# General plan documents — lincoln-nebraska Assembled by OpenPublica from the documents it serves for this government. Each section below is a separate publication by the government; page anchors (``) refer to pages of that section's own source PDF, linked in its heading. **Contains 1 document.** OpenPublica has pinned these slots for this government: combined. That is what we have looked for, not a statement that the government publishes nothing else — a plan element absent here may simply not have been reviewed yet. Last reviewed 2026-09-02. --- ## Complete Plan — PlanForward: Lincoln-Lancaster County 2050 Comprehensive Plan (adopted November 12, 2021, as amended) - Source: https://www.lincoln.ne.gov/files/sharedassets/public/v/41/planning/long-range-planning/comprehensive-plan/2050-book.pdf - Pages: 365 - Covers: circulation, combined, conservation, ej, housing, land_use, noise, open_space, safety - **Transcription findings were recorded for this document;** check figures against the source. # PLAN forward ## Lincoln-Lancaster County 2050 Comprehensive Plan The Lincoln-Lancaster County 2050 Comprehensive Plan is a roadmap to “plan forward”, not only in time, but in concept, to envision a community that is Livable, Equitable, Thriving, Resilient, and Innovative. <
> CITY OF LINCOLN NEBRASKA LANCASTER COUNTY Adopted November 12, 2021 The Lincoln-Lancaster County 2050 Comprehensive Plan embodies Lincoln and Lancaster County’s shared vision for the future, out to the year 2050. The theme of the Comprehensive Plan is “Plan Forward,” because it will envision a future that not only looks forward in time, but also forward in concept with new and innovative ideas to support our growing community. The development of the Comprehensive Plan included extensive public input with contributions from all facets of the community – from local leaders and topic area experts, to regular citizens who have shared interest in building a strong vision for Lincoln and Lancaster County. The Planning Department wishes to thank the following: * The community experts and leaders, City-County staff, and Planning Commission members who volunteered their time to serve on various Comprehensive Plan committees and provided input on plan content. * The hundreds of Lancaster County residents who attended the in-person and virtual events and participated in the public surveys. * Students from the UNL Community & Regional Planning Program capstone studio classes from Spring 2020 and Spring 2021 who provided invaluable research on background topics in the Plan. # Table of Contents # Introduction Land Acknowledgement ............................................................................................1.2 Growth Framework .....................................................................................................1.5 Fundamentals of Growth in Lancaster County .....................................................1.5 The Rural Environment.........................................................................................1.6 The Community in 2050........................................................................................1.6 Figure Gf.a: Population Density.........................................................................1.8 Benefits of Well-Planned Growth .......................................................................1.9 Land Use Plan .......................................................................................................1.10 Figure GF.b: 2050 Future Land Use Plan.........................................................1.11 Figure GF.b: 2050 Future Land Use Plan .........................................................1.12 Future Growth Tier Map.......................................................................................1.14 Tier I ......................................................................................................................1.15 Figure GF.c: 2050 Priority Growth Area...........................................................1.15 Tier II .....................................................................................................................1.17 Tier III ....................................................................................................................1.18 Concurrency .........................................................................................................1.18 Annexation ...........................................................................................................1.19 Community Background ..........................................................................................1.21 History....................................................................................................................1.21 The Region ............................................................................................................1.21 The People.............................................................................................................1.21 Public Engagement Process ...................................................................................1.23 Acknowledgements ..............................................................................................1.23 Public Engagement Process Summary ...............................................................1.23 Community Committee .......................................................................................1.24 Equity Subcommittee...........................................................................................1.24 Staff Committee ...................................................................................................1.24 PlanForward 2050 was developed by the Lincoln/Lancaster County Planning Department. Should you require a reasonable accommodation in order to fully participate or information in an alternative format, please contact us at 402-441-7491. **For more information, contact:** Lincoln/Lancaster County Planning Dept. 555 S. 10th Street, Suite 213 Lincoln, NE 68508 plan@lincoln.ne.gov # Goals G1: Safe, Affordable, and Accessible Housing......................................................................2.4 Figure G1.a: Cost Burdened Households in Lincoln ..................................................2.4 Policies Related to this Goal........................................................................................2.5 Community Indicators Related to this Goal ..............................................................2.5 G2: Complete Neighborhoods......................................................................................................2.6 Policies Related to this Goal........................................................................................2.6 Community Indicators Related to this Goal ..............................................................2.7 G3: High-Quality Workforce.........................................................................................................2.8 Figure G3.a: Poverty Status for Age 25 and Over, Lancaster County ........................2.8 Figure G3.b: Median Earnings in the Past 12 Months, Lancaster County ................2.9 Figure G3.c: Race and Educational Attainment, Lancaster County ..........................2.9 Figure G3.d: Labor Force Participation, Lancaster County........................................2.10 Policies Related to this Goal........................................................................................2.11 Community Indicators Related to this Goal ..............................................................2.11 G4: Economic Opportunity ...........................................................................................................2.12 Policies Related to this Goal........................................................................................2.12 Community Indicators Related to this Goal ..............................................................2.13 G5: Equity and Inclusion..............................................................................................................2.14 Figure G5.a: Lincoln "Redline" Map, 1933 .................................................................2.16 Table G5.a: Median Family Income, Lancaster County...............................................2.17 Figure G5.b: Median Household Income, Lancaster County......................................2.17 Table G5.b: Poverty Status in Past 12 Months, Lancaster County ............................2.18 Table G5.c: Housing Tenure, Lancaster County .........................................................2.18 Figure G5.c: Life Expectancy .......................................................................................2.20 Policies Related to this Goal........................................................................................2.21 Community Indicators Related to this Goal ..............................................................2.21 G6: Healthy, Active, and Connected People..............................................................................2.22 Figure G6.a: Parks and Recreational Facilities............................................................2.23 Vulnerability and service area data source: Parks and Recreation Department ....................................................................................................................2.23 Policies Related to this Goal........................................................................................2.24 Community Indicators Related to this Goal ..............................................................2.24 G7: Environmental Stewardship and Sustainability...................................................................2.25 Figure G7.a: LES Portfolio CO2 Rate...........................................................................2.25 Policies Related to this Goal........................................................................................2.26 Community Indicators Related to this Goal ..............................................................2.27 G8: Community Resiliency ...........................................................................................................2.28 Figure G8.a: Lincoln's Future Climate Change............................................................2.28 Policies Related to this Goal........................................................................................2.29 Community Indicators Related to this Goal ..............................................................2.29 G9: Civic Participation ..................................................................................................................2.30 Policies Related to this Goal........................................................................................2.31 Community Indicators Related to this Goal ..............................................................2.31 G10: Effective Government...........................................................................................................2.32 Policies Related to this Goal........................................................................................2.32 Community Indicators Related to this Goal ..............................................................2.33 Table of Contents G11: Rural Environment ........................................................................................2.34 Policies Related to this Goal ...........................................................................2.34 Community Indicators Related to this Goal....................................................2.35 G12: History and Culture .....................................................................................2.36 Figure G12.a: ..................................................................................................2.36 Actual and Projected Population for Major Racial/Ethnic Groups, Lancaster County .............................................................................................................2.36 Policies Related to this Goal ...........................................................................2.37 Community Indicators Related to this Goal....................................................2.37 G13: Community Appearance..............................................................................2.38 Policies Related to this Goal ...........................................................................2.38 Community Indicators Related to this Goal....................................................2.38 G14: Technology...................................................................................................2.39 Table G14.a: Internet Access, Lancaster County .............................................2.39 Policies Related to this Goal ...........................................................................2.41 Community Indicators Related to this Goal....................................................2.41 G15: Transportation..............................................................................................2.42 Policies Related to this Goal ...........................................................................2.43 Community Indicators Related to this Goal....................................................2.43 # Elements E1: Complete Neighborhoods and Housing .......................................................3.3 Figure E1.a: Strategies for Design, Sustainability and Complete Neighborhoods in Developing Areas ..............................................................................................3.6 Figure E1.a: Strategies for Design, Sustainability and Complete Neighborhoods in Developing Areas ..............................................................................................3.7 Figure E1.b: Strategies for Design, Sustainability and Complete Neighborhoods in Existing Areas......................................................................................................3.8 Existing Neighborhoods ...................................................................................3.10 Developing Neighborhoods .............................................................................3.10 Affordable Housing..........................................................................................3.11 Table E1.a: Housing Type by Decade, Lincoln................................................3.12 Rural Housing ..................................................................................................3.13 Figure E1c: Rural Housing on the 2050 Future Land Use Map .......................3.14 Trends in Housing............................................................................................3.16 Policies Related to this Element:.....................................................................3.16 Goals Related to this Element ........................................................................3.17 E2: Infill and Redevelopment..............................................................................3.18 Infill and Redevelopment Approach ...............................................................3.19 Figure E2.a: Infill Districts ..............................................................................3.20 Greater Downtown ..........................................................................................3.21 Mixed Use Redevelopment Nodes and Corridors ..........................................3.21 Redevelopment Nodes.....................................................................................3.21 Redevelopment Corridors ................................................................................3.22 Location Criteria...............................................................................................3.22 Design Strategies for Mixed Use Nodes and Corridors.................................3.22 Figure E2.b: Design Strategies for Mixed Use Nodes and Corridors ............3.23 Example 1 ........................................................................................................3.23 Figure E2.b: Design Strategies for Mixed Use Nodes and Corridors ............3.24 Table of Contents Example 2.......................................................................................................................................3.24 Primary Mixed Use Redevelopment Nodes and Corridors.......................................................3.25 Figure E2.c: Gateway Mall Area Long-Term Redevelopment Concept..................................3.26 Neighborhood Edges ...................................................................................................................3.27 Figure E2.d: Locations of Primary Mixed Use Redevelopment Nodes and Corridors ..........................................................................................................................................................3.27 Existing Neighborhoods .............................................................................................................3.28 Figure E2.e: Neighborhood Edge Example..............................................................................3.28 High-Quality Design.....................................................................................................................3.29 Redevelopment Incentives..........................................................................................................3.29 Policies Related to this Element.......................................................................................3.30 Goals Related to this Element .........................................................................................3.30 E3: Business, Economy and Workforce............................................................................................3.31 Economy and Workforce Development ....................................................................................3.31 Figure E3.a: Business & Commerce Sector Employment .......................................................3.32 Figure E3.b: Government Sector Employmemt........................................................................3.32 Figure E3.C: Industrial Sector Employmemt............................................................................3.33 Downtown......................................................................................................................................3.37 Lancaster County, Outside of Lincoln .....................................................................................3.37 Commercial and Industrial Development ...............................................................................3.38 Commercial Centers ....................................................................................................................3.38 Figure E3.d: Commercial Center Design Strategies...............................................................3.40 Figure E3.d: Commercial Center Design Strategies...............................................................3.41 Figure E3.e: Regional Centers...................................................................................................3.44 Commercial Infill ...........................................................................................................................3.45 Figure E3.f: Commercial Infill Design Strategies....................................................................3.46 Industrial Centers .........................................................................................................................3.47 Potential Large Employer Opportunity Areas .........................................................................3.48 Policies Related to this Element ......................................................................................3.48 Goals Related to this Element .........................................................................................3.49 E4: Environmental Resources............................................................................................................3.50 Figure E4a: Water Cycle.............................................................................................................3.50 Local Food.....................................................................................................................................3.53 Environmental Resources Categories .....................................................................................3.53 Native Prairie.........................................................................................................................3.54 Freshwater Wetlands ..........................................................................................................3.55 Saline Wetlands ...................................................................................................................3.55 Threatened and Endangered Species ..............................................................................3.56 Basins and Streams .............................................................................................................3.56 Floodplains ...........................................................................................................................3.57 Agricultural Lands................................................................................................................3.57 Views and Vistas ..................................................................................................................3.58 Parks, Trail Corridors, and Other Recreational Areas ...................................................3.58 Urban Forest .........................................................................................................................3.58 Woodlands ............................................................................................................................3.58 Figure E4b: Environmental Resource.......................................................................................3.59 Policies Related to this Element ......................................................................................3.60 Goals Related to this Element .........................................................................................3.60 Table of Contents # E5: Parks, Recreation and Open Space .....................................................................3.61 Table E5.a: Sites Managed by the Parks and Recreation Department ............................3.61 Figure E5.a: Existing and Future Park Sites ...................................................................3.62 ## Regional Parks and Tournament Facilities.................................................................3.63 ## Community Parks .........................................................................................................3.63 Figure E5.b: Community Park Diagram...........................................................................3.64 ## Neighborhood Parks....................................................................................................3.65 Figure E5.c: Neighborhood Park Diagram ......................................................................3.65 Figure E5.d: Joint School and Park Site ("Sparks") Diagram .........................................3.66 ## Recreation Centers/Community Learning Centers....................................................3.66 ## Aquatic Facilities ........................................................................................................3.67 ## Other Recreational Facilities and Activities .............................................................3.67 ### Parks and Recreation Facilities: .............................................................................3.68 ### Facilities on Parks and Recreation land owned and/or operated by others: .........................................................................................................................................3.69 ### Facilities developed as part of a City partnership: .................................................3.69 ### Other publicly owned facilities: ...............................................................................3.69 ### Private sector facilities: ............................................................................................3.70 ## Trails............................................................................................................................3.71 ## Salt Valley Greenway ..................................................................................................3.71 Figure E5.e: Greenway Linkages ....................................................................................3.72 Figure E5.f: Salt Valley Greenway...................................................................................3.73 ## Community Forestry Management.............................................................................3.74 ## Partnerships ...............................................................................................................3.74 ### Policies Related to this Element...............................................................................3.75 ### Goals Related to this Element ..................................................................................3.75 # E6: Placemaking ............................................................................................................3.76 ## The Setting .................................................................................................................3.76 ## The City .......................................................................................................................3.76 ## The Capitol ..................................................................................................................3.77 Figure E6.a: Capitol View Corridors ...............................................................................3.78 ## Corridors......................................................................................................................3.79 Figure E6.b: Entryway Corridors......................................................................................3.80 ## Current Practices ........................................................................................................3.81 Figure E6.c: Historic & Capitol Environs District ...........................................................3.82 ### Policies Related to this Element ..............................................................................3.83 ### Goals Related to this Element ..................................................................................3.83 # E7: Community Facilities ..............................................................................................3.84 ## Libraries ......................................................................................................................3.84 ## Fire and Rescue ..........................................................................................................3.85 ### Lincoln Fire and Rescue ...........................................................................................3.85 Figure E7.a: Existing Community Facilities ....................................................................3.87 ### Rural Fire Districts ....................................................................................................3.88 Figure E7.b: Existing Fire Districts .................................................................................3.89 ## Law Enforcement .........................................................................................................3.90 ## Health Care Facilities..................................................................................................3.90 ## Education.....................................................................................................................3.91 ### Lincoln Public Schools ..............................................................................................3.91 Table of Contents Rural School Districts ...........................................................................................................3.92 Private and Parochial Schools .............................................................................................3.92 Figure E7.c: Joint School and Park Site..............................................................................3.92 Community Colleges, Trade Schools, and Universities ......................................................3.93 Other Public Buildings and Facilities ...................................................................................3.93 Policies Related to this Element .........................................................................................3.94 Goals Related to this Element .............................................................................................3.94 E8: Energy and Utilities...........................................................................................................3.95 Energy ......................................................................................................................................3.95 Statutory Requirements.....................................................................................................3.97 Energy Use.........................................................................................................................3.97 Figure E8.a: Nebraska's Energy Use by Type ..................................................................3.98 Figure E8.b: Nebraska's Energy Use by Sector................................................................3.98 Water Services ........................................................................................................................3.99 Lincoln Water System and County Water Resources .......................................................3.99 Figure E8.c: Lincoln's Energy Use by Sector ....................................................................3.99 Figure E8.d: Existing and Future City of Lincoln Water Pressure Zones .........................3.101 Groundwater Management Plan........................................................................................3.102 Wastewater Services ..............................................................................................................3.102 Collection System ..............................................................................................................3.102 Figure E8.e: Existing and Future City of Lincoln Wastewater Improvements ....3.103 Water Resource Recovery Facilities..................................................................................3.104 Watershed Management..........................................................................................................3.105 Floodplain and Stormwater Management .........................................................................3.105 Comprehensive Watershed Management .........................................................................3.105 Floodplain Management ....................................................................................................3.106 Solid Waste (Sustainable Materials Management)................................................................3.107 Collection ...........................................................................................................................3.107 Disposal ..............................................................................................................................3.107 Environmental Services .....................................................................................................3.107 Landfill Gas Collection and Control ..................................................................................3.108 Strategies for Solid Waste Management ...........................................................................3.108 Electric Service ........................................................................................................................3.109 Figure E8.f: Solid Waste Circular Economy......................................................................3.109 Figure E8.g: LES Service Area and LES/Norris Joint Planning Area..............................3.111 Wind Energy .......................................................................................................................3.112 Natural Gas Service3.112 Policies Related to this Element .........................................................................................3.113 Goals Related to this Element .............................................................................................3.113 E9: Transportation ...................................................................................................................3.114 Existing Conditions and Issues...........................................................................................3.116 Community Growth and Travel Patterns ...........................................................................3.117 Active Transportation and Multi-Use Trails .......................................................................3.117 Existing Transit System......................................................................................................3.118 Existing Freight System......................................................................................................3.119 Existing Rail System ...........................................................................................................3.120 Existing Airports and Airfields ...........................................................................................3.120 Table of Contents Community Input on Transportation ............................................................................3.121 Major Public Outreach Efforts .....................................................................................3.121 Planning for the Transportation Needs of 2050 ..........................................................3.122 The 2050 Needs Based Plan ........................................................................................3.122 Major Streets and Right-of-Way Considerations. .......................................................3.122 Figure E9.a: Major Streets and Right-of-Way Map......................................................3.124 Fiscally Constrained Transportation Plan ...................................................................3.125 Revenue Forecasts........................................................................................................3.125 Fiscally Constrained Transportation Plan....................................................................3.126 NDOT Highways Program.............................................................................................3.126 Figure E9.b: LRTP Resource Allocation ($1M)............................................................3.126 Lancaster County Rural Roads Program .....................................................................3.127 Figure E9.c-1: Fiscally Constrained Rural Road and Bridge Capital Projects ...3.128 Figure E9.c-2: Fiscally Constrained Urban Roadway Capital Projects .................3.129 City of Lincoln Urban Roads Program .........................................................................3.130 Transit............................................................................................................................3.132 Active Transportation....................................................................................................3.134 Figure E9.d: Priority Trail Projects ...............................................................................3.136 Policies Related to this Element..................................................................................3.138 Goals Related to this Element .....................................................................................3.139 # Policies P1: Housing Affordability .............................................................................................4.4 Goals Supported by this Policy .............................................................................4.5 Elements Related to this Policy ............................................................................4.5 P2: Existing Neighborhoods.........................................................................................4.6 Action Steps ...........................................................................................................4.6 Goals Supported by this Policy .............................................................................4.7 Elements Related to this Policy ............................................................................4.7 P3: Developing Neighborhoods ...................................................................................4.8 Action Steps ...........................................................................................................4.8 Goals Supported by this Policy .............................................................................4.9 Elements Related to this Policy ............................................................................4.9 P4: Rural Housing ........................................................................................................4.10 Action Steps ...........................................................................................................4.10 Goals Supported by this Policy .............................................................................4.11 Elements Related to this Policy ............................................................................4.11 P5: Downtown ..............................................................................................................4.12 Action Steps ...........................................................................................................4.12 Goals Supported by this Policy .............................................................................4.13 Elements Related to this Policy ............................................................................4.13 P6: Nodes and Corridors .............................................................................................4.14 Action Steps ...........................................................................................................4.14 Goals Supported by this Policy .............................................................................4.15 Elements Related to this Policy ............................................................................4.15 Table of Contents P7: Redevelopment Incentives....................................................................................4.16 Action Steps ..............................................................................................................4.16 Goals Supported by this Policy ...............................................................................4.17 Elements Related to this Policy ..............................................................................4.17 P8: Infill and Redevelopment....................................................................................4.18 Action Steps ..............................................................................................................4.18 Goals Supported by this Policy ...............................................................................4.19 Elements Related to this Policy ..............................................................................4.19 P9: Skilled, Diverse, and Trained Workforce...........................................................4.20 Action Steps ..............................................................................................................4.20 Goals Supported by this Policy ...............................................................................4.21 Elements Related to this Policy ..............................................................................4.21 P10: Supporting Small Businesses ...........................................................................4.22 Action Steps ..............................................................................................................4.22 Goals Supported by this Policy ...............................................................................4.22 Elements Related to this Policy ..............................................................................4.23 P11: Parking Requirements ......................................................................................4.24 Action Steps ..............................................................................................................4.24 Goals Supported by this Policy ...............................................................................4.24 Elements Related to this Policy ..............................................................................4.24 P12: Economic Growth .............................................................................................4.25 Action Steps ..............................................................................................................4.25 Goals Supported by this Policy ...............................................................................4.25 Elements Related to this Policy ..............................................................................4.25 P13: Commercial and Industrial Centers..................................................................4.26 Action Steps ..............................................................................................................4.26 Goals Supported by this Policy ...............................................................................4.26 Elements Related to this Policy ..............................................................................4.26 P14: Commercial Infill .............................................................................................4.27 Action Steps ..............................................................................................................4.27 Goals Supported by this Policy ...............................................................................4.27 Elements Related to this Policy ..............................................................................4.27 P15: Infrastructure and Economic Development......................................................4.28 Action Steps ..............................................................................................................4.28 Goals Supported by this Policy ...............................................................................4.28 Elements Related to this Policy ..............................................................................4.28 P16: Rural Economy.................................................................................................4.29 Action Steps ..............................................................................................................4.29 Goals Supported by this Policy ...............................................................................4.30 Elements Related to this Policy ..............................................................................4.30 Table of Contents P17: Predictability...............................................................................................................4.31 Action Steps .......................................................................................................................4.31 Goals Supported by this Policy ............................................................................4.31 Elements Related to this Policy...........................................................................4.31 P18: Conservation Design..................................................................................................4.32 Action Steps .......................................................................................................................4.32 Goals Supported by this Policy ............................................................................4.33 Elements Related to this Policy...........................................................................4.33 P19: Native Prairie..............................................................................................................4.34 Action Steps .......................................................................................................................4.34 Goals Supported by this Policy ............................................................................4.35 Elements Related to this Policy...........................................................................4.35 P20: Ecology and Habitat..................................................................................................4.36 Action Steps .......................................................................................................................4.36 Goals Supported by this Policy ............................................................................4.37 Elements Related to this Policy...........................................................................4.37 P21: Floodplains and Riparian Areas................................................................................4.38 Action Steps .......................................................................................................................4.38 Goals Supported by this Policy ............................................................................4.39 Elements Related to this Policy...........................................................................4.39 P22: Local Food ..................................................................................................................4.40 Action Steps .......................................................................................................................4.40 Goals Supported by this Policy ............................................................................4.41 Elements Related to this Policy...........................................................................4.41 P23: Salt Valley Greenway and Connecting Green Corridors Concept Implementation4.42 Action Steps .......................................................................................................................4.42 Goals Supported by this Policy ............................................................................4.44 Elements Related to this Policy...........................................................................4.44 P24: Environmental Resource Protection ........................................................................4.45 Action Steps .......................................................................................................................4.45 Goals Supported by this Policy ............................................................................4.46 Elements Related to this Policy...........................................................................4.46 P25: Open Space with Development.................................................................................4.47 Action Steps .......................................................................................................................4.47 Goals Supported by this Policy ............................................................................4.48 Elements Related to this Policy...........................................................................4.48 P26: Community Forestry Management ..........................................................................4.49 Action Steps .......................................................................................................................4.49 Goals Supported by this Policy ............................................................................4.50 Elements Related to this Policy...........................................................................4.50 Table of Contents P27: Regional Parks and Tournament Facilities ......................................................................... 