasing 208 5.80%
Professional, Scientific, and Management, and Administrative and waste
management services 299 8.33%
Education Services, and Healthcare and Social Assistance 533 14.86%
Arts, Entertainment, and Recreation, and Accommodation and Food
Services 493 13.74%
Other Services, except public administration 233 6.49%
Public Administration 60 1.67%
2013-2017 American Community Survey 5-Year Estimates
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Housing
Housing is a critical asset to a community. Maintaining a mix of affordable housing is essential to
attracting a diverse array of people to the community. Housing provides shelter and provides character
to a community by way of how it is designed, situated, and utilized. The charts below provide an
overview of housing in Laurel. Laurel has a low housing vacancy rate and many owner-occupied units.
Housing Occupancy Estimate Percent
Total housing units 2,992 100%
Occupied housing units 2,882 96.30%
Vacant housing units 110 3.70%
2013-2017 American Community Survey 5-Year Estimates
Sixty-seven percent of all houses in Laurel are owner-occupied. This information means that people have
invested their time, money, and effort into the Laurel community because they live here full-time.
Housing Tenure Estimate Percent
Occupied Housing Units 2,882 100.00%
Owner-Occupied 1,931 67.00%
Renter-Occupied 951 33.00%
2013-2017 American Community Survey 5-Year Estimates
Affordable rents enable a wide array of people to live in the community. Seventy percent of renters in
Laurel pay 35 percent or less of their income toward their monthly rent. This percentage is positive
because it allows more money to be utilized for other consumer purposes, such as restaurants,
shopping, and other services.
Gross Rent as a Percentage of
Household Income
Estimate Percent
Occupied units paying rent 898 100.00%
Less than 15.0 percent 115 12.81%
15.0 to 19.9 percent 183 20.38%
20.0 to 24.9 percent 52 5.79%
25.0 to 29.9 percent 161 17.93%
30.0 to 34.9 percent 121 13.47%
35.0 percent or more 266 29.62%
2013-2017 American Community Survey 5-Year Estimates
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Seventy-eight percent of houses in Laurel are worth between $100,000 and $300,000. The median
household value is $169,900. This data is very positive as affordable houses and rents allow a more
diverse array of people to become homeowners and put long-term roots into the community.
Housing Value Estimate Percent
Owner-Occupied Units 1,931 100.00%
Less than $50,000 203 10.51%
$50,000 to $99,999 155 8.03%
$100,000 to 149,999 377 19.52%
$150,000 to $199,999 592 30.66%
$200,000 to $299,999 554 28.69%
$300,000 to $499,999 50 2.59%
$500,000 to $999,999 0 0.00%
$1,000,000 or More 0 0.00%
Median (In Dollars) $ 165,900
2013-2017 American Community Survey 5-Year Estimates
Population Forecasts
Laurel saw a dip in population between 2013 and 2018 (from 7,035 to 6,766). This trend was reversed in
2019, with an increase in population to 7,242 residents. It is anticipated that Laurel will grow at a steady
rate over at least the next five years. This assumption considers the community’s proximity to the City of
Billings and the ability to attract businesses, residents, and commuters that support the Billings and
Yellowstone County economy.
Growth Rate 2010-2019 2019-2024
Population 0.880% 1.30%
Households 0.840% 1.10%
Families 0.580% 8.60%
Median Household Income X 1.68%
Per Capita Income X 2.44%
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CHAPTER 6: Land Use
Overview
Laurel is in South Central Montana, 16 miles west of Billings, the largest City in Montana. Laurel is
located along major transportation routes, including Interstate I-90, Route 212, and Old Route 10. Laurel
is located 223 miles east of Helena, the state capital, seventy miles from the northeast entrance of
Yellowstone National Park, 80 miles from the Little Big Horn Battlefield National Monument, and 137
miles from Bozeman.
Laurel is located on the western boundary of Yellowstone County. This area has seen significant
development with the City of Billings' continued growth, but the surrounding region remains sparsely
populated and remains mostly prairie, rangeland, and farmland.
Trends
The City of Laurel has developed slowly in the past few decades. The development has focused itself
north and west of the City. There are also many vacant and underused parcels within the City itself. The
area adjacent to Interstate I-90 is mostly commercial and industrial. This similar land use is seen along
Old Route 10 to the west of the City.
Existing Land Uses
The City of Laurel has a variety of established zoning districts. These districts cover a wide range of uses
and purposes. The districts and their official definitions can be found below.
Agricultural-open space (AO) zone - The agricultural-open space zone is intended to preserve
land for agricultural and related use. Land within this zone is usually un-subdivided and contains
a minimum of roads, streets, and other utilities. It may be cultivated acreage or land less
suitable for cultivation, yet suitable for various agricultural enterprises using the broadest scope
of the agricultural definition. Land within this zone may be located adjacent to highways and
arterial streets. The AO zone is further intended to discourage the scattered intrusion of uses
not compatible with an agricultural rural environment.
Suburban residential (SR) zone - This zone is limited to single-family residential tracts on a
minimum of five acres of land and on which agricultural uses may be conducted with the
exception that animal units shall not exceed ten per five acres.
Residential tracts (RT) zone - This zone is designed for single-family residential homes on a
minimum of one acre of land. Livestock is limited to two livestock units per acre with additional
units allowed per additional half-acre increments in conformance with Section 17.08.651 of this
code. No livestock is allowed in the city limits, and all livestock must be removed if/when
annexation occurs.
Residential estates-22,000 (RE-22,000) zone - This zone is intended to provide of low-density,
single-family, residential development in areas near or adjacent to the City that are served by
either central water or sewer systems.
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Residential-7500 (R-7500) zone – This zone is intended to provide an area for medium, urban-
density, single-family, residential environment on lots that are served by a public sewer and
sewer system.
Residential-6000 (R-6000) zone – This zone is intended to promote an area for a high, urban-
density, duplex residential environment on lots that are usually served by a public water and
sewer system.
Residential light multifamily (RLMF) zone – This zone is intended to provide a suitable residential
environment for medium density (up to a fourplex) residential dwellings. The area is usually
served by a public water and sewer system.
Residential multifamily (RMF) zone - The RMF zone is intended to provide a suitable residential
environment for medium to high density residential dwellings; and to establish, where possible,
a buffer between residential and commercial zones.
Residential manufactured home (RMH) zone - The RMH zone is intended to provide a suitable
residential environment for individual manufactured homes, manufactured home parks, and
competitive accessory uses.
Planned unit development (PUD) zone – This zone is intended to provide a district in which the
use of the land is for the development of residential and commercial purposes, as an integrated
unit.
Residential professional (RP) zone - This zone is intended to permit professional and
semiprofessional uses compatible with surrounding residential development.
Neighborhood commercial (NC) zone - The NC zone is intended to accommodate shopping
facilities consisting of convenience retail and personal service establishments which secure their
principal trade by supplying the daily needs of the population residing within a one-half mile
radius of such neighborhood facilities. The location and quantity of land within the NC zone
should be a business island not more than four acres in size and that no business frontage
should extend more than six hundred feet along any street.
Central business district (CBD) classification - The CBD classification is intended to primarily
accommodate stores, hotels, governmental and cultural centers and service establishments at
the central focal point of the City's transportation system.
Community commercial (CC) classification - The CC classification is primarily to accommodate
community retail, service and office facilities offering a greater variety than would normally be
found in a neighborhood or convenience retail development. Facilities within the classification
will generally serve an area within a one and one-half mile radius and is commensurate with the
purchasing power and needs of the present and potential population within the trade area. It is
intended that these business facilities be provided in business corridors or islands rather than a
strip development along arterials.
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Highway commercial (HC) district - The purpose of this district is to provide areas for commercial
and service enterprises which are intended primarily to serve the needs of the tourist, traveler,
recreationist, or the general traveling public. Areas designated as highway commercial should be
located in the vicinity of, and accessible from freeway interchanges, intersections in limited
access highways, or adjacent to primary or secondary highways. The manner in which the
services and commercial activities are offered should be carefully planned in order to minimize
the hazard to the safety of the surrounding community and those who use such services; and to
prevent long strips of commercially zoned property.
Light industrial (LI) classification - A LI classification is intended to accommodate a variety of
business warehouse and light industrial uses related to wholesale plus other business and light
industries not compatible with other commercial zones, but which need not be restricted in
industrial or general commercial zones, and to provide locations directly accessible to arterial
and other transportation systems where they can conveniently serve the business and industrial
center of the City and surrounding area.
Heavy industrial (HI) district – This district accommodates manufacturing, processing,
fabrication, and assembly of materials and products. Areas designated as heavy industry should
have access to two or more major transportation routes, and such sites should have adjacent
space for parking and loading facilities.
Airport (AP) zone - The AP zone is designated to preserve existing and establish new compatible
land uses around the Laurel airport.
Floodplain (FP) zone - This zone is designed to restrict the types of uses allowed within the areas
designated as the floodplain and floodways as officially adopted by the Montana Board of
Natural Resources and Conservation, Helena, Montana.
Public (P) zone – This zone is intended to reserve land exclusively for public and semipublic uses
in order to preserve and provide adequate land for a variety of community facilities which serve
the public health, safety and general welfare.
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Laurel Area Existing Land Use Zoning, 2020
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Residential and Rural Residential
Laurel's many residential districts provide a variety of housing densities, volumes, and types. Laurel has
a joint city-county planning board and has regulations that accommodate these two different modes of
living. The older areas of the City, such as the south side and neighborhoods adjacent to downtown,
have higher density zoning as is appropriate for those originally platted parcels and smaller-scale
residential buildings. Newer developments and additions to the City generally have lower density zoning
than the original Laurel townsite and are more suburban. It is important to provide a mix of residential
styles and types to provide residents and prospective residents a housing choice.
Commercial
Laurel is a full-service community with supermarkets, gas stations, bars, and restaurants accessible to
the public. There are a variety of different commercial areas as well. The traditional central business
district remains heavily commercial, with some buildings containing apartments on the upper floors. The
area adjacent to I-90 accessible from 1st Avenue S. by E. Railroad St. and SE 4th St. contains commercial
and industrial properties that serve residents and highway travelers. The parcels along Old Rt. 10
contain a mix of zoning, including highway-focused commercial properties. Many properties located
along E. Main Street are zoned Community Commercial and contain a variety of establishments.
Public
The City of Laurel maintains a full array of public facilities to serve the residents, businesses, and
institutions within the city limits. The City maintains a fully staffed city hall, public library, public works
shops, a water treatment plant, and a sewer treatment plant. The Laurel School District maintains the
Laurel High School and Middle School along with Graff Elementary School, South Elementary School, and
West Elementary School.
Parks
Laurel is home to many parks of all shapes and sizes. The most important of these parks are Thompson
Park and Riverside Park. Thompson Park is in the City center and has many athletic fields, a public pool,
and public facilities. Riverside Park is a historic park that has been used by residents and travelers to the
area since before the City of Laurel officially existed. Throughout Laurel's history, this park has been
used by private, civic, and government groups. Many other smaller parks are established as land has
been annexed into the City and further developed.
Industrial
There is a large amount of industrial property in and around the City of Laurel. The City of Laurel was
initially built around the commercial rail yard currently operated by Montana Rail Link, the most massive
switching yard between Minneapolis and Seattle. The second major industrial property is the large
refinery complex owned and operated by CHS Inc. The other crucial industrial property in and around
the City is the Fox Lumber operation, located along East Railroad Street.
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Urban Renewal
The City of Laurel established a Tax Increment Finance District (TIF) in 2007 that encompasses the
traditional downtown area and the SE 4th Street commercial area. This District has provided financing for
infrastructure projects and grant funding to local property owners and residents for façade, structural,
signage improvements, and technical assistance within the district. The grant program is managed by
the volunteer board that makes up the laurel Urban Renewal Agency.
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CHAPTER 7: FUTURE LAND USE
Overview
Laurel has struggled to grow over the past two decades due to a lack of long-term planning capacity,
lack of funding, and a lack of focus on larger goals. Laurel's somewhat stagnant growth happened during
a time of consistent growth for the neighboring City of Billings and other areas throughout Yellowstone
County. Laurel must be forward-thinking if it wants to thrive as a separate entity outside of Billings. This
change of thinking involves planning for commercial and industrial expansion, seizing growth
opportunities, and adopting zoning and development standards that meet the city needs and attract
developers and new residents.
Residents of Laurel pride themselves on the small-town character of the community. The City needs to
properly plan for growth and have the appropriate regulations to grow and maintain the classic
community character that residents enjoy. This balance includes establishing appropriate building
design standards, zoning requirements, and signage standards to maintain community character.
Residential Districts
Residential areas within Laurel come in many shapes and sizes. Some are more densely built and more
urban looking, while others are the traditional, modern American suburb with single-family homes.
Many American cities continue to maintain a more restrictive style code that limits specific residential
uses, types, and sizes while others have begun moving toward a more inclusive model of allowing
different styles, sizes, and housing types in residential areas.
Some different housing types compared to the traditional single-family home include accessory dwelling
units (ADU's), townhomes, and rowhouses. Expanding housing options can be as simple as adjusting the
number of allowable units and setbacks for lots. Development in residential neighborhoods can be
increased through small changes. Studying the existing districts and updating setbacks and other
restrictions can significantly impact helping our neighborhoods evolve and grow over time.
Vacant Land
The City currently has numerous unused or vacant parcels that could be brought into productive use.
Adaptive reuse of vacant structures is a strategy many cities use to revitalize downtowns. Prioritizing
infill development for the downtown area and the SE 4th Street District can help bring new businesses,
jobs, and residents. The City can also utilize Tax Incremental Financing (TIF) funding to support vacant
properties' acquisition and rehabilitation within the downtown and SE 4th Street commercial areas.
Partnering with local institutions and organizations to better utilize unused land as gathering spaces or
as a home for community projects and other efforts can help people see new land uses that may have
been unused/vacant for many years.
Development Standards
The City of Laurel currently has multiple development standards that include the Public Works
Standards, rules governing utilities, and subdivision development requirements. Adopting a consistent
and understandable set of development standards for areas within the City and its zoning jurisdiction
will ease the development process for residents, landowners, and developers.
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Extraterritorial Zoning
The extraterritorial zoning of Laurel extends approximately one mile outside the municipal city limits.
This current zoning district is classified as "Residential Tracts" and is focused on low-density residential.
The City needs to ensure that this zoning designation and its requirements still adequately cover county
residents' needs within the zoning jurisdiction. It is recommended that City staff ensure this
extraterritorial zoning can easily allow county residents to join the City if they so choose.
Infrastructure Extension
Planning for the expansion of city services and infrastructure is vital in bringing new growth to a
community. The City did not address long-term infrastructure and growth for many years. Installing new
infrastructure is expensive, but it is more costly to lose development opportunities that allow the
community to grow and develop.
Identifying and installing critical
infrastructure along major routes needs
to be a priority for city staff. There are
many opportunities to support these
infrastructure efforts through public
and private grants and loan programs.
Many grant programs exist to extend
infrastructure to support job creation
and economic growth. Grants such as
these can be used to expand
infrastructure to the recently completed
West Laurel Interchange.
New development and growth require
adequate infrastructure to support it.
Development of an Annexation Plan and
a Capital Improvement Plan can
establish the priority areas for growth and establish project costs for identified infrastructure needs.
Laurel has not previously prepared either of these types of plans. It would be wise for city staff,
partners, and stakeholders to study the possibilities for significant commercial and industrial
development in the area and plan infrastructure to accommodate these new land uses.
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Laurel Future Land Use, 2020
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Future Land Use Goals and Objectives
This plan's overall goal is to conserve open space while maximizing areas currently in and directly
adjacent to the City. Parks and greenways will be essential amenities for residential developments and
commercial corridors and should be considered in initial planning rather than as an afterthought. Zoning
will be updated to provide a more diverse array of housing types and density. Priority areas and parcels
for annexation and development will be determined, and infrastructure extension costs will be
discussed. Codes will be updated to maintain community character while simultaneously enabling the
development of new neighborhoods. Work in the central business district will focus on infill and mixed-
use development to create the most effective use of Laurel's traditional downtown.
