Jasper, Tennessee
Urban Growth Boundary Report

Table of Contents

List of Tables, Figures, and Illustrations

On File with Jasper City Hall

URBAN GROWTH BOUNDARY REPORT
JASPER, TENNESSEE

INTRODUCTION

PURPOSE

This report is prepared pursuant to the requirements of Section 7(a)(2) of Public Chapter 1101 outlining a municipality's duties to review and report on the urban services and public facilities within the municipality and its proposed urban growth boundary. The legislation states:

"Before formally proposing urban growth boundaries to the coordinating committee, the municipality shall develop and report population growth projections; such projections shall be developed in conjunction with the University of Tennessee. The municipality shall also determine and report the current costs and the projected costs of core infrastructure, urban services and public facilities necessary to facilitate full development of resources within the current boundaries of the municipality and to expand such infrastructure, services and facilities throughout the territory under consideration for inclusion within the urban growth boundaries. The municipality shall also determine and report on the need for additional land suitable for high density, industrial, commercial and residential development, after taking into account all areas within the municipality's current boundaries that can be used, reused or redeveloped to meet such needs. The municipality shall examine and report on agricultural lands, forests, recreational areas and wildlife management areas within the territory under consideration for inclusion within the urban growth boundaries and shall examine and report on the likely long-term effects of urban expansion on such agricultural lands, forests, recreational areas and wildlife management areas." TCA 6-58-106(a)(2)

METHODOLOGY

This report was prepared using a variety of methods: review and study of previously-prepared planning and annexation documents, interviews with local officials, and field interviews. Land uses were inventoried and analyzed using planimitering, existing studies and previously-gathered information, then field checking. Information on public services and facilities was gathered through a checklist completed by City officials, interviews with City officials, and field checking results. Population projections forecasting residential growth were developed by the University of Tennessee. Existing tax maps and data from the Computer Aided Appraisal System (CAAS) were used to calculate the number of acres currently in use as residential. The average residential density was calculated by using the current certified population of Jasper and the number of acres currently in use as residential property, as determined above. That number (3.68 persons per residential acre) is used as the average residential density. Also, 1990 Census information was used to determine the average household size, and in turn to forecast the number of housing units required to accommodate the projected population. Information regarding natural development constraint features was gathered through existing maps located at the Local Planning Assistance Office and the USDA Natural Resources Service in Marion County. This information was then processed, using the guidelines and priorities set by Public Chapter 1101, and used to prepare a recommended Urban Growth Boundary and this accompanying report.

DEFINITIONS

The following words, terms, and phrases are hereby defined as follows and will be interpreted as such throughout this report. Terms not herein defined shall have the customary dictionary meaning assigned to them:

1. "Urban growth boundary" means a line encompassing territory established in conformance with the provisions of TCA 6-58-106(a) and approved in accordance with the requirements of TCA 6-58-104.
2. "High density residential development" means any residential development exceeding 0.69 units per residential acre.
3. "Improved Vacant Land" means undeveloped property with immediate access to all municipal utility services, including public sewer service.
4. "Unimproved Vacant Land" means undeveloped property with access to some or no municipal utility services, but without specific immediate access to public sewer services.

EXISTING MUNICIPAL LAND USE ANALYSIS

LAND USE INVENTORY

Land Use Categories - The total incorporated area of Jasper is 4,864 acres or 7.6 square miles. Figure 1 and Table 1 show the breakdown of land use types. The box below Table 1 shows the approximate amount of land within the city limits that is generally unsuitable for development. For the purposes of this report, the "unusable land" category includes land with one or more of the following development constraints: steep slopes, floodplain, soils unsuitable for septic systems, and wetlands. Every land use category contains at least some unsuitable land. Although difficult, the development of unsuitable lands is possible if the proper techniques are employed and the necessary resources are utilized.

After subtracting lands with physical development constraints, approximately 450 acres of vacant land are available for residential development at moderate or high-density levels. As Table 1 shows, 1,606 acres are considered as vacant, or 33% of the available land area. Eight hundred-eighty acres, or 18% are currently devoted to residential uses. Approximately 391 acres, or 8% of developed land is in commercial use; 1,503 acres (31%) for industrial use, 152 acres (3%) for public/semi-public uses, and 379 acres (8%) for transportation uses. The residential category includes single-family, duplex, multi-family, and mobile home developments. A breakdown by structure type is shown below.