4.51 Action Steps ......................................................................................................................... 4.51 Goals Supported by this Policy ................................................................................... 4.51 Elements Related to this Policy ................................................................................... 4.51 P28: Community Parks ................................................................................................................ 4.52 Action Steps ......................................................................................................................... 4.52 Goals Supported by this Policy ................................................................................... 4.53 Elements Related to this Policy ................................................................................... 4.53 P29: Neighborhood Parks ........................................................................................................... 4.54 Action Steps ......................................................................................................................... 4.54 Goals Supported by this Policy ................................................................................... 4.55 Elements Related to this Policy ................................................................................... 4.55 P30: Recreation Centers / Community Learning Centers ............................................................ 4.56 Action Steps ......................................................................................................................... 4.56 Goals Supported by this Policy ................................................................................... 4.57 Elements Related to this Policy ................................................................................... 4.57 P31: Aquatic Facilities ................................................................................................................ 4.58 Action Steps ......................................................................................................................... 4.58 Goals Supported by this Policy ................................................................................... 4.58 Elements Related to this Policy ................................................................................... 4.58 P32: Other Recreational Facilities and Activities ......................................................................... 4.59 Action Steps ......................................................................................................................... 4.59 Goals Supported by this Policy ................................................................................... 4.60 Elements Related to this Policy ................................................................................... 4.60 P33: Parks and Recreation Partnerships..................................................................................... 4.61 Action Steps ......................................................................................................................... 4.61 Goals Supported by this Policy ................................................................................... 4.62 Elements Related to this Policy ................................................................................... 4.62 P34: Urban Design Standards .................................................................................................... 4.63 Action Steps ......................................................................................................................... 4.63 Goals Supported by this Policy ................................................................................... 4.64 Elements Related to this Policy ................................................................................... 4.64 P35: Entry Corridors.................................................................................................................... 4.65 Action Steps ......................................................................................................................... 4.65 Goals Supported by this Policy ................................................................................... 4.65 Elements Related to this Policy ................................................................................... 4.65 P36: Public Art............................................................................................................................ 4.66 Action Steps ......................................................................................................................... 4.66 Goals Supported by this Policy ................................................................................... 4.66 Elements Related to this Policy ................................................................................... 4.66 Table of Contents P37: Historic Preservation .......................................................................................4.67 Action Steps .........................................................................................................4.67 Goals Supported by this Policy .......................................................................4.68 Elements Related to this Policy ......................................................................4.68 P38: State Capitol ...................................................................................................4.69 Action Steps .........................................................................................................4.69 Goals Supported by this Policy .......................................................................4.70 Elements Related to this Policy ......................................................................4.70 P39: Community Space ...........................................................................................4.71 Action Steps .........................................................................................................4.71 Goals Supported by this Policy .......................................................................4.72 Elements Related to this Policy ......................................................................4.72 P40: Libraries .........................................................................................................4.73 Action Steps .........................................................................................................4.73 Goals Supported by this Policy .......................................................................4.74 Elements Related to this Policy ......................................................................4.74 P41: Fire and Rescue..............................................................................................4.75 Action Steps .........................................................................................................4.75 Goals Supported by this Policy .......................................................................4.75 Elements Related to this Policy ......................................................................4.75 P42: Law Enforcement ............................................................................................4.76 Action Steps .........................................................................................................4.76 Goals Supported by this Policy .......................................................................4.76 Elements Related to this Policy ......................................................................4.76 P43: Health Care Access ........................................................................................4.77 Action Steps .........................................................................................................4.77 Goals Supported by this Policy .......................................................................4.77 Elements Related to this Policy ......................................................................4.77 P44: Education .......................................................................................................4.78 Action Steps .........................................................................................................4.78 Goals Supported by this Policy .......................................................................4.78 Elements Related to this Policy ......................................................................4.78 P45: Early Childhood Care and Education ............................................................4.79 Action Steps .........................................................................................................4.79 Goals Supported by this Policy .......................................................................4.80 Elements Related to this Policy ......................................................................4.80 P46: Public Buildings ..............................................................................................4.81 Action Steps .........................................................................................................4.81 Goals Supported by this Policy .......................................................................4.82 Elements Related to this Policy ......................................................................4.82 Table of Contents P47: Civic Participation ........................................................................................................4.83 Action Steps ........................................................................................................................4.83 Goals Supported by this Policy .....................................................................................4.83 Elements Related to this Policy .....................................................................................4.83 P48: Renewable Energy .......................................................................................................4.84 Action Steps ........................................................................................................................4.84 Goals Supported by this Policy .....................................................................................4.85 Elements Related to this Policy .....................................................................................4.85 P49: Conservation of Energy ...............................................................................................4.86 Action Steps ........................................................................................................................4.86 Goals Supported by this Policy .....................................................................................4.87 Elements Related to this Policy .....................................................................................4.88 P50: Water Quantity and Quality ........................................................................................4.89 Action Steps ........................................................................................................................4.89 Goals Supported by this Policy .....................................................................................4.89 Elements Related to this Policy .....................................................................................4.89 P51: Groundwater ................................................................................................................4.90 Action Steps ........................................................................................................................4.90 Goals Supported by this Policy .....................................................................................4.90 Elements Related to this Policy .....................................................................................4.90 P52: Wastewater System......................................................................................................4.91 Action Steps ........................................................................................................................4.91 Goals Supported by this Policy .....................................................................................4.91 Elements Related to this Policy .....................................................................................4.91 P53: Gravity Flow Collection System...................................................................................4.92 Action Steps ........................................................................................................................4.92 Goals Supported by this Policy .....................................................................................4.92 Elements Related to this Policy .....................................................................................4.92 P54: Wastewater Resource Recovery Facilities..................................................................4.93 Action Steps ........................................................................................................................4.93 Goals Supported by this Policy .....................................................................................4.93 Elements Related to this Policy .....................................................................................4.93 P55: Watershed Planning ....................................................................................................4.94 Action Steps ........................................................................................................................4.94 Goals Supported by this Policy .....................................................................................4.94 Elements Related to this Policy .....................................................................................4.94 P56: Waste Management System .......................................................................................4.95 Action Steps ........................................................................................................................4.95 Goals Supported by this Policy .....................................................................................4.95 Elements Related to this Policy .....................................................................................4.95 Table of Contents P57: Energy from Waste and Emission Reductions: .....................................................................4.96 Action Steps ..................................................................................................................................4.96 Goals Supported by this Policy ...........................................................................................4.96 Elements Related to this Policy ...........................................................................................4.96 P58: Waste Reduction and Diversion...........................................................................................4.97 Action Steps ..................................................................................................................................4.97 Goals Supported by this Policy ...........................................................................................4.97 Elements Related to this Policy ...........................................................................................4.98 P59: Electric Utility .........................................................................................................................4.99 Action Steps ..................................................................................................................................4.99 Goals Supported by this Policy ...........................................................................................4.99 Elements Related to this Policy ...........................................................................................4.99 P60: Technology..............................................................................................................................4.100 Action Steps ..................................................................................................................................4.100 Goals Supported by this Policy ...........................................................................................4.101 Elements Related to this Policy ...........................................................................................4.101 P61: Industrial Zoning and Pipelines ............................................................................................4.102 Action Steps ..................................................................................................................................4.102 Goals Supported by this Policy ...........................................................................................4.102 Elements Related to this Policy ...........................................................................................4.102 P62: Transportation Equity .............................................................................................................4.103 Action Steps ..................................................................................................................................4.103 Goals Supported by this Policy ...........................................................................................4.104 Elements Related to this Policy ...........................................................................................4.104 P63: Transportation and the Environment ..................................................................................4.105 Action Steps ..................................................................................................................................4.105 Goals Supported by this Policy ...........................................................................................4.106 Elements Related to this Policy ...........................................................................................4.106 P64: Complete Streets.....................................................................................................................4.107 Goals Supported by this Policy ...........................................................................................4.108 Elements Related to this Policy ...........................................................................................4.108 P65: Transportation and Managing Growth ...............................................................................4.109 Action Steps ..................................................................................................................................4.109 Goals Supported by this Policy ...........................................................................................4.110 Elements Related to this Policy ...........................................................................................4.110 P66: Congestion Management.......................................................................................................4.111 Action Steps ..................................................................................................................................4.111 Goals Supported by this Policy ...........................................................................................4.111 Elements Related to this Policy ...........................................................................................4.111 Table of Contents P67: Transportation and Economic Health......................................................................4.112 Action Steps ................................................................................................................4.112 Goals Supported by this Policy ................................................................................4.112 Elements Related to this Policy................................................................................4.112 P68: Pedestrians ...............................................................................................................4.113 Action Steps ................................................................................................................4.113 Goals Supported by this Policy ................................................................................4.114 Elements Related to this Policy................................................................................4.114 P69: Bicycles....................................................................................................................4.115 Action Steps ................................................................................................................4.115 Goals Supported by this Policy ................................................................................4.116 Elements Related to this Policy................................................................................4.116 P70: Transit.......................................................................................................................4.117 Action Steps ................................................................................................................4.117 Goals Supported by this Policy ................................................................................4.118 Elements Related to this Policy................................................................................4.118 P71: Public ROW and Access .........................................................................................4.119 Action Steps ................................................................................................................4.119 Goals Supported by this Policy ................................................................................4.119 Elements Related to this Policy................................................................................4.119 P72: Freight ......................................................................................................................4.120 Action Steps ................................................................................................................4.120 Goals Supported by this Policy ................................................................................4.120 Elements Related to this Policy................................................................................4.120 P73: Shared Mobility........................................................................................................4.121 Action Steps ................................................................................................................4.121 Goals Supported by this Policy ................................................................................4.122 Elements Related to this Policy................................................................................4.122 P74: Advanced Mobility...................................................................................................4.123 Action Steps ................................................................................................................4.123 Goals Supported by this Policy ................................................................................4.124 Elements Related to this Policy................................................................................4.124 P75: Transportation Partnerships ...................................................................................4.125 Action Steps................................................................................................................4.125 Goals Supported by this Policy ................................................................................4.125 Elements Related to this Policy................................................................................4.125 P76: Transportation Safety ..............................................................................................4.126 Action Steps................................................................................................................4.126 Goals Supported by this Policy ................................................................................4.127 Elements Related to this Policy................................................................................4.127 Table of Contents P77: Transportation Maintenance ..................................................................................4.128 Action Steps................................................................................................................4.128 Goals Supported by this Policy..................................................................................4.128 Elements Related to this Policy..................................................................................4.128 P78: Transportation Funding...........................................................................................4.129 Action Steps................................................................................................................4.129 Goals Supported by this Policy..................................................................................4.130 Elements Related to this Policy..................................................................................4.130 P79: Airport .....................................................................................................................4.131 Action Steps................................................................................................................4.131 Goals Supported by this Policy..................................................................................4.131 Elements Related to this Policy..................................................................................4.131 P80: Annexation...............................................................................................................4.132 Action Steps................................................................................................................4.132 Goals Supported by this Policy..................................................................................4.132 Elements Related to this Policy..................................................................................4.132 # Implementation Land Use Administration ................................................................................................5.3 Five Year Tasks ...........................................................................................................5.3 Table 1.a: Five Year Implementation Tasks....................................................................5.4 Financial Resources.........................................................................................................5.6 Strategies for Financing Rural Infrastructure ............................................................5.6 Strategies for Financing Urban Infrastructure ............................................................5.6 Capital Improvements Programming...............................................................................5.7 Public Sector Contributions .......................................................................................5.7 Private Sector Contributions ......................................................................................5.8 Strategies for the Capital Improvement Program .......................................................5.8 On-Going Comprehensive Plan Activities......................................................................5.9 Plan Amendments ..........................................................................................................5.11 Plan Update Process ......................................................................................................5.11 (blank page) # PLAN forward ## Lincoln–Lancaster County 2050 Comprehensive Plan The Lincoln–Lancaster County 2050 Comprehensive Plan is a roadmap to “plan forward”, not only in time, but in concept, to envision a community that is Livable, Equitable, Thriving, Resilient, and Innovative. # Introduction CITY OF LINCOLN NEBRASKA LANCASTER NEBRASKA COUNTY Introduction ## Land Acknowledgement The City of Lincoln Land Acknowledgement Statement reads as follows: We want to acknowledge that our community rests on the traditional lands of the Ponca, Omaha, Winnebago, Dakota and Otoe Peoples past and present, and honor with gratitude the land itself and the people who have stewarded it throughout the generations. This calls us to commit to work in partnership with our Indigenous Peoples, continuing to learn how to be better stewards of the land we now inhabit as well. PlanForward is the Comprehensive Plan for the City of Lincoln and Lancaster County. PlanForward embodies Lincoln and Lancaster County's shared vision for the future, out to the year 2050. PlanForward acknowledges the importance and interconnectedness of economic, environmental, and socio-cultural domains, and the ways in which technology and public policy are applied and affect outcomes in these domains. PlanForward therefore is a combination of practicality and vision and provides guidelines for sustaining the rich mosaic that now characterizes our growing community. The core promise embedded in PlanForward is to maintain and enhance the health, safety, and welfare of our community during times of change, to promote our ideals and values as changes occur, and to meet the needs of today without sacrificing the ability of future generations to meet their needs. For a “good quality of life,” a community has more than jobs, shelter, utilities, and roads — there are numerous services, education, historic, natural, and cultural resources that are fundamental to enriching lives in our One Community. Introduction The update process of the Lincoln-Lancaster County Comprehensive Plan began by looking back in order to plan forward. One of the strengths in LPlan 2040 is the continuity of commitments made to “maintain and enhance the health, safety and welfare of our community during times of change, while promoting ideals and values.” Our nation and communities are facing new challenges that not only impact how we respond today but how we plan for our future generations. Now more than ever our interconnectedness and action-oriented lenses of equity are vital for us individually and as One Community. As we adopt and implement PlanForward we intentionally want to pause to reflect and celebrate some of the unique mosaics of our One Community, Lincoln and Lancaster County: *...one public school district in Lincoln, One Community.* *...the Largest Yazidi community in North America.* *...welcoming visitors from across the country for the Josh fight.* *...being recognized for having the most welcoming fan base in college football.* PlanForward sustains the rich mosaic noted in LPlan 2040 characterizing our growing community needs and is a candid partnership of practicality and vision. Planning for sustainable change requires patience, commitment, effective collaboration, and timing, in addition to recognizing and accepting when matters are not within our capacity. The Lincoln-Lancaster County 2050 Comprehensive Plan is a roadmap to “plan forward,” not only in time, but in concept, to envision a community that is: <
> Introduction **Resilient** a capacity to adapt to new challenges, ensure the security of physical cultural resources and sustainably meet the needs of current and future generations. **Innovative** continuous improvement and innovation through the use of data, technology, smart city strategies, and problem solving. **Livable** a safe and healthy environment that provides a high quality of life for all residents. **Thriving** engage businesses, educational institutions, economic development efforts, labor representatives, and other stakeholders to ensure that the community prospers by remaining a place of economic opportunity, maintaining a positive a positive business environment, and addressing workforce needs. **Equitable** provide meaningful access to all opportunities and establishes a culture of belonging, regardless of a person's identity (i.e. economic status, race, ethnic background, culture, religion, gender, sexual orientation, age or mental, physical or linguistic ability). <
> **Growth Framework** [1.5](1.5) <
> **Community Background** [1.21](1.21) <
> **Public Engagement Process** [1.23](1.23) Introduction # Growth Framework The Growth Framework is a key element to turning the community vision into reality. The core elements of the Growth Framework are the Land Use Plan and Future Growth Tiers Map. The location, form, and timing of growth in Lincoln and Lancaster County is tied to the implementation of goals and policies across all topics discussed in PlanForward. <
> ## Fundamentals of Growth in Lancaster County Lincoln and Lancaster County are One Community while containing a rich mosaic of households, living in a variety of urban and rural settings. We share a common bond and work cooperatively to promote future growth that offers new opportunities for living and working while conserving our local environmental and cultural resources for future generations. In addition, Lincoln remains a unified community. The policies of a single public school district, drainage basin development, and provision of city utilities only within the city limits continue to be a positive influence and help shape the City for decades to come. These principles are sustained in order to preserve our ability to move forward as one community. The following guiding principles for the development of the urban and rural environment are further expanded upon within the various sections of the plan. *The Urban Environment* * **Multi-directional contiguous growth.** Lincoln’s future urban growth should generally occur in multiple directions around the existing city. Lincoln will continue to have managed and contiguous growth, including strengthening our Downtown core. Lincoln’s sense of community has been based on incremental, compact growth built on the foundations of established neighborhoods. Future growth will continue this traditional pattern and be linked to both the level of demand in the market and to the orderly extension of public improvements and services. * **Gravity flow wastewater.** The City of Lincoln’s wastewater collection system, in general, will continue to be a gravity flow system that is designed to use gravity as the main energy source to convey wastewater from the community to the water resource recovery facilities. This means that drainage basin boundaries are a primary guiding factor when determining availability of urban wastewater services and other infrastructure. This provides for contiguous growth, efficient long range planning, and cost-effective construction and management of the system. * **Urban infrastructure availability.** The City of Lincoln will provide water and wastewater service only to properties located within the corporate limits of the city. * **Maximized infrastructure investments.** The City of Lincoln’s present infrastructure investment should be maximized by planning for well-designed and appropriately-placed residential and commercial development in existing areas of the city with available capacity. This can be accomplished by redeveloping underutilized Introduction commercial centers into areas that include a mix of uses, and encouraging higher-density residential redevelopment in appropriate locations, including missing middle housing. New infrastructure investments to serve growth areas can be maximized by encouraging a higher density of both residential and commercial uses in these areas. * **Downtown Lincoln.** Downtown Lincoln is the heart of our community, a unique common ground for all Lincoln and Lancaster County residents. It is also emerging as an attractive place to live, becoming an increasingly vibrant mixed-use neighborhood. At the same time, Downtown Lincoln belongs to all residents of Nebraska because “downtown” is synonymous with the University of Nebraska, state government, and the State Capitol building. <
> * **Commercial and industrial development.** New commercial and industrial development should be located in Lincoln and other incorporated communities. Lincoln has ample land area and infrastructure availability for commercial and industrial development. The situation is similar in most incorporated communities in the county. Rural areas of the county do not have access to urban infrastructure, and commercial or industrial development can add significant traffic and maintenance responsibilities to county roads. * **Historic preservation.** Preservation and renewal of historic buildings, districts, and landscapes is encouraged. Development and redevelopment should respect historical patterns, precedents, and boundaries in towns, cities and existing neighborhoods. * **Natural resource preservation.** Natural and environmentally sensitive areas should be preserved within and between neighborhoods. Conservation areas and open lands should be used to define and connect different neighborhoods. The natural topography and features of the land should be preserved by new development to maintain the natural drainageways and minimize land disturbance. * **One public school district.** Lincoln Public Schools is the only public school district within the City of Lincoln, and the Lincoln Public School boundary will continue to expand as the city limits of Lincoln expand. ### The Rural Environment * **Focus on agriculture.** Rural areas should be preserved for agriculture, a limited supply of low density residential, and other compatible land uses. Acknowledge the fundamental "right to farm" in agriculture districts. * **Future urban growth.** Preserve areas for the future growth of incorporated towns in the county, including areas outside of the current one-mile zoning jurisdiction of certain towns. Areas within Lincoln’s growth tiers should be preserved as agriculture to allow for future urbanization. * **Natural resource preservation.** Ensure that acreage and rural development preserve and protect environmentally sensitive areas, and maximize the preservation of our nonrenewable resources. ## The Community in 2050 The following assumptions provide the framework for growth in the 2050 plan. More information on population and demographic trends can be found in the 2050 Demographic Projections report. Introduction * Lancaster County is projected to add approximately 119,000 residents by 2050, with 107,000 of those new residents in Lincoln. The growth for both Lincoln and Lancaster County averages to roughly 1.05 percent per year. * Lincoln will remain roughly 90.5 percent of the County’s total population. * Lancaster County is projected to add approximately 53,000 households by 2050, with 48,000 of those new households in Lincoln (roughly 1,600 new households per year). * 25 percent of all new dwelling units in Lincoln will be infill, meaning they will be located within the existing city. This equates to roughly 12,000 infill units over the next 30 years. The infill assumption aligns with development trends in recent years and reflects a rising demand for more housing options in urban settings. More information about housing trends in Lincoln can be found in the Residential Land Inventory Report. * New growth areas will have an average gross residential density of 4.0 du/acre. This aligns with development trends in recent years. Figure GF.a shows residential densities across Lincoln. Many of the existing areas have a gross density of at least 4.0 du/acre. In recent years the gross density of approved development plans in growth areas has also been 4.0 du/acre. Most edge areas are shown on this map at a lower density because they are not yet fully built-out. As more homes continue to be built and edge areas become more established, the density of 4.0 du/acre will continue to spread into growth areas. * The population age 65 and above is projected to increase from 45,600 (14.2 percent of total) in 2020 to 74,900 (17 percent of total) in 2050. This contributes to the projected reduction in household size from 2.36 persons per household in 2020 to 2.30 persons per household by 2050. It also suggests that senior living options and high-quality healthcare will continue to be important during the planning period. * The minority population is expected to increase from 20.5 percent of the county's total in 2020 to 35.3 percent of the county's total in 2050. Introduction Figure Gf.a: Population Density <
> What do these assumptions mean for the community over the next 30 years? Many families with children will likely desire suburban development similar to what is seen today, and the growth framework provides ample opportunity for traditional suburban development. However, there are indications that other segments of the population may have different housing needs. The large increase in households with a head of household over the age of 65 may create a demand for smaller dwellings with smaller yards, multi-family units such as apartments, condos and townhouses, or assisted living facilities. The younger segment of the population, particularly college-aged or recent college graduates, often express a desire for a more urban setting that includes access to transit, proximity to amenities such as shopping and dining, and smaller dwellings that don't require a great deal of time spent on maintenance. 1.8 PlanForward 2050 Introduction The trend toward smaller average household sizes will also have an impact. Since the 1940s household size in Lancaster County has been steadily falling, from over 3 persons per household in the 1940s, ‘50s and ‘60s to 2.36 persons in 2020, down to a projected 2.30 persons in 2050. The decrease in household size will mainly be due to more single person households, as the senior population increases and the younger population waits longer to start families. It may also indicate an inclination toward smaller houses and more multi-family housing. A third trend which may have an impact, although probably smaller than the others already mentioned, is the increasingly diverse racial and ethnic mix experienced in the community. It is unclear what effect an increasing racial and ethnic diversity will have on the housing patterns of the community, but there may be new markets for housing products not currently common in Lincoln. Immigrants from all over the world may bring a desire for community form that more closely resembles their former homeland, including multi-generational household arrangements. The Complete Neighborhoods and Housing and Infill and Redevelopment elements discuss the development of different housing types across the community over the next 30 years. ## Benefits of Well-Planned Growth When planning for Lincoln’s growth an emphasis on appropriately-paced and well-designed infill benefits the entire community by providing: * **A focus on maintaining existing infrastructure.** A higher proportion of infill development allows the city to focus more funds on enhancing and maintaining current infrastructure and services. * **Predictable and efficient provision of new infrastructure.** The City’s policy of contiguous growth anchored by a gravity-flow wastewater system provides a cost-effective, predictable, and efficient way to construct and maintain urban infrastructure and services necessary to serve new growth areas. * **Shorter automobile trips.** In general, with more infill there would be less distance between housing and jobs/ services. This would benefit all residents by reducing system-wide lane miles traveled: fewer drivers would need to make an “across town” commute, and people taking short trips would be more likely to use other modes of transportation, which would decrease added strain on the street network. * **Increased viability for alternate modes of travel.** A higher proportion of infill supports multiple modes of transportation. Transit becomes more effective at higher densities, and increased infill development would create increased demand for more riders along existing routes. In addition, trail and on-street bicycle facility investments become more practical with more users. This is good not only for users of non-auto travel, but also for motorists as vehicular traffic growth and related congestion can be slowed. * **Reduced carbon emissions.** Shorter automobile trips and more users of alternative transit will help to reduce the community’s carbon footprint over the next 30 years. * **Balanced growth throughout the community, across both existing areas and new growth areas.** Continued investment within the city ensures that our existing neighborhoods and commercial areas remain vibrant and desirable locations. More “rooftops” near existing commercial areas help to support continued commercial investment. * **Preservation of surrounding rural areas.** Increased infill in Lincoln will help preserve the rural character of Lancaster County, including the preservation of productive farmland and sensitive natural environments. Introduction ## Land Use Plan There is one land use plan for both the City of Lincoln and Lancaster County. The land use plan displays the generalized location of each land use. It is not intended to be used to determine the exact boundaries of each designation. The area of transition from one land use to another is often gradual. The Comprehensive Plan also encourages the integration of compatible land uses, rather than a strict segregation of different land uses. Individual proposals for land use changes should be evaluated using best available information. Issues such as the presence of floodplains, effect on neighboring land uses, and preservation and protection of natural resources are among the considerations that should be reviewed in making specific land use decisions. More information about how the Land Use Plan was determined is in the Growth Scenario Report. Introduction Figure GF.b: 2050 Future Land Use Plan <
> | | | | | | | | :--- | :--- | :--- | :--- | :--- | :--- | | Public & Semi-Public | Environmental Resources | Agricultural | Residential - Urban Density | Commercial | Light Industrial | | Lakes & Streams | Green Space | Residential - Low Density | Ag Stream Corridor | Industrial | Future Service Limit | Introduction Figure GF.b: 2050 County Future Land Use Plan <