Goal 1: Conserve open space and traditional land uses
Encourage cluster developments to incorporate open space into new developments
Provide options for landowners for conserving portions of their land
Study and Implement strategies to create an interconnected system of parks and greenways and
open space that are accessible to area residents
Goal 2: Develop downtown Laurel into a vibrant place to live, work, and play
Encourage mixed uses for living, working, and shopping local
Identify priority parcels for infill development
Implement Placemaking projects to create a more livable and enjoyable downtown
Partner with local groups to support community businesses, events, and gatherings
Connect with regional agencies to access project funding, receive technical support, and boost
the visibility of Laurel development opportunities
Goal 3: Update Subdivision Code to meet the needs of Laurel and the surrounding area
Provide clear and consistent standards
Ensure the proper scale and scope of regulations
Include trails, open space, and greenway considerations in parkland subdivision review
Regularly review and update the Subdivision Code as needed to remain current
Goal 4: Update the Zoning Code to provide for greater flexibility of allowable uses, clearer
requirements, and more efficient land use
Study the inclusion of different types of housing within residential districts
Update Overlay Districts, Parking Requirements, and the Sign Code to better fit the City's needs
and character
Allow mixed-use live/work opportunities in commercial areas
Enable property owners to use their land more effectively and efficiently
Goal 5: Use long term planning documents to identify funding and address priority needs
for infrastructure and development
Establish an Annexation Plan to develop priority growth areas and strategies
Develop a Capital Improvement Plan for vital infrastructure to support the City as it grows
Prepare a Commercial and Industrial Development Study for land adjacent to major
transportation routes in the Laurel area
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CHAPTER 7.5: ANNEXATION
Overview
The annexation of properties outside the current city limits must have Laurel remain a viable,
independent community. Annexing territory into a municipality helps a city grow geographically,
economically, and socially. Laurel's actual City has grown slowly over the past few decades, with very
few new subdivisions and parcels annexing into the City despite many developments in the surrounding
area. The City of Laurel and its residents seek to maintain their longstanding identity and character while
supporting steady growth. Due to the City's proximity to the fast-growing City of Billings, annexation is
now necessary to ensure Laurel's long-term viability, character, and independence.
Annexation planning is a long-term process in both scope and scale. Targets and goals are usually set for
a timeline of five and ten years, with performance measures in place to track progress. Implementing
successful annexation and growth activities involves thoughtful updates to local development and
annexation codes, addressing infrastructure gaps, and outreach to nearby county property owners and
developers to showcase the City's benefits.
Purpose
Annexation is presented in Title 7, Chapter 2. in the Montana Code Annotated that establishes the
Creation, Alteration, and Abandonment of Local Governments. Parts of this chapter sets the conditions
and rules for annexation and addition of territory into a municipality, establishes the ways areas can be
annexed and provides specific limitations to these processes for both municipalities and property
owners.
Annexation is a process that brings new territory into a municipality and extends public services to that
territory. Annexation is a necessary process to continue the growth and development of communities in
Montana. Adding new territory to a community adds new business opportunities, industry, recreation,
and residential developments. Annexation also provides an opportunity for new resources and
amenities to be added.
Importance
Laurel is currently at a crossroads in development. The City has not grown or expanded significantly in
the past few decades, while the nearby city of Billings has been steadily expanding westward toward
Laurel. Billings has established and implemented a long-term annexation and expansion plan while
Laurel has had piecemeal annexations and additions to the City. Laurel could find itself hobbled
financially if it does not address annexing new territory that can create growth opportunities as Billings
steadily expands into western Yellowstone County.
Proper annexation planning and implementation can lead to increased economic activity, new
residential development, and increased revenues for the local government to provide services. Growth
and expansion need to be an official part of Laurel's conversation to remain a viable, livable, and
autonomous community in the future. It will be necessary to update the current annexation policy to
ensure it provides reasonable restrictions, clear guidelines, and options and incentives to developers
and property owners who want to annex the City.
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Priority Areas
Establishing priority areas is essential for setting a plan for growth, starting discussions with property
owners and developers, and preparing projects. A map of the Laurel Planning Jurisdiction and priority
growth areas are presented on the next page.
Areas to the west of Laurel are a high priority for development due to their proximity to the City and
established transportation corridors. The annexation of territory to the west presents the most viable
options for growth. Roadways already serve this area, and there are adjacent services nearby. A high
priority should be placed on parcels between 8th Avenue and Golf Course Road, parcels neighboring the
intersection of Old Rt. 10, and the West Laurel Interchange.
There are many areas directly adjacent to the east of the City that would be prime candidates for
annexation in addition to the previously mentioned westward expansion. The parcels between Alder
Avenue and Yard Office Road, especially those along East 8th Street, should be considered and the lands
adjacent to the Village Subdivision. These areas are already closely linked to the City with roads and
services, and their inclusion would fill gaps in the Laurel City Map.
A few specific areas should be looked at for annexation north of the City as well. These include lands off
West 12th Street that straddle the big ditch, areas between Montana Avenue and Great Northern Road,
and the land neighboring 1st Ave North to Lois Place.
Growing the City of Laurel to the south is not a viable option because the CHS refinery makes up the
bulk of the land between Interstate-90 and the Yellowstone River. The costs associated with the
extension and construction of city services to those parcels adjacent to and south of the Yellowstone
River would be prohibitive due to the distances needed to extend infrastructure and the fact that
floodplain makes up much of the land adjacent to the Yellowstone River.
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Laurel Planning Jurisdiction and Priority Growth Areas, 2020
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Annexation Policies
Laurel has not annexed many territories in recent years. This lack of annexation can be attributed to the
2008 annexation policy, which many prospective developers consider draconian. Many property owners
and developers have remarked that the policy's strict requirements and its lack of alternatives and
options for infrastructure financing and build-out place too high a price on annexation to make it
feasible. Discussions should take place as to if this approved policy still serves the City's needs and what
policies and requirements would enable growth activities and annexation more fully. A future
annexation policy should also establish priority areas and specific goals over the next five to ten years.
Infrastructure Extension
Connection to improved utilities and services is the main driver behind annexing into a municipality.
Laurel has not developed a long-term plan around extending services that can enable property owners
to annex into the City more quickly. Developing a CIP will help Laurel prioritize growth areas and build
out public services to position Laurel for growth and attract new properties and development to the
City.
Annexation Goals
The following two goals were prepared to help the City of Laurel grow through annexation.
Goal 1: Adopt a long-range view for the growth of the City
Establish a growth-conscious set of policies to expand the City and its services
Create priority growth areas for extension of services
Develop and approve an Annexation Plan for the Laurel Planning Jurisdiction
Support the creation of a long-term Capital Improvement Plan for the extension of essential
infrastructure
Goal 2: Manage fiscal responsibility with established and proposed annexation standards
Ensure that the established standards are right and proper for the City of Laurel
Ease the burden for developers to annex into the City while meeting established standards
Allow greater flexibility in development patterns
Determine the cost and benefits of annexation
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CHAPTER 8: HOUSING
Overview
Housing is an essential element of any community. This chapter summarizes housing in Laurel and
discusses some housing support programs to help renters and current and prospective homeowners.
Having adequate, accessible, and affordable housing is an essential piece of what attracts people to a
community. The City of Laurel has a variety of housing options and housing types that provide options
for residents. It is crucial to maintain a wide array of housing that meets the market's different
demands, including rental properties, multifamily units, single-family homes, and retirement homes.
Laurel's location has made it an attractive bedroom community to Billings. This strategic location opens
opportunities for traditional neighborhood residential housing and embraces the growing trends of
building closer-knit, dense, connected neighborhoods for more urban and in-town development. It will
be necessary for the city to think about housing and real estate trends as it grows. This will ensure that
the current population's housing needs are met while creating housing that will interest prospective
residents and homeowners.
Households and Housing Units
Approximately 68 percent of Laurel's housing stock dates to before 1979. Aging housing stock can pose
issues for maintenance, safety, and accessibility. These issues can lead to the need for code
enforcement to step in to ensure the local ordinances are followed and that the situation has not
become hazardous or dangerous. Ensuring that new housing is built will provide new homeownership
opportunities and help raise the standard of housing available for residents.
2013-2017 American Community Survey 5-Year Estimates
Sixty-five percent of Laurel's housing stock is made up of detached single-family homes. Mobile homes
make up the next most significant share of housing at 15 percent of units. This proportion of detached
0
100
200
300
400
500
600
700
800
Built
2014
or later
Built
2010
to
2013
Built
2000
to
2009
Built
1990
to
1999
Built
1980
to
1989
Built
1970
to
1979
Built
1960
to
1969
Built
1950
to
1959
Built
1940
to
1949
Built
1939
or
earlier
36 19
172
255
446
770
325 342
116
511
Housing Structure Age
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single-family homes has been the norm for Laurel and many other cities and towns throughout the
United States.
It is important to think about current and emerging housing trends to embrace growth opportunities,
whether in a traditional residential neighborhood or more urban or downtown environments.
Units in Structure Estimate Percent
Total housing units 2,992 2,992
1-unit, detached 1,952 65.20%
1-unit, attached 87 2.90%
2 units 92 3.10%
3 or 4 units 103 3.40%
5 to 9 units 119 4.00%
10 to 19 units 48 1.60%
20 or more units 130 4.30%
Mobile home 461 15.40%
Boat, RV, van, etc. 0 0.00%
2013-2017 American Community Survey 5-Year Estimates
A move back towards traditional downtowns has also been seen across the United States. This trend
presents various opportunities for diversifying the type and size of housing options to include
rowhouses, townhomes, live-work (mixed-use) buildings, and more.
Housing Affordability
Many parts of the United States are facing issues with housing affordability. This affordability issue has
included some communities in Montana, such as Bozeman and Whitefish. Housing in Laurel has
generally remained affordable despite being located within twenty miles of the state's largest city. The
charts below provide an overview of both current housing value and rental expenditures.
2013-2017 American Community Survey 5-Year Estimates
10.51%8.03%
19.52%
30.66%
28.69%
2.59%
Housing Value
Less than $50,000 $50,000 to $99,999 $100,000 to 149,999
$150,000 to $199,999 $200,000 to $299,999 $300,000 to $499,999
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Rental affordability is an essential factor in retaining residents, especially those who may work in the
service and retail industries. Overall, 57 percent of Laurel residents spend less than 30 percent of their
income on rent. These statistics is a positive figure that allows a diverse array of residents to afford to
live in Laurel.
2013-2017 American Community Survey 5-Year Estimates
Housing Programs and Incentives
Many housing support and incentive programs exist that are sponsored by non-profits, institutions, and
state and federal agencies, including the following:
Montana Housing Support Programs
Bond Advantage Down Payment Assistance program
MBOH Plus 0% Deferred Down Payment Assistance Program
Multi-Family Coal Trust Homes Program
Housing Choice Voucher Program
Veterans Affairs Supportive Housing (HUD-VASH)
Project-Based Section 8
Section 811 Supporting Housing for Persons with Disabilities
The Federal Government also has several First Time Homebuyer Loans and Programs, including the
following:
FHA Loan Program
HUD - Good Neighbor Next Door Buyer Aid Program
Homepath ReadyBuyer Program
Energy Efficient Mortgage Program
HOME Investment Partnerships Program
12.81%
20.38%
5.79%17.93%
13.47%
29.62%
Rent as Share of Household Income
Less than 15.0 percent 15.0 to 19.9 percent 20.0 to 24.9 percent
25.0 to 29.9 percent 30.0 to 34.9 percent 35.0 percent or more
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Community Land Trust
Community Land Trusts (CLTs) are non-profits that hold land permanently in trust for communities to
make it available for housing, farming, ranching, commercial space, historic preservation, or open space.
These organizations separate the land price from the improvements made to it, investing subsidy, and
enforcing resale restrictions on properties to ensure permanent affordability. Trust Montana is a
statewide organization that assists rural cities and towns with managing community land trusts to
ensure they can maintain affordable and traditional land uses. CLTs serve an essential role in setting
aside land as a community asset for generations to use and enjoy.
Inclusionary Zoning
Inclusionary zoning is a land-use policy that incentivizes dense housing development through tax relief,
abatements, and bonuses. These zoning policies enable developers to maintain regular profits while
capturing a share of excess profits for public benefit. Inclusionary zoning utilizes feasibility studies to
analyze the impact of density and infill development on specific areas. Communities must carefully
weigh each incentive's costs and benefits and evaluate them relative to the affordable housing
requirements or goals. Incentives include:
Density Bonuses
Expedited Processing
Fee waivers
Parking reductions
Tax abatements
Housing Goals and Objectives
Goal 1: Encourage a mixture of housing types to meet the demand of all market sectors
Maintain a diverse array of housing and affordability levels
Promote higher density housing types in the downtown area and adjacent to major
transportation corridors
Study mixed-use housing and other alternative housing types and styles
Provide options for a full spectrum of housing from rentals to retirement housing
Goal 2: Provide information on housing-related grants, loans, and ownership programs
Develop a list of resources for renters and homeowners
Collect information on federal, state, local, and philanthropic rental and homeownership
programs
Advise Laurel area residents as to available support for housing, rent, and homeownership
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CHAPTER 9: INFRASTRUCTURE
Overview
The City of Laurel Department of Public Works operates the municipal water treatment and distribution
system, the wastewater collection and treatment system. It conducts maintenance and improvement
work on roads, streets, sidewalks, and parks. The City of Laurel has recently completed several major
infrastructure upgrades. These include an upgrade to the Wastewater Treatment Plant, an overhaul of
the Water Treatment Plant, installation of a new water Intake, and improvement of the sedimentation
basins at the Wastewater Treatment Plant.
There are still primary infrastructure needs that need to be
addressed. The City's water and sewer lines are aging, and in
many places are still the original lines installed around the time
of incorporation. A major priority is to study how to provide
services to the West Laurel Interchange area, which has
significant growth potential.
Opportunities also include expanding services to nearby county
residents to the north, west, and east of the current city limits.
There is a total of 2,858 water connections in the city system.
Exploring funding for the extension and improvement of water
and wastewater services to enable more annexation and
development is worthwhile. Additionally, funding the
expansion of the capacity of the City to handle stormwater
runoff is of vital importance in increasing the longevity of
streets, roads, and pedestrian areas.
The goals and objectives presented in this chapter are focused
on just a few critical areas. It is hoped that the City can
maintain an efficient and effective system of infrastructure and
services that meets the City's needs while establishing long-
term capital infrastructure goals to expand and improve
services. The City should seek federal, state, and philanthropic
grant and loan programs to support these goals and priorities.
Wastewater System
The City of Laurel's Wastewater Treatment Plant is located at 5310 Sewer Plant Road. It is staffed with
three operators and one relief. The facility was first constructed in 1908 and underwent substantial
upgrades in the 1930s and 1986. The Plant most recently underwent a significant upgrade that was
completed in 2016. The reclamation system is a Biological Nutrient Removal system (BNR). The facility
now conducts sludge dewatering as well. The new system has reduced nitrogen levels and phosphorus
being discharged into the Yellowstone River. Improvement of the Sedimentation Basins was completed
in 2019. The wastewater system has a capacity of 1,120,000 gallons per day. City staff should monitor
the current wastewater and sewer system to ensure that it can meet the growing demands of the City.
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Water System
The Laurel Water Treatment Plant is located at 802 Highway 212 South. An upgrade of the Water
Treatment Plant was completed in 2019. The Plant operates 24 hours per day and is staffed with six
employees plus management. The Water Treatment Plant has a treatment capacity of 5,000,000 gallons
per day. The Plant provides water service to more than 6,700 people and has a total of 2,858 metered
connections.