The commercial category includes retail and service uses. Industrial contains manufacturing, fabricating, and warehousing operations. Public/semi-public includes churches, cemeteries, schools, and municipal buildings, while the transportation category includes street and railroad rights-of-way. Lastly, the vacant land category includes land having no buildings or other structures, and can be further divided into improved or unimproved, as defined in the previous section. Illustration 1 depicts existing land uses on a parcel level. This illustration also shows Jasper's community facilities and street designations according to the Major Road Plan.

Physical Constraints - Development within the corporate limits of Jasper is affected by a variety of development constraints. Floodplain, excessive slope, wetlands, and poor soils for septic tanks all combine to influence development decisions, densities, and required infrastructure. Roughly 2,709 acres (55.7%) out of Jasper's 4,864 acres are affected by one or more of these conditions. Development of such properties will require remedial measures or additional infrastructure, such as the installation of public sewers where soils do not accommodate septic tanks or the elevation of new structures within the floodplain. The presence of public sewer would remove most development constraints tied specifically to soil conditions, but the majority of lands constrained by poor soils also have other constraints present, such as wetland area, steep slope, or floodplain. The wetland areas shown on Illustration 2 are USDA designated wetlands and hence cannot be developed. Floodplains are depicted on Flood Insurance Rate Maps (FIRMS) and may only be developed according to the regulations in Jasper's Flood Damage Prevention Ordinance. The "excessive slope" designation is for land having a slope that exceeds fifteen percent, which can make development both difficult and costly.

While development is not precluded in these areas, it will necessarily be less dense in these areas than in areas with no such constraints, if it occurs at all. As such, lands with development constraints will not be considered for development at the same level as the remaining areas of the City. Future calculations of moderate or high-density land needs will not include these areas. Illustration 2 shows the locations and types of constraints within Jasper.

Based on this review, it appears that approximately 50 vacant acres within the corporate limits are available for development, with utilities in place. Another 400 acres within the corporate limits are positioned well for development, subject to utility extensions, which are the responsibility of the developer according to the Jasper Subdivision Regulations. These acres can potentially accommodate 665 housing units, or 1,656 people, based on the over-au density of Jasper. Of the remaining tracts, approximately 110 vacant acres are potential commercial property.

EXISTING MUNICIPAL PUBLIC SERVICES ANALYSIS

UTILITIES

Water Service Area - Jasper's water is supplied by Jasper Water Works. The Department owns and maintains all water lines within the municipality and a significant portion of the surrounding area. Areas of moderate and high-density development are served by public water with sufficient pressure to serve the fire department. The Jasper Municipal Subdivision Regulations require that all water line extensions, not including private service lines, be a minimum six (6) inches in size and that all developments include fire hydrants. Illustration 3 shows the water system in Jasper.

Sewer Service Area - Approximately 50% of the developed lands in Jasper have access to public sewer service. The sewer system serves commercial and industrial uses, and a significant amount of residential property. With a capacity of 0.78 MOD, and an average daily usage of 0.242 MOD, there is adequate capacity for line extensions if needed. Illustration 4 shows the current sewer system in Jasper.

PROTECTIVE SERVICES

Police Department - The Jasper Police Department has 8 full-time, 1 part-time, and 5 auxiliary employees. Dispatching is handled through the Marion County Sheriff's department and the Marion County E-911 department. The International Association of Policemen (IAAP) recommends 2.1 patrol officers per 1,000 population for communities under 30,000 total population. Jasper currently exceeds the IAAP recommendation with 2.51 full-time officers per 1,000 general population.

Fire Department - Jasper enjoys an ISO rating of 6 and is served by a volunteer fire department with 30 volunteers. The one existing station is a fully equipped fire-fighting facility and is located adjacent to City Hall. Based on standards prepared by both the National Board of Underwriters, and Daniels, Keller and Lapping in The Small Town Planning Handbook (APA, 1992) the existing fire service is sufficient for servicing the municipality. Jasper currently participates in a mutual aid agreement whereby its fire department responds to calls from portions of the surrounding county. Illustration 1 shows the location of the fire station.

SOLID WASTE COLLECTION

Jasper provides weekly residential, commercial, and industrial solid waste collection to its residents with annual budget of $148,830.

ROADS AND STREETS

Jasper currently maintains 28.5 miles of local streets with an annual budget of $151,226. The Tennessee Department of Transportation (TDOT) maintains 7.97 miles and the Federal Government maintains l.ll miles or roadway within the corporate limits.

LAND USE CONTROLS AND MUNICIPAL CODES

Jasper enforces a Municipal Zoning Ordinance and Subdivision Regulations, with the assistance of the Jasper Municipal-Regional Planning Commission. The City also enforces the Southern Standard Building Code, the Jasper Flood Damage Prevention Ordinance, and the Jasper Mobile Home Park Regulations.