> | | | | | | :--- | :--- | :--- | :--- | | Public & Semi-Public | Green Space | Residential - Urban Density | Industrial | | Lakes & Streams | Agricultural | Ag Stream Corridor | Light Industrial | | Environmental Resources | Residential - Low Density | Commercial | Future Service Limit | Introduction The land use plan for Lincoln and Lancaster County contains several general categories of land use types that are listed below: **Industrial.** Areas where railroads, manufacturing, trucking and transportation facilities are the dominant land use, with some commercial activities. **Light Industrial.** Areas for light manufacturing and assembly, warehousing, business trade, research and development, and associated office and retail uses. Proximity to major transportation routes is important. Uses in this category would produce little or no noise, odor, vibration, glare, or other objectionable influences and would have little or no adverse effect on surrounding properties. **Commercial.** Areas of retail, office, service and residential mixed uses. Commercial uses may vary widely in their intensity of use and impact. Individual areas designated as commercial in the land use plan may not be appropriate for every commercial zoning district. **Urban Residential.** Residential uses in areas with varying densities ranging from more than fifteen dwelling units per acre to less than one dwelling per acre. All types of housing are appropriate here, from detached single family, duplex and missing middle, to higher density multi-family. Undeveloped areas shown as Urban Residential may also include neighborhood-scale commercial and other compatible uses that will be added to the map after approval of development plans. **Low Density Residential.** Residential areas, often referred to as acreages, having densities ranging from 1 to 5 acres per dwelling unit, with a typical density of 3 acres per dwelling unit. Existing Low Density Residential areas within the Future Service Limit with urban utilities available may also be appropriate for future Urban Residential development. **Agricultural.** Land principally in use for agricultural production and compatible industries like solar and wind energy production. Agricultural land may be in transition to more diversified agribusiness ventures such as growing and marketing of products (e.g., horticulture, silvaculture, aquaculture) on site. Some land in the Agricultural category may be enrolled in voluntary preservation programs such as the USDA Conservation Reserve Program (CRP). **Public and Semi-Public.** Areas of public or semi-public land use and/or structures that serve the general public. Only the largest facilities are shown on the land use plan. Highways and interstates are also included in this category. **Green Space.** Public or privately-owned areas predominantly used for recreation, such as parks, golf courses, soccer or ball fields, and trails. Many green space areas also serve functions such as buffers between incompatible uses and as stormwater management areas. In some cases, privately-owned Green Space such as golf courses may also be appropriate for future Urban Residential development. **Lakes and Streams.** This category includes the larger stream corridors, lakes, and ponds. **Agricultural Stream Corridor.** Land intended to remain in open space, predominately in agricultural use, but that may also include parks, recreation fields, or parking areas when near future commercial, industrial, or public uses. These areas are mostly in the 100 year floodplain, outside of the existing Lincoln urban development. **Environmental Resources.** Land and water masses which are of particular importance for maintenance and preservation, such as saline wetlands, native prairie, and some floodway and riparian corridors. **Future Service Limit.** The land use plan also displays the future service limit for the City of Lincoln. Land inside this line represents the anticipated area to be provided with urban services within the planning period. Introduction The land use plan also displays the generalized land use plans for other incorporated places within the county. These include: * City of Hickman Comprehensive Development Plan, adopted 2016 * City of Waverly Comprehensive Development Plan, adopted 2013 * Village of Bennet Comprehensive Plan, adopted 2019 * Village of Davey Comprehensive Development Plan, adopted 1977 * Village of Denton Comprehensive Development Plan, adopted 1977 * Village of Firth Comprehensive Development Plan, adopted 2019 * Village of Hallam Comprehensive Development Plan, adopted 2011 * Village of Malcolm Comprehensive Plan, adopted 2019 * Village of Panama Comprehensive Development Plan, adopted 2013 * Village of Raymond Comprehensive Plan, adopted 2000 * Village of Roca Comprehensive Development Plan, adopted 2017 * Village of Sprague Comprehensive Development Plan, adopted 1977 Individual plans are posted on the Planning Department website. Where land use designations in these plans are not identical to those used in the Lincoln/Lancaster County land use plan, adjustments were made to reflect the intended land use.. At all times, individual towns should be consulted as the source for decisions within their zoning jurisdictions. The Planning Department will continue its policy of coordinating with other Lancaster County towns by sharing information, notifying them of activity near their jurisdictions, and continually updating the land uses identified in their individual comprehensive plans on the Lancaster County Future Land Use map. ### Future Growth Tier Map In order to facilitate a sustainable growth pattern, the Priority Growth Tiers Areas map shows the phased growth anticipated over the next 50 years and beyond. The growth areas are broken up into four general regions: Redevelopment and infill in the existing city, and the Tier I, II, & III growth areas. Tier I includes three Priority Areas for phasing development as discussed below. Priority A, which is mostly within the existing city limits, is shown as red hatching over the yellow area, Priority B is shown in dark red, and Priority C in pink. Tier II is shown in dark green and Tier III in light green. Introduction Figure GF.c: 2050 Priority Growth Area <
> **Tier I** Tier I reflects the “Future Service Limit,” approximately 50 square miles of developing areas and beyond the existing city limits where urban services and inclusion in the city limits are anticipated within the 30-year planning period. This area should remain in its current use in order to permit future urbanization by the City. Lincoln regularly maintains at least a 10-year development cushion for potential growth areas and will continue to do so in PlanForward. This means that the Tier 1 area, meant to accommodate Lincoln’s growth through 2050, has enough land area to satisfy demand through 2060. This “extra” land is included in order to provide flexibility for development options within the 2050 Future Service Limit. Introduction The top priority for infrastructure improvements is the existing city and areas that are currently under development. In order to provide for the orderly future growth of the city, additional land is identified in Tier I as the next area for improvement. However, the community does not have the financial resources, nor is it necessary, to provide urban services to the entire Tier I area within the next few years. So within Tier I, the community needs to prioritize areas for infrastructure improvements. *Priority A of Tier I — 18.1 square miles* Priority A is comprised of undeveloped land within the City limits, as well as areas that are not yet annexed but which have approved preliminary plans such as preliminary plats, use permits, community unit plans, or planned unit developments, or areas outside city limits that will have immediate infrastructure access upon annexation. There are still significant infrastructure needs within the existing city and areas currently under development. The top priority areas are those which are within the city limits at the beginning of the planning period. In some cases, annexation agreements commit the City to the construction of certain improvements (arterial roads, water and wastewater lines) by a predetermined date, or commit the City to the repayment of their cost which may have initially been assumed by the developer. Priority A serves as the “future urban area” for purposes of annexation per state statute, and these areas are appropriate for immediate annexation upon final plat approval. In general, commitments to serve the Priority A areas should be met before the annexation of new areas within Priority B. <
> *Priority B of Tier I — 16.8 square miles* Areas designated for development in the first half of the planning period (to 2036) are generally contiguous to existing development and should be provided with basic infrastructure as they develop. Some of the infrastructure required for development may already be in place. Some infrastructure improvements may be made in the near term while others, such as road improvements that are generally more costly, may take longer to complete. In certain cases, areas in Priority B have special agreements that include some level of commitment to build future infrastructure. These areas move into Priority A upon approval of development plans. *Priority C of Tier I — 18.8 square miles* The next areas for development, after 2036, are those which currently lack almost all infrastructure required to support urban development. In areas with this designation, the community will maintain present uses until urban development can commence. Infrastructure improvements to serve this area will not initially be included in the City’s Capital Improvement Program (CIP), but will be actively planned for in the longer term capital improvement planning of the various city and county departments. Guidelines for Amending Priority Areas: * Infrastructure should generally be provided in different directional growth areas, depending upon limited financial resources and if there is development interest in the area. * The community should only approve development proposals that can be adequately served by initial urban improvements such as electricity, water, sewer, pedestrian facilities and roads, and by all urban improvements Introduction and services in the long term. Initially, roads may not be built to the full capacity; for example, rural asphalt roads may continue to be used for some period, or a two lane urban street may be built and later expanded to four lanes with turn lanes when conditions warrant. Public safety services and schools may be provided to an area by facilities that are more distant and new facilities phased in over time. * Generally, adequate infrastructure improvements should be completed in all Priority A areas where there is development interest prior to beginning infrastructure in Priority B and C areas. * It is anticipated that there may be unique circumstances that may warrant consideration of development of land in Priority B prior to the full completion of improvements in Priority A. In addition it is expected that there will be proposals to change land from Priority C to B. Proposals for changes from Priority C to B should be evaluated and considered through a review process that should consider the following items: * The project is contiguous to the City and proposed for immediate annexation (for Priority A), and is consistent with principles of the Comprehensive Plan. * The developer provides information demonstrating how the necessary infrastructure improvements to serve the area would be provided and financed. The City should contact other public agencies to obtain their report on the infrastructure necessary to serve the area, including utilities, roads, fire service, public safety, parks, trails, schools and library needs. * The impacts that development in the area will have on capital and operating budgets, level of service, service delivery and Capital Improvement Programs are addressed, including impact of financing, utility rates and other revenue sources and to what degree the developer is willing to finance improvements. In order to maintain a fiscally constrained plan, acceleration of one project may mean other planned projects must be removed from the list of future facilities. * There is demonstrated substantial public benefit and circumstances that warrant approval of the proposal in advance of the anticipated schedule. Growth into most of the Priority C areas is comparatively inefficient in terms of required capital investment as compared to the Priority B areas. <
> ### Tier II Tier II is an area of approximately 19 square miles that defines the geographic area the city is assumed to grow into immediately beyond Tier I. It shows areas where long term utility planning is occurring today and acts as a secondary reserve should Tier I develop faster than anticipated. Tier II should remain in its current use in order to allow for future urban development. Introduction Infrastructure planning, especially for utilities such as water, wastewater and watershed facilities, can reach beyond the Plan’s 30-year time horizon to 50 years and further. Water, wastewater and watershed master plans identify infrastructure, environmental issues and future project needs in undeveloped sub-basins. As new areas are proposed for transfer from Tier II to Tier I, these plans should be used to assist in guiding development. The Plan’s premise is that within the next ten years, if the anticipated growth expectations are realized, additional areas from Tier II will be added to Tier I. Such change would include amending the Future Service Limit accordingly to reflect the new 30-year planning time frame. Conversely, if growth is slower or more dense than anticipated, the addition of new areas may not be necessary. The balance between the efficient use of existing urban infrastructure and the provision of a sufficient supply of land to maintain an affordable lot supply is a delicate one, and one that should be carefully considered in this process. It is important that relevant data be maintained and critical analysis be conducted in any decision to increase the supply of Tier I land. ### Tier III Tier III provides an approximately 128.4 square mile area for Lincoln’s longer term growth potential — beyond 50 years. This area is based upon the drainage basins located within the 3-mile extraterritorial jurisdiction, excluding the area identified as Salt Creek Tiger Beetle habitat. Little active planning of utilities or service delivery is likely to occur in the near term in Tier III. However, it should also remain in its present use in order to provide for future urban development. ### Concurrency Public infrastructure - including transportation facilities, water, sewer, parks, schools, and libraries - is essential to the health, safety, and welfare of the community. In new growth areas, the most essential public infrastructure (such as electricity, water, sewer, pedestrian facilities and roads) should be made concurrently with that growth. Some public infrastructure, such as water and sewer lines, is most efficiently built to serve the ultimate demand of the new area. Other public infrastructure, such as arterial roads, may be provided in proportion to the initial need, with later improvements added as growth proceeds. Still other services, such as schools and libraries, may be provided at more remote locations until the population to support a new facility is in place. Developing public infrastructure in this manner will protect the public health, safety and welfare of the community while efficiently using taxpayer funds. Conversely, infrastructure should not be built or developed if it is not needed. Public resources are scarce and should be conserved and used efficiently. Development of infrastructure beyond the needs of the community is a waste of resources and is not beneficial to the community as a whole. Thus, some improvements, such as park land, must be obtained early in the process, but may not be fully improved until more development occurs. Land for other services such as fire and police stations or schools may also be obtained. This may also apply to road improvements, which in early stages can be adequately served by two-lane paved streets, after obtaining the needed future urban right-of-way, with additional lanes planned for but not developed until later when traffic demand warrants the improvements. The key to a successful community is the concurrent development of infrastructure proportionate to the development and need of the community — a balance between the need for infrastructure and the need to conserve resources. Introduction ## Annexation The City of Lincoln requires that properties receiving municipal services be located within city limits. City annexation should occur before any property is provided with water, sanitary sewer, or other potential City services. In most cases this also means that annexation must occur prior to a property receiving an urban zoning designation. Information regarding annexation procedures can be found in the *Annexation policy*. Annexation is a necessary and vitally important part of the future growth and health of Lincoln. The City of Lincoln has been successful with urban development occurring within its city limits. The City routinely annexes land at the request of a developer or landowner as part of the regular development process. This allows properties to be supplied with City services when they are needed, and the City benefits from the property taxes, utilities, and other fees that City residents pay. Some properties along the City’s edge may not be interested in further development and thus will not request annexation. It makes sense for the City to initiate annexation of adjacent properties that are already developed and require a minimal public investment to serve. Reasons for City-initiated annexation include: * Equity for taxpayers. Properties on the urban edge already benefit from many City services, such as streets, parks, trails, libraries, and snow removal on adjacent streets, without paying City taxes and fees. Annexation balances the provision of appropriate and reliable services with the “fair share” payment for those services. * Clarity of service areas for maintenance and emergency response. * Allow for continued growth of Lincoln in an efficient and orderly fashion. Annexation generally implies the opportunity to access all City services within a reasonable period of time. Voluntary annexation agreements may limit or otherwise outline the phasing, timing or installation of utility services (e.g., water, sanitary sewer), and may include specific or general plans for the private financing of improvements to the infrastructure supporting or contributing to the land uses in the annexed area. The annexation of large projects may be done in phases as development proceeds. The character of existing residential areas should be respected as much as possible during the annexation process. When low density “acreage” areas are proposed for annexation due to the City’s annexation policy, additional steps should be taken to ease the transition as much as possible, such as public meetings, advance notice and written explanation of changes as a result of annexation. In general, many aspects of acreage life may remain unchanged, such as zoning or covenants. However, any annexation of existing residential areas will include some costs that must be the responsibility of property owners. ### Nebraska Revised Statutes: 15-104 (excerpt) The City Council may by ordinance at any time include within the corporate limits of such city any contiguous or adjacent lands, lots, tracts, streets, or highways such distance and in such direction as may be deemed proper... Such city shall have power by ordinance to compel owners of land so brought within the corporate limits to lay out streets and public ways to conform to and be continuous with the streets and ways of such city, or otherwise as appears best for the convenience of the inhabitants of such city and the public. Introduction Annexation to facilitate the installation of improvements and/or possible assessment districts is appropriate if it is consistent with the annexation policies of the Plan listed above. These annexation guidelines in this section are specific to the City of Lincoln. Each town in Lancaster County has its own procedures for annexation. Introduction # Community Background Lincoln and Lancaster County have a rich background that will continue to shape the community's future. ## History The City of Lincoln and Lancaster County lie within the Platte River Valley in southeastern Nebraska. A little more than 50 miles west of the Missouri River, the county's natural features are characterized by uplands, stream terraces, and bottom lands. The region was historically covered by native tallgrass prairie that served as home to buffalo, antelope, grassland birds, and many other smaller species of plants and animals. The county's 846 square miles are situated mostly within the Salt Valley Basin. Native Americans and early settlers were attracted to the area by the natural forming salt flats. One of the region's earliest European settlers was Captain W.T. Donovan of the Crescent Salt Company. He named the settlement Lancaster after his home in Pennsylvania. “Lancaster” was later used to name both the county and the county seat in 1859. ## The Region The City of Lincoln today serves as both the capital for the State of Nebraska and the seat of government for Lancaster County. The County's 322,608 residents comprise the second largest metropolitan area in the State. The Lincoln Metropolitan Statistical Area includes Lancaster and Seward counties and 340,217 people. The broad southeastern Nebraska region is home to over one million people, including the greater Omaha urban area to the east. Southeastern Nebraska is experiencing a growing sense of social, cultural, and economic interdependence. The Interstate 80 corridor offers a major link between the State's two largest urban areas and the region as a whole. Strengthening ties between the two cities and the surrounding rural communities is integral to the region's future success in providing employment, recreational, and other opportunities. The City of Lincoln and Lancaster County are committed to further examining regional planning issues for southeastern Nebraska. Much public dialogue about the future of the region is needed if core planning issues and potential solutions are to be fully explored. <
> ## The People PlanForward embraces a growing, changing community. The Plan energetically recognizes the long-term growth potential of the City of Lincoln and Lancaster County, and opportunities presented by the fundamental demographic changes in the community. Introduction Lancaster County’s population is assumed to reach nearly 440,000 persons by the year 2050 — that’s over 117,000 more people than the County’s year 2020 population base of 322,608 persons. The adjectives “steady” and “stable” accurately describe Lancaster County’s expected future growth. Between 2020 and 2050, the projections indicate growth of nearly 40,000 persons and 18,000 households each decade. The county should reach the milestones of having 150,000 households just after 2030, and 400,000 people in 2040. To understand future changes, the projections compare population values between non-Hispanic Whites and all other population groups. The projections indicate the portion of Lancaster County’s population comprised of persons of color rises by five percentage points per decade, similar to what occurred in the 1990s and 2000s. The number of non-White and Hispanic residents more than doubles from about 65,000 in 2020 to 155,000 in 2050, when one in three Lancaster County residents will be a person of color While those age 20 to 24 remain the largest Lancaster County population segment out to 2050, aging represents a central element of future population change. Growth occurs across all age groups, but the projections show the highest percentage gains happen as “baby boomers” born from 1946 to 1964 age into older age categories. Introduction # Public Engagement Process Lincoln and Lancaster County have a rich background that will continue to shape the community's future. <
> ## Acknowledgements The Planning Department wishes the thank the following: * The community experts and leaders, City-County staff, and Planning Commission members who volunteered their time to serve on various Comprehensive Plan committees and provided input on plan content. * The hundreds of Lancaster County residents who attended the in-person and virtual events and participated in the public surveys. * Students from the UNL Community & Regional Planning Program capstone studio classes from Spring 2020 and Spring 2021 who provided invaluable research on background topics in the Plan. ## Public Engagement Process Summary The Lincoln-Lancaster County 2050 Comprehensive Plan embodies Lincoln and Lancaster County's shared vision for the future, out to the year 2050. The theme of the Comprehensive Plan is "Plan Forward," because it will envision a future that not only looks forward in time, but also forward in concept with new and innovative ideas to support our growing community. The development of the Comprehensive Plan included extensive public input with contributions from all facets of the community – from local leaders and topic area experts, to regular citizens who have shared interest in building a strong vision for Lincoln and Lancaster County. The development of the Comprehensive Plan was coordinated with the development of the Long Range Transportation Plan, a separate document that focuses on transportation needs and is required for the City and County to receive federal transportation funds. The major activities and timeline are summarized below. More detailed information is available in the *Public Outreach Summary*. <
> Introduction ### Community Committee Members: Planning Commission members along with community stakeholders of various backgrounds – neighborhoods, business, sustainability/resiliency, design, etc. The Community Committee had a primary role in helping to develop and review content for the Comprehensive Plan and Long Range Transportation Plan (LRTP). The Committee worked with staff to study, analyze, and discuss major elements of both plans. Eighteen Community Committee meetings were held on a typically monthly schedule, stretching from January 2020 to August 2021. Most meetings were held over zoom and also made available to the public on Facebook Live. ### Equity Subcommittee Members: Included organizations that provide services to marginalized community members. Representatives included staff or members of organizations from Community Action, OutNebraska, New Americans Taskforce, Afrikan Community Network, Nebraska Appleseed, Civic Nebraska, Lincoln Public Schools, League of Human Dignity, Black Leaders Movement, and the Nebraska Commission for the Blind and Visually Impaired. The meetings were facilitated by Inclusive Communities, a non-profit focused on education and advocacy related to the topics of diversity and inclusion. More information about the Equity Subcommittee can be found in the *Equity Subcommittee Summary Appendix*. ### Staff Committee Members: City and County staff and agency representatives from LES, Black Hills, LPS, and Norris. The Staff Committee is the primary method for City and County staff to be involved with the process. Their activities included development and review of plan content and public outreach activities. Plan content specific to various City and County departments was developed through one-on-one meetings with committee members. Eight Staff Committee meetings were held from January 2020 to August 2021 along with numerous one-on-one meetings with committee members. # PLAN forward ## Lincoln-Lancaster County 2050 Comprehensive Plan The Lincoln-Lancaster County 2050 Comprehensive Plan is a roadmap to “plan forward”, not only in time, but in concept, to envision a community that is Livable, Equitable, Thriving, Resilient, and Innovative. # Goals CITY OF LINCOLN NEBRASKA LANCASTER NEBRASKA COUNTY Goals The PlanForward goals offer a broad horizon for the community’s future to the year 2050. The goal statements, supporting text, and data form the basis for the desired future condition in Lincoln and Lancaster County to be Livable, Equitable, Thriving, Resilient, and Innovative. The goals also provide guidance for individual land use decisions, public and private investments, and other actions that collectively will determine the future for the people that live in Lincoln and Lancaster County. Every policy in PlanForward includes action steps that will support one or more of these goals. Most importantly, we will plan forward as One Community. <
> G1: Safe, Affordable and Accessible Housng 2.4 <
> G2: Complete Neighborhoods 2.6 <
> G3: High-Quality Workforce 2.8 <
> G4: Economic Opportunity 2.12 <
> G5: Equity and Inclusion 2.14 <
> G6: Healthy, Active and Connected People 2.22 <
> G7: Environmental Stewardship and Sustainability 2.25 <
> G8: Community Resiliency 2.28 <
> G9: Civic Participation 2.30 Goals <
> G10: Effective Government 2.32 <
> G13: Community Appearance 2.38 <
> G11: Rural Environmental 2.34 <
> G14: Technology 2.39 <
> G12: History and Culture 2.36 <
> G15: Transportation 2.42 Goals # G1: Safe, Affordable, and Accessible Housing Lincoln and Lancaster County will support the development of safe, affordable, and accessible quality housing that meets the diverse needs of the community. <
> One of the essential elements of the community and PlanForward is housing. Ensuring safe, adequate, and affordable housing is an important function in maintaining the vitality of neighborhoods and the city as a whole. Our community supports making homes available to families that are both affordable and safe. Emerging scientific evidence links health outcomes such as asthma, lead poisoning, and unintentional injuries to substandard housing. Resources to provide enhanced access to safe, affordable, and accessible housing should be distributed equitably across the community in order to help promote good physical and mental health and foster economic stability. The federal Office of Housing and Urban Development defines cost burdened households as those paying more than 30% of income towards housing, and in Lincoln, those households making less than $25,000 per year are at most risk of being cost burdened. Although Lincoln's housing market is affordable for most households, housing costs continue to increase and should be addressed proactively. PlanForward understands the ongoing need for affordable housing and supports development of 5,000 affordable units by the year 2030. Figure G1.a: Cost Burdened Households in Lincoln % of Households Paying 30% or More for Housing Costs <
> American Community Survey 2015 - 2019 Goals The City of Lincoln adopted the Affordable Housing Coordinated Action Plan in December 2020. This plan seeks to support the development of a housing market in Lincoln that is reflective of the diverse community of residents that makes up the city. The action items identified in the Affordable Housing Coordinated Action Plan attempt to address quality of life issues and improve the overall economic health in Lincoln and more importantly, protecting and advancing the health, safety, economic opportunity, and quality of life of every resident. This means creating housing options for all income levels and ages throughout the city. While the main focus of this plan is on how to address housing needs for the city's residents earning less than 80% of the Area Median Income (AMI), no one market stands in isolation. Markets are interdependent on each other, whether that is different income levels or product types. A healthy housing market allows individuals to move through the market at different stages of life. When the market does not supply the product type a household needs, there can be a break in the system that can affect many different households. PlanForward outlines a plan for adequate growth areas and lot supply, but other market forces can impact the overall cost of housing. Those outside influences should be acknowledged and monitored. Over the past decade, the city's housing construction has focused on market rate multi-family and single-family detached units. Only 13% of the city's 12,000 units constructed since 2014 were townhomes or duplexes, and the vast majority of the multi-family were large scale projects. Additional variety, also known as “missing middle,” is needed to serve a broader demand within the City. ### Policies Related to this Goal P1: Housing Affordability P2: Existing Neighborhoods P3: Developing Neighborhoods P7: Redevelopment Incentives P61: Industrial Zoning and Pipelines ### Community Indicators Related to this Goal Housing Indicators Goals # G2: Complete Neighborhoods <
> ## Lincoln and Lancaster County will support complete neighborhoods within both developing and redeveloping areas of Lincoln. A complete neighborhood is one where residents are able to get the goods and services to meet daily needs within 15 minutes of their residence including a variety of housing options, grocery stores and other commercial services, quality public schools, public open spaces and recreational facilities, affordable active transportation options, and civic amenities. In other words, Complete Neighborhoods “Put the stuff closer together so it’s easier to get to the stuff.”- Paul Mogush, Minneapolis Planner. Housing variety, both in housing type and lot size, provides for interesting neighborhoods and accommodates changing household preferences, but, more importantly, provides affordable housing options. Housing variety should include townhomes, senior living facilities, low/no maintenance condominiums, accessory dwelling units, multi-family development, and even small lot single-family. Complete Neighborhoods are an important part of urban life for many reasons including: support for healthier lifestyles and convenience, stronger markets for neighborhood commercial centers and businesses, efficient and equitable public investment, and energy efficiency and emissions reduction. Downtown Lincoln is a good example of a complete neighborhood in Lincoln as it serves as an attractive place to live and serves as the central location for commerce, government, entertainment, and the arts. The growth and development policies embodied throughout PlanForward will meet development needs for a growing population, will align with the 2050 growth scenario, and will support more complete neighborhoods both on the edge and within the existing city. A Complete Neighborhoods indicator will be created to evaluate the “completeness” of Lincoln neighborhoods. Factors to be evaluated will include presence of sidewalks and housing options, and proximity to trails, transit stops, parks, essential goods and service, and schools. This indicator can inform decision-making in order to guide investments as the community grows over the next 30 years. ### Policies Related to this Goal P1: Housing Affordability P2: Existing Neighborhoods P3: Developing Neighborhoods P5: Downtown P6: Nodes and Corridors P8: Infill and Redevelopment P10: Supporting Small Businesses P13: Commercial and Industrial Centers P14: Commercial Infill Goals P29: Neighborhood Parks P34: Urban Design Standards P45: Early Childhood Care and Education P60: Technology P61: Industrial Zoning and Pipelines P69: Bicycles P70: Transit P73: Shared Mobility Community Indicators Related to this Goal Housing Indicators Recreation Indicators Goals # G3: High-Quality Workforce Lincoln and Lancaster County will strive to remove barriers to economic stability and mobility in the community by supporting a skilled and educated workforce that is able to adapt to economic, technological, and cultural changes. <
> The benefits of a high-quality workforce are twofold: 1) it is important that residents from diverse backgrounds have the opportunity to acquire the education and skills necessary to obtain quality jobs, and 2) it is important for business owners and entrepreneurs to have access to a high-quality workforce so that they can sustain and grow their businesses. A high-quality workforce benefits the entire community because it attracts quality employers and entrepreneurs, which helps to grow our population and tax base and facilitates quality of life investments across a variety of sectors, and it ensures that Lincoln and Lancaster County are well-positioned to compete in tomorrow’s economy. There is a strong connection between educational attainment and poverty status. In Lancaster County, an individual who did not graduate from high school is five times as likely to be in poverty than someone with a 4-year or higher college degree. Likewise, median earnings increase with higher levels of educational attainment. **Figure G3.a: Poverty Status for Age 25 and Over, Lancaster County** <
> *American Community Survey 2015 - 2019* Goals <
> *American Community Survey 2015 - 2019* Some groups disproportionately experience barriers to educational attainment, which is reflected in lower median incomes. These barriers to access start in youth and continue throughout a lifetime: a child not having a parent or adult present, or not having access to preschool education; an adult facing time and financial barriers to higher education and job training, often due to family obligations. At a national level these barriers are more prevalent in certain racial and ethnic groups, and this is illustrated locally by the race-based disparity in educational attainment, labor force participation, and median income in Lancaster County. <
> ■ High school graduate or higher ■ Bachelor's degree or higher ■ Some college or associates *American Community Survey 2015 - 2019* Goals Another challenge to maintaining a high-quality workforce is ensuring that individuals who are displaced from work for a long period of time (for childbirth and the raising of children, recession or pandemic-related job loss, injury or disability, etc.) are able to re-enter the workforce. When people experience short-term unemployment, they go through real economic stress and temporary hardship, but most recover. Much more devastating is involuntary long-term unemployment. People may lose their house, spouse, confidence, and self-worth. Economist Gene Sperling describes this as a loss of “economic dignity” and many people never recover. Figure G3.d: Labor Force Participation, Lancaster County <
> *Note: In Lancaster County the overall labor force participation rate is 71.6 percent. This number includes individuals 16 and over who are actively working or seeking work. The local rate is similar to Nebraska’s rate of 69.7 percent, and compares favorably to the national rate of 63.4 percent. American Community Survey 2015 - 2019* Labor force participation is also a challenge with individuals experiencing a disability. According to the American Community Survey approximately 11 percent of Lancaster County residents have a disability. Disabled individuals make up a much larger percentage of working age population not in the labor force (22 percent), meaning they are not actively seeking work. For those seeking work the unemployment rate for disabled individuals (7.4 percent) was more than twice as high as those without a disability (3 percent) in 2019. Working on a local level to support and encourage workforce participation and secure employment can help to ensure that everyone wanting to participate in the workforce can do so. There are additional barriers that could make it more difficult for the local workforce to secure high-quality jobs over the next 30 years. Some of today’s jobs will become obsolete as new technologies and automation change the workforce needs, especially with entry-level positions. The skills required by employers will continue to change, and job training and education will continue to be an urgent priority so that individuals or even segments of entire generations are not left out. To achieve the goal of a high-quality workforce, Lincoln and Lancaster County will focus on policies that ensure equitable access to education and training, emphasize partnerships between education providers, workforce development agencies, and local employers, and will work to address other economic barriers to achieving economic stability and mobility. Goals ### Policies Related to this Goal P1: Housing Affordability P2: Existing Neighborhoods P3: Developing Neighborhoods P5: Downtown P6: Nodes and Corridors P9: Skilled, Diverse, and Trained Workforce P10: Supporting Small Businesses P40: Libraries P43: Health Care Access P44: Education P45: Early Childhood Care and Education P60: Technology P62: Transportation Equity P70: Transit P73: Shared Mobility ### Community Indicators Related to this Goal Economy Indicators Goals # G4: Economic Opportunity <
> ## Lincoln and Lancaster County will have high-quality jobs in an economic environment that supports business creation, innovation, and expansion. A key element to a livable community - one that can attract and retain individuals to maintain population growth and economic prosperity - is the presence of high-quality jobs. Key attributes of a high-quality job include a living wage that can support a household's daily needs, benefits such as paid sick days and health insurance, and job security. One factor in developing high-quality jobs is having a talented workforce. Where skilled labor chooses to live is increasingly a key decision factor for business growth and relocation. Although teleworking will be more prevalent in the coming years, it is expected that most employees will still live in the same community as their employer. Equitable skills and training initiatives, discussed in the High-Quality Workforce goal, will ensure that Lincoln and Lancaster County have a strong supply of talented workers. Quality-of-life attributes, such as diverse and accessible housing, good shopping, restaurants and entertainment, quality schools and healthcare, a sense of safety, and amenities such as parks and trails are important to ensuring that skilled individuals want to remain or relocate to our community. In addition to cultivating a talented workforce, it is important to have an economic environment that supports business creation, innovation, and expansion. Elements that contribute to a successful economic environment include: * Skilled and educated workforce, including tradespeople * Strong partnerships between educational institutions, major employers, and other workforce resources such as the American Job Center * Site and infrastructure availability * Clear and consistent regulations with a streamlined review process * Financial incentives, such as Tax Increment Financing (TIF) and technical assistance with grant opportunities ### Policies Related to this Goal P1: Housing Affordability P2: Existing Neighborhoods P3: Developing Neighborhoods P5: Downtown P6: Nodes and Corridors P7: Redevelopment Incentives P9: Skilled, Diverse, and Trained Workforce P10: Supporting Small Businesses P11: Parking Requirements P12: Economic Growth Goals P13: Commercial and Industrial Centers P14: Commercial Infill P15: Infrastructure and Economic Development P16: Rural Economy P17: Predictability P67: Transportation and Economic Growth P72: Freight ### Community Indicators Related to this Goal Economy Indicators Goals # G5: Equity and Inclusion <
> Lincoln and Lancaster County will establish equity - regardless of race, ethnicity, gender, country of origin, religion, age, economic status, or zip code - as a core principle in the planning, decision-making, and policy development processes. Acknowledging disparities that exist in our community is vital in order to properly discuss equity as a core principle of PlanForward. We also acknowledge in this plan that there are ongoing work efforts which are moving us in the right direction toward eliminating disparities. Under this goal and others in PlanForward, we identified local trends that relate to measurable aspects that focus on race and ethnicity disparities within housing, income, poverty, juvenile justice, educational attainment, labor force participation, and health. In 2020, the total percent of minorities living in Lancaster County was 20.5%. It is anticipated by 2050, the total percent of minorities living in Lancaster County will be approximately 35.3% based on historic trends and growth projections. In the 1930s, cities across the nation created redline maps to shore up and secure home loans for mostly white people. These redline maps were utilized so that realtors and mortgage lenders assisted in the practice of isolating minorities, specifically Black populations, in areas that would suffer lower levels of investment than their white counterparts. This practice created a racial disparity of homeownership and limited generational wealth among minority populations in two main ways. First, redlining was predatory exclusion where homes or loans could not be acquired within certain areas. Second, “reverse redlining” created predatory inclusion where non-white areas are targeted for higher prices and taxes, subprime loans, etc. Redlining transformed explicit racism into structural racism that is still affecting our community today. In 1968, the Fair Housing Act was signed into law that established the protected classes of race, color, national origin, and religion, while sex was added in 1974 and familial status and disability was added in 1988. After the passage of the Fair Housing Act, there was no power among the federal authorities to enforce it. Much like the other laws, enforcement depended on local civil rights organizations to run the investigations, find evidence, find plaintiffs, etc. Even when evidence of discrimination was found, there was not any actual enforcement until 20 years later in 1988. Lincoln was not immune to housing discrimination. A local look shows: * In 1916, Sheridan Boulevard was the first area in Lincoln to introduce race restrictions, even before the redline map was introduced. Only “those of the Caucasian race” could purchase with the only exception being if the homebuyers had maids or servants that were black. * In 1924, race clauses were introduced in the Piedmont area. * In 1930s through 1950s, the Brownbilt area south of Randolph school also had race clauses. These purchase agreements banned the sale of properties to “Africans, Chinese, or Japanese.” Goals For most of these restrictions, the developers used federal funds from the Federal Housing Administration and Home Owners’ Loan Corporation (HOLC), that through deeds, prohibited anyone other than the white race. These covenants were generally in effect until 1975. As mentioned before, in the 1930s, the government-sponsored HOLC introduced the private-sector to redlining when it produced color-coded maps of urban areas; black neighborhoods were marked in red, which indicated that they were the riskiest areas to insure mortgages. White residents received virtually all loans from the Federal Housing Administration between 1934 and 1962. Federal Housing Administration insurance would not back loans in the “Declining” or “Hazardous” areas. These areas were mostly, or solely populated by the black population. Thus, potential homeowners could not get FHA backed loans to purchase or improve homes. The homes in these areas would thus fall into disrepair or would become totally dilapidated. The presence of just one black person could deem the area declining or hazardous. When we review the redline map of the 1930s and recent minority population and poverty trends, we see almost 100 years later, it’s the same map. The redlining effects of black and other people of color is still visible today. Knowing and understanding this exclusionary practice and its lingering effects is important to include in the Comprehensive Plan, so the community can have a conversation about issues that continue to plague our fellow community members and how we can work to promote equity in the community. Goals Figure G5.a: Lincoln "Redline" Map, 1933 <
> 2.16 PlanForward 2050 Goals According to ACS data for Lancaster County, the median income for households is $60,527. As we look at income disparities in the community, we note that White (not Hispanic or Latino) households account for 86.3% of the distribution and earn a median income of $63,907 while non-White households median income ranges between 15.4% to 47.2% less than White (not Hispanic or Latino) households. Figure G5.b: Median Household Income, Lancaster County <