The Yellowstone River is the raw water source for the City of Laurel. A water right was filed in 1908,
giving the City access to 12,600,000 gallons per day. A water reserve was granted in 1978 that allowed
for the anticipation of future growth and added 6,380,000 gallons per day.
The original water distribution system was installed in 1908. There is currently one ground storage tank
built in 1967 with a capacity of 4,000,000 gallons, with 2,000,000 of them being usable and the other
2,000,000 creating pressure for distribution. Additionally, the City has two booster pump stations. Pipe
sizes in the system range from 2 to 18 inches in diameter. The 301 fire hydrants scattered throughout
the system are tested routinely to ensure they are working correctly.
The City provides water to all areas within the City Limits; however, 82 residential connections and one
industrial connection are outside the City boundary. Property owners in the county who are interested
in connecting to the City system must make all the necessary excavations and pay for all materials
necessary for connections. The current standards and regulations for public works and utilities require
developers to extend to utilities.
The Yellowstone River has provided adequate water for the City, but in recent years concerns have been
raised regarding enough flow due to erosion from flooding and droughts. The City has taken steps to
counteract these concerns through significant upgrades to the Water Treatment System. Upgrades and
improvements were completed on the sedimentation basins and the Water Treatment Plant in 2019.
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Additionally, a new water intake in the Yellowstone River was completed in 2017 to ensure a stable
water supply despite the changing nature of the river's course and level. One additional project that has
been identified is the need for a second water reservoir to create extra storage capacity as the City
grows. The City should include this in any future public works planning documents.
Stormwater System
Stormwater is collected and managed to prevent flooding, erosion, and contamination of water sources.
Water can carry pollutants such as oil, fertilizer, pesticides, soils, and trash as it runs off rooftops, paved
streets, highways, and parking lots after a rain event or during snowmelt. Stormwater can flow directly
into the Yellowstone River from a property or into a storm drain and through the city infrastructure until
it is released into the Yellowstone River. The three significant concerns of stormwater management are
the volume of runoff water, the timing of runoff water, and the potential contaminants the water is
carrying.
The City of Laurel has historically experienced problems with flooding in the downtown area. Flooding
activities are generally from heavy rain runoff and not directly due to the nearby Yellowstone River. The
City of Laurel has a limited stormwater infrastructure to handle stormwater runoff. The majority of
stormwater infrastructure is in the central business district and the South East 4th Street area.
Stormwater management has also been established for the Elena, Iron Horse, and Foundation
Subdivisions.
The City needs to address stormwater infrastructure within its current limits and as it expands. Creating
an adequate stormwater management system helps keep roadways in good condition and lessens
drivers' hazards in inclement weather. Stormwater system extensions should be considered during any
roadway planning procedure to ensure roadways improvements do not have to be recreated.
Solid Waste Services
The City of Laurel Public Works Department provides exclusive solid waste collection services within the
city limits. The City does not provide any solid waste collection services outside of the city limits.
Garbage services are not exclusive to parcels that choose to annex into the City as per Montana state
regulations. The City of Laurel operates the City's transfer station, which is located at 175 Buffalo Trail
Road. The transfer station provides added services such as taking in large or bulky items, tree branches,
and other unusual materials and pieces. Laurel utilizes the Billings Regional Landfill located nearby.
Infrastructure Goals and Objectives
Goal 1: Maintain an Effective and Efficient Public Infrastructure System that Adequately
Serves the Needs of the City
Develop a data-driven infrastructure maintenance schedule
Determine any existing gaps in services and other infrastructure deficiencies within the City
Adopt up-to-date infrastructure standards that are appropriate for the needs of the City
Study using public spaces within floodplains, watercourses, and wetlands to be used as passive
recreation areas such as parks and greenways
Study the feasibility of recycling programs and other means to reduce solid waste
Incorporate stormwater system planning into roadway and other infrastructure planning
processes
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Goal 2: Establish the Long-Term Capital and Infrastructure Needs for the City
Develop a Capital Improvement Plan for the improvement and expansion of infrastructure
Prepare a Water System Master Plan
Create a Wastewater System Master Plan
Complete a Stormwater Management Plan
Ensure infrastructure planning documents are routinely updated.
Confirm that the established infrastructure priorities are adequate
Goal 3: Seek out Possible Funding Sources for the Expansion and Improvement of
Infrastructure and Essential Community Services
Study the physical and financial needs for the extension of infrastructure to priority growth
areas.
Collaborate with Montana agencies on major projects and studies
Explore federal, state, and philanthropic infrastructure grant opportunities
Determine positive impacts from the expansion and improvement of infrastructure
Apply for funding opportunities that are appropriate for city priorities and projects and assist in
keeping user fees reasonable
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CHAPTER 10: TRANSPORTATION
Overview
Laurel is at the center of a major transportation network that includes local streets and sidewalks, state
arterials, railroad lines, and an interstate highway. The city itself was surveyed and built on a gridded
road network that provided orderly development for residential and commercial properties close to the
railroad, Old Route 10, and 1st Avenue, which run through Laurel's downtown. The establishment of
Interstate-90 near Laurel led to commercial development on the south side of the city. Subsequent
developments of residential subdivisions and commercial areas have not continued the original ordered
network, causing problems for road continuity, provision of services, and orderly and consistent city
growth at its boundaries. The railyard and numerous railroad lines bisect the city, separating
neighborhoods from each other and creating only two north-south access points, the 1st Avenue
underpass, and the 5th Avenue railroad crossing.
Connecting transportation decisions with land use policy is a crucial city goal. A priority for the city is to
develop a multi-modal approach to streets and pathways. The City will encourage intensive land use
within and adjacent to the city and along major transportation routes while ensuring residential
developments provide adequate and accessible pedestrian improvements to allow everyone to access
their community. Establishing a consistent maintenance plan to preserve, improve, and expand the
transportation network will provide current and future residents with an easy and effective way to move
around the city regardless of travel mode. The orderly growth of the transportation network will also be
essential to ensure neighborhoods and commercial areas are easily accessible to all. These
transportation goals help increase quality of life, connect people to their community, increase safety,
and plan for current trends and future growth.
Local Routes & Maintenance
Laurel's downtown core
and original
neighborhoods were
developed on a gridded
network of streets and
alleyways. Subsequent
developments have
strayed from this system
and have not followed any
set guidelines for road
connections or continuity.
This lack of orderly roads
and pedestrian systems
outside Laurel's traditional
core has created future
growth issues.
Very few existing streets allow for unbroken travel from the east to the west side of Laurel. New
development has taken place without considering roadway connections and traffic planning.
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Subsequent subdivisions and construction have not provided easements or right of way to continue city
thoroughfares, and structures were constructed within the path of right of ways. This lack of
forethought is especially apparent west of 8th Avenue, which has many roads that seemingly go
nowhere. It will be necessary for Laurel to establish specific guidelines to ensure adequate road
connectivity for traffic flow, safety, wayfinding, and the extension of future services.
Laurel has only two north-south road connections between its northern and southern neighborhoods.
The two connections are the 1st Avenue underpass and 5th Avenue railroad crossing. The nearest other
connections are Exit 437 for East Laurel and Exit 426 to Park City. Investigating other means of north-
south access and finding other connection points will improve emergency service response, ease traffic
along major routes, and improve accessibility to and from different city areas.
Many of Laurel's roads are also in dire need of repair. Many of the city's older local roads were built with
deficiencies and antiquated design methods, which now compound annual maintenance problems.
The city recently completed a study of its municipal road network that included an inventory and
provide solutions to the system's infrastructure deficits. Utilizing this study and updated development
and service standards will lead to improved road conditions and connectivity for Laurel residents,
businesses, and visitors.
State Highways
Two major state routes pass through Laurel. These are 1st Avenue, which forms the major north-south
route, and Old Route 10, which runs east-west and acts as Laurel's Main Street. These routes support
significant commercial and industrial traffic, resulting in congestion during peak hours at intersections.
Seeking mobility and safety improvements along these two routes is encouraged to create more livable,
accessible, and safer streets as the city updates its zoning code, subdivision code, and roadway
standards. A map of road classifications has also been provided to show further details of the Laurel
road network and other major streets and roadways in the city.
Federal Highways
Interstate-90 passes directly through Laurel. There are currently three off-ramps to access the highway,
the most recent of these just completed in 2020 on the city's west end. The interstate has been a source
of growth for the city, with many businesses locating in the SE 4th Street District adjacent to the
highway.
The Montana Department of Transportation recently completed a north-facing on/off-ramp west of
Laurel to connect to 19th Avenue West. This additional on/off-ramp is expected to alleviate some access
issues and provide new development opportunities. This additional access point is also anticipated to
bring new growth opportunities for the area. Planning for this growth and seeking out possible funding
sources to extend city services to this area is vital
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Railroad
Montana Rail Link operates the rail yard in Laurel. This yard has been active since the late 1800s and is a
historic asset to the transportation and economic sectors. The rail yard is a hub for freight and raw
materials heading through the area. Despite not being within the city limits, the railroad, CHS refinery,
and other industrial properties provide many benefits to the area by providing a healthy job base,
revenue to the school district, and lower tax rates for residential and commercial properties.
The railroad is a major asset to the area and hinders transportation in and around the Laurel area. The
railroad is not within the Laurel city limits, and as such, the city has little oversight of the activities taking
place. The rail yard and its lines split the city into a north and south side with only two north-south
connections, the 1st Avenue underpass, and the 5th Avenue crossing. The only other north-south
connections are the East Laurel Exit and West Laurel Exit on Intersate-90.
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Laurel Road Classifications, 2020
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Roadway Classifications
Interstate Highway (Principal Arterial)
o Primary through travel route
o Longest trip length
o Highest trip speed
Principal Arterial
o Serves major activity centers and includes corridors with the highest traffic volumes and
the city's longest trip length.
o Provides the highest level of mobility, at the highest speed, for long uninterrupted
travel.
Minor Arterial
o Interconnects principal urban arterials
o Provides continuity for rural arterials that intercept urban boundaries
Collector
o Designed for travel at lower speeds and shorter distances.
o Collectors are typically two-lane roads that collect and distribute traffic from the arterial
system.
o Collector roads penetrate residential communities, distributing traffic from the arterials
o Urban collectors also channel traffic from local roads onto the arterial system.
o Serves both land access and traffic circulation in higher density residential and
commercial/industrial areas
Local
o Largest element in the American public road network in terms of mileage.
o Local roads provide basic access between residential and commercial properties,
connecting with higher-order roadways.
o Provides access to adjacent land
o Short distance trips
Public Transportation
Laurel Transit was established in 2010 through grant
funding from the State of Montana to provide
transportation services to the elderly and disabled
population in the Laurel area. Laurel Transit
currently provides on-demand transportation
services within Laurel, its surrounding area, and
scheduled service to Billings. Laurel Transit operates
Monday-Friday, 10:00 am – 4:00 pm. The Billings
scheduled service route begins at 7:30 am. Laurel
Transit has connected with local and regional
agencies whenever possible to expand its services.
Discussions have previously taken place around the
viability of a fixed route system for the city of Laurel. These servuces are currently not feasible but
future growth and development in Laurel could also necessitate better in-town transit connections or a
commuter route to Billings.
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Funding Sources
Many state and federal funding sources exist for transportation projects that impact:
Road Safety
Alternative Transportation
Improved Mobility
Economic Development
Job Creation and Retention
Federal Agencies with available grants include:
Federal Highways Administration
U.S. Department of Transportation
Federal Transit Administration
U.S. Department of Agriculture
U.S. Environmental Protection Agency
Transportation Goals and Objectives
The three overarching transportation goals with objectives and strategies are as follows:
Goal 1: Preserve, Maintain, and Improve the Existing Transportation System
Update the Long-Range Transportation Plan (LRTP)
Establish a systematic approach for the maintenance and repair of the road network.
Develop a Capital Improvement Plan to identify and prioritize significant transportation projects
Establish a Road Network Master Plan to ensure street continuity, traffic flow, and
neighborhood connectivity,
Promote fiscal responsibility and high return on investment
Coordinate roadway improvement projects to coincide with underground infrastructure
improvements
Goal 2: Improve the Mobility, Safety, and Accessibility for all users and modes of travel
Implement bicycle and pedestrian improvements and traffic calming measures to transform the
downtown area into a pedestrian-friendly place
Create a looping bicycle/pedestrian trail and street system that connects different areas of
Laurel
Adopt pedestrian and multi-modal friendly transportation standards and safety measures
Explore options to improve and expand the Laurel Transit program and strategies to create
other multi-modal transportation connections.
Partner with local, regional, and statewide groups to further integrate Laurel into the more
comprehensive passenger transportation network
Goal 3: Connect Transportation Decisions with Land-Use Decisions
Integrate land-use planning and transportation planning to manage better and develop the
transportation network.
Utilize transportation projects to encourage intensive development patterns along significant
routes and existing areas of the City.
Adopt and implement consistent system policies and maintenance standards
Ensure the development of a sustainable transportation system that minimizes environmental
impacts
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CHAPTER 11: ECONOMIC DEVELOPMENT
Overview
Laurel has two traditional industries that have been the community economic pillars; the railroad and oil
refining. These two economic sectors play a significant role in the economy. Still, they have been joined
by many other services and businesses that diversify economic opportunity to include retail, education,
healthcare, and finance. Laurel has seen a decline in downtown and local businesses as Billings has
become more accessible, and online shopping and delivery become more readily used. Large and small
communities have been forced to compete more and more for businesses, workers, and growth
opportunities in an increasingly connected global economy. It will take significant effort to develop
Laurel as a community with a self-contained business ecosystem where local businesses and
entrepreneurs and larger statewide and national establishments can thrive.
Laurel's proximity to Billings is a smaller scale example of how different factors impact the local
community economy. Laurel has been considered a bedroom community to Billings due to its proximity
and number of Laurel residents who commute into Billings. It has also become easier for Laurel
residents to travel to Billings for food, shopping, and other services. If it were in any other county in
Montana, Laurel would be the center of economic development and business activities.
Laurel can still become a community where small businesses thrive, the downtown is healthy, and
entrepreneurs take the risk to open a business even with its proximity to Billings. Creating a more
attractive and active business community is not an impossible task. Goals have been established to help
develop Laurel independently while keeping it connected with Yellowstone County and the Billings area.
Studying and adopting policies to develop downtown Laurel into a destination to live, work, and play can
help breathe new life into the community. Focusing on resilient economic growth activities will create
both new activity and sustainable, long term economic stability. Increasing Laurel's collaboration and
communication with area groups can help connect stakeholders to business funding supports,
employment, and training opportunities that would otherwise not be available. Growth is anticipated on
the west side of Laurel. It is essential to plan for this growth by studying options for new commercial and
industrial properties in priority areas.
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The Local Economy
Workers in Laurel are employed in a wide array of industries. The following chart presents a visual
representation of the different industries and their percentage in those workforces. A diverse
employment base helps to ensure a stable and resilient economy. Improving the City's core sectors
while opening up new growth opportunities is an important objective to help keep the local economy
healthy.
Several major industries are located directly outside the city limits that have a large impact on the
community. These include the MRL railyard and the CHS refinery. These two industries provide many
jobs to Laurel residents and those residing within the Laurel planning jurisdiction. These anchor
industries provide livelihoods to many Laurel area residents and support other industries and businesses
in the Laurel planning areal. It will be essential to maintain good relationships with MRL and CHS to
coordinate growth efforts and adequately develop the Laurel area.
(2013-2017 American Community Survey 5-Year Estimates)
Economic Development Organizations
Various groups are active in the economic development field in the Laurel and Yellowstone County area.
Big Sky Economic Development and Beartooth Resource Conservation & Development serve the Laurel
community and have services available for businesses and residents. These agencies can help leverage
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funding and access to different state and federal programs to support local economic development
efforts.
Laurel Chamber of Commerce
The Laurel Chamber of Commerce
provides services to foster a healthy
business climate in the Laurel area for
business owners, employees, and
customers. The Chamber supports and
hosts many community events, including
farmer's markets, the July 4th Celebration,
and the Christmas Stroll. The Chamber has
also developed relationships with local
organizations and businesses to create a
better business climate, a thriving
downtown, and improve the community.