POPULATION GROWTH NEEDS FOR LAND AND PUBLIC SERVICES

PROJECTED 20-YEAR POPULATION GROWTH AND RESIDENTIAL LAND NEEDS

The University of Tennessee's Center for Business and Economic Research has published population projections for Jasper through the year 2020. The projections, along with the percentage change for each intervening step, are presented in Table 3. The projections show a 34.6% increase in the certified 1990 population of Jasper by the year 2020. These numbers reflect the projected level of natural growth, but can be influenced by annexations conducted by the City.

The 2020 population projection is a 621-person increase over the 1998 certified population of 3,122. Using Jasper's average household size of 2.49 persons per household (as described in the 1990 Census of Population and Housing) a total of 250 new housing units would be required to accommodate the forecasted population growth. A survey of developed residential areas showed the average lot size in Jasper to be .91 acres. Therefore, 250 new housing units would require approximately 228 acres of land.

PROJECTED ECONOMIC/BUSINESS GROWTH AND COMMERCIAL LAND NEEDS

Projections of economic and business growth, especially when used to determine land use needs, must be based on assumptions. The first assumption is that there is a correlation between the population of a community and the need for a specific amount of commercial/retail/services acreage to serve that population. A second necessary assumption in Jasper's case is that 1-24, and to some extent Old Highway 41, will continue to generate commercial and retail growth unrelated to Jasper's population base.

Together, these assumptions will lend guidance to the amount of land needed to serve the local population and visitors commuting via the interstate and state highway. To determine local population needs for commercial property, a constant must be obtained. In 1999, Jasper had approximately 391 acres in use for commercial enterprises. The most recent certified population of Jasper (1999) is 3,122, which produces a constant of .125 of an acre per capita. Based on this information and the UT population projection for 2020, Jasper will require an additional 78 acres of commercial property -- an increase of 20 percent over the current amount of land used for these purposes. Considering the current amount of vacant land near the Hwy. 28/1-24 interchange and along Highway 28 and Highway 41, no additional land is required for potential commercial activity beyond what is already within the corporate boundaries.

SPECIAL LAND MANAGEMENT CONCERNS: FOREST, AGRICULTURE, WILDLIFE MANAGEMENT, RECREATION AND OPEN SPACE

As the gateway to the Sequatchie Valley, Jasper is very fortunate to be located in an area of scenic beauty. Sequatchie Mountain provides an impressive backdrop for development, while the Tennessee and Sequatchie rivers provide opportunities for both passive and active recreation. Furthermore, Jasper has within its immediate area large expanses of farmland. These areas enhance the over-all appeal of Jasper as a place to live and do business and as such are important to preserve in their current state. Sequatchie Mountain will likely see some development at lower elevations, but at a substantially reduced rate compared with the rest of the City. Erosion control regulations were recently added to the zoning ordinance, and a rails-to-trails project, which would extend through the town center, is in the initial stages of planning. In considering Jasper's growth potential, the local planning office recommends that the City modify its zoning ordinance in a fashion that would encourage in-fill development to keep pressure off wetlands and other environmentally sensitive areas.

VACANT LAND POTENTIAL WITHIN THE CORPORATE BOUNDARY

The amount of vacant land appears sufficient to provide the minimum requirements for future residential, commercial, and industrial needs serving Jasper's projected population increases through the year 2020.

PROJECTED LAND NEEDS OUTSIDE CORPORATE BOUNDARY

It is apparent from the previous analysis that there exists within the current corporate limits sufficient land to accommodate the projected residential and business growth, according to the population projections from the University of Tennessee. There is also sufficient land to accommodate expansion of Jasper's existing industries. Therefore, any additional land needs would be precipitated by growth unanticipated by the population projections. Projections cannot be taken as literal, as many factors influence growth that cannot be taken into account through pure mathematical analysis. Therefore, while vacant land within the corporate Emits can support the projected natural population increase, unknown factors, such as migration for existing job opportunities, or the announcement of a large industry locating within the community, can substantially change land use needs.

PROJECTED PUBLIC SERVICE CAPABILITY OUTSIDE CORPORATE BOUNDARY

Water - Jasper's water service is provided by Jasper Water Works. Four main water lines, all of which are 6 inches in size, extend outside the current city limits. One extends northward along Old Highway 28 into the community of Sequatchie, the second extends northward along Highway 27 to a point near the western edge of Prentice Cooper State Forest, the third extends eastward to the community of Whiteside, and the fourth extends in a southeasterly direction along Shellmound road to a point near Nickajack Dam. Within the city, 1,283 residential and 194 commercial/industrial customers are served. Outside of the city, 1,672 residential and 47 industrial/commercial customers are served.