> *American Community Survey 2015 - 2019* Income disparities are also seen between gender of householder and familial status. Table G5.a: Median Family Income, Lancaster County | Household Income | Estimate | Median Income | | :--- | :--- | :--- | | Families | $73,722 | $81,121 | | - With own children of householder under 18 years | $33,369 | $79,760 | | - With no children of householder under 18 years | $40,353 | $82,353 | | Married-couple families | $57,423 | $94,822 | | - With own children under 18 years | $24,184 | $100,097 | | Female householder, no spouse present | $10,972 | $36,970 | | - With own children under 18 years | $6,819 | $27,992 | | Male householder, no spouse present | $5,327 | $52,435 | | - With own children under 18 years | $2,366 | $47,022 | *American Community Survey 2015 - 2019* The disparity in incomes can be seen in the poverty status, which shows that 37,502 individuals are currently below the 2019 Poverty Guidelines for the 48 Contiguous States and the District of Columbia. While a majority number of individuals below the poverty line identify as White, the percentages show that minority communities in Lancaster County are disproportionately affected by poverty. Goals ### Table G5.b: Poverty Status in Past 12 Months, Lancaster County | | Below poverty level | | | :--- | :--- | :--- | | | **Population** | **Percentage** | | White | 28,148 | 10.9% | | Black | 2,940 | 26.2% | | American Indian or Alaska Native | 396 | 20.9% | | Asian | 2,090 | 16.8% | | Native Hawaiian or Pacific Islander | 162 | 70.7% | | Some other race | 1,376 | 35.1% | | Two or more races | 2,390 | 22.6% | | Hispanic or Latino | 5,066 | 24.2% | | All | 37,502 | 10.2% | *American Community Survey 2015 - 2019* Homeownership has provided housing stability and wealth development for residents in Lancaster County for generations. Approximately 63.7% of White households own their home, while less than 23% of Black families own their own homes and 38.1% of Hispanic or Latino families own their homes. While homeownership is something that should be attainable for individuals and families that desire to be homeowners, the availability of safe, affordable, and accessible housing is necessary for those who need or want to rent. ### Table G5.c: Housing Tenure, Lancaster County | | Owner Occupied | | Renter Occupied | | | :--- | :--- | :--- | :--- | :--- | | | **Population** | **Percentage** | **Population** | **Percentage** | | White | 68,347 | 63.7% | 38,993 | 36.6% | | Black | 926 | 22.6% | 3,174 | 77.4% | | American Indian or Alaska Native | 230 | 32.7% | 473 | 67.3% | | Asian | 1,832 | 44.0% | 2,334 | 56.0% | | Native Hawaiian or Pacific Islander | 54 | 100.0% | 0 | 0.0% | | Some other race | 414 | 36.6% | 717 | 63.4% | | Two or more races | 685 | 35.2% | 1,263 | 64.8% | | Hispanic or Latino | 2,385 | 38.1% | 3,871 | 61.9% | | All | 74,344 | 59.8% | 49,980 | 40.2% | *American Community Survey 2015 - 2019* In 2017, Lancaster County signed on as a Juvenile Detention Alternatives Initiative (JDAI) site. The JDAI Collaborative prepares a *Lancaster County Comprehensive Juvenile Justice Services Plan* which reviews data that traces individual youths’ involvement with the juvenile justice system from initial contact through disposition and human service intervention. The disproportionality of non-white youth and families living in poverty, reduced educational attainment and medical care, and overall youth in the justice system, permeate our community as it does in so many others. The justice collaborative is focused on reducing disparities in the system, has developed Goals a nationally recognized diversion program, committed to make every decision through a racially informed lens, and infuse restorative justice principles throughout all services. Health disparities are often looked at as differences in health status between the white population and racial/ethnic minorities; however, race and ethnicity, gender, age, disability, social and economic status, and geographic location all contribute to an individual’s ability to achieve good health. The five domains of the Social Determinants of Health provide the framework that Public Health uses to discuss and address health disparities, including: Economic Disparity, Education Access and Quality, Healthcare Access and Quality, Neighborhood and Built Environment, and Social and Community Context. Lincoln’s low cost of living does not offset lower incomes and persons from racial and ethnic minority populations struggle to achieve equity in educational attainment, employment, and income. Lincoln has geographic concentrations of extreme poverty and poor health. Based on a resident’s Census Tract, their projected life expectancy can differ by 20 years. In general, health outcomes in those older parts of Lincoln are not as good as elsewhere in the community. Death rates by disease vary across the community as do obesity rates in schools, behaviors such as smoking and binge drinking, uninsured rates, and a host of maternal and child health measures. The Lincoln-Lancaster County Health Department in conjunction with the community’s hospital systems and other public health partners, conducts a comprehensive Health Status Assessment and broad engagement of health discussions across the community. The resulting planning documents are the Community Health Assessment and the Community Health Improvement Plan which drive much of the ongoing strategic focus to improve health outcomes. Additionally, the LLCHD provides mapping and narrative utilized by community partners to further discussion of health disparities and their inequitable distribution throughout Lincoln and Lancaster County. Indicators around health, activity, and connected people for the 2050 Comprehensive Plan will be guided by the LLCHD’s 2020 Community Health Assessment and the 2021 Community Health Improvement Plan. An idea to assist people in need was discussed during development of PlanForward, known as a Navigation Hub. This would be a universal intake for multiple services to eliminate the redundancy of paperwork and eliminate barriers to accessing resources for individuals and families. This idea would need additional discussion with appropriate government agencies, non-profits, and services providers. PlanForward’s goals and policies take into account the historic and current racial and social inequities in our community. By intentionally incorporating a lens of racial equity into all policy decisions, identifying how our decisions may unintentionally reinforce racial disparities, our community can better understand and eliminate these disparities and create a more equitable community for every resident. Goals Figure G5.c: Life Expectancy <
> Life expectancy data source: Lincoln-Lancaster County Health Department Goals ### Policies Related to this Goal P1: Housing Affordability P2: Existing Neighborhoods P3: Developing Neighborhoods P5: Downtown P6: Nodes and Corridors P9: Skilled, Diverse, and Trained Workforce P22: Local Food P40: Libraries P42: Law Enforcement P43: Health Care Access P44: Education P45: Early Childhood Care and Education P47: Civic Participation P60: Technology P61: Industrial Zoning and Pipelines P62: Transportation Equity P64: Complete Streets P68: Pedestrians P69: Bicycles P70: Transit P73: Shared Mobility ### Community Indicators Related to this Goal Economy Indicators Housing Indicators Transportation Indicators Recreation Indicators Goals # G6: Healthy, Active, and Connected People Lincoln and Lancaster County will be a healthy community that continuously creates and improves both its physical and social environments where every person is free to make choices amid a variety of healthy, available, accessible, and affordable options. <
> The interaction between people and their environments, natural as well as human-made, has re-emerged as a major public health issue. A community that encourages healthy, active, and connected people is one that continuously creates and improves both its physical and social environments. Examining the interaction between health and the environment requires considering the effects of factors in the broad physical and social environments, which include housing, access to community facilities and resources, land use, transportation, industry, workforce development, and agriculture. Making the healthy choice the easy choice is one way to help people achieve optimal health. This can be accomplished in many ways such as: working with schools and businesses on wellness initiatives; improving local access to healthy foods and creating community gardens; creating a community plan to account for health impacts of new community projects; continuing to implement the Complete Streets program to encourage active transportation; and creating community gardens. One of the public health functions of the Lincoln-Lancaster County Health Department is to continuously assess the health status of the community. Data on vital statistics, behaviors, communicable disease and other indicators of health status is compiled in the Community Health Assessment and includes the participation of partners such as Bryan Health Systems and CHI St. Elizabeth, Nebraska Hospital Association, Nebraska Department of Health and Human Services, and others. The assessment includes detailed information about the health of our community, including geographic health disparities. The Lincoln Community Health Endowment’s Place Matters project has utilized such maps to answer the question, “How does where we live, learn, work, and play affect our health?” The maps, which can be accessed through the Community Health Endowment website, show that health disparities are not geographically distributed equitably throughout the community. The Community Health Improvement Plan (CHIP) is developed based on and in conjunction with the Community Health Assessment. The CHIP includes goals, objectives, and strategies organized within four priority areas: access to care, chronic disease prevention, behavioral health, and injury prevention. The CHIP is a guiding document to address community health needs. Inequities in access to recreation and open spaces contribute to health disparities. The map below identifies the most vulnerable populations (percentage below poverty level; racial and ethnic minority population; life expectancy; and the percentage that passed the Youth Fitness Test) and evaluate access by a 10 minute walk to parks and schools that provide recreational opportunities. Lincoln’s Community Centers and Amenities (public, non-profit, or for profit services) show opportunities for physical and emotional well-being and are mostly concentrated in the areas with the highest need. The map identifies residential units outside of the 10 minute walk in areas with vulnerable populations that should be addressed. There are also underserved/non-served residents in newer growth areas. It is important to note that while the costs for land and development of park facilities have grown since impact fees were first instituted, Goals these fees have not increased to match inflation, creating a backlog of Neighborhood Park development. Funding for other park facilities has also been unable to keep up with inflation rates, creating a backlog of maintenance. This map does not reflect private rec facilities within apartment complexes or other private residential uses. **Figure G6.a: Parks and Recreational Facilities** <
> *Vulnerability and service area data source: Parks and Recreation Department* Goals While over 98 percent of Lincoln residents are within one mile of accessing a trail, there are still inequities in the trail network. For example, there are instances where there are no connections into the trail system as a whole, leaving it inaccessible for residents who have concerns about on-street biking for commuting or for those who would like to ride recreationally through the community. Connecting these gaps should be prioritized over the planning horizon to create a more equitable trail network. Sidepaths are separated paths along roadways that serve people bicycling and walking within the street right-of-way. Examples may include the 84th Street Trail and the Old Cheney Trail. Development of sidepaths should be placed further from the street to provide a comfortable buffer of grass and street trees between vehicular traffic and bicycle and pedestrians. Sidepaths may present increased conflicts with motor vehicles at driveways and intersections. Increased safety measures should be evaluated for these facility types to protect vulnerable road users. ## Policies Related to this Goal P2: Existing Neighborhoods P3: Developing Neighborhoods P18: Conservation Design P22: Local Food P23: Salt Valley Greenway and Connecting Green Corridors Concept Implementation P25: Open Space with Development P26: Community Forestry Management P27: Regional Parks and Tournament Facilities P28: Community Parks P29: Neighborhood Parks P30: Recreation Centers / Community Learning Centers P31: Aquatic Facilities P32: Other Recreational Facilities and Activities P33: Parks and Recreation Partnerships P39: Community Space P43: Health Care Access P64: Complete Streets P68: Pedestrians P69: Bicycles ## Community Indicators Related to this Goal Growth Indicators Economy Indicators Housing Indicators Transportation Indicators Recreation Indicators Goals # G7: Environmental Stewardship and Sustainability PlanForward commits Lincoln and Lancaster County to a sustainable growth framework that will conserve and efficiently utilize our economic, social, and environmental resources so that the welfare of future generations is not compromised. <
> Energy use, supply, and conservation are topics of global as well as local concern. PlanForward includes an assessment of energy use, evaluates the utilization of renewable energy sources, and describes efforts to conserve energy in the community. The relationship between land use patterns and energy consumption has been widely researched and is an ongoing topic of national and global conversations. The transportation sector is the nation’s leading source of greenhouse gas (GHG) emissions, and total emissions have steadily grown within our region as daily vehicle miles traveled and congestion levels have increased. Decisions within the region will address threats to transportation infrastructure and human health anticipated to result from climate change. As Lincoln and Lancaster County continue to plan for the future, the need to consider the impacts of energy supply and demand will continue to increase in importance. **Figure G7.a: LES Portfolio CO2 Rate** <
> *Lincoln Electric System* The City of Lincoln has adopted the *Climate Action Plan*, and with it the goal of reducing net emissions 80% by 2050. This “80x50” (eighty by fifty) goal, as it is known by many cities around the world that have adopted a similar target, is intended to be an all-encompassing, visionary goal that will invite all sectors of Lincoln to play a part in transitioning to a low-carbon future, including electricity generation, transportation, heating, and manufacturing. Goals Electricity generation and use are currently some of the most impactful drivers of greenhouse gas emissions nationally. In 2018, the electricity sector accounted for 27% of the total U.S. greenhouse gas emissions, second only to the transportation sector. The energy sector will be a crucial component of Lincoln’s climate progress. By working together across sectors and with a combination of policy, market-driven and voluntary efforts, the residents of Lincoln can achieve their ambitious goal of reducing net emissions 80% by 2050. The Lincoln Electric System Administrative Board established a new decarbonization goal of net-zero carbon dioxide production from its generation portfolio by 2040. LES has already reduced carbon dioxide emissions from its generation portfolio by 53% from 2010 – 2020. The Board recognizes the critical role that electricity generation has in achieving a citywide goal of reducing net greenhouse gas emissions 80% by 2050, while also maintaining high levels of electric system reliability and affordable retail electric rates to every customer in the area. Moving forward, LES will continue evaluating technological and financial opportunities that transition power generation to net zero carbon dioxide production by 2040. The transportation sector is the nation’s leading source of greenhouse gas (GHG) emissions, and total emissions have steadily grown within our region as daily vehicle miles traveled and congestion levels have increased. Transportation is recognized in the Climate Action Plan with a compelling list of strategies meant to reverse the trend and help achieve the goal of 80 percent net GHG reduction by 2050. A portion of single occupancy vehicle trips must be replaced by alternative modes, and internal combustion engines must be replaced with cleaner fuel sources to achieve this goal. Action steps are necessary now to begin transitioning the region toward a more resilient and sustainable future. A 2018 report from the Intergovernmental Panel on Climate Change (IPCC) investigated the projected impacts of a world that had warmed 1.5°C compared to one that had warmed 2.0°C. The IPCC found that going to 2.0°C would expose several hundred million people to climate-related risks by 2050. The study found that global emissions of greenhouse gases would need to drop by 45% from 2010 levels by 2030 to stay on a 1.5°C path. As the World Resources Institute puts it, “behavior and technologies will need to shift across the board in order to achieve these emissions reductions. For example, by 2050, renewables are projected to supply 70-85% of electricity in 1.5°C pathways.” Climate change will have a range of negative effects on the vulnerable natural resources on which we depend for clean air, water, and soil. Although a global commitment, such as the Paris Climate Accord, is needed to avoid these drastic impacts, Lincoln can employ sustainability practices by continuing to reduce greenhouse gas emissions. ### Policies Related to this Goal P18: Conservation Design P19: Native Prairie P20: Ecology and Habitat P21: Floodplains and Riparian Areas P22: Local Food P23: Salt Valley Greenway and Connecting Green Corridors Concept Implementation P24: Environmental Resource Protection P25: Open Space with Development P26: Community Forestry Management Goals P48: Renewable Energy P49: Conservation of Energy P50: Water Quantity and Quality P51: Groundwater P54: Wastewater Resource Recovery Facilities P55: Watershed Planning P58: Waste Reduction P59: Electric Utility P63: Transportation and the Environment P64: Complete Streets P68: Pedestrians P69: Bicycles P70: Transit P73: Shared Mobility ### Community Indicators Related to this Goal Growth Indicators Environment Indicators Recreation Indicators Goals # G8: Community Resiliency ## Lincoln and Lancaster County will be resilient to the climate hazards they will face. <
> The changes in Lincoln and Lancaster County’s climate will result in several impacts to life in our community. We will experience warmer, drier summers, wetter springs, more extreme rain events, more frequent drought, more frequent and intense floods, potential economic instability from impacts to the state’s agricultural sector, and a range of climate-related health impacts, including heat-related illnesses, respiratory illnesses and increased insect-borne disease (see “Lincoln’s Future Climate” infographic below). Two vulnerabilities are more urgent than the rest: flooding, and Lincoln’s reliance on a single source for all its water needs. The City of Lincoln Climate Action Plan defines resilience as the capacity of social, economic, and environmental systems to cope with a hazardous event, trend, or disturbance, responding or reorganizing in ways that maintain systems’ essential function, identity, and structure while also maintaining the capacity for adaptation, learning, and transformation. PlanForward understands that resiliency transects the community’s socio-economic, health, and systemic vulnerabilities. Strategic climate directions and climate resilience will be integrated throughout City actions and ordinances, and many of the strategies in the Climate Action Plan are included in PlanForward. Climate resilience strategies will need to be adopted throughout municipal government in order to be truly effective and maximize their effectiveness in making progress toward our larger, community-wide goal. Lessons from the COVID-19 crisis may teach us about a climate-altered future. Those who bear the burdens of systemic racism, income inequality and disparities in access to healthcare have been much more likely to be negatively impacted by COVID-19. In the same way, if unaddressed, these inequalities will put millions of people at risk during future climate crises. Those who are vulnerable economically, socially, or physically will be more at risk from the cascading impacts of climate change. **Figure G8.a: Lincoln's Future Climate Change** <
> [^p70-10]: The mean average temperature in Lincoln is projected to increase from 52°F (1990 average) to 57°F (2050 average). [^p70-11]: Lincoln will see a 340% increase in the number of days where the air temperature and relative humidity will yield a heat index over 100°F. Of those, 26 days will be even hotter - they’ll have a heat index over 105°F. [^p70-12]: Winter and spring precipitation totals will be 10-16% higher than current conditions, while summer precipitation will decrease by 4%. [^p70-13]: Heavy precipitation days in Nebraska are projected to increase 15% to 35% by 2050. Furthermore, multi-day extreme precipitation events will increase in severity. Goals The community will address the two most urgent climate vulnerabilities by developing a strategy to secure a second source of water supply and by implementing the recommendations of the Salt Creek Resiliency Study.[^p71-1] ### Policies Related to this Goal P18: Conservation Design P19: Native Prairie P20: Ecology and Habitat P21: Floodplains and Riparian Areas P22: Local Food P23: Salt Valley Greenway and Connecting Green Corridors Concept Implementation P24: Environmental Resource Protection P48: Renewable Energy P49: Conservation of Energy P50: Water Quantity and Quality P54: Wastewater Resource Recovery Facilities P55: Watershed Planning P59: Electric Utility P63: Transportation and the Environment ### Community Indicators Related to this Goal Growth Indicators [^p71-1]: Goals # G9: Civic Participation Lincoln and Lancaster County recognize the need for an equitable civic process and community buy-in during the planning and decision-making processes. <
> The City of Lincoln and Lancaster County have long encouraged the public to participate in local government activities. Keeping people knowledgeable and involved in implementation of the Comprehensive Plan and other community initiatives is crucial to ensuring their ultimate success. It is important to give all members of the community a voice and the capacity to influence decisions. A key element to allowing everyone to have a voice in the civic participation process is removing barriers that prevent some members of the community from being fully engaged. Common barriers include: * Time: Many residents do not have the time to attend public meetings and hearings. This can be due to work responsibilities, childcare, or a lack of timely transportation options. * Language: Residents facing language barriers may have difficulty understanding material presented at meetings or distributed online or in print. This is especially true in projects involving the Planning Department because many common planning terms or abbreviations don’t have direct translations into other languages. This also applies to acronyms and jargon. * Lack of trust: There are some residents that have a general lack of trust with government processes. This lack of trust exists for a variety of reasons, but it is something that impedes collecting the full spectrum of input from the community. * Lack of understanding: Local government processes can be confusing and it is difficult to know how and when to become involved. This is especially true for residents with international backgrounds. * Accessibility: An individual with hearing, visual, or other physical or invisible impairment may have trouble accessing an in-person meeting site and reviewing written or recorded meeting materials. To achieve the goal of equitable civic participation, Lincoln and Lancaster County will work to remove these barriers so that all members of the community can be informed and involved. Examples include exploring expanded online and virtual public input methods while maintaining the option for traditional in-person engagement events located throughout the community. Equitable civic participation will require broad efforts that reach the entire community while actively seeking engagement from historically underrepresented groups. As part of the PlanForward process, the Planning Department conducted several in-person and virtual events that collected input from hundreds of residents across the community. In addition, an Equity Subcommittee was established to discuss issues related to equity in the planning process and outcomes, and collect input from residents who are typically underrepresented in our processes. More information about the public input process can be found in the Introduction section of PlanForward. Goals ### Policies Related to this Goal P40: Libraries P46: Public Buildings P47: Civic Participation P60: Technology ### Community Indicators Related to this Goal Growth Indicators Goals # G10: Effective Government Lincoln and Lancaster County will be responsive to community needs and provide efficient and reliable essential services to residents and taxpayers. <
> Lincoln and Lancaster County will focus on maintaining a sustainable tax base that continues to provide quality services to residents and businesses in an efficient and equitable manner. Fiscal decisions will continue to be data-driven and implemented through a public process that allows for transparency and citizen input. The City of Lincoln and Lancaster County promote the integration of information technology throughout the community by their use of technologies in the business of local government. This use of integrating technology will continue to deliver services efficiently and enhance the interaction with government. A variety of activities contribute to the sustainable provision of efficient and reliable essential services: * Efficient growth that maximizes utilization of existing infrastructure investments while reducing the need to invest in costly new infrastructure. * Supporting economic development efforts, and incentives such as Tax Increment Financing (TIF), that grow the tax base. * Leveraging external funding sources, such as Federal and State funds and public-private partnerships, along with grants, to maximize the utilization of local tax dollars. * Maintaining a community with a high quality of life to attract investment from both residents and businesses. ### Policies Related to this Goal P7: Redevelopment Incentives P12: Economic Growth P15: Infrastructure and Economic Development P16: Rural Economy P17: Predictability P33: Parks and Recreation Partnerships P34: Urban Design Standards P35: Entry Corridors P37: Historic Preservation P40: Libraries P41: Fire and Rescue P42: Law Enforcement P46: Public Buildings P47: Civic Participation P50: Water Quantity and Quality Goals P52: Wastewater System P53: Gravity Flow Collection System P54: Water Resource Recovery Facilities P56: Landfill P60: Technology P75: Transportation Partnerships P77: Transportation Maintenance P78: Transportation Funding ### Community Indicators Related to this Goal Growth Indicators Goals # G11: Rural Environment <
> Lincoln and Lancaster County will support a strong rural economy, with a focus on agriculture and other land uses, while preserving critical natural features and quality of life for county residents. An important relationship exists between the urban, rural, and natural landscapes. Urban and rural development must maximize the use of land in order to preserve agriculture and other compatible industries, natural resources, and the overall rural environment. Agriculture is the dominant land use in Lancaster County, accounting for roughly ¾ of the county’s total land area. According to the 2017 USDA Census of Agriculture, Lancaster County has over 1,700 farms, with 95 percent of those being classified as “family owned”. Total market value of farm products produced in Lancaster County was $189 million. It is important to maintain agriculture as the core element of Lancaster County’s economy by supporting traditional agriculture along with emerging agricultural production methods. The rural areas in Lancaster County are also appropriate locations for emerging energy production facilities such as wind turbines and solar farms. These industries are compatible with agricultural uses, support the community’s sustainability initiatives, and have the potential to be major contributors to the local economy. Both the City and County zoning ordinances have been recently updated to address these uses and ensure that their implementation is compatible with surrounding areas. It is also important that critical natural features such as native prairie, wetlands, and riparian corridors are protected. Such features need to be valued and sustained as part of the overall planning process if they are to remain as vital parts of our ecosystem and natural heritage to be left for succeeding generations. The Climate Action Plan discusses these ideas in more detail. Although it is a City document, coordination with the County will be important to implementing many of the Climate Action Plan’s initiatives. Rural Lancaster County has approximately 20,000 residents living on a mix of farms and acreages. Demand remains for additional acreage development in rural areas. The Future Land Use plan currently includes area for about 23 years of additional acreage development, assuming demand remains steady. It is expected that additional acreage areas will be added over time to meet demand across the 30-year planning period. Acreages must be located in appropriate locations in order to reserve land resources for efficient future urban development, agriculture, and the natural environment, while preserving the rural quality of life for existing and future residents. ### Policies Related to this Goal P4: Rural Housing P16: Rural Economy P19: Native Prairie P20: Ecology and Habitat P22: Local Food P23: Salt Valley Greenway and Connecting Green Corridors Concept Implementation Goals P24: Environmental Resource Protection P51: Groundwater P55: Watershed Planning P65: Transportation and Managing Growth ### Community Indicators Related to this Goal Growth Indicators Economy Indicators Housing Indicators Environment Indicators Goals # G12: History and Culture Lincoln and Lancaster County will celebrate the community’s history and diverse cultures and build upon the benefits they provide to civic health, economic vitality, and quality of life. <
> Preservation and enhancement of the many quality of life assets within the community continues. For a “good quality of life,” a community has more than jobs, shelter, utilities and roads — there are numerous services, education, historic, natural, and cultural resources that are fundamental to enriching lives. As the population continues to become more diverse, the richness and variety of Lincoln and Lancaster County’s cultural assets will enrich the quality of life for all those living here. Figure G12.a: Actual and Projected Population for Major Racial/Ethnic Groups, Lancaster County <
> PlanForward embraces a growing, changing community, and the opportunities presented by the fundamental demographic changes currently expected to continue into the future. For example, Lincoln has the largest Yazidi community in North America, and Nebraska was the largest refugee resettlement per capita in 2016. Students in the Lincoln Public School system are more diverse than Lincoln as a whole. In 2020, LPS had 35.7 percent minority students, while Lincoln had 23.5 percent minority population. As these students grow up and have families of their own, Lincoln can expect an increased diversity in its racial and ethnic composition. The community will experience further growth among existing racial and ethnic minority groups over the next 30 years. From less than 25,000 people in 2000, the number of minority residents in the County surged to almost 45,000 persons in 2010, and is estimated at 65,000 persons in 2020. It is expected that Lancaster County’s minority community will grow to 155,000 persons by 2050, and comprise roughly 1/3 of the overall population. The trend Goals towards a more racially and ethnically diverse community is celebrated and emphasized across multiple policy areas in PlanForward. The community’s history and culture is discussed more in the Introduction section, and is reflected through historic buildings and sites throughout the county. These resources add to the desirable quality of life for current residents and should be protected for future generations. PlanForward encourages the continued use and maintenance of historic and cultural resources, including properties not formally designated as landmarks. ### Policies Related to this Goal P2: Existing Neighborhoods P5: Downtown P24: Environmental Resource Protection P34: Urban Design Standards P36: Public Art P37: Historic Preservation P38: State Capitol P39: Community Space ### Community Indicators Related to this Goal Growth Indicators Goals # G13: Community Appearance <
> ## Lincoln and Lancaster County will have a high-quality physical environment that creates a strong sense of place and community pride. The urban and the rural landscapes of Lancaster County produce a distinctive place, offering a sense of identity to visitors and especially to residents. It is worthwhile to plan for, protect, and strengthen this character as the community grows and matures. When successful, urban design makes a community more enjoyable for residents, more attractive to visitors, and more competitive in drawing new businesses and retaining existing ones. A truly sustainable community recognizes and builds on its heritage by fostering good urban design, creating a sense of place and uniqueness that supports a strong economy, values environmental assets, and promotes social engagement and interaction. To achieve this goal, PlanForward addresses community appearance in a variety of topic areas, including: * Design standards that promote a high-quality built environment. * Preservation and re-use of historic structures, including both designated landmarks and non-designated buildings. * Entry corridors that create a positive “first impression” of the community. * Community spaces that celebrate local art, music and culture, and promote social interaction and understanding. * Protection of significant views and vistas throughout the county. * Well-built public buildings that are compatible with the surrounding environment. ## Policies Related to this Goal P2: Existing Neighborhoods P5: Downtown P24: Environmental Resource Protection P34: Urban Design Standards P35: Entry Corridors P36: Public Art P37: Historic Preservation P38: State Capitol P39: Community Space ## Community Indicators Related to this Goal Growth Indicators Goals # G14: Technology <
> Lincoln and Lancaster County will support equitable access to technological innovation in order to sustain a vibrant economy, improve City and County services, and improve civic networking. Technology has and will continue to change the way we live, impacting our personal and professional lives. Technology is also continuously evolving which brings new opportunities and challenges – 3D printers are creating new housing opportunities, our appliances are now capable of speaking to each other, and driverless vehicle technology continues to advance. Technological trends will continue to be monitored in all aspects that impact our community. Partnerships will continue to play a significant role, and opportunities will be explored with local resources such as the University of Nebraska and private companies. The efficient use and expanded access to public wireless resources are fundamental to Lincoln’s future economic growth, global competitiveness, and technology equity among its community members. Congestion of the wireless spectrum and scarcities in both licensed and unlicensed bands must be addressed for continued innovation and investment growth. Access to wireless technology in our public spaces for use by residents, visitors, and event businesses has become an everyday expectation and necessity. In Lancaster County, 88% of households have internet access through an internet subscription. Households with an income less than $20,000 have internet access through an internet subscription at a rate of 70.8%. The high percentage of residents with an internet subscription speaks to the need and importance of technology for our residents to fully participate in civic functions, employment opportunities, lifelong learning, and access to essential services. Table G14.a: Internet Access, Lancaster County | | | | | :--- | :--- | :--- | | **Total Households** | 124,324 | | | **With Internet Subscription** | 109,421 | 88% | | With no Internet | 14,903 | 12% | | | | | | **HH Income <$20,000** | 16,644 | | | With Internet Subscription | 11,783 | 71% | | With no Internet | 4,861 | 29% | | | | | | **HH Income $20,000 - $74,999** | 68,453 | | | With Internet Subscription | 50,245 | 86% | | With no Internet | 8,208 | 14% | | | | | | **HH Income $75,000 or more** | 49,227 | | | **With Internet Subscription** | 47,393 | 96% | | With no Internet | 1,834 | 4% | *American Community Survey 2015 - 2019* Goals In 2015, the City of Lincoln partnered with Allo Communications to complete a fiber optic network, providing faster broadband speeds, including 1-gigabit service available to every home and business in Lincoln. The project was completed in 2018. The City of Lincoln and Lancaster County promote the integration of information technology throughout the community by their use of technologies in the business of local government. Examples of such activities include: *Public Internet Terminals:* These terminals provide public access to the Internet for residents and visitors to Lancaster County. High speed lines and free access terminals have been placed in libraries, community centers, recreation centers, and senior centers. *City and County Websites:* The City and County websites offer expanded opportunities to access government in the areas of employment, health and human services, planning and land development, general information assistance, and access to resources. The ability to conduct various government transactions online saves travel time and resources for citizens and government employees. *Advanced Audio and Video Equipment:* An array of video equipment is used to broadcast local government meetings over a local cable channel and via the Internet. *Geographic Information Systems (GIS):* City and County departments, in partnership with other agencies, have created an extensive system of digital geographic information that includes hundreds of layers of information on features such as natural resources, topographic features, land use, structures, floodplains, jurisdictional boundaries, and infrastructure. A broad assortment of digital imagery (i.e., photographs, permit and property information) is also included in this GIS information base. *Intelligent Transportation Systems:* Information technology offers many opportunities for making better use of transportation facilities and services. Intelligent Transportation Systems (ITS) use computers and digital technology to get the most out of the community’s investment in roads and other transportation facilities. *Decision Lens:* Utilization of the Decision Lens tool has provided an opportunity for robust discussion and consideration for transportation projects through the Lincoln on the Move effort and the prioritization of the Long Range Transportation Plan projects. *Green Light Lincoln:* The continued deployment of Green Light Lincoln will result in vast improvements to the overall traffic signal system, and numerous projects with high benefit/cost ratios. Key benefits of this initiative are wide reaching and include: reduce the number and severity of crashes; reduce travel times, delays, and stops; reduce vehicle emissions and pollutants; reduce fuel consumption for savings at the pump; smooth traffic flow and reduce driver frustration; and delay the need for major street widening projects. *Public Wi-Fi and Wireless Internet Access:* The City will partner with private broadband carriers to install outdoor public Wi-Fi systems in public spaces. Exploration of a public Wi-Fi and wireless internet access program for the community should be evaluated for community need and potential costs associated with implementation. *Educational Internet Access:* The City of Lincoln, Lincoln Public Schools (LPS), Lincoln Libraries, University of Nebraska – Lincoln, and private broadband providers will partner to extend the LPS student internet access into every home and business connected to the Fiber to the Home project. The goal of the Educational Internet Access project is to ensure every student in Lincoln has access to safe and secure high-speed internet regardless of income. *Cloud-Based Public Infrastructure:* Continued growth in Information Technology applications require the expansion of database storage infrastructure and cloud-based storage. The City and County will continue to migrate from on-premise to cloud-based storage and applications. Goals ## Policies Related to this Goal P12: Economic Growth P15: Infrastructure and Economic Development P47: Civic Participation P60: Technology P70: Transit P73: Shared Mobility P74: Advanced Mobility P78: Transportation Funding ## Community Indicators Related to this Goal Growth Indicators Goals # G15: Transportation <
> **Lincoln and Lancaster County will strive to achieve a safe, efficient, and sustainable transportation system that enhances the quality of life, livability, and economic vitality of the community.** A balanced transportation system that supports the community’s needs and equitable outcomes must include maintenance of the aging infrastructure, efficiencies to allow people to move from place to place without congestion, and availability of a wide variety of safe mobility options such as walking, biking, transit, and driving. The transportation system should be thoughtfully designed to contribute to economic vitality of the region by integrating transit, vehicular, freight, air, nonmotorized, and rail modes with land use decisions. The transportation sector is a major contributor to greenhouse gas (GHG) emissions; transportation decisions should reflect Lincoln and Lancaster County’s stewardship of the environment. Specific transportation decisions should align with the City of Lincoln's goal to build a decarbonized and efficient transportation system, as stated in the City of Lincoln Climate Action Plan. Public funding, both locally and nationally, for transportation infrastructure is extremely tight. A successful transportation network comes from public, private, and nonprofit entities working together to achieve mutually beneficial outcomes. The 2050 Lincoln Metropolitan Planning Organization (MPO) Long Range Transportation Plan (LRTP) is one of the primary planning documents that guides the region’s transportation investments to accomplish this goal. The LRTP outlines eight transportation goals which support the goal for transportation in the Comprehensive Plan. Maintenance: A well-maintained transportation system. Mobility and System Reliability: An efficient, reliable, and well-connected transportation system that leverages innovation and technology for moving people and freight. Livability and Travel Choice: A multimodal system that provides travel options to support a more compact, livable urban environment. Transportation Equity: Transportation investments developed through an inclusive process that promote equitable outcomes. Safety and Security: A safe and secure transportation system. Economic Vitality: A transportation system that supports economic vitality for residents and businesses. Goals Environmental Sustainability: A transportation system that enhances the natural, cultural, and built environment. Funding and Cost Effectiveness: Collaboration in funding transportation projects that maximizes user benefits. The eight goals developed for the 2050 LRTP are primarily aligned with national goals and federal planning factors. These goals are the foundation for performance measures, performance targets, policies, and projects described in the LRTP. ### Policies Related to this Goal P15: Infrastructure and Economic Development P62: Transportation Equity P63: Transportation and the Environment P64: Complete Streets P65: Transportation and Managing Growth P66: Congestion Management P67: Transportation and Economic Health P68: Pedestrians P69: Bicycles P70: Transit P71: Public ROW and Access P72: Freight P73: Shared Mobility P74: Advanced Mobility P75: Transportation Partnerships P76: Transportation Safety P77: Transportation Maintenance P78: Transportation Funding P79: Airport ### Community Indicators Related to this Goal Transportation Indicators (blank page) # PLAN forward ## Lincoln-Lancaster County 2050 Comprehensive Plan The Lincoln-Lancaster County 2050 Comprehensive Plan is a roadmap to “plan forward”, not only in time, but in concept, to envision a community that is Livable, Equitable, Thriving, Resilient, and Innovative. # Elements CITY OF LINCOLN NEBRASKA LANCASTER NEBRASKA COUNTY Elements The PlanForward elements contain additional information that support the policies and action steps. Each element also relates to PlanForward goals. <
> E1: Complete Neighborhoods and Housing 3.3 <
> E4: Environmental Resources 3.50 <
> E7: Community Facilities 3.84 <
> E2: Infill and Redevelopment 3.18 <
> E5: Parks, Recreation and Open Space 3.61 <
> E8: Energy and Utilities 3.95 <
> E3: Business, Economy and Workforce 3.31 <
> E6: Placemaking 3.76 <
> E9: Transportation 3.114 Elements # E1: Complete Neighborhoods and Housing This element discusses the desired pattern of development in newer and older neighborhoods and strategies for meeting future housing demand. <
> One of the essential elements of the community and PlanForward 2050 is housing and neighborhoods. Ensuring safe, adequate, and affordable housing is an important function in maintaining the vitality of neighborhoods and the city as a whole. The key to both developing and existing complete neighborhoods is land use diversity. For existing neighborhoods, the land use diversity is often already in place, but efforts must focus on maintaining this balance and variety. The diversity of architecture, housing types and sizes are central to what makes existing neighborhoods great places to live. New construction in existing neighborhoods should continue the architectural variety, but in a manner that is sympathetic to the character of existing neighborhoods. For developing neighborhoods, the land uses are typically kept separate and are accessible primarily by vehicles. PlanForward recognizes the value of diversifying land uses in developing areas to achieve more integrated neighborhoods. The community continues its commitment to strong, diverse, and complete neighborhoods. Neighborhoods remain one of Lincoln's great strengths and their conservation is fundamental to this plan. The health of Lincoln's varied neighborhoods and districts depends on implementing appropriate and individualized policies. In existing neighborhoods, preservation, maintenance, and rehabilitation of existing housing should continue to be the focus. Infill and redevelopment needs to respect the street pattern, block sizes, and development standards of the area, such as parking at the rear and porches, windows, and doors on the front street side. In existing and developing neighborhoods, diversity of land uses, including commercial and a variety of housing types, is important provided the use fits within the character of the block and neighborhood. During the planning period, there will continue to be a need to accommodate group living which generally includes, but is not limited to: senior housing, assisted living facilities, group homes, domestic shelters, and children's homes. A complete neighborhood is more than housing – great neighborhoods combine all the elements of parks, education, commercial areas, environmental resources, and housing together in one place. A complete neighborhood is one where residents have safe and convenient access to goods and services needed for daily life activities. Benefits of complete neighborhoods include: * Support for healthier lifestyles and convenience * Stronger markets for neighborhood businesses * Efficient and equitable public investment * Energy efficiency and emissions reduction * Affordability - Lower household costs <