Big Sky Economic Development
Agency
The official mission statement of Big Sky Economic Development is "… to sustain and grow our region's
vibrant economy and outstanding quality of life, by providing leadership and resources for business
creation, expansion, retention, new business recruitment, and community development."
Big Sky Economic Development Agency (BSEDA) is the South-Central Montana region's certified
economic development authority. BSEDA directly serves a nine-county region, including Petroleum,
Wheatland, Golden Valley, Musselshell, Sweetgrass, Stillwater, Yellowstone, Carbon, and Big Horn
counties. BSEDA provides services and support for small business development, community
development initiatives, federal procurement assistance, tax increment financing assistance, workforce
development, veterans business assistance, and business financing.
The City of Laurel Planning Director is currently the Ex-Officio representative for the City of Laurel on
BSEDA's Board of directors. The Ex-Officio member represents the interests of the City on the Board and
communicates the position of the City to BSEDA's staff and partners.
Beartooth Resource Conservation & Development
Beartooth Resource Conservation & Development, or Beartooth RC&D, began in 1969 as a partnership
between the USDA Natural Resource Conservation Service and Carbon and Stillwater Counties to serve
that area. Beartooth is now an officially designated Economic Development District and has expanded its
support to Sweet Grass, Yellowstone, and Big Horn Counties. Beartooth RC&D provides technical
assistance and community development services to groups in the South-Central Montana region.
The overall mission of Beartooth RC&D is to improve local economic and social conditions by focusing on
the conservation, utilization, and development of the natural and human resources of the region. The
City has begun regular conversations with Beartooth RC&D to coordinate local economic development
efforts and be notified of ongoing work in the region. Keeping communication channels open and
collaborating on projects will help support Laurel's economic development and the surrounding area.
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Economic Development Objectives and Policies and Strategies
Four main goals and related objectives have been established that focus on Economic Development and
are as follows:
Goal 1: Develop downtown Laurel as a destination to live, work, and play
Institute placemaking projects to further enhance district character
Increase live-work opportunities for current and future residents and businesses
Apply TIF funding to beautification, blight removal, and public improvement projects
Identify and find solutions for unused or underused parcels as candidates for development
Goal 2: Create a resilient local economy
Strengthen core businesses and industries through communication and connections with
technical support
Ensure that local economic activities are inclusive and accessible to all stakeholders
Implement policies that create stable and sustainable economic growth
Work to highlight the shared benefits of working together as a community with local businesses
stakeholders, and developers
Provide an economic ecosystem that allows for a wide array of businesses, industries, and
developments to thrive
Study and implement policies to enhance local business demand and alternative strategies for
value creation for the community
Goal 3: Collaborate with area organizations to support economic growth and local
employment and training opportunities
Communicate with local groups to determine any needs and assistance
Create partnerships with local and regional groups to fill local service gaps and create needed
programming
Take part in events and workshops to support local business initiatives and activities
Establish common ground with local and regional groups to provide resources and assistance
Connect residents and businesses with like-minded economic, financial, and entrepreneurship
resources and opportunities
Goal 4: Study options for new commercial and industrial properties in anticipated high-
growth areas
Create a Corridor Master Plan for growth in and around the intersection with Old Route 10 and
the West Laurel Interchange
Study options and determine priorities for the possible establishment of Tax Increment
Financing Districts (TIFs) and Targeted Economic Development Districts (TEDDs)
Review and pursue opportunities for clustered commercial or industrial parks
Develop funding strategies to provide services for priority growth areas.
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CHAPTER 12: PUBLIC SERVICES AND FACILITIES
Overview
Municipalities provide numerous public services to their residents, businesses, and institutions. Effective
public services are vital for a community to thrive. Public services include fire departments, police
departments, parks and recreation programs, libraries, emergency medical services, and water and
sewer utility systems. Public officials need to take a lead role by planning and implementing expansions
and improvements of public services that maintain and improve their community's quality of life.
This chapter presents the array of public services operated by the City of Laurel and provides goals and
objectives to improve and expand those services to help the community better. A proactive approach to
public services can also lead to many benefits as newly established or upgraded services can incentivize
new development and growth. Effective public services show prospective residents, business owners,
and developers that the municipality is working to provide stable services while addressing future
service needs.
City Administration
Laurel City Hall is located at 110 West 1st Street. The City Hall contains offices for the City Clerk-
Treasurer, Water Department, Planning Department, and the Public Works Department. The City Hall
also contains the City Council Chambers, the Office of the Mayor, City Court, and related administrative
archives.
Laurel Police Department
The Laurel Police Department is a full-service department serving the community twenty-four hours a
day, seven days a week. The City of Laurel currently has 14 sworn officers employed by the City. Services
include patrolling for criminal activities and traffic violations, accident investigation, and misdemeanor
and felony crime investigation. The Department's service area is within Laurel's municipal boundaries
unless responding as backup to another law enforcement agency in the surrounding area. The Laurel
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Police Department works with the Eastern Montana Drug Task Force, (EMDTF) assists the Yellowstone
County Sherriff on calls near Laurel, and works closely with the Montana Highway Patrol.
The City of Laurel ensures that its officers are appropriately certified and trained above and beyond the
state requirements. Officers must pass a twelve-week introductory police officer course at the Montana
Law Enforcement Academy in the state capital of Helena. Furthermore, communication officers must
also attend and pass a one-week course for their additional responsibilities. The Laurel Police
Department also hosts its introductory reserve course annually for reserve officers.
The Laurel Police Department is currently located in the Fire-
Ambulance-Police Building (FAP building). The facility is shared with
the Fire Department and Ambulance service. The facility was built in
1976 and has seen several additions and renovations over time. The
FAP Building is aging and lacks many facilities that the departments
require. The Police Station lacks sufficient office space for its officers,
a breakroom, separate locker room facilities for male and female
officers, and the radio room lacks adequate fire control due to the
space required for department servers. This space also lacks secure
vehicle and equipment storage areas. It is essential that the city seek
out funding options to improve, expand, and construct new facilities
for the Police Department.
The Department is in need of a new facility. Planning should focus on construction of a new Police
Station to the West of the City to follow anticipated growth trends. This location is also a security
requirement for the Department. A westward location would be upwind from the Railroad lines and
Refinery complex which would be secure in the face of any major ecological, chemical, or radiological
crisis that might originate at these industrial and shipment points. Major elements for a future Police
Station include:
DUI Processing Rooms (secure with camera system)
Video Security system (specifically for animal storage, inventory, and evidence)
Separate Locker Rooms with bathing facilities and adequate locker space
Full kitchen/breakroom area
Secure and reinforced lobby area and front desk with audio system
Evidence storage rooms with processing rooms and secure lockers
Storage bays for larger amounts of evidence and vehicles
Secure weapons room for ammunition, weaponry, and cleaning supplies
Vehicle Storage area for Police vehicles and equipment under cover and secured.
Conference room for meetings, presentations, press conferences, and trainings
Department leadership has identified certain staffing needs for the department as Laurel grows. The
department needs a second Lieutenant position and a possible Captain position. These command
positions would provide more effective leadership for the patrol officers. The Department also plans to
add a Parking & Animal Control position in the near future. The department also needs additional
civilian positions filled including an additional dispatcher, and an evidence technician and executive
assistant to help with day to day duties.
The current policies and procedures for the Department date to 2014 and have not been updated due to
a lack of manpower and lack of time. Department leadership has identified the program Lexipol as a vital
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digital resource that will help to keep the department’s policies and procedures up to date. The
Department plans to contract with Lexipol to assist with updating policies, training, and overall helping
to keep law enforcement agencies current.
Fire Protection and Emergency Medical Services
Laurel Volunteer Fire Department
The Laurel Volunteer Fire Department (LVFD) has served the City of Laurel and the surrounding area
since its inception in 1909. The Mission statement of the Laurel Volunteer Fire Department is:
"Laurel Fire Department is committed to serving the City of Laurel, its residents, the surrounding fire
districts, and the visitors to our City for any of their emergency fire
rescue needs. We will do this through strong dedication and
commitment to our community with a long tradition guiding us to
what is important."
The LVFD provides full-service fire response service to the City of
Laurel, Laurel Airport Authority, Yellowstone Treatment Center,
Laurel Urban Fire Service Area, and Fire Districts 5, 7, and 8. These
services include structure fires, wildland fires, vehicle fires, industrial
hazards, water, ice rescue, vehicle extractions, Hazmat situations,
rope rescue, and public service calls.
It has been recognized that the LVFD needs to adapt to the changing
nature of fire services. It will be essential to improve the delivery of high-quality services to the
community by planning and implementing new policies. The LVFD has begun the development of a "Fire
Services Business and Work Plan" that presents information about the Department as well as goals and
objectives to improve and expand fire services. Goals presented in the Draft Work Plan include:
Finance – Develop avenues of revenue to offset costs for manpower, operations, and equipment
replacement
Equipment replacement – Develop a schedule for equipment replacement
Education – Communicate with city officials on the beneficial aspects of the current LVFD
structure
Training – Continue and expand training to evolve with ever-changing fire services
Communications – Develop communication lines between various groups at Department, local,
county, and state levels.
Performance Management – Evaluate Department on skills and abilities for career advancement
and adjustments to training needs
Construction of a New Fire Station – A new station will be necessary to meet a growing
community's needs.
Firefighters in Montana are required to complete a minimum of thirty training hours per year. Many of
the members of the LVFD regularly complete over 100 hours of training hours per year. Members of the
LVFD are allowed to travel to specialized schools and training sessions to learn new information and
share it with their fellow firefighters in the Department.
The LVFD is actively involved in the community through events and has held annual events such as Fire
Prevention Weeks and Safety Days. The LVFD also manages the fireworks display for the 4th of July
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celebration. The Laurel 4th of July celebration is well-known throughout the state and brings awareness
of the work of the LVFD.
The LVFD is currently set at 45 members to meet current community needs. The Department undertook
a reorganization in 2010 to better coordinate efforts. This reorganization allowed the Department to
meet any partially paid staff requirements for a department if the City of Laurel met the requirements
for a Second-Class city of 7,500 residents or more. The Laurel Volunteer Fire Department has a mutual
aid agreement with Yellowstone County Fire Services.
As previously noted, the Department is in the Fire-Ambulance-Police Building (FAP building). This facility
has three full bays and an extra half bay for equipment. The LVFD also has access to equipment bays at
the Laurel City shops as necessary. It is anticipated that an expansion of the FAP building or the
construction of a new facility will be necessary to cover the Laurel community's fire service needs long-
term adequately.
Ambulance Service
The primary mission of the City of Laurel Ambulance Service (LAS) is to provide quality pre-hospital
emergency medical services and transportation to medical facilities promptly and safely to those
residing, visiting, or traveling through the Laurel service area. The Department is a hybrid model, with
certain full-time positions and additional volunteers. The Department has a full-time director and five
full-time Emergency Medical Technicians (EMTs). LAS staff are trained to provide at least a minimum of
Basic Life Support (BLS) assistance. They also have the necessary endorsements from the state to
provide other advanced services.
As previously noted, the LAS is located at the Fire-Ambulance-Police building. The FAP building has space
for three ambulances, restrooms, a crew lounge, offices, a small kitchen, and storage rooms. The
building also has a community meeting room attached. The City needs to consider options for upgrades,
expansions, or new facility locations to improve emergency services.
School District
The Laurel School District serves the City of Laurel and the surrounding area. The District instructs 2,100
students in total. The District maintains instructional levels from Kindergarten through twelfth grade (K-
12). The grades are grouped as follows:
Kindergarten through 4th grade – Elementary School
Grades 5 through 8 – Middle School
Grades 9 through 12 – High School
The Laurel School District currently operates five school buildings that include:
Laurel High School
Laurel Middle School
Fred W. Graff Elementary
South Elementary
West Elementary
The Laurel School District's Mission is: "Dedicated to the individual development of each student, every
day, without exception." Students are assigned to a classroom or group depending on what will best
serve that student. Considerations are made for class size, peer relations, student/teacher relations, and
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teaching instructional style. The School District also has administrative offices located at the old Laurel
Middle School at 410 Colorado Avenue.
The Goals of the Laurel School District are:
To deliver a quality educational program that promotes both academic success and the overall
development of every student.
To meet the needs and skill level of each student.
To promote high student expectations, the importance of lifelong learning and creative/critical
thinking.
To provide the students with a strong desire to learn.
To foster self-discovery, self-awareness, and self-discipline.
To develop an awareness of and appreciation for cultural diversity.
To stimulate intellectual curiosity and growth.
To provide fundamental career concepts and skills.
To help the student develop sensitivity to others' needs and values and respect for individual
and group differences.
To be free of any sexual, cultural, ethnic, or religious bias.
The District previously established goals for District growth in a 10-15 Year Master Facility Plan. This plan
included developing a new facility for grades 3 through 5 and a transportation facility, the remodeling of
existing schools, relocating administrative offices, selling aging district-owned structures, and addressing
inadequate learning environments in certain facilities. The District developed these goals to grow with
the community and adapt when necessary and will be updating their Master Facility Plan in 2021.
Public Library
The Laurel Public Library was created in 1916 via ordinance and opened to the public on July 18, 1918.
The Library was first established at 115 West 1st Street, the site of the current City Hall. The Library
relocated to its current facility at 720 West 3rd Street in 1989 after fundraising by volunteers, and the
Library Board allowed for the move. The Laurel Public Library serves the citizens that reside within the
city limits. Yellowstone County residents are served without cost. Stillwater and Carbon County
residents can also apply for and receive a library card. The Library's mission is to provide a "place where
community members can grow, teach, and interact in mutual benefit with others."
The current library facility is approximately 6,000 square feet and contains four wings. The Library's
clients' general needs are met by the current building, but improvements have been discussed.
The Library could be improved by expanding the building to include a storage room, meeting rooms, and
small study rooms. The needs of library clients have been growing, and the Library will need to grow
with them.
The Library does not have any specific sharing agreements with the Parmly Library in Billings or other
regional libraries. The Library is currently part of the Montana Shared Library Catalog Consortia by
agreeing with the Montana State Library. This consortium comprises more than 140 libraries across the
state consisting of public, academic, and particular library types.
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Public Services and Facilities Goals and Objectives
Effective and efficient public services are a necessity for existing and prospective residents, developers,
and businesses. Above all, public facilities and services must be accessible, helpful, and dependable for
everyone residing, working, and visiting the City. City staff should identify the current gaps and
projected needs of public facilities as the City grows. It is vital to work with public stakeholders and
departments to ensure input and projects positively impact the whole population. Providing consistent
and stable service delivery is paramount.
Goal 1: Provide consistent and high-quality public services to the community
Develop standard operating procedures to ensure consistency for city departments
Develop maintenance procedures for parks, facilities, and public areas.
Study current facilities and services to identify gaps and determine projected needs in services
Goal 2: Respond to the changing nature of the community
Plan for the expansion of public facilities in priority growth areas
Invest in public facilities that are accessible to everyone in the community
Study how to improve city services to boost the quality of life for residents, businesses, and
institutions
Goal 3: Work with city departments and local stakeholders to determine the priority
expansion of public facilities and services
Open lines of communication between city departments and local stakeholders to gather input
on major projects
Consider the public service requirements of large-scale projects before their approval and
implementation
Develop plans for the expansion of Fire, Police, and EMS facilities
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CHAPTER 13: RECREATION PLAN
Overview
Access to recreational opportunities and parkland is a critical component of quality of life for
communities, especially Montana communities. The parks and public areas owned and maintained by
the City of Laurel are assets to local and area residents. Access to walking, biking, hiking, and other local
amenities help boost residents' and visitors' quality of life. Many cities and towns have begun
establishing greenways and trails to connect parks and open spaces with local neighborhoods.
Incorporating these into Laurel planning and development strategies can help enhance livability and
help residents be healthier and more active.