With an average per them pumping capacity of 913,000 gallons and a maximum capacity of 1,600,000 gallons, there is adequate capacity for considerable expansion of the water system. The estimated cost of extending water lines to serve all current development in the city is $35,000. The estimated cost of extending water mains and others necessary equipment to provide water service to the officially proposed Urban Growth Area is $316,800.

Sewer - The City of Jasper operates a sewage treatment plant in the southern portion of the city. Approximately 50 percent of developed lands within corporate limits are served by the public sewer system. Within the city, 946 residential and 117 commercial/industrial customers are served. Outside of the city, no residential and 2 industrial/commercial customers are served. With a capacity of 0.78 Million Gallons per Day (MGD), and an average daily usage of 0.242 MGD, there is adequate capacity for line extensions if needed. The estimated cost of extending sewer lines to serve all current development in the city is $1,430,000. The estimated cost of extending sewer mains and others necessary equipment to provide public sewer service to the official proposed Urban Growth Area is an additional $1,848,000.

Police - To fully serve the Shellmound area, if were to be annexed by the City and developed to its full potential, approximately 10 new police officers would be required to meet the recommendations of the International Association of Policemen. The estimated cost is $50,000 per police officer per year, or $500,000 per year, plus capital and equipment costs.

Fire - The Jasper Volunteer Fire Department provides fire service to the city and to additional areas located in the unincorporated portion of Marion County via a mutual aid agreement. It is likely that another fire station would have to be constructed in the proposed Urban Growth Area to maintain the current ISO rating of 6. The 1998 annual budget for the fire department was $38,900.

Solid Waste Collection - If necessary, the city would add an extra sanitation crew and vehicle to serve the proposed Growth Area. The projected initial cost is $100,000, with an average annual operating cost of $50,000-$60,000.

Roads and Streets - The City of Jasper will provide routine maintenance on all streets within its corporate limits in accordance with current maintenance policies.

PROPOSED URBAN GROWTH BOUNDARY

Based on the land use analysis presented in the first section of this report, Jasper has within its corporate limits enough land to accommodate the population growth as reported by the University of Tennessee. This includes lands to provide the associated commercial and service uses associated with residential growth. Therefore, based on a strict land use needs assessment, Jasper requires no Urban Growth Boundary. However, reasons beyond population accommodation can be used to justify an Urban Growth Boundary. For example, the Shellmound area, which is bounded by Jasper to the west, the Tennessee River to the south and east, and Interstate 24 to the north, lies in a portion of the county that makes Jasper the logical water and sewer service provider for several reasons.

First, unincorporated Marion County is projected to grow significantly in population (3,473 persons or 23 percent) between the years 2000 and 2020. A sizeable portion of this growth can reasonably be expected to occur in the Shellmound area, especially considering its central location, favorable topography, easy access to Interstate 24 and the Tennessee river, and past attempts at development. Since no other utility provider has water or sewer lines near Shellmound, and since Jasper already provides water service in this area and has excess capacity in both its water and sewage treatment plants, it is the only service provider in a position to support moderate-to-high density residential development.

Secondly, Jasper is the closest utility provider with the capability to support potentially heavy commercial development near the interstate exit onto Shellmound road. Third, considering Shellmound's soil limitations and proximity to TVA-owned land (Little Cedar Mountain and several acres of adjacent river-bank property) and other environmentally sensitive areas, the existence of a public sewer system would avoid possible groundwater contamination caused by the failure of personal septic systems. And lastly, Jasper is capable of providing the higher level of police protection necessary for commercially and residentially developed land.

A map of the Urban Growth Boundary as recommended by the Jasper Board of Mayor and Aldermen is shown as Illustration 5. The total acreage of the proposed UGB is 5,836 acres. After subtracting developed lands (street right-of-way, residences, commercial establishments, etc.), lands having physical development constraints (floodplain and poor soils for septic systems), and government-owned lands, approximately 4,161 acres of prime developable land remain in the officially proposed Urban Growth Boundary.

In all, Jasper proposes an Urban Growth Boundary not as a response to calculations of population increases, or to respond to a dwindling land supply, but rather so that the City can be a center for urban services in the central portion of Marion County. In percentage terms, the population projections for the unincorporated areas of Marion County are nearly as high the projections for Jasper itself, and surpass the projections for most of the other municipalities in the County. Based on the level of development in the Jasper area, part of that growth will be in Jasper's immediate vicinity. Without an Urban Growth Boundary, Jasper cannot extend vital municipal services-to areas that will in all likelihood experience additional growth.

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