> **A statement in previous Comprehensive Plans encouraged single-family housing but left out the importance all other housing types. The statement has been updated as follows:** *"Retain and encourage a mix of housing in existing and new neighborhoods in order to provide a mix of housing types at a variety of price points."* Elements “Put the stuff closer together so it's easier to get to the stuff.” Paul Mogush, Minneapolis Planner Fundamental elements of a complete neighborhood include a mix of housing options, open spaces, schools and childcare, access to food, and commercial goods and services. Thus, policies and action steps from multiple other elements also apply to complete neighborhoods and housing. A Complete Neighborhoods indicator will be created to evaluate the “completeness” of Lincoln neighborhoods. Factors to be evaluated will include presence of sidewalks and housing options, and proximity to trails, transit stops, parks, essential goods and service, and schools. This indicator can inform decision-making in order to guide investments as the community grows over the next 30 years. Cities such as Detroit, San Antonio, and Boulder have established Complete Neighborhoods goals and associated metrics. Elements 1. Encourage a mix of compatible land uses to develop more complete neighborhoods: a. Similar uses on the same block face: residential faces residential. b. Similar housing densities developed near each other: single-family and “missing middle” residential (3-12 units) scattered throughout with higher density residential (more than 12 units) near the neighborhood edge or clustered near commercial centers. c. Non-residential uses, including parking lots, should be screened from residential areas. d. Locate Commercial Centers so as residents can safely access essential goods and services (i.e. not located across arterial streets) and no more than a 15-minute walk from all residences. 2. Require sidewalks on both sides of all streets. 3. Encourage locations within neighborhoods to grow local food. 4. Plan for residences to be located within 1 mile to an existing or planned multi-use trail. 5. Plan for residences to be located within 1/2 mile to an existing or planned neighborhood park. 6. Integrate transit stops into developing neighborhoods and within a ½ mile distance from residences. 7. Encourage employment areas to be within a 15-minute walking distance to residences. 8. Plan for elementary or middle schools to be within a 15-minute walking distance to residences. 9. Encourage pedestrian orientation with parking at rear of residential and neighborhood commercial uses. 10. Develop shorter block lengths to provide multiple connections across residential and commercial areas. 11. Provide pedestrian connections when maximum block lengths are exceeded. 12. Encourage shared City and School facilities (aka SPARKS). 13. Provide adequate curb space to allow for on-street parking. 14. Encourage alley access and shared driveways to reduce interruptions to pedestrians, to preserve on street parking capacity, and to reduce automobile conflict points. 15. Support preservation or restoration of natural areas, and limit stream or drainageway crossings. * Items 1-8 above will inform the development of a Complete Neighborhoods assessment tool. Elements Figure E1.a: Strategies for Design, Sustainability and Complete Neighborhoods in Developing Areas <
> Single-Family/Duplexes/Garages Multi-Family/Assisted Living/Rowhouses/Garages High-Density Residential Residential/Commercial Mixed Use Commercial Uses (office, retail and service) Public/Semi-Public Buildings Green Space/Natural Resources Other Open Space Public Right-of-Way (including sidewalks, street trees, parking and street paving) Parking Lots/Driveways/Private Alleys Arterial Streets Elements Figure E1.a: Strategies for Design, Sustainability and Complete Neighborhoods in Developing Areas <
> | | | | :--- | :--- | | | Single-Family/Duplexes/Garages | | | Multi-Family/Assisted Living/Rowhouses/Garages | | | High-Density Residential | | | Residential/Commercial Mixed Use | | | Commercial Uses (office, retail and service) | | | Public/Semi-Public Buildings | | | Green Space/Natural Resources | | | Other Open Space | | | Public Right-of-Way (including sidewalks, street trees, parking and street paving) | | | Parking Lots/Driveways/Private Alleys | | | Arterial Streets | PlanForward 2050 3.7 Elements **Figure E1.b: Strategies for Design, Sustainability and Complete Neighborhoods in Existing Areas** <
> Single-Family/Duplexes/Garages Multi-Family/Assisted Living/Rowhouses/Garages High-Density Residential Residential/Commercial Mixed Use Public/Semi-Public Buildings Green Space/Natural Resources Other Open Space Public Right-of-Way (including sidewalks, street trees, parking and street paving) Parking Lots/Driveways/Private Alleys Arterial Streets 3.8 PlanForward 2050 Elements 1. Encourage a mix of compatible land uses to develop more complete neighborhoods: a. Similar uses on the same block face: residential faces residential. b. Similar housing densities developed near each other: single-family and “missing middle” residential (3-12 units) scattered throughout with higher density residential (more than 12 units) near the neighborhood edge or clustered near commercial centers. c. Non-residential uses, including parking lots, should be screened from residential areas. d. Locate mixed-use centers so as residents can safely access essential goods and services (i.e. not located across arterial streets) and no more than a 15-minute walk from all residences. e. Support existing Commercial Centers and encourage inclusion of essential goods and services. f. Infill and redevelopment projects should meet or exceed Neighborhood or Commercial Design Standards. 2. Require sidewalks on both sides of all streets or in alternative locations as allowed through design standards or review process. 3. Strive for residences to be located within 1 mile to an existing or planned multi-use trail. 4. Strive for residences to be located within 1/2 mile to an existing or planned neighborhood park. 5. Integrate transit stops into developing neighborhoods and within a ½ mile distance from residences. (need input from StarTran) 6. Develop shorter block lengths to provide multiple connections across residential and commercial areas. 7. Encourage locations within neighborhoods to grow local food. 8. Infill development should balance expanding housing options and neighborhood character by complementing the character of the existing neighborhood and providing appropriate transitions, scale and context. Encourage pedestrian orientation with parking at rear of residential and neighborhood commercial uses. 9. Allow non-standard lots to be buildable. 10. Retain and encourage a mix of housing in order to provide a mix of housing types at a variety of price points. 11. Encourage historic preservation and the rehabilitation and maintenance of buildings. 12. Support retention of public and semi-public uses (elementary schools, churches) as centers of neighborhoods. 13. Maintain existing pattern of streets for connectivity. 14. Maintain arterial streets that are compatible with the existing neighborhood character with two through lanes and a center turn lane where applicable. 15. Utilize streets for commercial and residential parking. 16. Encourage shared parking whenever possible: permit minor incursions of accessory parking for public/ semi-public uses into neighborhoods if properly screened. 17. Maintain alley access and encourage shared driveways to parking areas in order to reduce interruptions to pedestrian traffic, to preserve on-street parking capacity, and to reduce automobile conflict points. 18. Support the preservation and restoration of natural resources, and limit stream or drainageway crossings. 19. Encourage additional density of a variety of housing types and price points on open and available land areas. 20. Encourage middle housing in Neighborhood Edges. * Items 1-5 above will inform development of a Complete Neighborhoods assessment tool. Elements ## Existing Neighborhoods For existing neighborhoods, housing diversity is often already in place, and efforts must focus on maintaining this balance and variety. The diversity of architecture, housing types and sizes are central to what make existing neighborhoods great places to live. New construction should continue the architectural variety, but in a manner that is sensitive to the existing neighborhoods. Preservation, maintenance, and rehabilitation of existing housing should continue to be the focus. Preserving existing housing for owners and renters and a mix of supporting uses should remain the focus in established neighborhoods, with modest opportunities for infill and redevelopment. Infill and redevelopment is supported and must respect the street pattern, block sizes, and development standards of the area, such as parking at the rear and porches, windows, and doors on the front street side. Neighborhood Design Standards apply within Lincoln's 1950 corporate limits and will continue to be a useful tool to ensure compatibility of new construction. Areas annexed after 1950 are not currently covered by the City's Neighborhood Design Standards. The City's primary strategy for residential infill and redevelopment outside of the Greater Downtown is to encourage the redevelopment and reuse of sites and buildings in commercial areas in order to create new mixed use centers that are compatible and complementary to adjacent neighborhoods. Modest opportunities for redevelopment may also be appropriate along "neighborhood edges." Neighborhood edges include arterial streets and transition zones between lower density residential and commercial areas. 1,000+ well-designed and appropriately-placed dwelling units are projected for neighborhoods in the existing city — roughly a one percent increase to the existing housing stock—on vacant lots, expansions of existing apartment complexes with undeveloped land, within redeveloping commercial and industrial areas, and through accessory dwelling units. Residential redevelopment in existing neighborhoods tends to occur naturally without public intervention over a long period of time, as individual properties become obsolete or are acquired piecemeal by private or nonprofit developers. Existing neighborhoods often contain a mix of uses including neighborhood commercial uses, parks, and schools. The patterns of land use in existing neighborhoods support walkability and already achieve many of the Complete Neighborhoods recommendations. Neighborhood commercial centers provide goods and services closer to where people live and can increase desirability to live in the surrounding neighborhoods. Examples in Lincoln include Havelock, University Place, College View, and others. Efforts should be taken to preserve existing neighborhood commercial centers as a vital component in existing neighborhoods. Integration of the neighborhood commercial areas within existing neighborhoods is supported and can be viewed as a model for developing neighborhoods. <
> Homeownership has been a focus of past Comprehensive Plans, but statements supporting renters in our community were not included. The updated text is more inclusive of all residents in our community. *Preserving existing housing for owners and renters and a mix of supporting uses should remain the focus in established neighborhoods, with modest opportunities for infill and redevelopment.* ## Developing Neighborhoods Developing neighborhoods should have a variety of housing types and sizes, plus commercial and employment opportunities. While Lincoln has some good examples of complete developing neighborhoods, the land development patterns in developing neighborhoods are typically kept separate and are accessible primarily by vehicles. PlanForward recognizes the value of diversifying land uses in developing areas to achieve more integrated neighborhoods. Developing a pedestrian orientation of buildings and street networks that provides substantial connectivity is also a priority for developing areas. There are notable differences between some types of housing Elements and traditional multiple-family residential developments. Typically, group living complexes such as assisted living facilities will have fewer occupants per unit and will generate less traffic than housing built for the general marketplace. Thus, a location that is deemed appropriate for group living may not be deemed appropriate for other types of higher density housing such as apartments or town homes. In support of housing variety, the City should review existing zoning tools to encourage greater housing diversity and development of missing middle housing in developing neighborhoods. Examples include revisions to Community Unit Plan requirements or modifications to current residential zoning districts. Easy access to commercial areas, parks, schools, and other daily needs is also important and should be planned for early on in development neighborhoods. <
> ### Affordable Housing The Plan recognizes that preserving our existing housing stock is one of the best ways to provide for affordable housing in our community. The Lincoln City Council adopted the *Lincoln Affordable Housing Coordinated Action Plan* in December 2020. The Affordable Housing Coordinated Action Plan recognizes that the City alone cannot address the affordable housing needs. Many community partners are identified to help implement the plan recommendations. The Affordable Housing Coordinated Action Plan also acknowledges the gap in “missing middle” housing unit types. Whereas single-family detached and multi-family units are the predominant housing type developed in Lincoln, missing middle includes the units between such as duplex, triplex, quadplex, cottage clusters, and townhouses. Missing middle housing was more prominent in the 20th century. An important element to affordable housing and complete neighborhoods overall includes development of missing middle housing. Table E1.a below lists existing buildings by type and decade. The numbers are for the building totals and not unit totals. The Affordable Housing Coordinated Action Plan also acknowledges the gap in “missing middle” housing unit types. Whereas single-family detached and multi-family units are the predominant housing type developed in Lincoln, missing middle includes the units between such as duplex, triplex, quadplex, cottage clusters, and townhouses. Missing middle housing was more prominent in the 20th century. An important element to affordable housing and complete neighborhoods overall includes development of missing middle housing. Table E1.a below lists existing buildings by type and decade. The numbers are for the building totals and not unit totals. Elements Table E1.a: Housing Type by Decade, Lincoln | Decade | 3-12 Units | 12+ Units | | :--- | :--- | :--- | | 1900-1910 | 20 | 2 | | 1911-1920 | 28 | 5 | | 1921-1930 | 30 | 21 | | 1931-1940 | 16 | 1 | | 1941-1950 | 38 | 4 | | 1951-1960 | 78 | 3 | | 1961-1970 | 218 | 40 | | 1971-1980 | 360 | 127 | | 1981-1990 | 132 | 72 | | 1991-2000 | 47 | 74 | | 2001-2010 | 11 | 15 | | 2011-2020 | 15 | 54 | Modifications to existing zoning districts should be explored to allow more missing middle housing units by right. The Residential Transition (R-T) District is intended to provide a buffer between neighborhoods and more intensive commercial or industrial uses, stressing compatibility with nearby residential areas. The R-5 residential District should be reviewed for potential amendments that would encourage missing middle, as that district already allows densities between 6 and 10 units per acre. Both zoning districts may offer opportunities for missing middle housing along neighborhood edges. <
> Neighborhoods with a mix of households of varying income are beneficial and promote equity and inclusiveness in contrast to the negative impacts of concentrated poverty. Mixed income neighborhoods generally provide access to more and improved services including health facilities, grocery stores, good schools, access to quality housing, neighborhood amenities such as parks and open space, and a safer environment for people of all incomes. A choice of housing types, including owner-occupied and renter-occupied affordable housing, is a key element in promoting mixed-income neighborhoods. Through the City’s Urban Development Department, an Affordable Housing Fund provides local dollars tailored to meet specific needs identified in the Affordable Housing Coordinated Action Plan. The funding sources include a portion of the administrative fees received from Tax Increment Financing projects and Turnback Tax funds obtained from sales tax collected in relation to Pinnacle Bank Arena. State legislation allows a portion of the Turnback Tax to be designated for affordable housing. The Affordable Housing Fund allows for local control and flexibility; however, funding is limited and additional sources for the Fund should be pursued. <
> A previous action step was considered burdensome on low-income housing developments. The action step was reworded as follows: *Balance expanding housing options and neighborhood character. Infill development includes housing for a variety of incomes and should complement the character of the existing neighborhood and provide appropriate transitions where needed. Site and building considerations include transitions, scale and context.* Elements Housing code enforcement continues to evolve with increased enforcement of the Neglected Building Registration, the continuation of proactive and performance based multifamily rental inspections, and the addition of UPLNK (SeeClickFix) reporting tool. Implementation of increased fines for violations of property maintenance codes and increased community awareness are also contributing to the improvement of housing in Lincoln. These are big steps to improving quality affordable housing, but there may be other strategies that should be explored. ## Rural Housing PlanForward supports the preservation of land in the bulk of the County for agricultural and natural resource purposes. Balancing the demand for rural living and the practical challenge of integrating acreages with traditional land uses will continue as Lincoln and Lancaster County continue to grow. New acreage development is not encouraged in any of the Growth Tiers except for areas already platted, zoned, or designated for low density residential development. Zoning currently allows development in these tiers under the “build-through” model and without use of Sanitary Improvement Districts (SIDs). However, careful consideration should be given to these current regulations. Compared to urban development, acreage developments consume large quantities of farmland and generate traffic that exceeds the rural capacities of gravel road. Since the growth tiers establish future urbanized areas for the City of Lincoln, additional acreage developments are a detriment to future urban growth. Eventually, all acreage areas in the growth tiers will be located within the City. Therefore, land within the growth tiers is encouraged to remain in agricultural uses. Elements Figure E1c: Rural Housing on the 2050 Future Land Use Map <
> 3.14 PlanForward 2050 Elements All proposals for acreages, whether designated on the future land use map for low density residential or not, should be evaluated based on factors such as paved roads, adequate water quality and quantity, soil conditions for on-site wastewater management, availability of emergency services, agricultural productivity, land parcelization, the pattern of existing acreages, and plans for future urban development. Applications for acreage designation on the future land use map or rezoning to AGR, if planned for on-site wells, should be accompanied by information on water quality and quantity. If information becomes available that land already designated in the Plan for acreages is not suitable for acreage development, that designation should be reconsidered. Areas not designated for acreages should remain agriculturally zoned and retain the current overall density of 32 dwellings per square mile (1 dwelling unit per 20 acres). Grouping acreages together in specific areas will limit the areas of potential conflict between farms and acreages. It also may enable services to be provided more efficiently, by reducing the amount of paved routes, reducing the number and distance of school bus routes, and taking advantage of more effective rural water district service. Clustering lots in one portion of a development site, while preserving both farmland and environmental resources on the remainder, should continue to be encouraged in agriculturally-zoned areas. A considerable supply of acreage lots has been platted in recent years in this manner. The County also should continue to pursue state enabling legislation to enable clustering lots by “transfer of development rights” between non-contiguous parcels of land. It is important to note that the value of this tool, by which property owners “buy” and transfer rights to develop additional lots, will be negated if the owners simply are “given” those additional lots through rezoning. Private nonprofit land trusts are operating successfully to preserve farmland in other rural areas experiencing pressure for development. They accept donations, and in some cases have funds to pay in part for land to be conserved, including land that is cropped or pastured as well as land that is held for its natural value such as prairie, wetland, or woodland. The donations of these easements qualify as charitable deductions to federal income tax. Some other states protecting farming close to cities also have adopted tax credit programs to help encourage the donation of agricultural easements. City and county officials should encourage the expansion of an existing private trust or formation of a new one to encourage more of these donations. <
> Many households are not well-informed of all the implications of rural living before they make that lifestyle choice. This includes an understanding of the state’s *Right to Farm* law, which protects farmers from nuisance claims when conducting normal agricultural practices, and an understanding of the difference between urban and rural public services (e.g. road maintenance, emergency medical, fire protection, and police). Objective information on the pros and cons of rural living should be provided to the public through continuing education efforts by the County’s extension service, handouts available to county departments and local realtors, and potentially, documents filed of record with new platted lots for disclosure to prospective buyers. Elements ## Trends in Housing Dwelling units, particularly single family detached units, are being used in different ways than in the past. Our community will likely see more emphasis on home occupations. This is partly an outcome of teleworking during the pandemic as technological advanced have allowed this to happen more easily. Going forward, people may also want or need to have 1 or 2 employees or coworkers as part of their home occupation. A recommendation from LPlan 2040 was to explore options for allowing more home occupations that are compatible with neighborhoods. Home occupations are recognized and generally allowed so long as the occupation does not become a large-scale enterprise — one that would be harmful to the residential character of the neighborhood and would violate the purpose of zoning. Home occupation trends in Lincoln and Lancaster County should be monitored. Incremental changes to home occupation regulations may be considered while not changing the overall residential character. Since 2010, multi-family dwellings have accounted for the majority of all residential building permits, followed by single-family detached and townhomes and duplexes. This is due to several reasons including more restrictive lending practices at the end of the recession and more young households who traditionally enter the market as renters. PlanForward recognizes this increasing trend in the proportion of dwelling units that will be multi-family such as apartments, townhouses, condominiums, etc. An ordinance passed in 2017 that allowed Accessory Dwelling Units (ADUs) as a conditional use in the R-1 through R-4 residential zoning districts. About 26% of parcels in residential districts have sufficient size for two units which could include a single-family home and an attached or detached ADU. The ordinance was a first step toward allowing more flexibility in residential unit types in neighborhoods. Residents continue to desire detached accessory buildings for a variety of additional uses, including guest rooms, pool houses, and personal recreation space. There continues to be an increasing demand for ADUs that is not allowed by current regulations. A review and analysis of the adopted regulations may provide insight into ways that additional ADUs could be allowed without significantly changing the character of residential areas. According to the U.S. Census Bureau, the number of housing units in Lancaster County rose from 120,875 units in 2010 to 135,484 units in 2020 – an increase in the housing stock of 14,609 units. The increase in housing units predominantly occurred in the City of Lincoln. Lincoln had 110,546 housing units in 2010 or 91.5 percent of the housing units in Lancaster County. This ratio is consistent with data from 2000 when about 91.3 percent of the housing units (95,199 units) in Lancaster County were in Lincoln. It is expected that Lincoln will continue to have roughly 90 percent of the County’s total housing units. In 2020, housing occupancy for Lancaster County stood at 94.3 percent. This rate is comparable to the 94.8 percent occupancy rate in 2010 and 95.2 occupancy rate in 2000. ### Policies Related to this Element: P1: Housing Affordability P2: Existing Neighborhoods P3: Developing Neighborhoods P4: Rural Housing P5: Downtown P6: Nodes and Corridors P7: Redevelopment Incentives P8: Infill and Redevelopment Elements P10: Supporting Small Businesses P18: Conservation Design P29: Neighborhood Parks P37: Historic Preservation tP61: Industrial Zoning and Pipelines P62: Transportation Equity P68: Pedestrians P69: Bicycles P70: Transit ### Goals Related to this Element G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G5: Equity and Inclusion Elements # E2: Infill and Redevelopment <
> This element describes the strategy for mixed use infill and redevelopment that strives for compatibility with surroundings while accomplishing various principles of the Plan. As discussed in the *Growth Framework section* a significant shift in demographics is expected during the planning period, which will likely create a demand for some smaller dwellings, smaller lots and more walkable neighborhoods that have retail and services integrated to serve residents. In addition, local trends show that urban living is becoming more popular as infill residential development has steadily increased in the past decade. The infill and redevelopment concept for PlanForward focuses on three elements: 1) the existing and expected large supplies of undeveloped or under-utilized commercial land, including Downtown and commercial and industrial areas, which provide the potential for high-density mixed-use redevelopment, 2) neighborhood edges that present the opportunity for “missing middle” and other higher-density housing, and 3) small-scale redevelopment within existing neighborhoods. Infill redevelopment benefits the community in a variety of ways. The benefits are discussed in the Growth Framework section and also summarized below: * **A focus on maintaining existing infrastructure.** A higher proportion of infill development allows the city to focus more funds on enhancing and maintaining current infrastructure and services. * **Shorter automobile trips.** In general, with more infill there would be less distance between housing and jobs/services. This would benefit all residents by reducing system-wide lane miles traveled: fewer drivers would need to make an “across town” commute, and people taking short trips would be more likely to use other modes of transportation, which would decrease added strain on the street network. * **Increased viability for alternate modes of travel.** A higher proportion of infill supports multiple modes of transportation. Transit becomes more effective at higher densities, and increased infill development would create increased demand for more riders along existing routes. In addition, trail and on-street bicycle facility investments become more practical with more users. This is good not only for users of non-auto travel, but also for motorists as vehicular traffic growth and related congestion can be slowed. * **Reduced carbon emissions.** Shorter automobile trips and more users of alternative transit will help to reduce the community's carbon footprint over the next 30 years. * **Balanced growth throughout the community, across both existing areas and new growth areas.** Continued investment within the city ensures that our existing neighborhoods and commercial areas remain vibrant and desirable locations. More “rooftops” near existing commercial areas help to support continued commercial investment. * **Preservation of surrounding rural areas.** Increased infill in Lincoln will help preserve the rural character of Lancaster County, including the preservation of productive farmland and sensitive natural environments. Elements ## Infill and Redevelopment Approach The Infill and Redevelopment Approach seeks to fulfill the following objectives: 1. To provide flexibility to the marketplace in siting future redevelopment locations; 2. To offer existing neighborhoods, present and future residents, developers, other businesses, and infrastructure providers a level of predictability as to where such redevelopment concentrations might be located; and 3. To promote high-quality, durable design for redevelopment projects, including TIF projects, that enhances the surrounding neighborhood. 4. To encourage and provide incentives for residential mixed use in redeveloping commercial and industrial areas. Balancing these objectives in a meaningful way will require diligence, mutual understanding, and an ongoing planning dialogue. PlanForward identifies the potential for 12,000 new dwelling units to be located within the existing built-out portion of the City, roughly 25 percent of the projected 48,000 new dwelling units to be built citywide by 2050. The scale and intensity of new dwelling units will vary based on context of the surrounding area. This section provides a guide for infill housing types within different districts of the existing City. Elements Figure E2.a: Infill Districts <
> | District | Housing Type | Units Per Acre | Location | | :--- | :--- | :--- | :--- | | **Downtown and Greater Downtown** | High-rise, all unit types below | N/A | Greater Downtown which includes Downtown proper, Antelope Valley, the Haymarket, South Haymarket, Telegraph District and Innovation Campus | | **Mixed Use Redevelopment Nodes and Corridors** | Mid-rise, all unit types below | 15+ | Nodes & Corridors, underdeveloped, redeveloping or dilapidated commercial and industrial uses | | **Neighborhood Edges** | Missing Middle, ADU, all unit types below | 5-14 | Access to arterials, Transition Areas between Neighborhoods and Non-Residential Uses | | **Existing Neighborhoods** | Single-Family Detached, Single-Family Attached, Duplex, ADUs, units otherwise allowed by zoning | 3-5 | Existing, built-out residential neighborhoods | Elements ## Greater Downtown A major focus for new residential reuse, infill, and redevelopment is in the Greater Downtown area. Greater Downtown which includes Downtown proper, Antelope Valley, the Haymarket, South Haymarket, Telegraph District, Innovation Campus, and the neighborhoods immediately adjacent to downtown. It is roughly bounded by Salt Creek on the west and north, A Street on the south, and 27th Street on the east. Over 1,600 dwelling units were added in Greater Downtown from 2011 to 2020, with over 1,100 dwelling units permitted from 2010 to 2015. The Plan envisions an additional 5,000 dwelling units in Greater Downtown by 2050. This area is the main hub of employment, entertainment, and higher education. Over the years, there have been significant public and private investments in new building construction, renovations, and infrastructure. In order to capitalize on these collective investments, further development in the Greater Downtown should be realized. Information about specific action steps related to Downtown can be found in the Downtown policy. Downtown is discussed in more detail with the Downtown Lincoln Master Plan, which was adopted in 2018 and is part of the Comprehensive Plan. ## Mixed Use Redevelopment Nodes and Corridors The City’s primary strategy for residential infill and redevelopment outside of the Greater Downtown is to encourage the redevelopment and reuse of sites and buildings in underutilized commercial and industrial areas. Over 2,300 units were added in redevelopment nodes and corridors from 2011 to 2020. Nodes and corridors are mixed use and transit oriented. Residential development is strongly encouraged. This strategy is meant to create new mixed use areas that complement and enhance adjacent existing neighborhoods, while maximizing use of existing infrastructure. ### Redevelopment Nodes Nodes may include a broad range of land use types including civic, residential, group housing, retail, office, and service. Potential node locations are shown on the Future Land Use map as commercial or industrial and are typically over five acres. Nodes should have access to arterial streets, public transportation, and proximity to community facilities such as parks and schools. Examples of redeveloped nodes in recent years include 35th & Holdrege/ Idylwild, 48th & Holdrege, and 48th & Leighton. As the foundation of a great neighborhood, nodes should provide services and retail goods oriented to the residents in and adjacent to the development, with significant pedestrian orientation and access. The adaptive reuse of historic or other existing structures into mixed uses is encouraged. The size, scope, and spacing of a node will depend on available land area and the surrounding context. In some cases node redevelopment includes complete redevelopment of a site, with removal of existing structures and development of a new site plan. In other cases node redevelopment includes adding new residential or mixed use structures to underutilized areas of a center, such as a rarely-used parking lot, while maintaining some existing commercial structures and uses. Nodes should be located on arterials and have access to public transit. They should provide adequate facilities for multi-modal transportation including a complete sidewalk network, transit stops, automobile parking and circulation, and storage of bicycles. This concept is designed and intended to be be mutually beneficial for existing adjacent neighborhoods and the new mixed use neighborhood created by the redeveloped center. Newer commercial centers Elements that are not yet fully developed are encouraged to utilize this concept as a guide for amending their approved plans to develop as mixed use centers. ### Redevelopment Corridors Corridors are located along major transportation corridors such as arterials. Corridors often link Mixed Use Redevelopment Nodes and/or other commercial centers. Residential mixed use redevelopment should be encouraged in these areas, and transportation enhancements may be targeted to support such redevelopment and provide a variety of housing types affordable to diverse income levels. Corridors represent priorities for future public transportation enhancements (such as increases in level of service), areas to encourage mixed use redevelopment of commercial strips, and connections for Mixed Use Redevelopment Nodes and/or commercial centers. Corridors are typically a half block to a block wide along arterial streets in commercially or industrially-zoned areas. Since they are often located on major arterials between commercial centers, they experience a lot of traffic and usually have transit service. Corridors present opportunities for small-scale reuse or redevelopment projects and should include a mix of land use types, especially residential including a variety of housing types affordable to diverse income levels. The adaptive reuse of historic or other existing structures into mixed uses is encouraged. Due to the linear nature of Corridors, existing residential neighborhoods are often next door or across the alley from the commercial strip or industrial remnant. This close relationship makes the adoption of design standards very important in proceeding with this strategy. ### Location Criteria Mixed Use Redevelopment Nodes and Corridors should be located based on the following criteria: * In areas where there is a predominance of commercial or industrial zoning and/or development, focusing on non-residential areas. * In proximity to planned or existing neighborhoods and community services, to facilitate access to existing community services or to address a deficiency by providing services such as grocery stores, childcare centers, and restaurants. * Where there is existing or potential for good access to transit, to enhance the public transit system by making it accessible to residents and to facilitate the development of neighborhood multimodal hubs where residents can drive, bike, or walk to a transit stop, go to work, and then shop for their daily needs before they return home. * On at least one arterial street to help provide for traffic and utility capacity and access to transit. * Outside of areas with existing or potential industrial use to avoid conflicts with health and safety. * In areas that minimize floodplain and other environmental impacts. Areas within the floodplain that already have buildings and fill are appropriate for redevelopment; projects that receive public assistance should meet a higher standard to preserve flood storage. This criterion encourages redevelopment while protecting sensitive environmental areas. Preservation or restoration of natural resources within or adjacent to mixed use redevelopment areas should be encouraged. ### Design Strategies for Mixed Use Nodes and Corridors Figure E2.b displays design strategies that should be applied to future node and corridor redevelopment. Elements Figure E2.b: Design Strategies for Mixed Use Nodes and Corridors Example 1 <
> | | | | :--- | :--- | | | Single-Family/Duplexes/Garages | | | Multi-Family/Assisted Living/Rowhouses/Garages | | | High-Density Residential | | | Residential/Commercial Mixed Use | | | Public/Semi-Public Buildings | | | Green Space/Natural Resources | | | Other Open Space | | | Public Right-of-Way (including sidewalks, street trees, parking and street paving) | | | Parking Lots/Driveways/Private Alleys | | | Arterial Streets | Elements Figure E2.b: Design Strategies for Mixed Use Nodes and Corridors Example 2 <
> <
> | | | | :--- | :--- | | | Single-Family/Duplexes/Garages | | | Multi-Family/Assisted Living/Rowhouses/Garages | | | High-Density Residential | | | Residential/Commercial Mixed Use | | | Public/Semi-Public Buildings | | | Green Space/Natural Resources | | | Other Open Space | | | Public Right-of-Way (including sidewalks, street trees, parking and street paving) | | | Parking Lots/Driveways/Private Alleys | | | Arterial Streets | Elements 1. Maintain existing vehicular access, relocate drives as needed, share access where possible, and discourage additional vehicular access to an arterial street. 2. Encourage a higher Floor Area Ratio for commercial redevelopment. 3. Encourage a wide variety of commercial tenants. 4. Face existing residential uses with new residential uses rather than the backs of buildings, unless existing residential faces the opposite direction such as along an alley. 5. Align commercial driveways with existing streets where possible. 6. Discourage commercial driveways that interrupt the blockface of a residential street, especially when residences face the street. 7. Encourage shared driveways and interconnected parking lots where possible. 8. Orient buildings to the street, especially corners. 9. Maintain or adaptively reuse existing structures (especially historic structures) where possible. 10. Incorporate a variety of residential price ranges and use types such as rowhouses, apartment buildings, apartments in mixed use buildings, live-work units, and group housing. These buildings could also serve as a transition to the existing neighborhood. 11. Encourage a vertical mix of residential and commercial use types. 12. Encourage shared parking between land uses with different peak demand periods. 13. Create public/semi-public green or open spaces such as parks, plazas, or community gardens. 14. Establish or re-establish an internal public or private street network within the node that has substantial connectivity to adjacent neighborhoods to maximize access and mobility options. 15. Encourage public/semi-public uses. 16. Encourage supermarkets or specialty grocery stores to locate within nodes. 17. Encourage substantial connectivity and convenient access to neighborhood services (stores, schools, parks) from nearby residential areas. 18. Promote activities of daily living within walking distance, and provide sidewalks on both sides of all streets,or in alternative locations as allowed through design standards or review process. ### Primary Mixed Use Redevelopment Nodes and Corridors Primary Mixed Use Redevelopment Nodes and Corridors provide the opportunity for large-scale infill redevelopment, and the creation of new urban neighborhoods that function as “villages within the city” with a mix of uses and amenities that are accessible through multiple modes of transportation. Existing Regional Centers, discussed in the Business, Economy, and Workforce Element, are identified as Primary Mixed Use Redevelopment Nodes. They present unique opportunities for large-scale mixed-use redevelopment given their size, prominent location, and shared B-5 Planned Regional Business zoning district. O Street is a Primary Mixed Use Redevelopment Corridor. It is Lincoln’s “main street” and a key transportation route that provides connections through the heart of the community. The O Street corridor includes a mix of residential Elements and commercial uses and features prosperous commercial areas alongside underutilized commercial properties that present strong opportunities for redevelopment. O Street is also expected to be Lincoln’s first candidate for an enhanced mass transit option, such as Bus Rapid Transit (BRT). Dense concentrations of jobs and housing are necessary for BRT or other enhanced transit options to be effective. Focusing efforts on the O Street corridor, and the nodes along the corridor, will help to extend Lincoln’s high-density urban core beyond Downtown. An example of a Primary Mixed Use Redevelopment opportunity is the Gateway Mall area. A long-term implementation of the nodes and corridors concept could transform the area into a mixed-use neighborhood with higher density residential that supports a variety of commercial uses, high-quality transit options, and pedestrian and bicycle connectivity. Figure E2.c: Gateway Mall Area Long-Term Redevelopment Concept <
> Elements Figure E2.d: Locations of Primary Mixed Use Redevelopment Nodes and Corridors <
> ## Neighborhood Edges Neighborhood edges present an opportunity for missing middle housing, which can help expand affordable housing options and overall housing choice in the community. Missing middle housing includes “house-scale” buildings that provide typically 3 to 12 units and fit in with the character of single-family neighborhoods. Neighborhood edges exist across the community, both in older and newer neighborhoods. They typically are found adjacent to lower density Elements residential areas and are near or have access to an arterial street. Edges may filter or buffer the neighborhoods from commercial or industrial uses or they may act as a seam to adjoining neighborhoods. Criteria to consider when locating and designing neighborhood edge redevelopment should include: * Provide direct or adjacent access to an arterial street to minimize traffic impacts on neighborhood streets. * In some cases a transition zone may be needed when creating higher-density redevelopment adjacent to lower-density neighborhoods * Target legacy commercial sites and abandoned, vacant, or blighted parcels for new missing middle housing. * Consider the character of adjacent built environment in both the design and location of buildings. Zoning tools should be examined for Neighborhood Edges in order to encourage missing middle housing. The R-T Residential Transition District and R-5 Residential District may be appropriate zoning districts for neighborhood edges. Amendments to those zoning districts should be considered to encourage appropriately-placed and well-designed missing middle housing in neighborhood edges. Figure E2.e: Neighborhood Edge Example <
> ## Existing Neighborhoods Infill of housing in existing neighborhoods should respect the existing pattern of development. Infill redevelopment should include housing for a variety of incomes and households and should complement the character of the existing neighborhood by including appropriate transitions, scale, and context. Examples of infill redevelopment in existing neighborhoods includes: * Replacement of blighted and deteriorating structures. * Conversion of single-family homes, or vacant single-family parcels, to duplexes or other low-to-moderate density options when allowed by zoning. * Adding an accessory dwelling unit (ADU) to a single family home. * Redevelopment of large parcels, including former school sites, church sites, and acreage homes. * Residential conversion of small-scale legacy commercial uses. Elements ## High-Quality Design High-quality, durable design should be encouraged with all infill redevelopment projects. In many cases redevelopment projects seek to remove blighted conditions and the city should not encourage infill redevelopment with new low-quality structures that will create future blight, especially with projects utilizing TIF or other public incentives. Infill redevelopment should complement and enhance surrounding neighborhoods. A key mechanism for supporting high-quality design is design standards. As of 2021, urban design standards generally only cover residential areas inside the 1950 City limits along with the Downtown and Capitol Environs. Most commercial areas of the city are not under any design review and sometimes create rough edges and poor entryways to neighborhoods. PlanForward includes a recommendation to evaluate several options for new design standards. * Updates to the B-5 Planned Regional Business zoning district for Primary Mixed Use Redevelopment Nodes and Corridors that would address items such as: density, site layout, parking, building scale, and design standards (*Nodes and Corridors policy*). * Design standards to be utilized across all Mixed Use Redevelopment Nodes and Corridors (*Nodes and Corridors policy*). * Design standards for TIF redevelopment projects (*Infill and Redevelopment policy*). * Expanded commercial design standards that could be applied across various zoning districts or corridors (*Urban Design Standards policy*). ## Redevelopment Incentives Facilitating infill and redevelopment in the existing city requires both a nuanced understanding of the challenges associated with redevelopment projects and a well-thought out set of strategies to overcome them. Commonly cited challenges to infill and redevelopment include land cost and assembly, access to financing, and zoning requirements. Tax Increment Financing (TIF), facilitated by redevelopment plans in blighted areas, has been the city’s most common tool for incentivizing infill redevelopment. TIF is authorized by Nebraska Community Development Law and has been utilized by the City of Lincoln since 1982. TIF uses the added tax revenue created by the redevelopment to finance project-related costs such as land acquisition, core and shell rehabilitation, and public improvements. Traditionally, the developer takes on the debt of the project, pays their full tax burden, and then is allocated back the increment to pay down the debt on the pre-identified project-related costs. In 2019 the State legislature revised Nebraska Community Development Law to include an “extremely blighted” designation. Areas meeting the criteria of being extremely blighted are eligible for additional Housing Trust Fund dollars and state tax credits for owner-occupied home purchases. There are many existing and potential redevelopment incentives beyond blighting and TIF (i.e. tax abatement, land value tax, impact fee exclusions). More information can be found in the *Redevelopment Incentives policy*. Elements ### Policies Related to this Element P1: Housing Affordability P2: Existing Neighborhoods P3: Downtown P6: Nodes and Corridors P7: Redevelopment Incentives P8: Infill and Redeveloment P11: Parking Requirements P14: Commercial Infill P34: Urban Design Standards P37: Historic Preservation ### Goals Related to this Element G1: Safe, Affordable and Accessible Housing G2: Complete Neighborhoods G4: Economic Opportunity G13: Community Appearance Elements # E3: Business, Economy and Workforce This element describes PlanForward's support for economic development, workforce development, and additional commercial and industrial activities. <