The City should consider
developing a vision for the
Laurel parks system that
would establish priorities for
park funding and placement
of parks that would be most
useful for residents. Creating
a connected park and trail
system would enable
residents to enjoy more parts
of Laurel and the surrounding
area.
Many of Laurel's parks are
very small, with some
located at less than ideal or
fully accessible locations. Parkland must be a fully useable amenity for residents. Parks should be
developed and improved to act as neighborhood focal points. The City should also study underutilized or
burdensome parkland parcels and consider reuse scenarios.
Repurposing vacant or underused land as parks and trails can create many added benefits for a
community. Downtown Laurel currently has large areas of vacant land owned by the BNSF Railroad and
leased by MRL. Studying options for low impact reuse of this land as parkland or greenways could
enliven downtown by activating the south side of Main Street, creating more opportunities for residents
to spend time downtown, and creating more public space for events or gatherings.
Riverside Park has been a staple of the community for almost one hundred years. The Riverside Park
Master Plan was developed in 2018 to provide a blueprint for improvements and the park's use. It will
be essential to continue the ongoing improvement efforts detailed in that plan and develop policies to
attract Yellowstone County and beyond. Riverside Park should be maintained as a historical,
recreational, and economic asset in the future.
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City Parks
There are many public parks throughout the City of Laurel. Some of the larger, more established parks
are listed below. There are also many smaller unnamed parks throughout the city.
Thomson Park
Russell Park
Nutting Park
Kiwanis Park
Murray Park
South Pond
Riverside Park
Lions Park
MT State Firefighters Memorial Park
Parks Funding, Governance, and Operations
The Public Works Department is responsible for maintaining and improving park facilities. Public Works
provides staff time and funding toward the upkeep of park facilities. The City of Laurel Park Board
comprises volunteers who provide oversight and input on park operations, maintenance, and activities.
Riverside Park is an essential historic asset for the city, the region, and Montana. Many private and
public groups are active in this park's historic preservation, including the Yellowstone Historic
Preservation Board that helps to support preservation and improvement efforts in Riverside Park.
Community Sponsored Events
Community sponsored events are an effective way to get residents outside, engaged with nature, and
connected to their community. Laurel has a history of hosting popular events that get people outside
and active. City staff and local stakeholders should continue to work together to promote outdoor
events to encourage people to be more active in the community.
Laurel hosts several events throughout the year. The July 4th festivities include the Chief Joseph Run,
pancake breakfast, parade, and fireworks celebration. Laurel also hosts an annual Christmas tree lighting
event downtown, farmer's markets, and other seasonal events throughout the year.
The city's parks are a focal point for residents and visitors. They represent an important asset that
makes Laurel a better place to live. City staff should partner with local groups to support community
events and create more opportunities for recreational activities and outdoor enjoyment in the city's
neighborhood parks.
Recreation Objectives and Policies and Strategies
Goal 1: Develop parkland as an essential and enjoyable amenity for residents
Ensure new developments have appropriate park space for recreation and general use
Study how existing parks can be improved through new facilities, changed layouts, or additions
Review current park infrastructure and determine if improvements are necessary to serve the
needs of the surrounding area better
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Goal 2: Promote Riverside Park as a vital historic, civic, and recreation resource for
residents and visitors
Adhere to the projects and strategies presented in the 2018 Riverside Park Master Plan
Seek grant funding for structural and site improvements
Develop historic markers for Riverside Park and its historic structures
Study options for connecting Riverside Park to the city proper through infrastructure
improvements, civic engagement, or other means
Establish signage and marketing for the assets and resources of Riverside Park to area residents
and visitors
Goal 3: Create an interconnected system of parks, greenspace, and trails that are accessible
to all
Create a city-wide Park System Master Plan to develop project priorities
Consider the creation of a City Parks Department to oversee park operations and maintenance
Identify unused land that can be transformed into green space or trails for use by the public
Update the zoning and development codes to encourage the creation of bicycle and pedestrian
trail corridors
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CHAPTER 14: NATURAL RESOURCES
Overview
The Laurel planning jurisdiction contains a variety of terrains and environments. The city itself is
urbanized and is surrounded by several residential subdivisions. A variety of farmland, grazing land,
riverine areas, and wetlands surround the city and make up much of the planning area. Laurel's natural
features pose unique opportunities and challenges that should be considered when planning for growth.
The natural environment should be preserved and enhanced to balance environmental sustainability
with economic growth, recreational opportunities, and development. Natural resources and the natural
environment can be balanced with growth activities to provide social, economic, and community
benefits to people over time while continuing their natural functions. The proximity to natural areas
such as parks, trails, and other open spaces is an essential variable for many people as they choose
where to live and work.
The Laurel area is an interconnected network of land and water resources that contribute to the
community's health, economic well-being, and quality of life. This network of natural resources requires
investment and maintenance, just like roads and utility systems. Creating a balance of conservation,
management, and growth can reward a community with excellent benefits, including increased quality
of life, longer-lasting infrastructure, and improved property values.
Groundwater Resources
Groundwater quality and quantity will become a growing concern as Laurel and the surrounding area
develops. Traditional modes of living will shift because of groundwater issues. The direct impact of
development in the area will be a reduction of groundwater recharge capacity. Groundwater recharge
has averaged 8.2 inches per year but depends on the specific land use and soil type. The planning area
contains relatively thin alluvial gravel deposits of groundwater. The average saturated thickness of local
aquifers is fifteen feet, with the thinnest saturated zones occurring along cliffs and bluffs and the
Yellowstone River's channel.
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Wildlife Habitat
Rivers, Streams, and Lakes
It is important to recognize the Yellowstone River as a critical asset to Laurel. The Yellowstone River
provides a stable water source for the city and recreational opportunities and riverine wildlife habitat.
Maintaining the Yellowstone River as a resource is a complex job that includes managing the river
ecosystem, monitoring historic water rights, and considering the local community's needs for economic
and residential uses.
There are also many year-round
and seasonal drainage and
irrigation ditches that carry water
through the city. These ditches
include the Nutting Drain Ditch, Big
Ditch, High Ditch, and Cove Ditch.
Flooding is known to occur
intermittently near the ditches.
High water levels on properties
near the ditches are a concern for
property owners seeking to develop
their property.
Floodplains
A floodplain is an area of land
adjacent to a stream, river, or other
water sources that stretches from
the banks or boundaries of its channel to the base of higher elevation terrain that experiences flooding
during high discharge rainfall periods. Floodplains are natural drainage basins for the discharge of heavy
precipitation. The Yellowstone River exhibits vast floodplains and variations in flow due to terrain.
Flow rates are dependent upon the season and the amount of rain and snowmelt. Flows are usually at
their highest during the spring months and into early summer.
The Federal Emergency Management Agency (FEMA) utilizes the 100-year floodplain boundaries as the
standard measurement for floodplain regulation. The 100-year floodplain is the area that has a one
percent chance of flooding each year from a specific water source. The federal government expects
municipalities and counties to take a proactive approach to flood damage prevention. Laurel has had an
established Flood Insurance Rate Map (FIRM) since 1982. This map was most recently updated in
November of 2013.
Most of the Laurel planning area is outside the 100-year floodplain. The areas within the 100-year
floodplain include many properties directly abutting the Yellowstone River and its tributaries, some
irrigation and stormwater ditches running through the city, and portions of downtown Laurel along
Main Street as well as directly adjacent side streets. Laurel's Riverside Park is also within the floodplain.
Wetlands
Wetlands are ecosystems that are flooded by water permanently or seasonally. Wetlands have unique
vegetation, wildlife, and hydric soils. Wetlands near Laurel include riparian areas along the Yellowstone
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and Clark's Fork Rivers, marshes, spring seeps, and prairie potholes. Wetlands have historically been
obstacles and have been removed whenever possible. Much of Laurel and the surrounding area suffers
from high groundwater. Close attention must be paid to high groundwater and its impacts on public
utilities such as water lines, sewer lines, and stormwater drainage systems. It is vital to understand
wetlands and their traditional role in the environment to better plan for growth and development.
Agricultural Land
The U.S. Department of Agriculture's Natural Resources Conservation Service (NRCS) defines prime
farmland as land with the best combination of physical and chemical characteristics for producing food,
feed, forage, fiber, and oilseed crops. These crops also have the soil quality, growing season, and
moisture supply needed to produce economically sustained high crop yields when managed
appropriately.
Laurel and Yellowstone
County have been home to
agricultural farms and
ranches since the
beginning of European
settlement in the area.
There a vast amount of
agricultural farmland
within the Laurel planning
jurisdiction itself. The map
below presents the
varieties of crops in the
Laurel planning area.
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Wildland-Urban Interface
Laurel was part of the planning process for the Community Wildfire Protection Plan in 2006. A Wildland-
Urban Interface (WUI) map was prepared as a part of this process. The planning process's goal was to
improve fire prevention, reduce hazardous fuels, restore, fire-adapted ecosystems, and promote
community assistance.
Yellowstone County has a diverse ecosystem with an array of vegetation that has developed with, and
adapted to, fire as a natural disturbance. Decades of wildland fire suppression and long-standing land-
use practices have altered the plant community. They have resulted in dramatic shifts in the types of
fires and local species composition. Rangelands and farmland in Yellowstone County have become more
susceptible to large-scale, high-intensity fires that threaten life, property, and natural resources because
of these long-term practices.
Natural Resource Goals and Objectives
Goal 1: Protect Laurel's natural resources and traditional environment
Provide options for landowners for conserving portions of their land while developing others
Achieve a balanced pattern of growth to ensure environmental concerns are considered during
the development
Manage the local water resources as a healthy, integrated system that provides long-term
benefits from enhanced environmental quality
Goal 2: Incorporate sustainable development patterns in the Laurel subdivision and land
use codes
Review and update existing zoning and subdivision regulations to ensure environmental
preservation and conservation are addressed
Review and update landscaping ordinances as needed to best suit Laurel's natural environment
Manage rivers, floodplains, wetlands, and other water resources for multiple uses, including
flood and erosion protection, wildlife habitat, recreational use, open space, and water supply
Goal 3: Connect with local, regional, and state agencies and stakeholders to improve the
natural environment in and around Laurel
Sponsor environmental cleanup and rehabilitation programs that include the City, school
district, community organizations, and residents
Participate in regional watershed studies to achieve adequate long-term flood protection
Explore the possibility of creating a conservation corridor along the Yellowstone River
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CHAPTER 15: GROWTH POLICY IMPLEMENTATION
Overview
The 2020 Laurel Growth Policy is a significant upgrade of the existing Growth Management Plan. The
previous Growth Management Plan provided very useful information regarding existing community
characteristics as well as trends that had future implications for the community, but it did not provide
specific recommendations regarding how the community might best address existing and emerging
issues.
The content of this chapter is critical to compliance with state law and provides necessary details for the
Laurel community to be eligible for various funding programs and resources. The chapter is organized
into two primary sections as follows:
1. Section 1: Identification of tools available to Montana cities to help implement the growth
policy; and
2. Section 2: Fulfills a specific requirement in Montana State Law requiring growth policies to
evaluate jurisdictional subdivision regulations in the following three ways:
a. Identification of how local government defines various impact assessments as specified
in the law
b. Addressing how public hearings for proposed subdivisions will be conducted, and
c. Addressing how the local government will make decisions with respect to various impact
assessments
In addition, the second section identifies specific objectives, policies, and strategies for six planning topic
areas which are also outlined throughout the Growth Policy text:
Land Use
Housing
Infrastructure
Economic Development
Public Facilities and Services
Intergovernmental Coordination
In some cases, the topic areas identify specific resources and programs that are available to help
implement strategies identified for each topic area. Objectives are also listed, and for each identified
objective, there are recommended implementation measures. The implementation measures are either
recommended policies or strategies. Recommended policies reflect the intent of how a governing body
might address a planning topic or issue through policy. Strategies reflect a specific course of action that
a governing body might utilize to address a specific planning topic or issue.
Implementation Tools
This section identifies several types of Growth Policy implementation tools. Generally, there are five
types of tools at a local government’s disposal to help implement a growth policy. They include:
Regulations: Regulations are generally outlined and authorized by Montana Code Annotated
(MCA) and adopted into law by local government.
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Policies: The Growth Policy and other adopted plans contain policies that express the
community’s interest in pursuing a course of action on topics and issues. Unlike regulations,
local government has discretion in the implementation of policies.
Government Finance: Government finance tools represent the community’s financial
commitment to fund the implementation of policies and strategies outlined in the Growth
Policy.
Education: Educational tools, such as the growth policy itself, include several activities that
inform the public, appointed officials and elected officials that facilitate effective decision
making.
Coordination: Coordination tools are voluntary measures in the local government or between a
local government and other local, state and federal government or agency that result in more
efficient and effective delivery of services or a shared response to a common concern.
A discussion of each of the types of growth policy implementation tools is provided below. The tools
described are not all inclusive but rather are intended to provide examples of tools that are commonly
used by communities in Montana. Several of the tools are already being utilized by the City of Laurel.
The tools not in use may be considered as additional means to advance the implementation of the
Growth Policy.
Regulatory Tools
Subdivision Regulations
MCA requires counties to adopt subdivision regulations that comply with the Montana Subdivision and
Platting Act. Subdivision regulations control the creation or modification of the division of land into new
parcels or tracts. They also control the design of subdivisions and provide standards for adequate
provision of infrastructure without adversely impacting public services and natural resources.
The City of Laurel has adopted subdivision regulations that are enforced in the City or on lands proposed
for annexation into the City. Subdivision regulations will need to be updated to be consistent with this
Growth Policy and must include any amendments made during the 2020 Montana Legislative session.
Zoning Regulations
Zoning regulations are a common regulatory tool to control land use. One of the primary purposes of
zoning regulations is to minimize land use incompatibility. Zoning regulations also establish standards
that limit the density or intensity of development as well as other characteristics of development such as
off-street parking, signs, lighting, site layout, etc. Zoning regulations are supplements to a zoning map
that establishes zoning districts in the jurisdiction. The zoning map provides the means to separate
incompatible land uses and zoning regulations mitigate potential land use incompatibilities at the
boundaries separating different zoning districts.
The City of Laurel adopted zoning regulations in 2001. Over the years, several amendments have been
made. The city is in the process of reviewing a comprehensive update to the zoning regulations as
prepared by their planning consultant. Pursuant to MCA, the City of Laurel can establish extraterritorial
zoning jurisdiction up to one mile beyond the city limits if Yellowstone County and the city create the
extraterritorial area and provide for joint administration.
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Design Standards
Design standards are most often contained within zoning regulations but can also be established in
subdivision regulations. The purpose of design standards is to enhance the appearance and functionality
of a development. Overly restrictive design standards can impede development. If properly crafted,
design standards can significantly enhance the built environment without placing undue burdens on a
developer.
Floodplain Regulations
Floodplain regulations are intended to regulate the use of land located within an officially designated
100-year floodplain in order to protect buildings and occupants from the risks associated with flooding.
Floodplain provisions are contained in the subdivision regulations. Some communities choose to
participate in the National Flood Insurance Program Community Rating System (CRS). CRS is a voluntary
incentive program that recognizes and encourages community floodplain management activities that
exceed the minimum NFIP requirements. Any community in compliance with the minimum
requirements of NFIP may participate. Participation in the CRS results in discounted premiums for flood
insurance policy holders; between 5 to 45 percent depending on the rating of proposed floodplain
management activities, reducing the likelihood or magnitude of damage resulting from a flood.
Zoning Compliance Permits
Zoning compliance permits ensure that development activities comply with zoning regulations. The City
of Laurel requires the issuance of zoning compliance permits for most types of improvements to private
property.
Building Permits
Building permits are utilized to ensure that construction of buildings follows the State of Montana
Building Code. Building permits are required for all buildings over two hundred (200) square feet. Most
residential building permits are issued by the City Building Inspector but permits for commercial or
residential buildings with five or more dwelling units are issued by the State.
Policy Tools
Neighborhood or Area Plans
The Growth Policy can be further implemented by more detailed neighborhood or area plans. With the
adoption of the Growth Policy, plans may be prepared that provide a greater level of detail for specific
areas or issues as the City finds need.
Annexation Policy
A city expands its boundaries and its jurisdictional authority through the process of annexation. There
are six different methods for annexation authorized by state statute (Parts 42 through 46 of Title 7,
Chapter 2, MCA). Part 46 authorizes an annexation resulting from a petition from private property
owners.
Cities use two tools to facilitate and guide future annexations. The first is a “Limits of Annexation” map
that delineates the areas surrounding the city that can be reasonably supported by urban services and
infrastructure. The map is prepared in coordination with the preparation of a capital improvements plan.
The second is the use of annexation agreements. Entering into an annexation agreement with a property
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owner prior to the submission of development plans gives a local jurisdiction the opportunity to assign
infrastructure and other costs associated with development of the annexed property.
Urban Planning Area
Urban planning areas are different than Extra Territorial/City-County Planning areas. An Urban Planning
Area focuses on extension of infrastructure over a portion of the City-County Planning Jurisdiction and
typically for a shorter time horizon than the jurisdictional area associated with the City-County Planning
Jurisdiction.
Designation of an urban planning area is utilized for the extension of urban services as a jurisdiction
grows. It delineates the geographic extent of how far outside the city limits the jurisdiction is prepared
to extend urban services within a 10-year planning horizon. This is often accomplished by establishing an
urban service area boundary beyond the city limits. The urban service area boundary is established in
coordination with planned growth areas identified in the Growth Policy as well as the city’s capital
improvement plan. This tool helps a city plan for future growth outside the city limits and puts property
owners outside the city limits on notice of what areas will and will not be supported by the extension of
urban services.
Urban Renewal Districts
The establishment of urban renewal districts facilitates redevelopment of specifically selected areas in
the city. Title 7, Chapter 15, Part 42 of the MCA gives municipalities authority to establish urban renewal
districts in areas that meet the statutory definition of “blighted” areas and authorizes the municipality to
expend funds in the area to stimulate private investment.
Tax increment finance (TIF) districts are often used to recapture the city’s expenditure of funds for public
improvements in the redevelopment area. TIF districts use the incremental increase in tax collections as
blighted areas are redeveloped or other improvements are made to properties within the district. It is
this increment that is used to retire debt to install the additional or new capital infrastructure.
Municipalities are required to prepare and adopt an urban renewal plan prior to establishing an urban
renewal district. For more information see the TIF Section under Government Finance Tools.
Government Finance Tools
Capital Improvement Programs
City and county governments often program capital improvements on an annual basis. This is a
reasonable practice for communities experiencing minimal or no growth activity. However, the use of a
multi-year capital improvement program is an important tool to plan for public expenditures when
communities are experiencing or anticipating high levels of growth. In such cases, a local government
may establish a five-year capital improvement program. As noted above, a multi-year capital
improvement program can support the establishment of urban service areas and facilitate negotiation
of an annexation agreement.
Fee Incentives
The reduction or full waiver of municipal fees can be utilized to support implementation of specific
growth policy goals and objectives. Often the financial incentive is used to support affordable housing or
redevelopment projects. The tool can also be used to support specific economic development policy.
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Impact Fees
An impact fee is a charge on development assessed at the building permit or zoning compliance permit
stage of a project to assist the funding of new or expanded facilities that are needed to accommodate
the development. Impact fees are used by communities anticipating or experiencing high levels of
growth and are intended to maintain existing or minimum levels of service with minimal costs to existing
property owners.
Impact fees can be assessed for a wide range of community services including but not limited to public
safety (EMS, police and fire), public works (sewer, water, transportation and drainage facilities),
recreation, libraries, etc. Citizens who are assessed impact fees need to receive benefit from impact fee
expenditures within a reasonable period, which most often is five years.
Local Government Owned Land
Land that is owned by local government, including school districts, is a valuable resource that can be
used to implement growth policy goals and objectives. Undeveloped public land may be used to
financially leverage private development that meets a community’s high demand need. By reducing or
eliminating land acquisition costs the jurisdiction provides a significant financial incentive to facilitate
development that supports the implementation of land use, housing or economic development policy.
When this implementation tool is used the local government should consider entering into a
development agreement to ensure the developer provides the desired outcome.
Tax Increment Financing (TIF)
Tax Increment Financing (TIF) was first authorized by the Montana legislature in 1974. It is a locally-
driven funding mechanism that allows cities and counties to direct property tax dollars that accrue from
new development, within a specifically designed district, to community and economic development
activities within that district. It is intended as a tool that can encourage and support investment in areas
where growth has been hindered by a lack of infrastructure and/or the presence of blight.
TIF does not increase property taxes for individuals and businesses located within a designated district. It
only affects the way that taxes are distributed after they have been collected. A base taxable value is
determined upon the establishment of a TIF district, and any additional tax revenue that accrues due to
new development over a specified time frame is used to finance a variety of district improvements.
Eligible improvement activities include:
Land acquisition
Rehabilitation and renovation
Demolition and removal of structures
Planning, marketing, and analysis
General redevelopment activities
Constructing, improving, and connecting to infrastructure
Education Tools
Planning Studies and Data Collection
The Growth Policy provides significant information and data on the community’s various characteristics.
It also provides an extensive list of policies and strategies to implement growth policy objectives. In most
cases the information and data contained in the growth policy will be enough to justify and implement
the policies and strategies. However, there may be cases where the community will need to conduct
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more detailed follow-up planning studies and collect additional information to support an
implementation activity. Establishing impact fees or urban renewal districts are examples of
implementation measures requiring additional study. As discussed below, ongoing collection of data will
support Growth Policy monitoring.
Growth Policy Monitoring
The recommended policies and strategies contained in the Growth Policy are based on an assessment of
current information and data. Policies and strategies remain relevant so long as conditions in the
community are aligned with current trends. However, unanticipated circumstances or opportunities are
likely to arise that will warrant a re-evaluation of policies or strategies whether they have been
implemented or not. To support a re-evaluation of policies or strategies, data that is applicable to
planning topics should be collected and reported on an annual basis. This data will, in effect, provide
community indicator information allowing the community to identify the emergence of new trends.
It is recommended that the City consider preparation of an annual community indicator report that can
be used to support an evaluation of the level of success in achieving community goals and objectives,
and an assessment of the need to implement or revise selected policies and strategies contained in the
Growth Policy. Annual community Indicator reports also provide valuation information that can be used
in the next update of the Growth Policy. The reports can also be used to justify need when requests for
outside funding are made.
Community indicator reports should provide information that can be compared to information
contained in the Growth Policy, so change can be measured. Annual community indicator reports should
include, but are not limited to an assessment and review of the following information:
Building permits for new housing
Volume of sales of residential property (Laurel Real Estate MLS Service)
Crime statistics (Laurel Police Department)
Client caseloads for senior citizen programs (Yellowstone County Council on Aging)
Number and type of new or expanded businesses
Number and type of new jobs created (Montana Department of Labor and Industry)
Tax revenue
School enrollment
Levels of participation in recreational programs
Remaining capacity of sewer treatment facilities
Remaining capacity of the landfill
Updated population projections prepared by the Montana Department of Commerce
Annual departmental budget reports/requests
Medical Facility programming/services
Coordination Tools
Intra-Governmental Coordination
The functions of local government are logically divided into departments. The departmentalization of
local government services tends to discourage the sharing of information and coordination between
departments. Too often synthesizing information from the various departments to get a holistic view of
the community is solely the responsibility of the elected officials and most often occurs during
preparation of annual budgets. It is recommended that Laurel consider the timely sharing of department
reports with staff members responsible for overseeing implementation of the Growth Policy.
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In addition, the City might consider assigning individual departments the task of implementing or
evaluating the need to implement recommended policies and strategies that most clearly impact those
individual departments. This is an excellent way to spread ownership of the Growth Policy. Annual
department reports can provide information on the status of recommended implementation activities.
The City might consider including a Growth Policy Implementation section into each department budget,
to institutionalize the community’s commitment to Growth Policy implementation.
Intra-governmental coordination is also an effective tool to more efficiently deliver services. When
leaders of each department meet periodically to share information and service delivery challenges,
there is more opportunity to enhance coordination between departments and identify ways that staff,
equipment and other departmental resources might be shared to mitigate service delivery challenges.
Inter-Governmental Coordination
The same principles discussed in the previous section apply to coordination between local governments
and between local governments and regional, tribal, state and federal agencies. Inter-governmental
coordination provides an opportunity to regularly share information about plans and programs and
enhance working relationships.
The City might consider establishing a semi-annual meeting schedule with regional, state and federal
agencies and a quarterly meeting schedule for local governments within the county. Individual County
Commissioners and City Council members can be designated as the liaison for each agency and/or local
government. The intangible benefits of this coordination are often the maintaining of open lines of
communication and a greater mutual understanding of the perspectives and needs of the larger region
and state.
Evaluation of Yellowstone County/Laurel Subdivision Regulations
An evaluation of the administration and standards contained in the Laurel Subdivision Regulations is
required as part of the Growth Policy. There are three items that need to be evaluated per Title 76,
Chapter 1, Part 6, 76-1-601(3)(h), MCA. 1).
1. How local government defines the various impacts assessments as specified in 76-3-608(3)(a),
2. How local government makes decisions with respect to the impact assessments as made, and
3. How public hearings for proposed subdivisions are conducted.
Impact Assessments: Definitions and Evaluation Factors
Local government subdivision regulations are required to review proposed subdivisions in accordance
with the following criteria provided in 76-3-608(3)(a):
The effect on agriculture
The effect on agricultural water user’s facilities
The effect on local services
The effect on the natural environment
The effect on wildlife and wildlife habitat
The effect on public health and safety
For each of the above criteria, applicable definitions and evaluative provisions contained in the
subdivision regulations must be identified.
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Effect on Agriculture
Agriculture is defined as all aspects of farming or ranching including the cultivation or tilling of soil;
dairying; the production, cultivation, growing, harvesting of agricultural or horticultural commodities;
raising of livestock, bees, fur-bearing animals or poultry; and any practices including forestry or
lumbering operations, including preparation for market or delivery to storage, to market, or to carriers
for transportation to market. The effect on agriculture is evaluated utilizing the following provisions:
1. Is the proposed subdivision or associated improvements located on or near prime farmland or
farmland of statewide importance as defined by the Natural Resource Conservation Service? If
so, identify each area on a copy of the preliminary plat.
2. Is the proposed subdivision going to result in removal of any agricultural or timber land from
production? If so, describe.
3. Are there any possible conflicts with nearby agricultural operations (e.g., residential
development creating problems for moving livestock, operating farm machinery, maintaining
water supplies, controlling weeds or applying pesticides; agricultural operations suffering from
vandalism, uncontrolled pets or damaged fences)? If so, describe.
4. Are there any possible nuisance problems which may arise from locating a subdivision near
agricultural or timber lands? If so, describe.
5. What effects would the subdivision have on the value of nearby agricultural lands?
Effect on Agricultural Water User Facilities
Agricultural water user facilities are defined as those facilities which provide water for irrigation or stock
watering to agricultural lands to produce agricultural products. These facilities include, but are not
limited to, ditches, head gates, pipes and other water conveying facilities. The effect on agricultural
water user facilities is evaluated by the following provisions:
1. Are there any conflicts the subdivision would create with agricultural water user facilities (e.g.
residential development creating problems for operating and maintaining irrigation systems) or
would agricultural water user facilities be more subject to vandalism or damage because of the
subdivision? Describe.
2. Are there any possible nuisance problems which the subdivision would generate regarding
agricultural water user facilities (e.g. safety hazards to residents or water problems from
irrigation ditches, head gates, siphons, sprinkler systems or other agricultural water user
facilities)? Describe.
Effect on Local Services
Local services are defined as any and all services that local governments, public or private utilities are
authorized to provide for the benefit of their citizens. The effect on local services is evaluated by the
following provisions:
1. Are there any additional or expanded public services and facilities that would be demanded of
local government or special districts to serve the subdivision? Describe.
2. Are there any additional costs which would result for services such as roads, bridges, law
enforcement, parks and recreation, fire protection, water, sewer and solid waste systems,
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ambulance service, schools or busing, (including additional personnel, construction and
maintenance costs)? Describe.
3. Who would bear these costs (e.g. all taxpayers within the jurisdiction, people within special
taxing districts, or users of a service)?
4. Can service providers meet the additional costs given legal or other constraints (e.g. statutory
ceilings on mill levies or bonded indebtedness)?
5. Are there off-site costs or costs to other jurisdictions that may be incurred (e.g. development of
water sources or construction of a sewage treatment plant; costs borne by a nearby
municipality)? Describe.
6. How does the subdivision allow existing services, through expanded use, to operate more
efficiently, or makes the installation or improvement of services feasible (e.g. allow installation
of a central water system or upgrading a country road)?
7. What are the present tax revenues received from the un-subdivided land?
a. By the County $ ________
b. By the municipality, if applicable, $ ________
c. By the school(s) $ ________
8. What are the approximate revenues received by each above taxing authority if the lots are
reclassified, and when the lots are all improved and built upon? Describe any other taxes that
would be paid by the subdivision and into what funds (e.g. personal property taxes on
mobile/manufactured homes are paid into the County general fund).
9. Would new taxes generated from the subdivision cover additional public costs?
10. How many special improvement districts would be created which would obligate local
government fiscally or administratively? Are any bonding plans proposed which would affect the
local government's bonded indebtedness?
Effect on Natural Environment
Natural environment is defined as the physical conditions which exist within a given area, including land,
air, water, mineral, flora, fauna, sound, light and objects of historic and aesthetic significance. The effect
on the natural environment is evaluated by the following provisions:
1. What are the known or possible historic, paleontological, archaeological or cultural sites,
structures or objects which may be affected by the proposed subdivision? Describe and locate
on a plat overlay or sketch map.
2. How would the subdivision affect surface and groundwater, soils, slopes, vegetation, historical
or archaeological features within the subdivision or on adjacent land? Describe plans to protect
these sites.
3. Would any stream banks or lake shorelines be altered, streams re-channeled or any surface
water contaminated from sewage treatment systems, run-off carrying sedimentation, or
concentration of pesticides or fertilizers?
4. Would groundwater supply likely be contaminated or depleted as a result of the subdivision?
5. Would construction of roads or building sites require cuts and fills on steep slopes or cause
erosion on unstable, erodible soils? Would soils be contaminated by sewage treatment systems?
Explain
6. What are the impacts that removal of vegetation would have on soil erosion, bank or shoreline
instability?
7. Would the value of significant historical, visual or open space features be reduced or
eliminated?
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8. Are there any natural hazards the subdivision could be subject to (such as flooding, rock, snow
or landslides, high winds, severe wildfires, or difficulties such as shallow bedrock, high water
table, unstable or expansive soils, or excessive slopes?
9. How would the subdivision affect visual features within the subdivision or on adjacent land?
Describe efforts to visually blend the proposed development with the existing environment (e.g.
use of appropriate building materials, colors, road design, underground utilities and re-
vegetation of earthworks).
Effect on Wildlife and Wildlife Habitat
Wildlife is defined as those animals that are not domesticated or tamed, or as may be defined in a
Growth Policy. Wildlife habitat is defined as the place or area where wildlife naturally lives or travels
through. The effect on wildlife and wildlife habitat are evaluated by the following provisions:
1. What impacts would the subdivision or associated improvements have on wildlife areas such as
big game wintering range, migration routes, nesting areas, wetlands or important habitat for
rare or endangered species?