> Lancaster County is a growing county with a relatively stable economy. Continued economic growth in Lincoln and Lancaster County is expected over the plan period. In order to ensure that growth and employment occur in an organized fashion that meets the vision of PlanForward, principles and strategies are laid out to guide policies and future development. ### Economy and Workforce Development Lancaster County benefits from many quality of life factors that attract both employers and employees. Lancaster County’s educational systems are among the best in the country and provide a skilled workforce. Lincoln’s neighborhoods provide a good stock of quality housing of many sizes and types. The presence of State government and several college and university campuses creates an attractive economic environment for both employers and employees. Lancaster County provides a wide range of art, entertainment, and recreation opportunities. Public and private investment in Lincoln is evident in the Downtown, Antelope Valley, Innovation Campus, West Haymarket, and Telegraph District projects. All of these assets should be emphasized to encourage economic development. ### Economic Sectors The purposes of this discussion, the economy divided into four major sectors: Business and Commerce, Government, Industrial, and Agriculture. Below is a summary of recent trends in each sector. More details can be found in the *Annual Community Indicators Report.* *Business & Commerce*: This sector has shown the most robust employment growth over the past decade. It is the largest sector in Lancaster County based on employment and number of establishments. Industries include Professional Services, Leisure and Hospitality, Education and Health, Financial Activities, Information, and Other Services. The decreased employment in 2020 represents impacts of the COVID-19 pandemic. Elements Figure E3.a: Business & Commerce Sector Employment <
> *Bureau of Labor Statistics, Quarterly Census of Employment and Wages* Government: The second largest sector in Lancaster County based on employment. This sector includes Federal, State and Local government. The top three employers in Lancaster County are all in the public sector: Lincoln Public Schools, State of Nebraska, and University of Nebraska. The decreased employment in 2020 represents impacts of the COVID-19 pandemic. Figure E3.b: Government Sector Employmemt <
> *Bureau of Labor Statistics, Quarterly Census of Employment and Wages* Elements Industrial: The Industrial sector has experienced steady growth since having a record low number of employees in 2010 during the last recession. Industries in this sector include Manufacturing, Construction, Trade, and Mining. The decreased employment in 2020 represents impacts of the COVID-19 pandemic. Figure E3.C: Industrial Sector Employmemt <
> *Bureau of Labor Statistics, Quarterly Census of Employment and Wages* Agriculture: Agriculture is a major factor in Lancaster County’s economy with over 3/4 of the land area of the county being used for agricultural production. Niche farms have seen strong growth over the past decade and are expected to continue to grow as more local food is demanded by the growing population. It is expected that employment in Lancaster County will continue to grow across all sectors during the planning period, matching the slow and steady projected population growth discussed in the *Growth Framework section* of the plan. ***The Greater Lincoln Workforce Development Area Local Plan*** Workforce development activities in Lancaster County are governed by the Greater Lincoln Workforce Development Board. The Board includes leaders from business, economic development, education, organized labor, and community organizations to provide oversight of employment and training programs in Lancaster and Saunders counties. The Board is responsible for planning the use of federal Workforce Innovation and Opportunity Act (WIOA) funds to positively impact employer and worker prosperity. Board members are appointed by the Mayor of Lincoln. The *Greater Lincoln Workforce Investment Plan*, developed by the Workforce Development Board, coordinates and documents workforce development activities in the county. The Workforce Investment Plan identifies a vision and goals, with detailed strategies and benchmarks coordinated among multiple organizations, for achieving those goals. The top goal identified in the Workforce Plan is to advance living wages and inclusivity. As stated in the plan: Elements Individuals that work full-time should achieve a measure of stability. The workforce board is committed to reducing poverty among our working people. We are committed to building career pathways what will support our people in achieving economic independence. We will foster economic inclusivity by investing in people with unrealized potential including youth and individuals with barriers to employment. There are a variety of organizations that contribute to the local workforce development system and are included in the Workforce Investment Plan. They include but are not limited to: * EmployLNK. A collaboration of multiple workforce development agencies that serves as the single point of contact for businesses to interact with the agencies that serve others and to organize job fairs and other employment-focused events. * Lincoln Literacy. Provides services to adults who want to improve their language skills. * Lincoln Manufacturing Council. The Lincoln Manufacturing Council’s Manufacturing Tech program includes 10 Lincoln manufacturers that are hiring in the community. The council provides training to individuals with no experience in manufacturing and are willing to learn more. * Lincoln Partnership for Economic Development. The Lincoln Partnership for Economic Development (LPED) is a public-private collaboration charged with fulfilling Lincoln’s Economic Development goals. * New Americans Task Force. NATF (New Americans Task Force) is a network of public and private organizations and community members, dedicated to supporting New Americans in our community. * A variety of partners in the “One-Stop Delivery System” for workforce assistance including Proteus Inc, National Able Network, Adult Education, Carl Perkins Career & Tech Ed, Wagner-Peyser (Employment Services), Unemployment Insurance Benefits, Jobs for Veterans State Grant, Trade Act Programs, Nebraska VR, Nebraska Commission for the Blind and Visually Impaired, Community Action Partnership of Lancaster & Saunders Counties, Lincoln Housing Authority – Family Self Sufficiency Program, Workforce Innovation and Opportunity Act (WIOA) Adult Dislocated Worker and Youth, Ponca Tribe of Nebraska, Temporary Assistance for Needy Families (TANF), and Supplemental Nutrition Assistance Program (SNAP). A key resource to implementing the Workforce Investment Plan is the American Job Center, which houses multiple job training service providers and provides services to both job seekers and businesses seeking employees. American Job Center partners provide on-site and networked career development information, education and training programs, case management, and job placement assistance. The American Job Center facility that is located in Downtown Lincoln offers free access to a resource room which includes computers with internet, telephones, and fax machines. The resource rooms is open to the public on a self-service basis. Staff are available to assist job seekers with building a resume, general career exploration, and job search. The center provides a full array of employment and training related services for workers, youth and businesses. American Job Center functions are primarily funded by the federal Workforce Innovation & Opportunity Act (WIOA), although the City funds certain staff and administrative functions. Because WIOA funds are targeted to certain populations of adults, dislocated workers and youth, the majority of American Job Center services are also targeted to benefit that part of the workforce. <
> Elements The WIOA supported through the American Job Center provides a variety of services to support employers, including: * Job Postings: Job openings are posted for free on NEworks, Nebraska’s Official Labor Exchange Market. * Tax Credits: Employers can earn tax credits for hiring targeted groups of job seekers. * Data: The American Job Center provides labor market research including economic and demographic data. * Hiring Assistance: The American Job Center has interview space that can be reserved by employers. In addition the American Job Center provides job fairs and hosts resumes on NEworks. * Temporary Work & Internships: Employers may host a qualified employee for up to 500 hours at no cost. * Layoff Assistance: Employers can access resources and support if they are considering laying off employees. * Wage Reimbursements & Training Matching: Employers can receive 50-75% wage reimbursements for qualified new hire and 50-90% matching for potential or incumbent employee training. The ideas found in the Greater Lincoln Workforce Investment Plan and implemented through WIOA, American Job Center, and other partners align with the PlanForward vision. The policies found in this Comprehensive Plan support the continued efforts of the Workforce Development Board along with the public and private organizations that contribute to a strong local workforce. *Specialized Industries for Economic Development* Lancaster County’s workforce, the presence of the University, and the strength of the agricultural economy make it particularly attractive for development of several specialized industries. * Biotechnology. UNL has a strong biotechnology research program. Expansion and retention of start-ups and existing companies, particularly those that build on University research should be a focus. * Value Added Agriculture. Food research at the University of Nebraska – Lincoln (UNL) is vital to attracting and retaining these industries in the Lincoln area. This category could include renewable energy development, such as ethanol plants, though these plants are primarily locating outside Lancaster County. * Specialty Electronics. Expanding or using the Foreign Trade Zone in the Airpark area holds promise for this type of use and should be examined with the Airport Authority. * Technical Customer Support. Interest in this category is returning after years of customer support jobs being sent overseas. * Insurance and Financial Services. The success with job expansion of several local insurance companies points out the attractiveness of Lincoln. The State of Nebraska statutes and taxation policies provide a competitive advantage for insurance companies, as witnessed by several out-of-state companies also having located in Nebraska. * Entrepreneurship. Lincoln has benefitted from entrepreneurs starting new businesses which have grown rapidly, adding many jobs to the economy. More should be done to encourage entrepreneurs, to utilize technology from UNL in the marketplace, and to promote entrepreneur education at UNL, Southeast Community College and other educational institutions. * Health Care. Lincoln’s health care providers serve a larger region than just the city. This is an industry that is growing nationally and is expected to grow locally as well, especially as the population ages. Expansions of existing locations are expected and a wide variety of new facilities will likely come forward over time. Elements In relation to the strengths and opportunities within the local economy, the Greater Lincoln Workforce Development Area Local Plan identifies four priority areas for career pathways. Many and strategies within the Workforce plan relate to further developing the workforce within these industries. * Advanced Manufacturing * Agribusiness and Natural Resources (especially positions addressing conservation and energy efficiency) * Healthcare * Technology ### Mayor’s Economic Recovery Task Force In the summer of 2020 Mayor Gaylor-Baird formed the Mayor’s Economic Recovery Task Force. The group was tasked with developing data driven, locally informed strategies for supporting local businesses and employment as the local economy begins to recover from COVID-19, while fostering public health, inclusion, and resilience in Lincoln. The Task Force released their report at the end of August 2020. The report includes strategies for both business and workforce development. Recommendations that will assist long-term recovery include: * Promote economic resilience and inclusion by strategically investing in local businesses, small businesses, and women-and-minority-owned businesses. * Connect employers with local workforce resources and opportunities. * Upskill and reskill Lincoln’s workforce by creating public incentives to support professional development for workers displaced by COVID-19. * Provide financial assistance to impacted businesses and invest in new businesses, focusing on businesses and industries particularly impacted by COVID-19. View the entire [Mayor’s Economic Recovery Task Force Report.](http://example.com) <
> The Workforce Development topic was not covered in previous Comprehensive Plans. This policy reinforces the importance of a well-trained workforce in our community and identifies key partnerships. P9. Skilled, Diverse and Trained Workforce: Support development of a skilled, diverse, and trained workforce that enables economic growth and high-quality jobs. Support high-quality community-based, culturally appropriate, and accessible employment training programs that allow employers to hire a more diverse workforce and provide more residents access to living wage jobs; and ensure that workforce development programs and City initiatives emphasize in-demand careers that provide for financial stability. Elements ## Downtown Downtown continues to be the most economically productive area of the county on an acre-for-acre basis. According to the market assessment completed with the 2018 Downtown Master Plan, Downtown Lincoln has approximately 41,000 workers — 22 percent of Lincoln's overall workforce. While the impacts of the COVID-19 pandemic has likely changed the makeup and location of employment across the country, including Lincoln, it is expected that Downtown Lincoln will remain the commercial and employment center of southeast Nebraska. Downtown Lincoln stands as a unique community resource. Downtown is the County's most intensive center of activity, offering a broad mix of retail, office, industrial, residential, and governmental uses. It is home to numerous public facilities — including the Nebraska State Capitol, the University of Nebraska-Lincoln's main campus, and the County-City Building — as well as private endeavors— including finance, insurance, and other business services. Downtown Lincoln has historically served as the community's dominant center of entertainment, and that role is expected to continue over the coming decades. The Downtown Lincoln Master Plan was completed in 2018. The Plan identifies priorities for downtown physical improvements, catalyst developments, and policies to guide the City of Lincoln, the Downtown Lincoln Association, the development community and other Downtown stakeholders, and strengthen Downtown's role as the region's "center of opportunity." PlanForward supports implementation of the Downtown Master Plan to preserve and enhance Downtown's role as: * The major office and service employment center * The center of all levels of government * The principal cultural, entertainment, and tourism center * The center for hotels and conventions * The financial center * The hub of higher education * A regional retail center geared toward employees, area residents, visitors, and UNL students and staff * A major focus for new residential reuse, infill, and redevelopment ## Lancaster County, Outside of Lincoln The majority of new development takes place in the urban area of Lincoln. However, it is important to strengthen existing commercial areas and support new development within all the incorporated communities of Lancaster County. Commercial development in towns also provides opportunities for businesses that support rural residents within the county. Farms are an important part of the history and economy of the region. Agriculture is the dominant land use in Lancaster County, accounting for over 3/4 of all land. While this land is largely considered "undeveloped," it is still an important economic factor in the county's future. Agriculture's impact on the local economy goes beyond the sale at the end of production. Farms of all sizes make purchases of goods and services in the city and county throughout the year, which contribute to the local tax base and sustain growth for other businesses in the agriculture industry. Development within the incorporated towns and their one-mile zoning jurisdiction will be determined by the communities themselves. PlanForward supports these communities and their efforts to maintain and improve their commercial and industrial base. Elements <
> ## Commercial and Industrial Development Lancaster County has experienced significant increases in commercial and industrial development over the last several decades. Numerous new shopping centers, office complexes, and industrial facilities have been built – representing valuable economic resources for the community. Lincoln remains the county's dominant home to both the commercial and industrial sectors of the local economy. Most of the recent growth in commercial and industrial space has occurred within the city limits of Lincoln, with other incorporated communities experiencing some growth as well. This clustering of commercial and industrial activity in the City of Lincoln has been completed in accordance with the goals of previous comprehensive plans, and PlanForward continues this development pattern. Commercial and Industrial Centers in Lancaster County should be located: * Within the City of Lincoln or incorporated villages. * Outside of saline wetlands, signature habitat areas, native prairie and floodplain areas (except for areas of existing commercial and industrial zoning). * Where urban services and infrastructure are available or planned for in the near term. * In sites supported by adequate road capacity — commercial development should be linked to the implementation of the transportation plan. * In areas compatible with existing or planned residential uses. * In existing underdeveloped or redeveloping commercial and industrial areas in order to remove blighted conditions and to more efficiently utilize existing infrastructure. * In areas accessible by various modes of transportation (i.e. automobile, bicycle, transit, and pedestrian). * So that they enhance entryways or public way corridors, when developing adjacent to these corridors. * In a manner that supports the creation and maintenance of green space as indicated in the environmental resources section of this Plan. ## Commercial Centers Based on the projected population growth rates, the Plan identifies the potential for a total of 57.6 million square feet of occupied retail, office, and service uses by 2050 – an increase of roughly 12 million square feet above the occupied commercial space in 2020. A substantial portion of this future commercial capacity will be accommodated on sites already zoned or approved for commercial development or that have been identified on the Future Land Use map for future commercial land use. It should be noted that these assumptions for commercial growth are based on Elements trends present prior to the COVID-19 pandemic. At the time of plan approval the long-term economic impacts of the pandemic are unclear, and it’s possible that PlanForward’s commercial assumptions will need to be re-evaluated as part of the next plan update. “Commercial Centers” are defined as areas containing a mix of retail, office, service, and residential uses, with some light manufacturing and warehousing in selected circumstances. Other land uses such as child care centers, assisted living facilities, and recreational facilities may be integrated within the center as well. Commercial Centers are distinguished from Industrial Centers by their dominance of commercial uses over industrial uses, and in the types of industrial uses located in them — that is, the uses are less intrusive in terms of lighting, noise, odors, truck and vehicular traffic, and pollutants. Where properly sited, light manufacturing uses may be a part of larger Commercial Centers. The Commercial Centers concept gives recognition to the evolving role of commercial uses in the life of cities. Commercial Centers encompass a broad range of land uses and are intended to encourage the mixing and integration of compatible land use types. Residential mixed use is encouraged. Elements Figure E3.d: Commercial Center Design Strategies <
> | | | | :--- | :--- | | | Single-Family/Duplexes/Garages | | | Multi-Family/Assisted Living/Rowhouses/Garages | | | High-Density Residential | | | Residential/Commercial Mixed Use | | | Public/Semi-Public Buildings | | | Green Space/Natural Resources | | | Other Open Space | | | Public Right-of-Way (including sidewalks, street trees, parking and street paving) | | | Parking Lots/Driveways/Private Alleys | | | Arterial Streets | Elements Figure E3.d: Commercial Center Design Strategies <
> | | | | :--- | :--- | | | Single-Family/Duplexes/Garages | | | Multi-Family/Assisted Living/Rowhouses/Garages | | | High-Density Residential | | | Residential/Commercial Mixed Use | | | Public/Semi-Public Buildings | | | Green Space/Natural Resources | | | Other Open Space | | | Public Right-of-Way (including sidewalks, street trees, parking and street paving) | | | Parking Lots/Driveways/Private Alleys | | | Arterial Streets | Elements 1. Encourage a mix of office, retail, service, and residential uses. The center may include mixed-use buildings with residential or office above a first-floor retail or service use. 2. Discourage auto-oriented strip commercial development. Commercial Centers should not be developed in a linear strip along a roadway or be completely auto-oriented. Design new Commercial Centers in a manner that facilitates future development and intensification of land uses on the site. 3. Develop Commercial Centers as compact clusters or mixed-use nodes with appropriate site design features to accommodate shared parking in the rear of buildings and ease of pedestrian movement to minimize impacts on adjacent areas, and to encourage a unique character. 4. Locate the most intensive commercial uses, such as restaurants, car washes, grocery stores, gas stations/ convenience stores and drive through facilities nearer to the major street or roadway and furthest from the residential area (unless contained within a mixed use center). Lighting, dumpsters, loading docks and other service areas should be screened from residences. 5. Design buildings and land uses at the edge of the center to be an appropriate transition to lower density residential uses. Examples of appropriate edge land uses include apartments, mixed use residential buildings, offices, assisted living facilities, or child care centers. Transitional elements such as greater setbacks and enhanced screening should be required for buildings that are out of character with the adjacent residential district, such as buildings that exceed the maximum allowed height of the adjacent district. 6. Develop smaller stores next to larger anchor stores in centers to encourage small businesses and to provide a variety of goods and services for customers utilizing the centers. 7. Encourage multiple street connections to adjacent residential neighborhoods to allow convenient access for neighboring residences and pedestrians without the use of arterial streets, but exercise care in designing the street network to minimize undesirable traffic impacts. 8. Encourage commercial development at ¼ or ½ mile between major intersections in order to create centers that are centrally-located within each square mile to facilitate easier pedestrian access and also allow for vehicular access points that meet the city’s Access Management Policy. 9. Discourage “four corner commercial development” – with commercial uses at all four corners of an intersection – in order to promote walkability and ease of movement within each commercial center. 10. Design streets, and public spaces, buildings, and parking areas to enhance pedestrian activity and support multiple modes of transportation, including transit. 11. Provide public amenities such as recreational facilities, plazas, squares and other types of green spaces and meeting areas open to public. 12. Provide for a variety of housing opportunities, including higher-density housing, within and adjacent to the Commercial Center. 13. Elevate building design for centers. Elements There are many types of Commercial Centers, with different scales and functions. They can include shopping centers or districts (such as neighborhood centers, large scale retail malls, strip centers, and traditional store-front retail settings), residential mixed use centers, office parks, business parks, stand-alone corporate office campuses, research and technology parks, and Downtown Lincoln. Within Lincoln, outside of Downtown, the largest commercial centers are designated as Regional Centers. Regional centers have the greatest potential impact on adjacent land uses and public infrastructure, so it is important that they are sited well in advance of development. The following section describes the general characteristics of Regional Centers along with their location. Other types of commercial centers are briefly described, and their location is generally in accordance with the Future Land Use map “Commercial” designation. Smaller commercial areas less than five acres in size need not be identified specifically on the Future Land Use map, but should still develop in accordance with the principles of the Plan. ### Regional Centers Regional Centers typically contain one million or more square feet of developed building space. They generally include a unique blend of commercial and other compatible land uses. Within this type of center, one may find retail shopping, restaurants, entertainment complexes, cultural and artistic institutions, offices, personal and business service facilities, public institutions and governmental functions, and the center should include residential uses. The scale of such centers can offer a sense of place with a unique character or cohesive theme. Regional Centers are also identified as Primary Mixed Use Redevelopment Nodes as discussed in more detail in the Infill and Redevelopment element. Many Regional Centers are large scale retail centers that include a mall with several department store anchors and numerous small shops, as well as adjacent commercial development with stand-alone restaurants and stores, such as Gateway Mall or SouthPointe Pavilions. Regional centers are unique in that they have their own zoning district (B-5, Planned Regional Business). Most notably, B-5 is the only zoning district outside of Downtown that allows for large movie theater complexes (up to six screens), with one complex allowed per regional center. Regional Centers should be geographically well dispersed throughout the Lincoln urban area, roughly four to six miles apart. The locations of existing Regional Centers are shown on the Regional Commercial Centers map and they are shown as “Commercial” on the Future Land Use map. These existing centers are sufficient for the needs of the community through 2050 and no new additional Regional Centers are planned for at this time. Should any new Regional Centers be proposed during the planning period they should be sited on the map well in advance of development so that their potential impact may be considered as part of the development review process. Elements Figure E3.e: Regional Centers <
> 3.44 PlanForward 2050 Elements ### Community Centers Community Centers may vary in size from approximately 250,000 to 600,000 square feet of commercial space. They are intended to be smaller in scale and intensity of uses than Regional Centers and serve a more targeted market and geographic area. Community Centers tend to be dominated by retail and service activities, although they can also serve as campuses for corporate office facilities and should include a mix of residential uses. Community Centers can have a community-wide appeal but primarily serve a geographic subarea within Lincoln and surrounding areas within the County. They should be located approximately 1 to 1 ½ miles apart, depending upon their size, scale, function, and area population. Community Centers are typically sited in advance of development and shown as “Commercial” on the Future Land Use map. ### Neighborhood Centers Neighborhood Centers typically range in size from 50,000 to 250,000 square feet of commercial space. They provide services and retail goods oriented to the neighborhood level, with significant pedestrian orientation and access. Residential mixed use is encouraged. Neighborhood centers are a key element of the Complete Neighborhoods concept discussed in the associated Goal and Element. These centers typically serve the neighborhood level. Neighborhood Centers should be located approximately ½ mile apart, depending upon their size, scale, function and the population of the surrounding area. Future Neighborhood Centers are typically not sited on the Future Land Use map in advance but are identified as development plans are approved. ### Other Types of Commercial Centers Other types of commercial centers in Lincoln include office centers and highway-oriented commercial centers. These should generally be dispersed throughout the community in appropriate locations shown as “Commercial” on the Future Land Use map. ## Commercial Infill A variety of commercial land uses seek infill and redevelopment locations. There are numerous opportunities throughout the community including many existing commercial centers that are not fully occupied or do not fully utilize their site. The Commercial Infill Policy includes general guidelines for commercial infill. The following text and image show how commercial design principles can be utilized to create a high-quality commercial redevelopment project that is compatible with the surrounding neighborhood. Elements **Figure E3.f: Commercial Infill Design Strategies** <
> <
> | | | |---|---| | | Single-Family/Duplexes/Garages | | | Multi-Family/Assisted Living/Rowhouses/Garages | | | High-Density Residential | | | Residential/Commercial Mixed Use | | | Public/Semi-Public Buildings | | | Green Space/Natural Resources | | | Other Open Space | | | Public Right-of-Way (including sidewalks, street trees, parking and street paving) | | | Parking Lots/Driveways/Private Alleys | | | Arterial Streets | Elements 1. Encourage additional vehicular access to an arterial street. 2. Encourage a Floor Area Ratio that exceeds to existing/previous commercial uses on the site. 3. Face existing residential uses with new residential uses rather than the backs of commercial buildings unless existing residential faces the opposite direction such as along an alley. 4. Discourage commercial driveways that interrupt the blockface of a residential street, especially when residences face the street. 5. Encourage shared driveways and interconnected parking lots where possible. 6. Orient buildings to the street, especially corners. 7. Maintain or adaptively reuse existing structures (especially historical structures) where possible. 8. Encourage a vertical mix of residential and commercial use types. 9. Encourage shared parking between land uses with different peak demand periods. 10. Maintain or enhance on-street parking resources, especially in established/historic commercial districts ## Industrial Centers Industrial employment is considered an employment sector with moderate growth potential for the city and county. Based on population projections, PlanForward expects the demand for nearly 1.9 square miles of additional industrial property over the planning period. There is currently nearly nine square miles of undeveloped land designated for Industrial on the Future Land Use map. This existing undeveloped area will absorb most new industrial demand in the planning period. Industrial areas are shown on the Future Land Use map well in advance of development in order to ensure public safety and adequate infrastructure. In addition, since industrial sites often have specific requirements - such as interstate/highway/rail access, utilities, minimal topography and separation from residential uses - it is important to identify sites that meet these criteria and reserve them for future industrial development capacity. The Future Land Use map includes two types of industrial uses: Industrial and Light Industrial. ### Industrial In general the Industrial category is for a wide range of traditional industrial uses including manufacturing, processing and assembly uses such as Veyance, Archer Daniels Midland, and Kawasaki. In the past, large industrial users were often located in isolation from each other; preferably new industries should locate together in planned industrial centers. Many industrial centers also include some warehouse, storage and contractor yard uses with a minor amount of supporting commercial use — but they should be and usually are over 75% industrial use. New industrial centers should be distant from existing or planned residential areas. Industrial uses should be located in close proximity to each other. Transitional uses (such as offices or commercial uses) should develop between industrial centers and residential uses. In redeveloping areas, lesser setbacks may be acceptable due to the existing conditions, as long as industrial zoning does not get closer to existing residences. Each planned industrial district should be established only after further consideration of site characteristics, buffering and appropriate zoning. Elements *Light Industrial* The Light Industrial category is for uses that have a minimal impact on surrounding properties. They could include lighter manufacturing uses with some additional office and retail uses located within the center, such as the Horizon Business Center located near 14th & Pine Lake Road south of Lincoln Southwest High School. Light industrial centers can be located more closely to residential uses than traditional industrial centers, though residential uses should be buffered through landscaping, setbacks, and transitional uses, such as office or open space. In redeveloping areas, smaller setbacks may be acceptable due to the existing conditions, as long as existing industrial zoning does not closer to existing residences. The land use categories are shown on the Future Land Use map in the Growth Framework section. **Potential Large Employer Opportunity Areas** When locating large employers all efforts should be made to utilize sites identified on the Future Land Use map for Commercial or Industrial uses. However, in some cases an employer may need to look elsewhere to find a viable site. These “second tier” sites may currently have limited infrastructure, but some employers may find them desirable due to their large size, highway and/or rail accessibility, and remoteness from residential areas. In some cases these sites may even be outside the Future Service Limit. In order to support economic development efforts, these “second tier” sites should be given serious consideration if needed for a large employer. Listed below items to consider when looking at sites not currently shown on the Future Land Use map for Commercial or Industrial uses: * The site must be annexed prior to development. * City infrastructure and services, such as fire and police, should be available. * The site should have direct access to an arterial street or highway to limit the impact on adjacent local streets. A traffic impact analysis may be required. * Development of the site should have minimal impact on surrounding residences and sensitive environmental areas. **Policies Related to this Element** P5: Downtown P6: Nodes and Corridors P7: Redevelopment Incentives P8: Infill and Redevelopment P9: Skilled, Diverse, and Trained Workforce P10: Supporting Small Businesses P11: Parking Requirements P12: Economic Growth P13: Commercial and Industrial Centers P14: Commercial Infill P15: Infrastructure and Economic Development Elements P16: Rural Economy P17: Predictability P34: Urban Design Standards P37: Historic Preservation P67: Transportation and Economic Health ### Goals Related to this Element G3: High-Quality Workforce G4: Economic Opportunity G5: Equity and Inclusion G14: Technology Elements # E4: Environmental Resources This chapter includes an outline of the guiding principles for environmental resources, a discussion of environmental resource features and a long range planning and implementation approach with associated strategies, entitled “The Greenprint Challenge.” <
> Lancaster County is characterized by flat and rolling plains, sloping toward the east from a high elevation of 1,520 feet in the southwest, to its lowest point of 1,080 feet where Salt Creek exits the northeastern portion of the county. The Salt Creek basin defines most of the County’s topography, with portions of the Middle Big Blue (southwest), Big Nemaha (southeast) and Little Nemaha (east) basins also entering the County borders. Surface water flows in over 400 miles of warm water streams over the gentle slope, contributing to numerous ponds and lakes, including 16 major lakes between 20 and 1,800 acres each, most built in the 1960s by the Army Corps of Engineers. These lakes provide recreation and habitat to the people and animals of Lancaster County. Surface water is susceptible to pollution in the form of sedimentation and contamination from runoff. Fertilizers and sediment are the most common water quality problems in the County’s streams and lakes. Agriculture, construction, and urban runoff are the primary sources of water pollution. The Watershed Management division of Lincoln Transportation and Utilities and the Lower Platte South Natural Resource District (NRD) partner to design management plans that address both the quantity and quality of surface water. Ground water seeps into the ground and collects, is stored, and moves slowly through layers of soil. Groundwater is almost exclusively the source of drinking water in Lancaster County. Generally, groundwater quality and quantity is higher in the southern portions of the County. Residential, agricultural, and industrial users outside the urbanized area obtain about 25% of the water used in the Dakota aquifer beneath Lancaster County. High salinity in the northern part of the county makes groundwater more difficult to acquire. Groundwater contamination includes infiltration of agricultural chemicals into supplies. Small areas of contamination, mostly in the urban area, have also been identified. The Lower Platte South NRD, Nebraska Department of Environment and Energy, and other public and private non-profit entities work together in programs to cap abandoned wells, protect wellhead areas, and educate the public on proper use and disposal of potential contaminants. **Figure E4a: Water Cycle** <
> Elements Wildlife includes white-tailed deer, a wide variety of songbirds, ground birds, and small mammals, migrating and resident water fowl, and a variety of fish species. Large mammals include predators such as fox, coyote, and bobcats. Many species such as raccoon, squirrel, and opossum are commonly seen in both urban and rural areas. Lancaster County is also home to several State and Federal threatened and endangered species which are discussed later in this element. Recent decreases in some pollinator species, drawing national attention, are also a priority for research and habitat restoration. The soils of Lancaster County are intimately tied to groundwater. Soils are widely varied in the County with the most common being the Sharpsburg, Wymore, Pawnee, Judson, and Kennebec soil series. Generally, soils north of Lincoln show higher infiltration rates, are able to hold more water, and are more likely to be saline. Soils to the south have slower infiltration rates and higher run-off potential. Soil erosion is a primary concern as agricultural production forms a major economic base for Lincoln and Lancaster County. Thirty-one percent of soils in the non-urbanized areas of Lancaster County are classified as Prime Farmland and are located primarily along streams and bottomland. Air quality in Lancaster County has historically been high. Lancaster County benefits from prevailing westerly winds and an extensive rural landscape between Lincoln and Denver, CO. The level of air pollution as measured against standards set by the US Environmental Protection Agency is low. The Lincoln – Lancaster County Health Department conducts regular air quality monitoring activities and provides up to date information on their website. Lancaster County boasts a diverse set of environmental resources and landscape types that should be respected and maintained. The Greenprint Challenge, developed by the City of Lincoln-Lancaster County Planning Department, Parks and Recreation, and the Lower Platte South NRD in 2001, provides an approach for sound and sensitive urban and rural development that is interwoven with the community's desire for maintaining and enhancing the ecological and economic benefits of our natural and cultural environment. Although over 20 years old, the resources identified, and the recommended principles for their protection, in the Greenprint Challenge are still applicable today and will continue to be in the future. Lancaster County's environmental resources reside within a broad range of settings that should be considered as policy and decisions are made. PlanForward should consider both the local and broader regional and global impacts of actions affecting environmental resources. Both the rural and urban areas should receive equal priority in the planning process as environmental resources are found throughout Lancaster County. Cooperative relationships with public and private partners should be reinforced with the emphasis on environmental resource features rather than patterns of ownership. The community should capitalize on the economic benefits that the preservation of environmental resources can provide. Well managed environmental resources generate and reinforce business opportunities. Signature landscapes are those areas and natural features that are unique to a region and contribute to the identity of the community. The Lincoln and Lancaster County community's landscape is primarily shaped by Salt Creek and its tributaries and the natural features in it include riparian and floodplain areas, freshwater and unique saline wetlands, wooded corridors and urban forests, and rolling hills covered in agricultural crops, pasture, and rare fragments of remnant tallgrass prairie. As open spaces are identified for conservation or inclusion as public parks, the preservation, enhancement and restoration of our environmental resources and signature landscapes should be included in planning. Elements The maintenance of healthy soil is critical for the long-term survival of both natural habitat and agriculturally productive land. Healthy soil is composed not only of minerals but also of the roots that wind through them, decaying organic matter, and the bacteria, fungus, and invertebrates that feed on them. The region known as the Great Plains once boasted a thick layer of healthy soil, rich in organic material and supporting one of the most diverse ecoregions on the planet - prairie. Maintaining a diverse range of plants ultimately supports a healthier environment for all plants and animals. Plants are a basic environmental building block. They provide habitat and food for animals, as well as aide in sustaining other vegetation that holds the soil and protects the water. Plants and animals do not exist in isolation. They interact with each other and reside within an integrated habitat. Implementation of PlanForward needs to respect biological connections that exist today and provide responsive means for maintaining those associations. Plants and soil work together as a natural solution for carbon sequestration. Healthy soil and plant communities hold carbon in their organic material and keep it from escaping into the atmosphere. Agricultural and development practices that work to protect soils and maintain healthy plant cover are important for reduction of carbon in the atmosphere. <