2. What effect would pet, or human activity have on wildlife?
Effect on Public Health and Safety
Public health and safety are defined as the prevailing healthful, sanitary condition of wellbeing for the
community at large. Conditions relating to public health and safety include but are not limited to:
disease control and prevention; emergency services; environmental health; flooding, fire or wildfire
hazards, rock falls or landslides, unstable soils, steep slopes and other natural hazards; high voltage lines
or high pressure gas lines; and air or vehicular traffic safety hazards. The effect on public health and
safety is evaluated by the following provisions:
1. Are there any health or safety hazards on or near the subdivision, such as: natural hazards, lack
of water, drainage problems, heavy traffic, dilapidated structures, high pressure gas lines, high
voltage power lines or irrigation ditches? These conditions, proposed or existing, should be
accurately described with their origin and location identified on a copy of the preliminary plat.
2. Would the subdivision be subject to hazardous conditions due to high voltage lines, airports,
highways, railroads, dilapidated structures, high pressure gas lines, irrigation ditches and
adjacent industrial or mining uses?
3. How will the subdivision affect the adjacent land use? Identify existing uses such as feed lots,
processing plants, airports or industrial firms which could be subject to lawsuits or complaints
from residents of the subdivision.
4. What public health or safety hazards, such as dangerous traffic, fire conditions or contamination
of water supplies would be created by the subdivision?
In addition to the above factors, the subdivision regulations also require preparation of a community
impact report on the following public services and facilities.
1. Education and busing
2. Roads and maintenance
3. Water, sewage, and solid waste facilities
4. Fire and police protection
5. Payment for extension of capital facilities
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Public Hearing Requirements and Procedures
The subdivision regulations contain several sections that specify the procedural requirements for the
following types of subdivision applications.
1. Divisions of land exempt from subdivision review
2. Review and approval procedures for minor subdivisions
3. Review and approval procedures for major subdivisions, including review and approval of
preliminary and final plats
4. Expedited review of a first minor subdivision
The subdivision regulations apply to all jurisdictions within the county. The County is in the process of
updating the subdivision regulations for consistency with all applicable enacted amendments to the
MCA during the last three Montana legislative sessions. All procedural provisions, including those
applicable to public hearings, are consistent with the current statutory provisions contained in the MCA.
Objectives, Policies and Strategies
A growth policy is a foundational document. It is intended to provide an overview of the community in
terms of guidance for future planning. As a guiding document, the growth policy should encourage as
many “finer point” studies and documents as possible to encourage refining of larger scope ideas.
Items outlined in the following tables are only options, and do not in any way obligate the governing
body to pursue, fund or prioritize any given option or opportunity. Instead, the following are the
recommended objectives and policies and strategies for each topic of the Growth Policy. For each policy
and strategy, the entity responsible for implementation is identified and a recommended time frame for
implementation is provided. The entity listed first for each policy and strategy (in italicized type) is
assigned the primary responsibility to initiate and follow-through with implementation measures. In a
few cases, multiple entitles are assigned the primary responsibility for implementation. Other listed
entities for recommended policies and strategies are responsible for supporting the implementation
measures. Four implementation time frames are provided:
1. Immediate (defined as within a year after adoption of the Growth Policy)
2. Short-term (defined as not later than two years after adoption of the Growth Policy)
3. Mid-term (defined as between two and four years after adoption of the Growth Policy)
4. Long-term (defined as prior to the future update of the Growth Policy in 5 years (2025)
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Land Use Goals and Objectives
Goal 1: Conserve Open Space and Traditional Land Uses
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Encourage cluster developments to
incorporate open space into new
developments
Planning Dept
City Council
Mid-term
Provide options for landowners for conserving
portions of their land
Planning Dept
City Council
Immediate
Study and Implement strategies to create an
interconnected system of parks and
greenways and open space that are accessible
to area residents
Public Works
Planning
City Council
Mid-term
Long-term
Goal 2: Develop downtown Laurel into a vibrant place to live, work, and play
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Encourage mixed uses for living, working, and
shopping local
Planning Board
County Commission
Short-term
Identify priority parcels for infill development Planning Board
LURA
Mid-term
Implement Placemaking projects to create a
more livable and enjoyable downtown
Planning Dept
Chamber of Commerce
LURA
Public Works
Short-term
Mid-term
Partner with local groups to support
community businesses, events, and
gatherings
City Council
Planning
Chamber of Commerce
Immediate
Connect with regional agencies to access
project funding, receive technical support,
and boost the visibility of Laurel development
opportunities
City Council
County Commission
Planning Dept
BSEDA
Long-term
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Goal 3: Update Subdivision Code to meet the needs of Laurel and the surrounding area
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Provide clear and consistent standards Planning Dept
Zoning Commission
Public Works Dept
Short-term
Ensure the proper scale and scope of
regulations
Planning Dept
Planning Board
Zoning Commission
Mid-term
Include trails, open space, and greenway
considerations in parkland subdivision review
Planning Dept
Planning Board
Mid-term
Long-term
Regularly review and update the Subdivision
Code as needed to remain current
Planning Board
City Council
Long -term
Goal 4: Update Zoning Code to provide for greater flexibility of allowable uses, clearer
requirements, and more efficient land use
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Study the inclusion of different types of
housing within residential districts
Planning Dept
Planning Board
Mid-term
Update Overlay Districts, Parking
Requirements, and the Sign Code to better fit
the City's needs and character
Planning Dept
Planning Board
Public Works
LURA
Short-term
Mid-term
Allow mixed-use live/work opportunities in
commercial areas
Planning Dept
Planning Board
Short-term
Enable property owners to use their land
more effectively and efficiently
Planning Board
Planning Dept
Mid-term
Goal 5: Use long term planning documents to identify funding and address priority needs for
infrastructure and development
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Establish an Annexation Plan to develop
priority growth areas and strategies
City Council
Planning Dept
Public Works
Mid-term
Develop a Capital Improvement Plan for vital
infrastructure to support the City as it grows
Public Works
Planning Dept
Short-term
Prepare a Commercial and Industrial
Development Study for land adjacent to major
transportation routes in the Laurel area
Planning Dept
City Council
Mid-term
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Annexation Goals and Objectives
Goal 1: Adopt a long-range view for the growth of the City
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Establish a growth-conscious set of policies to
expand the City and its services
Planning Board
City Council
Mid-term
Long-term
Create priority growth areas for extension of
services
Planning B
City Council
Immediate
Develop and approve an Annexation Plan for
the Laurel Planning Jurisdiction
Planning Dept
City Council
BSEDA
Beartooth RC&D
Short-term
Mid-term
Goal 2: Mange fiscal responsibility with established and proposed annexation standards
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Ensure that the established standards are
right and proper for the City of Laurel
Planning Board
County Commission
Short-term
Ease the burden for developers to annex into
the City while meeting established standards
Planning Board
City Council
Mid-term
Allow greater flexibility in development
patterns
Planning Board
Planning Dept
Short-term
Mid-term
Determine the cost and benefits of
annexation
Clerk-Treasurer
City Council
Planning Dept
Public Works
Mid-term
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Housing Goals and Objectives
Goal 1: Encourage a mixture of housing types to meet the demand of all market sectors
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Maintain a diverse array of housing and
affordability levels
Planning Dept Immediate
Promote higher density housing types in the
downtown area and adjacent to major
transportation corridors
Planning Dept Mid-term
Study mixed-use housing and other alternative
housing types and styles
Planning Dept Mid-term
Long-term
Provide options for a full spectrum of housing
from rentals to retirement housing
Planning Dept Long-term
Goal 2: Provide information on housing-related grants, loans, and ownership programs
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Develop a list of resources for renters and
homeowners
Planning Dept
Montana Housing
Short-term
Collect information on federal, state, local,
and philanthropic rental and homeownership
programs
Planning Dept
Montana Housing
HUD
Short-term
Mid-term
Advise Laurel area residents as to available
support for housing, rent, and homeownership
Planning Dept Immediate
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Infrastructure Goals and Objectives
Goal 1: Maintain an effective and efficient public infrastructure system that adequately serves
the needs of the City
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Develop a data-driven infrastructure
maintenance schedule
Public Works Short-term
Determine any existing gaps in services and
other infrastructure deficiencies within the
City
Public Works
Planning
Short-term
Mid-term
Adopt up-to-date infrastructure standards that
are appropriate for the needs of the City
Public Works Short-term
Study using public spaces within floodplains,
watercourses, and wetlands to be used as
passive recreation areas such as parks and
greenways
Planning Dept
Planning Board
Mid-term
Long-term
Study the feasibility of recycling programs and
other means to reduce solid waste
Public Works
Planning Dept
Mid-term
Incorporate stormwater system planning into
roadway and other infrastructure planning
processes
Planning Dept
Public Works
City Council
Mid-term
Long-term
Goal 2: Establish the long-term capital and infrastructure needs for the City
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Develop a Capital Improvement Plan for the
improvement and expansion of infrastructure
Public Works
City Council
Mid-term
Prepare a Water System Master Plan Public Works
Planning Dept
Mid-term
Long-term
Create a Wastewater System Master Plan Public Works
Planning Dept
Mid-term
Long-term
Complete a Stormwater Management Plan Public Works
Planning Dept
Mid-term
Long-term
Ensure infrastructure planning documents are
routinely updated.
Public Works Long-term
Confirm that the established infrastructure
priorities are adequate
Public Works
Planning
City Council
Mid-term
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Infrastructure Funding Opportunities:
Montana Department of Environmental Quality, Drinking Water State Revolving Fund Loan Program
The Montana Legislature established the Drinking Water State Revolving Fund (DWSRF) Loan Program
for Drinking Water projects. The program provides at or below market interest rate loans to eligible
Montana entities. The Department of Environmental Quality (DEQ) is the administering agency and
assures the technical, financial and programmatic requirements of the program are met.
Eligible water projects include acquisition of land that is integral to the project, consolidating water
supplies, engineering, new sources, treatment, source water protection, storage and distribution.
Eligible applicants are municipalities, public or private community water systems and non-profit, non-
community water systems. The current interest rate for loans is 3.75 percent with payment schedules
not to exceed 20 years. Drinking Water Projects qualifying as disadvantaged may extend the term up to
30 years.
Applications are accepted year-round. Preliminary engineering analysis must be reviewed prior to
submittal of application.
Montana Department of Environmental Quality, Water Pollution Control State Revolving Fund Loan
Program
The Montana Legislature established the Water Pollution Control State Revolving Fund (WPCSRF) Loan
Program for water pollution control projects. The program provides at or below market interest rate
loans to eligible Montana entities. Cooperatively, DEQ and DNRC administer the Water Pollution Control
State Revolving Fund Loan Program.
Goal 3: Seek out possible funding sources for the expansion and improvement of infrastructure
and essential community services
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Study the physical and financial needs for the
extension of infrastructure to priority growth
areas
Planning Dept
Public Works
Mid-term
Collaborate with Montana agencies on major
projects and studies
City Council
Immediate
Explore federal, state, and philanthropic
infrastructure grant opportunities
Public Works
Planning Dept
Short-term
Determine positive impacts from the
expansion and improvement of infrastructure
Public Works
Planning Dept
Mid-term
Apply for funding opportunities that are
appropriate for city priorities and projects and
assist in keeping user fees reasonable
Public Works
Planning Dept
Clerk-Treasurer
Mid-term
Long-term
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Eligible water quality projects include wastewater treatment plant improvements, interceptors,
collectors and lift stations, lagoon construction and rehabilitation, engineering and project inspection,
and land used for disposal purposes. All projects must be included in a project priority list and intended
use plan for the fiscal year in which funding is anticipated, and the ability to repay loan funding must be
demonstrated.
Eligible applicants are municipalities for wastewater projects as well as municipalities and private
entities for nonpoint source projects. The current interest rate for loans is 3.75 percent with payment
schedules not to exceed 20 years. Water Pollution Control projects qualifying as disadvantaged may
extend the payment term up to 30 years. Applications are accepted year-round. Preliminary engineering
analysis must be reviewed prior to submittal of application.
Montana Department of Commerce, Treasure State Endowment Program Construction Grants (TSEP)
The Treasure State Endowment Program (TSEP) awards matching grants to local governments for
construction of local infrastructure projects. TSEP construction grants provide help in financing
infrastructure projects throughout Montana. Eligible applicants include incorporated cities and towns,
counties, consolidated governments, Tribal governments and county or multi-county water, sewer or
solid waste districts.
A dollar-for-dollar match is required, but in cases of extreme financial hardship where the public's health
and safety are seriously affected, grants up to 75 percent of the project costs may be awarded. Matching
funds can be public or private funds. Construction grant applications are limited to a maximum of
$750,000. Applications are typically due the first week of May on even numbered years.
US Department of Agriculture, Water and Environmental Load and Grant Program (WEP)
Water and Environmental Programs (WEP) loans and grants provide funding for drinking water, sanitary
sewer, solid waste and storm drainage facility projects in rural areas and cities and towns of 10,000 or
less. WEP also makes grants to nonprofit organizations to provide technical assistance and training to
assist rural communities with their water, wastewater and solid waste problems. Eligible projects include
construction, repair and expansion of water, wastewater, storm water and solid waste systems.
Public bodies, non-profit organizations and recognized Indian Tribes are all eligible applicants for the
program. This funding opportunity is capped at 75 percent of total project costs. Applications are
accepted on a continual basis.
Economic Development Administration, Public Works Grant Program
The Economic Development Administration (EDA) provides public works investments to support
construction or rehabilitation of essential public infrastructure and facilities to help communities and
regions leverage their resources and strengths to create new and better jobs, drive innovation, become
centers of competition in the global economy and ensure resilient economies.
Eligible projects are those pertaining to water and wastewater systems that address national strategic
priorities, assist economically distressed and underserved communities, demonstrate a good return on
EDA’s investment through job creation or retention, demonstrate or support regional collaboration and
employ public-private partnerships to use both public and private resources and/or leverage
complementary investments.
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Eligible applicants include municipalities, counties, and Indian Tribes. The maximum award attainable is
75 percent of project cost. Application deadlines are variable and would need to be determined at the
time of application.
US Department of Interior, Water Grant Program System Optimization Review Grant
The Water Program focuses on improving water conservation, sustainability and helping water resource
managers make sound decisions about water use. It identifies strategies to ensure present and future
generations will have enough clean water for drinking, economic activities, recreation and ecosystem
health. The program also identifies adaptive measures to address climate change and its impact on
future water demands.
Eligible projects include any plan of action that focuses on improving efficiency and operations on a
regional or basin perspective. Eligible applicants include the state, Indian Tribes, irrigation districts,
water districts or other organizations with water or power delivery authority.
A 50 percent match is required for this funding opportunity and the maximum award attainable is
$300,000.
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Transportation Goals and Objectives
Goal 1: Preserve, maintain, and improve the existing transportation system
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Update the Long-Range Transportation Plan
(LRTP)
Planning Dept
City Council
Mid-term
Establish a systematic approach for the
maintenance and repair of the road network.
Public Works
City Council
Short-term
Develop a Capital Improvement Plan to
identify and prioritize significant
transportation projects
City Council
Public Works
Planning Dept
Short-term
Mid-term
Establish a road network master plan to
ensure street continuity, traffic flow, and
neighborhood connectivity
Planning Dept
Planning Board
Public Works
Mid-term
Long-term
Promote fiscal responsibility and high return
on investment
Clerk-Treasurer
City-Council
Public Works
Immediate
Coordinate roadway improvement projects to
coincide with underground infrastructure
improvements
Public Works
Planning Dept
MDT
Immediate
Goal 2: Improve the mobility, safety, and accessibility of all users and modes of travel
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Implement bicycle and pedestrian
improvements and traffic calming measures to
transform the downtown area into a
pedestrian-friendly place
Planning Dept
Public Works
MDT
Mid-term
Long-term
Create a looping bicycle/pedestrian trail and
street system that connects different areas of
Laurel
Planning Dept
Planning Board
Long-term
Adopt pedestrian and multi-modal friendly
transportation standards and safety measures
Planning Board
Public Works
City Council
Short-term
Mid-term
Explore options to improve and expand the
Laurel Transit program and strategies to
create other multi-modal transportation
connections.
Planning Dept
Clerk-Treasurer
Mid-term
Long-term
Partner with local, regional, and statewide
groups to further integrate Laurel into the
more comprehensive passenger
transportation network
Planning Dept
Planning Board
City Council
Long-term
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Goal 3: Connect transportation decisions to land-use decisions
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Integrate land-use planning and
transportation planning to manage better and
develop the transportation network.
Planning Dept
Public Works
MDT
City Council
Short-term
Utilize transportation projects to encourage
intensive development patterns along
significant routes and existing areas of the City
Planning Dept
Public Works
Short-term
Adopt and implement consistent system
policies and maintenance standards
Public Works
City Council
Short-term
Ensure the development of a sustainable
transportation system that minimizes
environmental impacts
Planning Dept
Planning Board
City Council
Long-term
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Economic Development Goals and Objectives
Goal 1: Develop downtown Laurel as a destination to live, work, and play
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Institute placemaking projects to further
enhance district character
Planning Dept
LURA
Chamber of Commerce
Short-term
Increase live-work opportunities for current
and future residents and businesses
Planning Dept Long-term
Apply Tax Increment Financing (TIF) funding to
beautification, blight removal, and public
improvement projects
LURA
Planning Dept
City Council
Mid-term
Long-term
Identify and find solutions for unused or
underused parcels as candidates for
development
Planning Dept
LURA
Mid-term
Goal 2: Create a resilient local economy
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Strengthen core businesses and industries
through communication and connections with
technical support
Planning Dept
Chamber of Commerce
BSEDA
Immediate
Ensure that local economic activities are
inclusive and accessible to all stakeholders
Chamber of Commerce
BSEDA
Immediate
Implement policies that create stable and
sustainable economic growth
Planning Dept
City Council
Long-term
Work to highlight the shared benefits of
working together as a community with local
businesses stakeholders, and developers
Planning Dept
Chamber of Commerce
BSEDA
Immediate
Provide an economic ecosystem that allows
for a wide array of businesses, industries, and
developments to thrive
Planning Dept
Chamber of Commerce
Big Sky EDA
Beartooth RC&D
City Council
Mid-term
Long-term
Study and implement policies to enhance local
business demand and alternative strategies for
value creation for the community
Chamber of Commerce
BSEDA
Beartooth RC&D
Long-term
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Goal 3: Collaborate with area organizations to support economic growth and local employment
and training opportunities
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Communicate with local groups to determine
any needs and assistance
Planning Dept
BSEDA
Beartooth RC&D
Immediate
Create partnerships with local and regional
groups to fill local service gaps and create
needed programming
City Council
City Departments
County Commission
Mid-term
Take part in events and workshops to support
local business initiatives and activities
Planning Dept
Chamber of Commerce
City Council
Immediate
Short-term
Establish common ground with local and
regional groups to provide resources and
assistance
BSEDA
Planning Dept
Mid-term
Long-term
Connect residents and businesses with like-
minded economic, financial, and
entrepreneurship resources and opportunities
Planning Dept
BSEDA
Chamber of Commerce
Mid-term
Long-term
Goal 4: Study options for new commercial and industrial properties in anticipated high-growth
areas
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Create a Corridor Master Plan for growth in
and around the intersection with Old Route 10
and the West Laurel Interchange
Planning Dept
City Council
Mid-term
Study options and determine priorities for the
possible establishment of Tax Increment
Financing Districts (TIFs) and Targeted
Economic Development Districts (TEDDs)
City Council
Planning Dept
BSEDA
Beartooth RC&D
Planning Board
Short-term
Mid-term
Review and pursue opportunities for clustered
commercial or industrial parks
Planning Dept
BSEDA
Beartooth RC&D
City Council
Chamber of Commerce
Short-term
Mid-term
Develop funding strategies to provide services
for priority growth areas.
Planning Dept
Public Works
Clerk-Treasurer
Short-term
Mid-term
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Economic Development Funding Opportunities
Community Development Block Grant Program
Each year the US Entity of Housing and Urban Development (HUD) allocates grant funding to the
Montana Department of Commerce for the Community Development Block Grant (CDBG) program.
Funds are intended to benefit low or moderate-income persons, aid in prevention or elimination of
slums or meet urgent community development needs. CDBG is broken into five different funding
categories: Planning, Public Facilities, Housing and Neighborhood Renewal, Neighborhood Stabilization
Program and Economic Development.
Eligible applicants include counties, incorporated cities and towns, and consolidated city-county
governments. Deadlines are staggered throughout the year with planning grants being offered one year
and construction grants the following year generally.
Montana Department of Commerce, Montana Main Street Program
The mission of the Montana Department of Commerce Main Street program is to be a coordinating
resource for communities seeking to revitalize their historic downtown or core commercial districts and
to provide technical assistance to communities of all sizes. The underlying premise of the Montana Main
Street Program is to encourage economic development within the context of historic preservation.
In 2011, the project began gearing toward community development. The Montana Main Street Program
was awarded a Preserve America sub grant from the Montana State Historic Preservation Office (SHPO)
in 2011. The purpose of the grant was to focus on core and downtown planning and to build capacity
under the Main Street program. It was this sub grant that focused the program toward community
development.
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Public Facilities and Services Goals and Objectives
Goal 1: Provide consistent and high-quality public services to the community
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Develop standard operating procedures to
ensure consistency for city departments
City Council
Public Works
Planning Dept
EMS
Fire Dept
Police Dept
Mid-term
Long-term
Develop maintenance procedures for parks,
facilities, and public areas.
Public Works Mid-term
Study current facilities and services to identify
gaps and determine projected needs in
services
City Council
Public Works
Mid-term
Goal 2: Respond to the changing nature of the community
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Plan for the expansion of public facilities in
priority growth areas
Planning Dept
City Council
City Departments
Short-term
Mid-term
Invest in public facilities that are accessible to
everyone in the community
Public Works Long-term
Study how to improve city services to boost
the quality of life for residents, businesses,
and institutions
Planning Dept
Public Works
Long-term
Goal 3: Work with city department and local stakeholders to determine the priority expansion of
public facilities and services
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Open lines of communication between city
departments and local stakeholders to gather
input on major projects
City Departments
MDT
County Commission
Chamber of Commerce
Immediate
Consider the public service requirements of
large-scale projects before their approval and
implementation
Planning Dept
Public Works
Immediate
Develop plans for the expansion of Fire, Police,
and EMS facilities
Planning Dept
Public Works
Fire Dept
Police Dept
EMS
Short-term
Mid-term
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Recreation Goals and Objectives
Goal 1: Develop parkland as an essential and enjoyable amenity for residents
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Ensure new developments have appropriate
park space for recreation and general use
Planning Dept
Public Works
City Council
Immediate
Short-term
Study how existing parks can be improved
through new facilities, changed layouts, or
additions
Public Works
Planning Dept
Mid-term
Long-term
Review current park infrastructure and
determine if improvements are necessary to
serve the needs of the surrounding area better
Public Works
Planning Dept
Long-term
Goal 2: Promote Riverside Park as a vital historic, civic, and recreation resource for residents and
visitors
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Adhere to the projects and strategies
presented in the 2018 Riverside Park Master
Plan
Planning Dept
Public Works
City Council
Immediate
Seek grant funding for structural and site
improvements
Planning Dept
City Council
Immediate
Develop historic markers for Riverside Park
and its historic structures
Planning Dept
YC Historic Pres. Board
Western Heritage Center
Mid-term
Study options for connecting Riverside Park to
the city proper through infrastructure
improvements, civic engagement, or other
means
Planning Department
Public Works
City Council
Long-term
Establish signage and marketing for the assets
and resources of Riverside Park to area
residents and visitors
Planning Dept
YC Historic Pres. Board
Western Heritage Center
Mid-term
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Goal 3: Create an interconnected system of parks, greenspace, and trails that are accessible to all
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Create a city-wide Park System Master Plan to
develop project priorities
Planning Dept
Park Board
Mid-term
Consider the creation of a City Parks
Department to oversee park operations and
maintenance
Public Works
Park Board
City Council
Long-term
Identify unused land that can be transformed
into green space or trails for use by the public
Park Board
Public Works
Planning Dept
Mid-term
Long-term
Update the zoning and development codes to
encourage the creation of bicycle and
pedestrian trail corridors
Planning Dept Short-term
Mid-term
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Natural Resource Goals and Objectives
Goal 1: Protect Laurel’s natural resources and traditional environment
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Provide options for landowners for conserving
portions of their land while developing others
Planning Dept
Planning Board
City Council
Short-term
Immediate
Achieve a balanced pattern of growth to
ensure environmental concerns are
considered during the development
Planning Dept Long-term
Manage the local water resources as a
healthy, integrated system that provides long-
term benefits from enhanced environmental
quality
Planning Dept
Public Works
Immediate
Goal 2: Incorporate sustainable development patterns in the Laurel subdivision and land use codes
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Review and update existing zoning and
subdivision regulations to ensure
environmental preservation and conservation
are addressed
Planning Board
Planning Dept
Short-term
Review and update landscaping ordinances as
needed to best suit Laurel's natural
environment
Planning Board Mid-term
Manage rivers, floodplains, wetlands, and
other water resources for multiple uses,
including flood and erosion protection, wildlife
habitat, recreational use, open space, and
water supply
Planning Dept
Planning Board
Immediate
Goal 3: Connect with local, regional, and state agencies and stakeholders to improve the
natural environment in and around Laurel
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Sponsor environmental cleanup and
rehabilitation programs that include the City,
school district, community organizations, and
residents
City Council Mid-term
Participate in regional watershed studies to
achieve adequate long-term flood protection
Planning Board Long-term
Explore the possibility of creating a
conservation corridor along the Yellowstone
River
Planning Dept
Park Board
County Commission
Long-term
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Intergovernmental Coordination Goals and Objectives
Ongoing inter-governmental coordination efforts will be maintained. The City of Laurel has inter-local
agreements with the School District on cooperative efforts, the shared use of facilities, and other areas
of mutual interest. The City interacts with a number of agencies and organizations including but not
limited to the Laurel School District, Eastern Montana Drug Task Force (EMDTF), Fish, Widlife & Parks
(FWP), Department of Environmental Quality, (DEQ), Department of Natural Resources and
Conservation (DNRC), and the many departments and shared Yellowstone County jurisdictions.
It will be important to maintain regular communications between City officials and the many local,
county, regional, and state groups to discuss ongoing efforts and coordination activities. The County
Commissioners have a direct impact on the Laurel area through the four members they appoint to the
Laurel City-County Planning Board. This is done due to the mixed city-county make-up of the Laurel
planning area that encompasses the city as well as areas within the County jurisdiction. A copy of the
2020 Laurel Growth Management Policy will be submitted to the Yellowstone County Commissioners for
review and comment prior to the official adoption by the City Council.
Goal 1: Establish lines of communication with local, county, and state partners
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Create an accurate directory of government
representatives and staff
Clerk-Treasurer Immediate
Update governmental stakeholders regarding
ongoing projects and work in the Laurel area
City Council
Planning Dept
Short-term
Develop working relationships with legislators,
staff, and stakeholders at different levels of
government
City Council
Department Heads
Immediate
Goal 2: Coordinate with local and regional institutions to support and grow the Laurel community
OBJECTIVES RESPONSIBLE ENTITY TIME FRAME
Work with economic development groups to
seize opportunities for business growth
Chamber of Commerce
BSEDA
Beartooth RC&D
City Council
Immediate
Connect area businesses with institutions and
governmental groups that can support their
mission
Chamber of Commerce
BSEDA
Beartooth RC&D
Immediate
Communicate with area legislators to provide
information on growth patterns and
development in the Laurel area.
City Council
Planning Dept
Short-term
Maintain open communications with state
agencies and the Board of County
Commissioners to confirm compliance with
statewide codes and operational needs.
City Council
Department Heads
Long-term
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File Attachments for Item:
Draft Council Agenda of November 24, 2020.
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AGENDA
CITY OF LAUREL
CITY COUNCIL MEETING
TUESDAY, NOVEMBER 24, 2020
6:30 PM
ONLINE
NEXT RES. NO.
R18-XX
NEXT ORD. NO.
O18-XX
WELCOME . . . By your presence in the City Council Chambers, you are participating in the process of representative
government. To encourage that participation, the City Council has specified times for citizen comments on its agenda -- once
following the Consent Agenda, at which time citizens may address the Council concerning any brief community announcement
not to exceed one minute in duration for any speaker; and again following Items Removed from the Consent Agenda, at which
time citizens may address the Council on any matter of City business that is not on tonight’s agenda. Each speaker will be
limited to three minutes, unless the time limit is extended by the Mayor with the consent of the Council. Citizens may also
comment on any item removed from the consent agenda prior to council action, with each speaker limited to three minutes,
unless the time limit is extended by the Mayor with the consent of the Council. If a citizen would like to comment on an age nda
item, we ask that you wait until the agenda item is presented to the Council by the Mayor and the public is asked to comment
by the Mayor. Once again, each speaker is limited to three minutes.
Any person who has any question concerning any agenda item may call the City Clerk -Treasurer's office to make an inquiry
concerning the nature of the item described on the agenda. Your City government welcomes your interest and hopes you will
attend the Laurel City Council meetings often .
Pledge of Allegiance
Roll Call of the Council
Approval of Minutes
1. Approval of Minutes of November 10, 2020.
Correspondence
2. Beartooth RC&D November Correspondence.
Council Disclosure of Ex Parte Communications
Public Hearing
3. Growth Management Plan
Consent Items
NOTICE TO THE PUBLIC
The Consent Calendar adopting the printed Recommended Council Action will be enacted with one vote. The Mayor will
first ask the Council members if any Council member wishes to remove any item from the Consent Calendar for
discussion and consideration. The matters removed from the Consent Calendar will be considered individually at the end of
this Agenda under "Items Removed from the Consent Calendar." (See Section 12.) The entire Consent Calendar, with the
exception of items removed to be discussed under "Items Removed from the Consent Ca lendar," is then voted upon by roll
call under one motion.
4. Claims entered through November 20, 2020.
5. Approval of Payroll Register for PPE 11/1/2020 totaling $198,495.03
Ceremonial Calendar
Reports of Boards and Commissions
6. Budget/Finance Committee Minutes of October 27, 2020.
Budget/Finance Committee Minutes of November 10, 2020.
Tree Board Minutes of October 15, 2020.
Public Works Committee Minutes of October 19, 2020.
Audience Participation (Three-Minute Limit)
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Citizens may address the Council regarding any item of City business that is not on tonight’s agenda. Comments regarding
tonight’s agenda items will be accepted under Scheduled Matters. The duration for an individual speaking under Audience
Participation is limited to three minutes. While all comments are welcome, the Council will not take action on any item not
on the agenda.
Scheduled Matters
7. Resolution - Resolution Authorizing The Mayor To Execute An Agreement With Beartooth
Rc&D Economic Development District.
8. Resolution - Resolution Of Intent By The City Council To Adopt The 2020 City Of Laurel
Growth Policy Creating A Thirty (30) Day Public Comment Period. (Public Hearing on
11.24.2020)
Items Removed From the Consent Agenda
Community Announcements (One-Minute Limit)
This portion of the meeting is to provide an opportunity for citizens to address the Council regarding community
announcements. The duration for an individual speaking under Community Announcements is limited to one minute. While
all comments are welcome, the Council will not take action on any item not on the agenda.
Council Discussion
Council members may give the City Council a brief report regarding committees or groups in which they are involved.
Mayor Updates
Unscheduled Matters
Adjournment
The City makes reasonable accommodations for any known disability that may interfere with a person’s ability to
participate in this meeting. Persons needing accommodation must notify the City Clerk’s Office to make needed
arrangements. To make your request known, please call 406-628-7431, Ext. 2, or write to City Clerk, PO Box 10, Laurel,
MT 59044, or present your request at City Hall, 115 West First Street, Laurel, Montana.
DATES TO REMEMBER
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