> Although Lincoln and Lancaster County are a part of the tallgrass prairie ecoregion, European settlement, which included the suppression of historic wildfires, led to the proliferation of trees, particularly along waterways. As Lincoln and surrounding villages began to grow, trees were planted to provide shade, firewood, building material, food, and to beautify neighborhoods and common spaces. This Urban Forest represents a significant community investment, both public and private. Although not technically part of the natural environment, the environmental benefits are far-reaching and highly important to the community. The Urban Forest is composed of privately owned trees and the Community Forest, made up of trees in public right-of-way and on public land, such as parks and open spaces. Many of the trees have been deliberately planted, but some are volunteer trees from native stock or offspring of planted trees. Care for the Community Forest is a public obligation carried out primarily by the Parks and Recreation Department. Comprehensive and adaptive urban forestry management approaches should be applied to sustain the city’s urban forest; it is essential that adequate human and financial resources be allocated and specifically dedicated to sustaining our community’s expanding public green infrastructure in conjunction with increasing development and population growth. While planning for future growth is integral to PlanForward, it is equally important that environmental resource features be accorded similar attention. The community should invest planning resources into the early identification of those areas that are most valued as part of the Greenprint Challenge. This principle supports the notion of “getting ahead of the game” by knowing what resources are most valued, where they are located, and what actions should be made within the broader planning process to secure their future for the community. Maintaining a balance between the natural and human built environment is always delicate. The policies of PlanForward should strive to incorporate such uses in the full range of urban and rural landscapes. As cities and villages expand, establishing corridors and districts of green should be part of the growth process. This often requires the advance delineation of these areas and the means for securing their ongoing protection and maintenance. Securing the long-term permanence of green space is a basic dilemma in natural resources planning. The use of Elements “green space development incentives” (e.g., setting aside non-buildable areas, creating green space preserves, density bonuses) should be a primary consideration in implementing this plan. ## Local Food The local food movement was born of a desire to provide a secure source of nutritious food that has a reduced impact on the environment and increased benefit to the health of consumers. Many urban areas have few sources of fresh produce, meats, and dairy products, and many consumers must rely upon convenience foods and fast food restaurants. Food that is transported over great distances, sometimes from other continents, consumes a great deal of energy in that transport and produces a corresponding amount of greenhouse gases. Production of food closer to the urban center, if not within it, reduces the distance food must be transported, increases the freshness of food available, supports the local agricultural economy, and provides nutritious food to those who might not otherwise be able to obtain it. Local food may be produced in the rural area of the County, or counties nearby, or it may also be produced within the urban area itself. In any case, the preservation of land for food production both nearby and within the City is integral to local food opportunities. Prime farmland within the County should be preserved for its agricultural value as well as potential for food production. Within the City, community gardens, bee keeping, chicken coops, farmer’s markets, and local cooperative markets are all important links in the local food chain. Building a strong local food network takes the cooperation of both public and private sectors. Organizations such as Community Crops, Nebraska Food Cooperative, and the University of Nebraska Extension Service have been at the forefront in the provision of local food program support. <
> An action step supporting urban gardens throughout the community was included in order to provide additional opportunities for healthy food options. Promote urban gardens in all parts of the community, with focus on neighborhoods that lack convenient access to fresh foods. ## Environmental Resources Categories As a PlanForward land use category, “environmental resources” represent an important part of today’s urban and rural landscapes. Such features need to be valued and sustained as part of the overall planning process if they are to remain as vital parts of the natural heritage left for succeeding generations. These features help to define the County’s unique sense of place — geographically, culturally, and temporally. The Plan fully recognizes the harmony and connections that exist within and among these features. Thirteen separate environmental resource features are recognized in the Plan. The Greenprint Challenge map displays generalized locations within the county in which these resources categories may be found. For a more detailed map, the Natural Resources Geographic Information System (NRGIS) map can be accessed, and categories can be toggled off and on to view their location. A brief description of each of the Plan’s environmental resource features and specific strategies for protecting these features is provided below. Elements ## Native Prairie <
> This feature refers to the tallgrass prairie areas that are dominated by big bluestem, little bluestem, indiangrass, and sideoats grama grass species. Numerous wildflowers and forbs are also found in these prairies, including golden rod, purple coneflower, purple prairie clover, and black-eyed susan. Though historically they were the region’s prevailing natural condition, native prairies are an increasingly rare feature on the Nebraska landscape. The original tallgrass prairie stretched from Manitoba to Texas and east to Indiana covering approximately 200 million acres. According to the Nebraska Natural Legacy Project (2011), less than 1% of the original tallgrass prairie area remains today in the continental U.S. and about 2% in Nebraska in remnant pieces of 80 acres or less. Tallgrass Prairie is one of the most threatened ecosystems in North America and the world. Correspondingly grassland birds are the suite of birds experiencing the most significant decline in their global populations. This critical landscape is not only essential to provide habitat to birds and other wildlife species but is also essential to helping maintain water quality, grazing agriculture, historical features and scenic qualities of Lancaster County. This resource thrives in conditions of disturbance caused by fires and grazing. Management strategies that mimic natural disturbance are important for diverse, healthy prairie. Lancaster County is fortunate to have about 8,640 acres of native prairie remaining, mainly in the west central portion of the county, although they are scattered throughout the county in patches of land that must remain whole if their integrity as a natural resource feature is to continue. Three of the larger massings of native grasslands in Lancaster County are Nine-Mile Prairie, Pioneers Park and Spring Creek Prairie and are noted below: * Nine-Mile Prairie: Nine-Mile Prairie and surrounding environs are home to a wide variety of tallgrass prairie plants and animal species that constitute a subset of Nebraska species statewide. Based on research findings, Nine-Mile Prairie itself is home to over a quarter of the plant diversity across Nebraska and one-fifth of the bird species. The property is part of Nebraska’s land-grant university legacy as formative research on the theory of plant succession ecology was conducted on the property. While Nine-Mile Prairie itself is just 230 acres, the University of Nebraska actively cooperates with agencies and neighbors to conserve a grassland area of roughly 1000 acres. * Pioneers Park: Restored tallgrass prairie, known as the Hands-on Prairie, was constructed in several phases throughout the 1990s and early 2000s. The 668 acres of land within the Nature Center contain tallgrass prairies, lowland prairies, wetlands, woodlands, and streams. Nearly 500 acres of this land is tallgrass prairie. Elements * Spring Creek Prairie: Spring Creek Prairie Audubon Center, established in 1998, is located 20 minutes southwest of Lincoln, Nebraska or 3 miles south of Denton, Nebraska. This 850-acre tallgrass prairie sanctuary offers refuge to over 235 species of birds and 370 species of plants as well as other mammals and insects. More than 12,000 guests visit annually to learn about the scenic landscape at SCPAC, comprised of 640 acres of native prairie, wetlands, streams, and woodland habitat. The visitor center, a straw bale-constructed building, overlooks the prairie, houses exhibits and a multi-use education room where visitors can attend a multitude of different programs on topics ranging from birdwatching and plant identification to prairie insects and animals in winter. Spring Creek Prairie Audubon Center and surrounding publicly and privately held tallgrass prairie parcels comprise one of the largest if not the largest remaining tracts of tallgrass prairie in Nebraska. ### Freshwater Wetlands This feature refers to areas that have hydric (i.e., water-bearing) soils, are frequently if not regularly moist, and are home to water tolerant plants. These types of wetlands are distinguished from “saline wetlands” by the lack of salt in the water that keep them wet. Freshwater wetlands are more prevalent in the county than are saline wetlands; however, they provide important water quality and habitat functions. The use of many freshwater and saline wetlands are regulated under Section 404 of the Federal Clean Water Act. <
> ### Saline Wetlands <
> This feature refers to those locations in the county where wetlands having a high salt content can be found. These wetlands played a large part in the founding of Lancaster County, as settlers were attracted by the salt deposits. Saline wetlands have four distinguishing characteristics: a type of soil usually associated with damp or soggy areas; the presence of water during most of the year; a high occurrence of saline (otherwise known as salt); and plants that are adapted to wet, salty soils. Eastern Nebraska saline wetlands are rare, with perhaps 1,400 acres remaining in the county. They tend to be found along Little Salt Creek and Rock Creek to the north and northeast of Lincoln. They provide habitat to a number of threatened and endangered species of plants and animals — the Salt Creek tiger beetle and the saltwort plant in particular. The Saline Wetlands Conservation Partnership (SWCP) was established in 2002. The partners include the City of Lincoln, Lancaster County, Lower Platte South Natural Resources District, the Nebraska Game and Parks Commission, and the Nature Conservancy. The Implementation Plan for the Conservation of Nebraska’s Eastern Saline Wetlands was completed in 2003. This plan seeks a partnership approach to address the conservation of saline wetlands and the needs of the community. Elements The goal is “No net loss of saline wetlands and their associated functions with a long-term gain in sustaining wetland functions through the restoration of hydrology, prescribed wetland management, and watershed protection.” In 2015, the Upper Little Salt Creek Saline Wetlands Plan was completed. Goals and objectives of the plan are to: identify a planning area boundary and identify land management, rehabilitation and conservation goals for the planning area; collect field and spatial data to evaluate existing conditions and prioritize projects; evaluate techniques used in saline wetland rehabilitation; and assist Saline Wetlands Conservation Partnership with future decision making for the planning area. ### Threatened and Endangered Species This feature refers to those plant and animal species whose continued existence have been identified by Federal and/ or State officials as being threatened or endangered. In Lancaster County these include the Salt Creek tiger beetle (State and Federal Endangered), Western Prairie Fringed Orchid (State and Federal Threatened), Saltwort or Western Glasswort (State Endangered), Red Knot (Federal Threatened), Whooping Crane (State and Federal Endangered), and the Northern Long-Eared Bat (State and Federal Threatened). Other vulnerable species having habitat or that have historically been found in Lancaster County include the Bald Eagle (State and Federal Threatened), River Otter (State Threatened), Small White Lady’s Finger Orchid (State Threatened), Topeka Shiner (State and Federal Endangered), Massasauga Rattle Snake (State Threatened) and American Burying Beetle (State and Federal Endangered). A final rule designating critical habitat for the Salt Creek tiger beetle was made in 2014, and a recovery plan was completed by the U.S. Fish and Wildlife Service. <
> ### Basins and Streams <
> This feature refers to the region’s watersheds and the waterways they produce. These areas are demarcated by ridge lines that define the top of each basin. The majority of the county falls within the Salt Creek Basin with its numerous tributaries to Salt Creek forming smaller watersheds or sub-basins. A portion of the county in the extreme southeast also drains to the Nemaha River Basin. The Watershed Management section of the *Energy & Utilities element* further describes the Salt Creek and associated sub-basins and the management plans being created for them. Elements ## Floodplains This feature refers to land that is susceptible to flooding or that has flood prone soils. Approximately 13.8% of Lancaster County is covered by floodplains. Floodplains provide multiple benefits to both the natural (flood storage, habitat, water quality) and built (recreation, public health and safety, economic) environments. The overriding policy for the floodplain is a "No Adverse Impact" policy for the City and County, which means that the community has a goal of insuring that the action of one property owner does not adversely impact the flooding risk for other properties. Further discussion of floodplain and stormwater management considerations and strategies can be found in the Watershed Management section of the Energy & Utilities element. <
> ### Riparian Areas <
> This feature refers to spaces immediately adjacent to water courses on each side of a stream. They are most often located in the floodplain. They frequently contain a large amount of woody vegetation. Riparian areas can serve as linear connections between natural and built areas, as well as boundaries and edges to a variety of adjacent land uses. They offer numerous benefits including flood storage, stormwater conveyance, wildlife habitat, recreation, visual appeal, and shaded areas. ## Agricultural Lands This feature refers to land — about 90.3 percent of the county — utilized for growing crops, raising livestock, or producing other agricultural products. Though agricultural activity is identified as a separate land use category in PlanForward, agricultural land does constitute a distinctive natural resource feature as well. These lands are an integral element in the natural landscape providing habitat as well as being a basic element of the County's historic signature landscape. More information about agricultural areas can be found in the Complete Neighborhoods & Housing element of this Plan. <
> ## Cultural and Historic Landscapes <
> This feature refers to places that are significant because of their unique character, because significant activities or events occurred at those sites, or because persons who have had a significant impact on culture are associated with the sites. Cultural and historic landscapes are also considered in the Placemaking element, because they individually and collectively add value to the community's sense of place and hold an important place in affirming memorable images of the County's heritage. Further discussion of cultural and historic resources can be found in the Placemaking element. Elements ## Views and Vistas This feature refers to important or unique natural resources, places, structures, and landmarks. The views of these features can be from nearby or afar. Vistas refer to areas that afford significant views. Views and vistas, such as those to the State Capitol, provide key points of reference and help create the County’s signature landscape. The Capitol View Corridors are also more thoroughly described in the *Placemaking element*. <
> ## Parks, Trail Corridors, and Other Recreational Areas <
> While PlanForward recognizes parks, trails, and recreational areas as a separate, distinctive land use category, they are an important part of the overall county’s natural resource base. They include a diverse collection of sites and facilities owned, managed, and maintained by public entities and accessible to the general community. They accommodate a variety of recreational uses including passive and active recreation, hunting, fishing, and boating. For continued discussion on other parks and recreation facilities, please see the *Parks, Recreation & Open Space element*. ## Urban Forest This feature refers to the trees and other woody plants that have been planted or grow naturally within the communities in Lancaster County. Though many may not consider the urban forest to be part of the natural environment, it represents a significant community investment — exemplified in Lincoln being a “Tree City” — with its elimination or neglect having substantially detrimental consequences. The urban forest is more thoroughly discussed in the *Parks, Recreation & Open Space element*. <
> ## Woodlands <
> This feature refers to the County’s natural wooded areas, especially those exhibiting bur oak/hickory associations. Woodlands in this context exclude the numerous stands of trees dominated by elm species, red cedar, mulberry, etc. This feature is also distinct from the riparian areas discussed earlier in this element. Elements Figure E4b: Environmental Resource <
> Elements ## Policies Related to this Element P18: Conservation Design P19: Native Prairie P20: Ecology and Habitat P21: Floodplains and Riparian Areas P22: Local Food P23: Salt Valley Greenway and Connecting Green Corridors Concept Implementation P24: Environmental Resource Protection P25: Open Space with Development P26: Community Forestry Management P55: Watershed PlanningGoals Related to this Element ## Goals Related to this Element G7: Environmental Stewardship G8: Community Resiliency G11: Rural Environment Elements # E5: Parks, Recreation and Open Space This element describes principles and strategies for acquiring and managing parks, recreation and activity centers, open space, greenways, and other recreational facilities in the community. <
> The Lincoln Parks and Recreation Department is the primary public sector provider of recreational services to residents. The Department manages 165 different sites on 7,718 acres of parks and open space land. These sites include Traditional Parks (i.e. Regional, Community, and Neighborhood Parks) as well as other land or facilities that are owned and maintained by the City, detailed in the following table. Table E5.a: Sites Managed by the Parks and Recreation Department | Site Type | Count | Acres | | :--- | :--- | :--- | | Traditional Parks | 107 | 2,351 | | Trails**/Trailheads* | 3 (trailheads) | 523 | | Gardens/Plazas/Boulevards | 11 | 27 | | Pools*/Golf Courses/Dog Runs* | 9 | 824 | | Conservancy/Undeveloped | 33 | 3,993 | | Other | 2 | 0.6 | | Total | 165 | 47,719 | * Data reflects facilities not counted as part of another park. ** Trails are not included in the count. Parks and open space enhance the quality of life of the community’s residents and are central to the community’s economic development strategy—the community’s ability to attract and retain viable businesses, industries, and employees is directly linked to quality of life issues, including indoor and outdoor recreational opportunities. Elements ### Figure E5.a: Existing and Future Park Sites <
> Signature landscapes are defined as those areas and natural features that are unique to Lincoln and Lancaster County and contribute to the identity of the community; acquisition and development of parks and open space areas should conserve and enhance these areas and features. Elements It is important that the community continue to acquire parkland and conserve open space areas commensurate with expanding development and population growth, and in accordance with the Parks Department's 10-Year Facilities Plan, with the responsibilities for acquisition and development of parkland and conservation of open space shared among many cooperating partner agencies and organizations. In addition, it is important to anticipate the transition of sites from management by the Lower Platte South Natural Resources District to the City as surrounding areas urbanize. Comprehensive and adaptive urban forestry management approaches should be applied to sustain the city’s urban forest; it is essential that adequate human and financial resources be allocated and specifically dedicated to sustaining our community’s expanding public green infrastructure in conjunction with increasing development and population growth. Public and private partnerships are important in the development of recreational opportunities and the preservation of environmental resources that bring a high quality of life to the City and County. <
> ## Regional Parks and Tournament Facilities Regional Parks and Tournament Sports Facilities are tracts of land that encompass special or unique facilities and features that are of interest to diverse groups throughout the community. Regional Parks primarily provide opportunities for day use activities that may include community festival/ gathering spaces, picnicking, hiking, sports, fishing, canoeing, boating, and environmental interpretation/appreciation. Fields and courts for organized sports activities may be secondary or primary uses. One new Regional Park is anticipated for the Stevens Creek area during the plan period; one new Tournament Sports Facility is anticipated on the site of Oak Creek Park north of Oak Creek and as redevelopment of the existing Oak Lake Park to the south. The current citywide Level of Service (LOS) is 2.8 acres of Regional Park land per 1,000 Lincoln residents. No set LOS goal is stated in the Plan since the size may vary depending on the feature or facility. In addition, Regional Parks may attract visitors from outside the immediate area and thus do not have a defined service area. ## Community Parks Community Parks are typically 30 to 50 acre sites that are readily accessible from arterial streets and the commuter/ recreational trail system. Community Parks may include play fields and play courts for organized sports, a playground with an accessible fall surface, facilities for day use activities including a picnic shelter and restroom, seating, walking paths, and off-street parking. They may also include a swimming pool and/or a recreation center. Community Parks often include areas left in a natural state with meadows, prairies, forest, wetlands and other natural features as part of Elements Parks and Recreation's FUNctional Landscapes program. Community Parks often include activity areas consistent with those located in neighborhood parks and as a result, Community Parks may serve as the Neighborhood Park for surrounding residential areas. PlanForward recognizes the need for about 150 acres of new Community Park land. Three new Community Park sites are anticipated. The level of service (LOS) goal for Community Parks is based on both the financial resources anticipated to be available for park development and programmatic objectives. It is anticipated that development of future Community Parks will be financed primarily through voter-approved methods including general obligation bonds and local option sales tax. There are currently 20 Community Parks encompassing roughly 976 acres, with an average size of 49 acres. The current citywide LOS is 3.5 acres of Community Park land per 1,000 Lincoln residents. This LOS is calculated by dividing the total acres in such parks by the city's total population in thousands. PlanForward establishes an LOS goal of 1.3 acres per 1,000 new Lincoln residents in new growth areas and a service area radius of approximately 2 miles in the urban area. Given the new Community Parks developed in growth areas, the city-wide measure by the end of the plan period, 2040, is projected to be 2.4 acres of Community Park land per 1,000 Lincoln residents. While this goal is lower than the current LOS, it recognizes the financial resources projected to be available, and plans for the development of three 50-acre sites during the planning period of a size that will meet the programmatic objectives for Community Parks. There are currently three undeveloped Community Park sites in three quadrants of the City with a need for a fourth site in the northwest quadrant. During the period of this plan, two of these sites will be developed and the fourth, northwest, site should be acquired. <
> Elements ## Neighborhood Parks Neighborhood parks are centrally located within areas of residential development and intended to be accessible by no more than a ten-minute walk from residences within the neighborhood. Typical activity areas include playground equipment, open lawn areas for informal games and activities or play courts with a single basketball goal for informal games, shaded seating, and walking paths. When possible, neighborhood parks are co-located with elementary schools, a concept referred to as “Sparks”. Neighborhood parks that are associated with schools are typically 2 acres in size and located so that they can be accessed by students during the day and still easily accessible to the neighborhood when school is not in session. When parks are not located with schools, an area of about 4 acres is desirable to provide some of the open play area which is provided by school playfields in a “Spark”. In some cases, Neighborhood Park services are provided within larger Community Parks. The level of service (LOS) goal for Neighborhood Parks is based on both the financial resources anticipated to be available for park development and on programmatic objectives. It is anticipated that development of Neighborhood Parks will be financed primarily through impact fees. It is important to note that while the cost for land and development of park facilities have grown since impact fees were first instituted, these fees have not increased to match inflation, creating a backlog of Neighborhood Park development. **Figure E5.c: Neighborhood Park Diagram** <
> 1. Play Equipment 2. Play Court 3. Open Lawn Play Field 4. Walking Path 5. Picnic Shelter 6. Natural Area Elements Figure E5.d: Joint School and Park Site ("Sparks") Diagram <
> There are currently 53 Neighborhood Parks encompassing roughly 404 acres, with an average size of 7.6 acres. The current citywide LOS is 1.5 acres of Neighborhood Park land per 1,000 Lincoln residents. This LOS is calculated by dividing the total acres in such parks by the city's total population in thousands. The Plan establishes a LOS goal of one acre per 1,000 new Lincoln residents in new growth areas. Neighborhood Parks should generally be located within the center of each mile section and be located within a ten-minute walk of each residence. Given the new Neighborhood Parks developed in growth areas, the city-wide measure by the end of the plan period, 2050, is projected to be 1.3 acres of Neighborhood Park land per 1,000 Lincoln residents. While this goal is slightly lower than the current LOS, it recognizes the financial resources projected to be available. Projected funding is based upon the current level of impact fees for Neighborhood Parks, which supports the acquisition and development of about four acres of Neighborhood Park land per square mile of residential development. Four acres are adequate to accommodate the programmatic objectives for a Neighborhood Park. The following action step has been included in PlanForward to equitably provide for neighborhood park spaces across our community: <
> Identify opportunities to acquire and develop Neighborhood Parks in established neighborhoods that are deficient in Neighborhood Park resources, particularly in those neighborhoods where indicators of vulnerability are higher. ### Recreation Centers/Community Learning Centers The Parks and Recreation Department operates six neighborhood recreation and community centers offering youth development (before and after school programs, summer day camps), recreation, leisure interest, fitness and human services programs. Three of the facilities are co-located with schools (Belmont, Calvert, and Irving), and three are freestanding buildings (Air Park leased from the Airport Authority, Easterday, and F Street). The City facilities were constructed between the 1970's and early 2000's. Therapeutic and adaptive recreation programs are a primary emphasis of programming at Easterday Recreation Center. A new recreation center replacing the current Air Park Recreation Center facility is anticipated to be completed in 2023. This facility will be co-located with the Williams Elements Branch Library and will be adjacent to Arnold Elementary School. A major update and expansion of the Easterday Recreation Center is also planned. The programs and facilities offered by Parks and Recreation are part of a network of recreation and human service programs offered in the community. There are many other privately operated commercial fitness facilities, and facilities operated by non-profit organizations that offer a combination of fitness, recreation and human services programs (e.g., Lincoln YMCA facilities, Malone Community Center, Good Neighbor Center, Salvation Army, City Impact, El Centro de los Americas, Asian Community Center, Willard Community Center, Northeast Community Center, Lighthouse). Private fitness and wellness centers continue to develop and therefore no new recreation centers with an emphasis on fitness and wellness are anticipated in the planning period. Community Learning Centers (CLCs) are a model for school facility-based delivery of neighborhood services that support youth development, strengthen families, and improve neighborhoods that emerged in Lincoln in the early 1990's. CLCs are operated by community partners in elementary, middle and high schools with high need student populations coordinated by the Lincoln Community Learning Centers initiative overseen by Lincoln Public Schools. The Parks and Recreation Department operates four CLC's (Belmont, Calvert, McPhee and Everett), and provides core youth services at Arnold CLC that is operated by the Lincoln Housing Authority. The City of Lincoln entered into an interlocal agreement with Lincoln Public Schools in 2018 to support and sustain CLC's as a best practice model of delivering neighborhood-based services at school facilities. It is anticipated that the CLC initiative will continue to expand over time to include additional schools and neighborhoods in the future. The City should work with Lincoln Public Schools to explore the addition of “activity area” space in new elementary and middle schools to support CLC programming. ### Aquatic Facilities Aquatic Facilities are developed to provide opportunities for water recreation activities. The City of Lincoln owns and manages ten Aquatic Facilities: nine outdoor public pools, and one free-standing sprayground in Trago Park. The most recently constructed outdoor swimming pools (Highlands Pool and University Place Pool) are designed as “pool in a park” facilities. These pools feature zero depth entry, interactive water features, and a deep well for diving activities. Four of these facilities are classified as Community Pools (Highlands, Star City Shores, University Place, and Woods) and five are classified as Neighborhood Pools (Air Park, Ballard, Belmont, Eden, and Irvingdale). The City should maintain its commitment to outdoor water recreation activities; however, if consideration is given to provide new neighborhood pools, a financial model needs to be in place to support their ongoing operations and maintenance. New Aquatic Facilities should be located and designed to serve quadrant areas of the community and should be readily accessible by pedestrians and bicyclists. The current citywide LOS is 3.2 outdoor public pools per 100,000 Lincoln residents. The range of LOS for benchmark cities is 1.1 to 6.0 outdoor public pools per 100,000 residents, with an average LOS of 3.7 outdoor public pools per 100,000 residents. No new neighborhood pools are proposed during the planning period. Thus, the City is not intending to maintain the current LOS, but will continue to provide opportunities for aquatic recreation as described in the action steps found under the Aquatic Facilities policy. ### Other Recreational Facilities and Activities Within Lancaster County, a wide variety of recreational opportunities are presented by both public and private sectors. Lincoln Parks and Recreation has facilities ranging from golf courses to wilderness trails, from horseshoe pits to skate parks, and from public gardens to dog runs. These park facilities serve a wide range of interests, ages, cultures and activity levels. Park facilities strive to reflect the ever-changing demographics of the community they Elements serve. Parks also serve an important economic development role and can play a large part in the decisions made by businesses and individuals as they select a future home. As the community continues to grow and diversify, it is critical that the Parks and Recreation Department continue to work with various agencies, organizations and the community to evaluate recreational needs and desires and to partner with others to make sure the quality and variety of Lincoln and Lancaster County’s recreational facilities remains at the high level we currently enjoy. <
> Continue to monitor local and national trends in recreation in order to provide recreational opportunities that reflect the needs and desires of the Lincoln community. The following is a summary of public and private recreational facilities in Lincoln and the surrounding area. **Parks and Recreation Facilities:** * The Parks and Recreation Department operates five public golf courses, including Ager Junior, Highlands, Holmes, Mahoney and Pioneers. This Plan assumes continued operation of five public golf courses, but no additional courses are proposed. * Public gardens provide a rich variety of display gardens, landscape styles and plant materials for the enjoyment and education of residents and visitors. They also provide the opportunity to learn about the significant historical, cultural, and ecological roles such landscapes play in the community , i.e. Sunken Gardens. * The City has been part of an ongoing conversation to explore the potential for establishing an indoor plant conservatory as a year-round attraction for visitors and local residents. A plant conservatory could include a variety of species ranging from local to exotic, and could serve a dual function as research/educational facility. * The Parks and Recreation Department currently owns and manages four dog run facilities – Rickman’s Run in southeast Lincoln, Roper Dog Run in the northwest, Mahoney Dog Run in the northeast, and Stransky Dog Run in the southwest. The Parks and Recreation Department developed a Dog Use Facilities Master Plan in 2016, which identifies the need to continue planning for dog runs as the City grows. * The Pioneers Park Nature Center, an interpretive facility for native prairie, plants, animals and landscapes, is owned and operated by the Parks and Recreation Department. <
> Elements *** ### Facilities on Parks and Recreation land owned and/or operated by others: * The City owns two special purpose facilities, Wood Tennis Center in Woods Park and the Hyde Observatory, that are operated by others. * The Parks and Recreation Department leases land to several non-profits which operate special facilities on Park property. This includes the Lincoln Children’s Museum in downtown Lincoln, the Lincoln Children’s Zoo in Antelope Park, and a recreational shooting sports complex at Boosalis Park in cooperation with the Nebraska Game and Parks Commission, which operates the facility. The Lincoln Children’s Zoo has recently undergone a major expansion of their zoo facilities and parking. Additional parking expansion is planned in the future. All three of these facilities have both a recreational and educational mission and are open to the public on a fee basis. * Additional license agreements with private organizations include a shooting range at Boosalis Park, BMX track and radio controlled car facilities at Oak Lake Park, mountain bike trail at Van Dorn Park, Disk Golf courses at Tierra and Roper Parks, Pickleball facility at Petersen Park, and youth football fields at Sawyer Snell park. ### Facilities developed as part of a City partnership: * In collaboration with the University of Nebraska, the City participated in the development of the Breslow Ice Center in the West Haymarket area as part of a concentration of sporting facilities near downtown Lincoln and the University of Nebraska City Campus. The Breslow Ice Center is operated by UNL and includes a single ice surface, with the opportunity to add a second ice surface in the future. The facility should be operated in cooperation and coordination with the Ice Box. The Ice Box is operated by a private organization in a building on Innovation Campus through a long-term lease agreement that expires during the Plan period. Opportunities for the integration of functions associated with the Ice Box should be explored and may include the addition of spectator seating. * In collaboration with the University of Nebraska and Lincoln Pro Baseball, the City of Lincoln participated in the development of Haymarket Park adjacent to Downtown’s historic Haymarket District. The complex includes a 4,500-seat baseball stadium operated by the Lincoln Saltdogs and a 750 seat softball stadium operated by the University of Nebraska-Lincoln. * In collaboration with the University of Nebraska, the City participated in the development of the Pinnacle Bank Arena adjacent to Downtown’s historic Haymarket District. The facility includes a 16,000-seat indoor arena and adjacent plaza and public gathering areas. ### Other publicly owned facilities: * Lancaster County accommodates many other outdoor activities including hunting, nature viewing, fishing, boating, swimming, picnicking, camping, and hiking. The Nebraska Game and Parks Commission manages seven State Recreation Area lakes (Bluestem, Branched Oak, Conestoga, Olive Creek, Pawnee, Stagecoach, and Wagon Train) and seven Wildlife Management Areas (Jack Sinn, Little Salt Creek West, Little Salt Creek, Yankee Hill, Killdeer, Teal Lake, and Hedgefield) and one public access area (Helmuth Marsh). In addition, the Lower Platte South Natural Resources District manages five public lakes (Cottontail, Merganser, Tanglewood, Wild Plum, and Wildwood), two wildlife management areas (Little Salt Fork Marsh Preserve and Little Salt Springs) and three community wetlands with public access (Lincoln Saline Wetland Nature Center, Marsh Wren and Whitehead Saline Wetland. Other cities and villages in the county maintain their own public parks, recreation centers, and camping areas. Elements - Lincoln Public Schools, various private and parochial schools, and other school districts in Lancaster County play a key role in the overall system of recreational facilities and services. Schools are focal points for surrounding neighborhoods. School playgrounds and facilities may be the most significant recreation resource at the neighborhood level. - Local colleges and universities also provide a wide range of participant activities and spectator sports available to both students and the community. Major sports, music, and entertainment programs often are held in facilities owned by colleges and universities. <
> **Private sector facilities:** - There is a diverse range of facilities and programs available to community residents from privately operated fitness facilities to community centers offering human service programs operated by non-profit organizations. Programs and activities range from food distribution and adaptive recreation programs for individuals with intellectual disabilities to weight rooms and aerobics classes. - The YMCA, and other private organizations sponsor programs in swimming, athletics, arts and crafts, camping, and various club activities, and provide facilities for more casual recreational activities. - Some examples of private sector recreation facilities include bowling alleys, sport courts, soccer complexes, gyms, athletic clubs and fitness facilities and privately owned golf and miniature golf courses. - It is likely that there will be a generational shift in recreation interests and activities due in part to increasing experience with technology as a recreational activity. It is also likely that as Lincoln continues to diversify new recreational interests will be introduced to the community. The Parks and Recreation Department should monitor and be responsive to emerging interests and seek opportunities for partnerships and collaborations with user groups to support activities and to develop facilities. Current examples of emerging recreation activities include: Skate Parks, BMX Cycling, Cyclo-Cross, Mountain Biking, Geocaching, Adventure Racing, Pickle Ball, Foot Golf, Flying Disk Golf and Bike Parks. While PlanForward recognizes parks, trails, and recreational areas as a separate, distinctive land use category, they are an important part of the overall county's natural resource base. They include a diverse collection of sites and facilities owned, managed, and maintained by public entities and accessible to the general community. They accommodate a variety of recreational uses including passive and active <
> As the community continues to grow and diversify, it is critical that the Parks and Recreation Department continue to work with various agencies, organizations and the community to evaluate recreational needs and desires and to partner with others to make sure the quality and variety of Lincoln and Lancaster County’s recreational facilities remains at the high level we currently enjoy. Elements recreation, hunting, fishing, and boating. Further discussion of specific greenways and corridors follows in this element. ## Trails The community has an existing system of multi-use trails that currently provides a trail within one mile of 95% of dwelling units in the City. The system serves users such as bicyclists, pedestrians, rollerbladers, and parents with strollers and wagons. The present system serves both commuter bicyclists and pedestrians who use the trails daily for work and shopping trips and tend to travel from point to point, and recreational bicyclists and pedestrians who tend to use the trails on a more occasional basis, seeking attractive and safe routes. Much of the current trail system is built in the right-of-way of abandoned railroad corridors. Others are built along streams in the floodplain, along one side of major arterial streets, or as part of residential development. Maintenance of the system includes litter pick-up, mowing, trail clearing, and signage. The Lincoln Parks and Recreation Department, Lincoln Transportation and Utilities Department, and the Lower Platte South Natural Resource District are primarily responsible for trail development in Lancaster County. Lincoln Parks and Recreation, along with Lincoln Transportation & Utilities, maintain trails in the City and all of Wilderness Park while the Lower Platte South NRD maintains County trails. Volunteer organizations also assist in maintenance as well as donating significant funds for trail development. Most of the existing trail system has been built over the last 40 years and some of the oldest trails are beginning to require rehabilitation, either because of declining pavement condition or because use has risen to a level that a wider trail is required. <
> ## Salt Valley Greenway Since the first City/County Comprehensive Plan in 1961, the Salt Creek watershed has influenced planning for open space, greenways, recreation, and environmental resources in Lincoln and Lancaster County. The Salt Valley Greenway wraps around the City of Lincoln and is fed by tributaries that radiate out into the surrounding rolling hills. The effect is that of a large loop, primarily made of Salt Creek and Stevens Creek, with connecting green corridors linking urban and rural areas. Corridors which generally follow Salt Creek and its tributaries provide multiple benefits; creating connections between urban and rural areas, providing connections to the County’s Salt Valley Lakes, creating green partitions which help to prevent a “wall-to-wall” urban feel, connecting habitat for the movement of wildlife, protecting floodplain, and many others. Implementation of the Salt Valley Greenway and connecting corridor concept will provide an environmental framework upon which a thriving economy can be built. Elements Figure E5.e: Greenway Linkages <
> 1. Multi-Use Trail 2. Neighborhood Park Connection 3. Stream 4. Open Space Outlot The Salt Valley Greenway includes the previously identified “Crescent Green” linear greenway along Salt Creek beginning on the north and then proceeding along Salt Creek on the west, including Wilderness Park. At 1,472 acres, Wilderness Park, located in southwest Lincoln, is the City’s largest park. As its name implies, the park is a natural area that straddles the Salt Creek floodplain and stretches from Van Dorn Street on the north to Saltillo Road on the South. The Park was established to serve as flood storage for Salt Creek and as a unique park experience for residents and visitors to Lincoln. The Park also serves as a conservation area and is home to many species of plants and animals. The Greenway follows the Salt Creek floodplain south of Wilderness Park, connecting with the community of Roca and continuing south to the city of Hickman. From Hickman, the corridor proceeds east to Wagon Train Lake tributary and follows the linear open space along the planned South Beltway east before turning north along the Stevens Creek floodplain. At the north end, the Greenway connects back in with Salt Creek including saline wetlands, Salt Creek tiger beetle habitat and the Crescent Green Corridor on the north, forming a continuous open space system. The Salt Valley Greenway is important for recreation, transportation, environmental resource preservation, education, and economic development among other benefits. The opportunity to tie together multiple environmental and recreational resources would create a facility that is unique in the region and could be a platform for multiple community events attracting visitors from all over the region. The Salt Valley Greenway would provide connectivity with current and future green corridors that extend out from Lincoln such as the MoPac Trail corridor, Murdock Trail corridor, Antelope Valley, Dietrich Bikeway, and Billy Wolff Trail Corridor. It would provide a destination for additional trails as Lincoln continues to grow. The Greenway would also provide access to green corridors that then would extend out into the county to State Recreation Areas (SRA) and natural resource areas and beyond including the following: * Prairie Corridor on Haines Branch corridor to Conestoga SRA and Spring Creek Prairie * Cardwell Branch corridor to Yankee Hill SRA * Middle Creek corridor to Pawnee SRA * Salt Creek corridor to Killdeer and Bluestem SRA Elements * Oak Creek corridor to Branched Oak Lake and Nine Mile Prairie * Salt Creek corridor east and up the Little Salt Creek and Rock Creek corridor The Salt Valley Greenway would provide connectivity with the Homestead Trail that goes to Beatrice and south to Kansas. It would connect with additional rail lines that are acquired for trails in the future. ### Figure E5.f: Salt Valley Greenway <
> Elements # Community Forestry Management Although Lincoln and Lancaster County is a part of the tallgrass prairie ecoregion, European settlement, which included the suppression of historic wildfires, led to the proliferation of trees, particularly along waterways. As Lincoln and surrounding villages began to grow, trees were planted to provide shade, firewood, building material, food, and to beautify neighborhoods and common spaces. This Urban Forest represents a significant community investment, both public and private. Although not technically part of the natural environment, the environmental benefits are far-reaching and highly important to the community. The Urban Forest is composed of privately owned trees and the Community Forest, made up of trees in public right-of-way and on public land, such as parks and open spaces. Many of the trees have been deliberately planted, but some are volunteer trees from native stock or offspring of planted trees. Care for the Community Forest is a public obligation carried out primarily by the Parks and Recreation Department. Comprehensive and adaptive urban forestry management approaches should be applied to sustain the city’s urban forest; it is essential that adequate human and financial resources be allocated and specifically dedicated to sustaining our community’s expanding public green infrastructure in conjunction with increasing development and population growth. <
> A new action step was added that reflects the importance of street trees in all areas of our community: *Replacement of a damaged street tree is at the request of the property owner. Assess street tree coverage and provide assistance as needed to ensure consistent street tree canopies across all neighborhoods.* # Partnerships The Parks and Recreation Department has a long history of partnerships with Lancaster County, the Lower Platte South Natural Resources District, Lincoln Public Schools, and the Nebraska Game and Parks Commission to protect natural resources and provide recreational opportunities. In the past several decades, partnerships with private organizations such as the Lincoln Parks Foundation; and the Audubon Society have developed to great community advantage. Additional partnerships focus on particular activities or events, such as the Lincoln Flying Disk Club, Friends of Wilderness Park, and Great Plains Trails Network. A new land trust affiliated with Lincoln Parks Foundation is being established to collaborate with the City of Lincoln, the Lower Platte South NRD and other public and private partners to assist with acquisition of land and easements, outreach to landowners, fund development, and the consolidation of funding from grants and donations. The land trust will play a key role in the conservation and enhancement of natural resources and the implementation of the Salt Valley Greenway and connecting green corridors. The Parks and Recreation Department meets regularly with Lincoln Public Schools, Lincoln Libraries, the Lincoln YMCA, Lincoln and Lancaster County Planning Department, and Lincoln Transportation and Utilities to discuss opportunities for cooperative projects and ensure the timing of critical infrastructure projects is coordinated. In 2018, Community Learning Centers (CLCs) were formed through a partnership between the City, Lincoln Public Schools, and other agencies and organizations interested in promoting community-based learning outside the normal school day. Some of these partnerships are formalized through short- or long-term agreements while others are less formal and more limited in scope. These partnerships broaden the resources available for important public projects and result in a better outcome. Partnerships can also foster a sense of community ownership and assure a more equitable Elements outcome. Community partnerships are critical to developing a park, recreation, and open space system that fully serve the people of Lincoln and Lancaster County. ### Policies Related to this Element P26: Community Forestry Management P27: Regional Parks and Tournament Facilities P28: Community Parks P29: Neighborhood Parks P30: Recreation Centers / Community Learning Centers P31: Aquatic Facilities P32: Other Recreational Facilities and Activities P33: Parks and Recreation Partnerships ### Goals Related to this Element G2: Complete Neighborhoods G6: Healthy, Active, and Connected People Elements # E6: Placemaking This element describes principles and strategies intended to preserve and enhance the community’s unique character — its sense of place — through preservation of cultural and historic resources and focused attention to the quality of public and private development. <
> The people of Lincoln and Lancaster County have transformed a rolling prairie into a fertile agricultural landscape, with significant tracts of native prairie and a dozen villages, towns, and small cities, surrounding a highly livable urban place. The jewel in this fine setting is the Nebraska State Capitol, one of America’s great buildings, which was designed and constructed to be seen and enjoyed from throughout the city and county. Together, the urban and the rural landscapes produce a distinctive place, offering a sense of identity to visitors and especially to residents. It is worthwhile to plan for, protect, and strengthen this character as the community grows and matures. All parts of PlanForward contribute to the attainment of this vision, but urban design and one of its components, historic preservation, relate most directly to guarding and enhancing the community’s physical image. Urban design is the concept and practice of studying people’s experience of their physical environment—both visual and functional—then consciously striving to improve that experience. It is essential both to preserve and enhance key existing elements and to create improvements that mesh with and strengthen a distinctive and enjoyable place. When successful, urban design and historic preservation make a community more enjoyable for residents, more attractive to visitors, and more competitive in drawing new businesses and retaining existing ones. A truly sustainable community recognizes and builds on its heritage by fostering good urban design, creating a sense of place and uniqueness that supports a strong economy, values environmental assets, and promotes social engagement and interaction. Successful urban design requires cooperation of public and private sectors. ### The Setting Enhancing a community’s environment begins with understanding it. Before all else, Lancaster County was and is the land—rolling prairie, crisscrossed by streams, enriched by wetlands, green in the spring and summer, golden, tan, and russet in the fall and winter. We and our ancestors have largely transformed this prairie land through agriculture and city-building, but the seasonal cycle still strongly shapes us. Past policies and practices discouraging urban sprawl, maintaining a clear edge between urban and rural land uses, and preserving natural features and prime agricultural land have done much to establish the distinctive and attractive built environment of our community. ### The City Upon the prairie, the original designers and developers of Lincoln laid out a grid of streets, alleys, and blocks, from A Street on the south to U Street on the north, and from 1st Street on the west to 17th Street on the east. The gently rolling terrain accommodated this grid, creating a framework for a city which was readily comprehensible and expandable. The suburban towns founded east of the city in the 1880s and ‘90s aligned their grids with Lincoln, facilitating their integration into Lincoln a few decades later. Much of the Original Plat remains evident, giving form to the center of the city through such major features as the Capitol location, the core of University of Nebraska Lincoln’s downtown campus, the County/City Building location, three sites used by Lincoln Public Schools, and Elements Cooper Park. Especially wide rights-of-way provide vistas to the Capitol and campus. Throughout Downtown and the Haymarket, the range of possibilities within the ample, “ordinary” 100-foot rights-of-way is demonstrated by the loading docks, sidewalk cafes, public art, landscaping, and Farmers Market, along with vehicular, bicycle, and pedestrian circulation. Most of Lincoln’s early expansion simply extended the grid. By the early 20th century, the best developments were more varied in their response to the topography, developing curving streets and boulevards while maintaining ample, comprehensible connections to the grid of arterial streets. ## The Capitol A unique urban design asset of Lincoln and Lancaster County, providing orientation and identity throughout the community, is our remarkable State Capitol. The 400-foot tower was planned and built as the key historic, architectural, and geographic landmark of the city and surrounding countryside. From distant vistas along Interstate 80 to intimate glimpses from core neighborhoods, views of the Capitol enrich and unify this place. Many of the best elements of Lincoln’s built environment are based on Capitol views—the Malls, the tree-framed vistas from Pioneers Park, and the homeowners’ park in Woodsshire Historic District. Protecting key vistas that provide important public views to the Capitol, along with identification and enhancement of new view corridors as the community grows, are important urban design strategies of this plan. <
> The Capitol View Corridors, as illustrated in Figure E6.a, represent key view corridors within Lancaster County where extra attention should be paid during the planning and design process to ensure that views to the Capitol are being preserved and enhanced as development and redevelopment occurs. Elements Figure E6.a: Capitol View Corridors <
> Elements ## Corridors Other important resources for providing community identity and orientation are entryway corridors, parks, trails, and open spaces. Key entryways provide indelible “first impressions” of a community. The community’s strong network of trails offers recreation and transportation alternatives, knitting together established and new neighborhoods. Parks provide neighborhood centers and community gathering places, and along with public street trees are major components of our urban forest, providing shade, beauty, and habitat. Lincoln and Lancaster County’s Entryway Corridors, as shown in Figure E6.b, have been categorized as primary and secondary entryways. The primary entryways are the corridors identified on this map that are most responsible for managing traffic into Lincoln. As such, their functionality and visual aesthetics go a long way in defining visitors’ impression of the community. The secondary entryways carry less traffic but are still vital to perceptions and should be treated as such. For both the primary and secondary entryway corridors, there are key points along their routes where views toward the Capitol are particularly strong and should be preserved. Those view points are identified on Figure E6.b with a star. <
> Elements Figure E6.b: Entryway Corridors <
> Elements ## Current Practices The public and private sectors, often working in direct partnership, are both essential to an attractive, livable, competitive built environment. Lincoln’s Original Plat of 1867, designed by state officials, established a framework for a successful city. Attractive public and private buildings, city purchases and private donations of park land and of public art, street trees and private gardens, all contribute to urban character. Many of the principles of this section already are expressed in the community’s practices. The Historic Preservation Commission and the Nebraska Capitol Environs Commission advocate for and protect key resources of our heritage, in cooperation with property owners, the community’s design professionals, and other interested citizens. The Historic Preservation Commission works with neighborhood groups, preservation advocates, property owners, and the State Historical Society to discover, protect, and share the community’s heritage. The zoning code provides protection for designated historic property and incentives for creative uses that maintain the vitality of historic places. The Commission has a key role in providing on-going guidance in the revitalization of areas such as Haymarket, residential historic districts, and Havelock Avenue. The Capitol Environs Commission is a unique board combining membership appointed by the City and by the State, empowered to protect and to advocate for improvements to the setting of the beautiful Nebraska State Capitol. All public and private property within the Capitol Environs District receives the Commission’s design oversight, along with key view corridors to the Capitol which enhance the whole community. The Urban Design Committee (UDC) provides advisory services to city government on the design of city-owned buildings and other public projects, major public/private developments, and any private projects constructed on city right-of-way or other city property. The Committee’s intent is to make sure that new public facilities are exemplary – that they provide functional and aesthetically pleasing facilities for the public, and model good design for the private sector. The benefits of this guidance would be strengthened by including all public projects under UDC review, just as the Environs Commission reviews projects of all local and state governmental units. The Committee also works to publicize and reward good design, private as well as public, through an annual awards program. Certain high-impact projects may involve historic properties and public property or public assistance, and the expertise and advice of more than one design board may be valuable. At the discretion of the City, joint meetings may occasionally be scheduled so that the boards, the project, and ultimately the community may benefit by a thorough yet efficient discussion. Elements Figure E6.c: Historic & Capitol Environs District <
> 3.82 PlanForward 2050 Elements All three of these design boards assist in the process of siting wireless communication antennae and towers within their various jurisdictions. The community values efficient and effective telecommunications while also desiring to minimize adverse impacts of this rapidly evolving infrastructure on our rural and urban environments. Capitol view corridors, historic landmarks and districts, environmentally sensitive areas, and predominantly residential neighborhoods are not preferred locations. Unobtrusive locations on public property; co-locations on existing towers, buildings, and structures; and commercial and industrial areas with minimal impact on residences are preferred. The City has adopted zoning provisions to state the community’s preferences. Combined with guidance from the design review boards, community residents and the telecommunications industry can be well-served. The community has also expressed its interest in good urban design through the Neighborhood Design Standards for infill development in older residential neighborhoods and the Lincoln Downtown Design Standards for the community’s center. However, the appearance of other commercial areas and new residential areas is guided by few public design standards, although private design covenants in some areas are far more stringent than any public requirements. Good urban design includes an attractive streetscape, pedestrian access and comfort, and orientation of buildings, yards, and parking to create a pleasant transition between public and private space. Over the planning period, additional design standards should be developed to address the gaps in coverage that exist and to fulfill these principles of good urban design. When developments ignore these elements, our community is weakened. The Complete Neighborhoods & Housing Element describes the community’s expectations for new residential development. The emphasis in PlanForward on mixed-use redevelopment in established commercial centers and corridors necessitates adoption of clear design standards and a predictable process to protect existing and new investors—commercial and residential—in those areas. The Infill and Redevelopment Element discusses how mixed use redevelopment, including residences, can meet important community needs as Lincoln grows and ages. ### Policies Related to this Element P5: Downtown P34: Urban Design Standards P35: Entry Corridors P36: Public Art P37: Historic Preservation P38: State Capitol P39: Community Space ### Goals Related to this Element G12: History and Culture G13: Community Appearance Elements # E7: Community Facilities <
> **This element reviews the projected status of community facilities during the planning period, including libraries, fire services, law enforcement, health care, schools, and public buildings.** This element reviews the projected status of community facilities during the planning period, including libraries, fire services, law enforcement, health care, schools, and public buildings. The availability and service levels of community facilities affect the quality of life in the City and County, and as the community grows, community facilities should be prepared to adapt to change. This element and associated policies take into consideration an increasing population, changing demographics, and evolving technology in planning high-quality and efficient delivery of services. The importance of collaboration and sharing resources among agencies to realize the greatest benefit to the community is also emphasized. Overall, community facilities should: * Promote a functional balance between community facilities and growth. * Encourage adequate facilities and services which provide diverse educational, cultural, environmental, and social opportunities. * Provide adequate facilities and services to assure the health, safety and welfare of all citizens. * Promote cooperation and coordination among both the public and private sectors in the development and maintenance of community facilities. * Increase energy efficiency and water conservation as well as promote the use of renewable energy sources. ### Libraries Lincoln City Libraries currently operates nine facilities. Bennett Martin Library downtown serves as the headquarters. Larger quadrant libraries are Victor E. Anderson, Charles H. Gere, Loren Corey Eiseley, and Bess D. Walt. Neighborhood Libraries include Bethany, South, and Dan A Williams. A bookmobile serves outreach sites in Lincoln and county towns. The Library is a City department that provides service to Lancaster County residents outside the City through a contractual arrangement. Library services, similar to many other public services, must be provided regardless of how the community grows. In 2002, the library completed its “quadrant” plan, with a significant library facility in each of the city’s quadrants. The library is initiating the planning process for additional branches. A placeholder site has been designated in Jensen <
> **During development of PlanForward, an Equity Subcommittee convened to review existing and proposed policies to address any potential inequities. The subcommittee encouraged additional community resources be devoted for those at risk and/or marginalized communities. Some recommended community visioning items lead to broad agreement and are included in PlanForward; however, other community visioning items require further public input and community discussion before being adopted as goals or policies. See the Equity Subcommittee summary document in Appendix X for more information.** Elements Park near 84th and Yankee Hill Road. The library will be exploring potential sites along its eastern boundaries as the city grows in that direction. For some time, the library has been planning for a new Central Library downtown. The Downtown Master Plan has identified the importance of maintaining this presence downtown. Downtown is the heart of our community, and multifaceted uses are essential to maintaining its vitality. As public libraries in Lincoln and nationally update their services, certain trends have emerged. With increased use of downloadable books, libraries designate less space for books and create more space for uses such as Maker Spaces, technology, family library use, and general conference spaces that support everything from quiet study to large training sessions. Most libraries have a variety of collaborative partners, engaging in projects to ensure internet access, encourage people to read aloud to young children, and assist people with technology in its varied uses. Libraries are often described as community centers based on learning, literature, and literacy. Providing internet access to the community broadens opportunities for education, job placement, and entertainment. This new action step increases access to more people in the community. (Introduce) A program to circulate internet hot spots for those who do not have stable internet at home, with consideration also for access to reliable equipment and effective training. <
> ## Fire and Rescue ### Lincoln Fire and Rescue Lincoln Fire and Rescue anticipates the reconstruction (and possible relocation) of fire stations and the need for additional fire stations to serve the City’s projected expansion during the 30-year planning period. Lincoln Fire and Rescue routinely monitors response times, population growth, city growth, and call volumes in evaluating possible relocation and building new fire facilities. Changing development patterns, financial concerns, service expectations, availability of resources, environmental issues, traffic flow, or other conditions will warrant changes to provide effective emergency response. The utmost priority of Lincoln Fire and Rescue is the ability to provide the highest level of emergency service within the shortest period of time. Lincoln Fire and Rescue currently operates from 16 stations located throughout the City. These stations are geographically located in the community to be able to meet the National Fire Protection Association (NFPA-1770) Standards concerning response times. However, Lincoln Fire and Rescue has repeatedly stated that maintaining desirable response times is becoming increasingly difficult in areas that have experienced urban growth further Elements and further away from existing fire stations. Lincoln Fire and Rescue routinely reviews the strategic deployment of apparatus from existing stations and potential new station in growth areas of the City. Mutual aid requests for Lincoln Fire and Rescue service occur on occasion for incidents outside Lincoln. Lincoln Fire and Rescue's equipment is designed for use with a public water supply capable of generating 1,500 gallons of water per minute at a residual pressure of 50 pounds per square inch. Lincoln Fire and Rescue provides emergency ambulance transport services in the City of Lincoln and most areas of Lancaster County. Most interfacility (hospital-to-hospital) non-emergency services are provided by the private sector. Elements ### Figure E7.a: Existing Community Facilities <
> Elements ### Rural Fire Districts The 17 rural volunteer fire departments will continue to see increasing challenges with City growth and diminishing service area. All rural fire district personnel are volunteers. Rural fire districts can provide fire protection, rescue, and emergency ambulance transport. Fire departments are distributed throughout most of the towns and villages, while some are located in the unincorporated areas of the county. Mutual aid requests between fire districts are common for incidents outside Lincoln. Each rural fire district has unique challenges, including response times and water availability. A growing population in the small towns, villages, and rural areas, as well as increased traffic, will continue to create demands for fire and emergency services. The physical growth of the City of Lincoln will cause changes to the character of some areas and to the tax base of many districts. Elements Figure E7.b: Existing Fire Districts <
> Elements ## Law Enforcement The Lincoln Police Department and Lancaster County Sheriff’s Office are anticipated to remain as the sole providers of law enforcement services to the City and County during the planning period. The Sheriff’s Office will continue to provide contract law enforcement support to the various incorporated towns of the county. The overall increase in population in the City and County will increase the demand for police and sheriff services in the urban, small town, and rural areas. The Hall of Justice and Law Enforcement Center accommodates both the operations of the Lincoln Police Department and the Lancaster County Sheriff within a single facility. This facility is an example of the cooperation exhibited by the City and County in furthering the efficient delivery of governmental services to the community. Another example of cooperation includes the recently constructed joint station with Lincoln Fire and Rescue funded through a ¼ cent sales tax. A radio system upgrade was also previously funded with a ¼ cent sales tax. The Lancaster County Department of Corrections opened a new Adult Detention Facility in 2013 near SW 40th and West O Street. The former jail was renovated and is used by various County offices. In addition to the Lincoln Police Department and Lancaster County Sheriff’s Office, the City of Lincoln also has police presence by the University of Nebraska Police on the UNL campus as well as the State Patrol. The Capitol Security Division of the State Patrol Division monitors 48 buildings and eight parking facilities in the greater Lincoln area. <
> ## Health Care Facilities Hospitals represent one of the highest and most important community service land uses. Lincoln has a growing number of medical campuses such as Bryan Health Systems, CHI St. Elizabeth Regional Medical Center, Madonna Rehabilitation hospital, Veterans Medical Center, Lincoln Surgical Hospital and the CHI Nebraska Heart Institute. Urgent care services are also provided at several private facilities dispersed throughout the community. A number of private non-profit organizations provide targeted health services such as surgical centers, skilled care nursing long-term care, rehabilitation facilities, dental health, and specialized clinics to residents throughout Lincoln and Lancaster County. Multiple public and private service sites around Lincoln serve mental health needs of persons in Lancaster County. Continued population increases in Lancaster County and southeast Nebraska have meant increased demand for mental health services. The Lincoln/Lancaster County Health Department also provides public health-related services to the residents of Lincoln and Lancaster County. Services operated by the Health Department include a dental clinic, STD clinic, refugee clinic, and targeted coordinating of back-to-school vaccinations. New medical facilities have been constructed in many areas of the city. This trend is likely to continue into the immediate future as the demand for health care services increases as a result of the community’s growing and aging population. Elements The Federally Qualified Health Center has located services in two Medically Underserved Areas and improved access to primary care, dental health care services and behavioral health care. ## Education ### Lincoln Public Schools The Lincoln Public School (LPS) district provides pre-kindergarten through 12th grade education to roughly 40,000 students within the City of Lincoln and surrounding area. By 2023, the district will operate 40 elementary schools, 12 middle schools, eight high schools, and eight other alternative and special focus program sites. In addition to schools, LPS facilities include administrative, special education, food service, operations maintenance, athletic and activities facilities, and transportation centers. The past twenty years have seen changes in the students enrolled at LPS. In 2000, about 14 percent of students were racially diverse; in 2020 this rose to over 35 percent, with students representing 50 different countries of origin. Economic changes are also affecting the school system. In 2000, 26 percent of students received free or reduced price lunches. That figure has risen to nearly 47 percent over the past twenty years. Over those twenty years LPS has seen an increase from 31,000 to over 41,000 students overall. Lincoln Public Schools has made a substantial investment in renovating and improving existing schools throughout the Lincoln area. A $290 million school bond issue passed in 2020 allowing construction of two new high schools, a new elementary school, and enhancements to several existing facilities. Lincoln Public Schools and the City of Lincoln actively coordinate planning activities. Projected growth of residential development is crucial information used to identify future school sites. As PlanForward’s growth framework was developed, LPS was consulted and informed at each step. This relationship is ongoing and expected to continue into the future. The Superintendents Facility Advisory Committee (SFAC) & the LPS 10-Year Facilities & Infrastructure Plan can be viewed on the LPS website at lps.org. One relationship between city government and LPS that has particular potential for improving future efficiencies is the relationship between LPS and the Lincoln Parks and Recreation Department. In some locations, such as Lefler Middle School and Piedmont Park, Humann Elementary and Cripple Creek Park, Fredstrom Elementary and Highlands Park, and Adams Elementary and Folsom Park, park and school facilities are already located on adjoining properties. Schoo Middle School, which also has an adjoining YMCA, is the site of a planned neighborhood park. Wysong Elementary, located between S. 56th and S. 70th Streets, north of Yankee Hill Road, includes a neighborhood park. Moore MIddle School is adjacent to Jensen Park and also includes a YMCA. There are opportunities to reduce costs for both parks, schools and the YMCA by sharing playgrounds, playfields and even using picnic shelters as outdoor classrooms. This relationship has not yet been formalized but shows great potential benefit for all organizations. There are currently over 20 school sites with adjacent parks. Elements Figure E7.c: Joint School and Park Site <
> **Rural School Districts** There are nine public rural school districts serving residents of Lancaster County. Several school facilities are located outside of Lancaster County. All of the remaining public school facilities are located within incorporated and unincorporated communities, except for the Norris Public School and Raymond Central Public School (Junior and Senior High). Several school districts, most notably Waverly School district, will be impacted by expansion of the Lincoln city limits. The City, LPS and each school district impacted will need to coordinate efforts in the future. Rural school districts also need to plan to accommodate areas designated for acreage residential development. Acreage residential areas provide additional tax revenue, but also create the need for more financial resources in order to provide additional transportation services and educational facilities. Grouping acreage residential areas in pre-designated locations allows rural school districts to plan for adequate transportation and educational services in advance of development. **Private and Parochial Schools** There are approximately 26 private and parochial schools in Lincoln, serving over 6,000 students. There are four private and parochial high schools: Lincoln Christian, Lincoln Lutheran, Parkview Christian, and Pius X. Additional private and parochial schools are anticipated during the planning period. The City should work with private entities to coordinate development and infrastructure plans around new school sites. Elements ### Community Colleges, Trade Schools, and Universities Lincoln is home to a community college and several technical and trade schools providing a comprehensive array of higher education and vocational opportunities. These public and private facilities are dispersed throughout the community. Lincoln has multiple institutions of higher learning, with campuses located throughout the city. These include the University of Nebraska-Lincoln (UNL campuses: Downtown and East), Nebraska Wesleyan University, Union College, Southeast Community College, Purdue University Global, and satellite campuses for Doane College and Bellevue University. <
> Previous comprehensive plans did not include a section on early childhood care and education, so a new policy was developed and included in PlanForward. P45. Early Childhood Care and Education: Evaluate methods to improve access to and quality of early childhood care and education experiences. These colleges and universities are actively involved with surrounding neighborhoods and business districts. UNL has been a major partner in the Antelope Valley Project, the West Haymarket Arena development, and the Innovation Campus project on the former State Fair Park site. Wesleyan University was part of the North 48th Street/University Place project approved in 2004. Union College took a lead role in efforts to increase mobility and improve streetscapes in the South 48th Street College View neighborhood in 2007. These institutions and others should be actively engaged in future planning efforts. ### Other Public Buildings and Facilities As general purpose governments, the City of Lincoln and Lancaster County own, operate and manage numerous buildings, structures, and facilities. During the time period covered by this Plan, there will likely be a need to construct, renovate, or abandon certain public buildings and facilities not already discussed in this document. At such time as these events may occur, care should be taken by public officials making decisions that the vision of this Plan is recognized and respected. This may apply to the siting of a new facility, the abandonment of an existing one, the way renovations are undertaken, the manner of financing used to complete the work, the arrangements made for the facility’s operation, the process followed in making the decision, and the timing of the action. When building a new facility or renovating an existing one, energy efficiency measures should be standardized in the decision-making process in order to achieve 100% net renewable/carbon neutral by 2035, as stated in the City of Lincoln Climate Action Plan. * Increase energy efficiency and water conservation as well as promote the use of renewable energy sources. Of particular note to local government operations is the Lincoln-Lancaster County Public Building Commission. The Public Building Commission is responsible for facilities jointly used by City and County agencies, such as the County-City Building. This entity was established in 1991 to oversee any buildings, structures, or facilities used jointly by the City and County for a public purpose. The new Municipal Service Center is an example of consolidating City services to find efficiencies. The Center houses the Engineering Services and Watershed Management divisions of Lincoln Transportation and Utilities and has potential to accommodate divisions or operations of other departments. Lincoln and Lancaster County is a community made up of public-private partnerships that make our community stronger. Such public-private partnerships include but are not limited to YMCAs, the Lincoln Children’s Museum and the Lincoln Children’s Zoo. Elements ## Policies Related to this Element P40: Libraries P41: Fire and Rescue P42: Law Enforcement P43: Health Care Access P44: Education P46: Public Buildings ## Goals Related to this Element G10: Effective Government Elements # E8: Energy and Utilities <
> This Element examines energy and individual utilities including water, wastewater, watershed management, solid waste, electric services, information technology, and natural gas service. Energy use, supply and conservation are topics of global as well as local concern. This element includes an assessment of energy use, evaluates the utilization of renewable energy sources, and describes efforts to conserve energy in the community. The relationship between land use patterns and energy consumption has been widely researched and is a topic of national conversation. As Lincoln and Lancaster County continue to plan for the future, the need to consider the impacts of energy supply and demand is increasing in importance. The provision of other basic services (such as water, wastewater, and electricity) is also discussed in this element. The need to plan for the extension of these services to new growth areas is one of the primary reasons for comprehensive planning. Lincoln has a history and policy of providing utilities only to those areas that have been annexed into the City. Lincoln wastewater collection systems operate on a gravity flow principle and so are planned to extend along the natural drainage of the land, or drainage basins. These growth policies have served Lincoln well in that it has retained a clear differentiation between urban and rural areas and has been able to resist sprawl to a greater degree than many other communities. The efficient extension of utilities will continue to be a major factor in land use planning. ## Energy The City of Lincoln Climate Action Plan has come about from an understanding of the need to significantly reduce greenhouse gas (GHG) emissions in order to slow the pace of climate change and protect Lincoln residents’ way of life. It is a vision for what the city of Lincoln could become over the next 30 years. It is a vision of a city that is thriving with local businesses and verdant greenways; a city that uses both ordinary and innovative measures to reduce greenhouse gas emissions in transportation, electricity and buildings; a city that is inclusive, welcoming and fair. The energy element and various policies and action steps within PlanForward have been updated to reflect the recommendations from the City of Lincoln Climate Action Plan. The Lincoln Climate Action Plan offers a bold and ambitious vision to reduce net greenhouse gas emissions 80% by 2050, and represents the first plan of its kind in the state of Nebraska. A myriad of strategies in the plan speak to achieving this target, from increasing energy efficiency, generating more electricity from renewable energy, switching to electric vehicles and active commuting modes, and employing natural climate solutions. To develop and advance the Plan, the City worked closely with community partners such as the Lincoln Electric System, which set a complementary goal to achieve net zero carbon dioxide production from its power generation portfolio by 2040. Moreover, the Plan sets a course for securing a second source of water supply for Lincoln as well as for mitigating flood impacts in the Salt Creek Watershed Basin to ensure that Lincoln is resilient to climate change. The Lincoln Climate Action Plan required considerable coalition-building and robust <
> Elements multi-sector partnerships and successfully achieved bipartisan support and adoption by the Lincoln City Council in March 2021. Additionally, the plan identified eight action areas to focus prioritization and implementation efforts around, including: 1) transition to low-carbon energy; 2) build a decarbonized and efficient transportation system; 3) align economic development goals with climate realities to ensure a thriving economy; 4) improve protections for and with Lincoln residents; 5) build a resilient local food system; 6) maximize natural climate solutions; 7) reduce waste; and 8) engage residents in co-creating a climate smart future. The Lincoln Climate Action Plan is a roadmap for Lincoln to adapt to a changing reality while continuing to thrive as a community. The City of Lincoln recognizes that the transition to a climate-smart, low-carbon way of life is well underway. Today, solar and wind provide the least expensive sources of new electricity in two-thirds of the world. Natural gas and coal generating plants are being replaced with less expensive electricity from wind and solar farms, which are connected to ever-more affordable and reliable battery storage. The fastest growing occupation in the United States is solar installers, and the second fastest growing job is wind turbine service technicians. It is clear that historic change is occurring, and that the time is ripe for Lincoln to take great strides toward a climate-smart future. The Lincoln Electric System Administrative Board established a new decarbonization goal of net-zero carbon dioxide production from its generation portfolio by 2040. LES has already reduced carbon dioxide emissions from its generation portfolio by 53% from 2010 – 2020. The Board recognizes the critical role that electricity generation has in achieving the citywide goal of reducing net greenhouse gas emissions 80% by 2050, while also maintaining high levels of electric system reliability and affordable retail electric rates to every customer in the area. Moving forward, LES will continue evaluating technological and financial opportunities that transition power generation to net zero carbon dioxide production by 2040. To remain competitive as the global economy expands and puts greater strain on traditional fuel supplies, energy costs rise, and supplies remain unpredictable, Lincoln must develop a comprehensive strategy of fuel diversity and encourage conservation, alternative forms of energy, and modern energy technologies. The City of Lincoln and Lancaster County are making substantial efforts toward sustainable energy reform. The City will soon have an energy strategy for City government and also intends to develop recommendations for residential energy conservation. In addition, the City has funded municipal lighting upgrades, energy saving improvements for residential buildings and non-profit facilities, clean energy production and green building practices. Lincoln Electric System also provides energy rebates for investments in energy-saving devices through their Sustainable Energy Program. Using energy more effectively through more efficient end-uses or through more productive generation, such as combined heat and power, reduces the amount of fuel required to produce a unit of energy output and reduces the corresponding emissions of pollutants and greenhouse gases. Energy from renewable resources such as solar, geothermal, and wind technologies generally does not contribute to climate change or local air pollution and generally conserves nonrenewable, natural resources. As an example of a renewable energy project, in 2016 the City of Lincoln was awarded match funding from the Nebraska Environmental Trust (NET) to install 10 dual – point electric vehicle (EV) charging stations to be placed in the City’s public parking garages. The charging stations track usage and calculate dollars saved by the vehicle owner along with greenhouse gas emissions avoided through use of an EV. Property Assessed Clean Energy (PACE) legislation has been passed by the State of Nebraska and is now available to communities across the state. PACE financing enables businesses and homeowners to fund energy Elements efficiency upgrades and renewable generation through a property tax assessment, similar to a street repair or other improvement. The City of Lincoln is evaluating how best to implement a PACE program which would be in the best interest of homeowners and businesses. The City is also using Energy Savings Performance Contractors (ESPCs) to design, procure and construct energy and utility conservation measures for municipal buildings and utility operations. Projects executed under the ESPC model are intended to be financed by the energy and utility savings generated as a result of the facility or operational improvements. ESPC contracting has been successfully utilized across the country by federal, state and municipal operations to pay for critical infrastructure improvements for close to 30 years. Municipalities across the country are increasingly converting streetlight systems to Light Emitting Diode (LED) technology in efforts to improve energy efficiency and other safety and aesthetic factors. The City’s design standards for municipal lighting were modified in 2016 to require all new and replacement streetlights to meet minimum efficiency ratings of LED technology. A system-wide LED streetlight conversion project was begun and completed in 2018-2019. Other projects and initiatives with the potential to significantly reduce energy consumption and greenhouse gas (GHG) emissions include: * Continued conversion of the StarTran Bus Fleet to Compressed Natural Gas (CNG) * Modifications to the Theresa St. Water Reclamation Facility to capture Renewable Natural Gas (RNG) from the waste digestion process as a source for StarTran and potentially other City vehicles. * Continued deployment of centralized thermal energy provided by the District Energy Corporation where appropriate and cost effective. * Continuing to adopt the most current and cost-effective energy codes. * Continued support for the LES solar energy project. * Continue to increase LES's renewable generation portfolio with the purchase of renewable power sources. ### Statutory Requirements In 2010, the Nebraska Legislature passed legislation requiring cities and counties in Nebraska to assess, evaluate, and promote renewable energy sources and energy conservation measures as part of their Comprehensive Plan updates. Energy affects many aspects of land use, and as the population continues to increase over the next 30 years, so will energy consumption and the need for renewable resources. ### Energy Use Like many other communities, it is a challenge for the City of Lincoln and Lancaster County to obtain data that can be put into a meaningful model to use in setting goals and comparing our community with others. During development of PlanForward, the City has assessed energy infrastructure and energy use by sector, including residential, commercial, and industrial sectors at the local level (government is included within the commercial sector). The data does not include lifecycle consumption, or energy that is used to generate the end use energy product. Thus, the following data provides a snapshot of energy being consumed at the point of use and does not factor in energy such as coal that is used to produce the electricity that powers our homes and businesses. Elements State level data is published in an *Annual State Energy Report* by the State of Nebraska Department of Environment and Energy that identifies energy trends and needs by sector. The 2020 report notes that Nebraska's total energy consumption in 2018 was 915 trillion British thermal units (Btu), an increase of 38.5 trillion Btu – or 4.4% - from 2017 to 2018. For reference, Nebraska's total energy consumption in 2013 was 872 trillion British thermal units (Btus), an increase of 21 trillion Btus - or 1.5% increase from 2012 to 2013. Five types of energy sources comprised the energy that Nebraska consumed in 2018, and Nebraska’s energy use by sector in 2018 are shown in the graphs below. Figure E8.a: Nebraska's Energy Use by Type <
> ■ Coal ■ Petroleum (and products) ■ Natural Gas ■ Renewable Energy ■ Nuclear Power Figure E8.b: Nebraska's Energy Use by Sector <
> ■ Industrial ■ Transportation ■ Commercial ■ Residential Elements The statewide data for the Industrial sector includes Agriculture, which is Nebraska's number one industry. By comparison with Lincoln, the statewide industrial sector consumes a much larger percentage of energy because of this. The energy use totals that follow reflect a combination of Black Hills Energy gas use and LES electrical use (converted from kWh to MMBtu) for the City of Lincoln only. Energy use fluctuates year over year based on heating and cooling needs, community growth, and more efficient systems. Figure E8.c: Lincoln's Energy Use by Sector <
> As shown in the chart, the Residential sector had the largest energy use in 2020 at 51%, followed by the Commercial sector at 43% and the Industrial sector at 6%. Year over year trends have gone up and down, and overall energy use in 2020 is roughly the same as was in 2015 and 2016. ### Water Services #### Lincoln Water System and County Water Resources Potable water is provided to Lincoln residents and businesses by the Lincoln Water System (LWS). The System is owned by the City of Lincoln and managed by the City’s Transportation and Utilities Department under the direction of the Mayor and City Council. It is a revenue producing and self-supporting enterprise fund system (i.e., no tax funds are used by the system). Lincoln’s source of water is groundwater recharged from the Platte River northeast of Lincoln. Lincoln has 44 wells that pump this groundwater to two water treatment plants. Lincoln Water System processes the groundwater prior to its transmission to Lincoln for distribution. The distribution system is divided into six pressure zones. Each zone has a system of storage facilities and pumping stations that keep operating pressures in the 35-100 pounds per square inch (PSI) range. Because pressure for the system relies upon elevation, reservoirs and pump stations are often located outside the respective service area, and in some cases outside of the City. Elements The existing water system is made up of more than 1,245 miles of water distribution mains. Pipes providing service to customers range in size from 4” to 16” in diameter and total 1,100 miles. There are also 145 miles of transmission and transfer mains which range from 24” to 60” in diameter. The water distribution system contains approximately 27,500 valves for the isolation of water main breaks to minimize the number of customers out of service. Approximately 12,000 public hydrants in the distribution system provide for the fire protection needs of the City. Lincoln Transportation and Utilities Department completed the Lincoln Water System Facilities Master Plan in 2013 and completed an update in 2020. The plans are guides for short term and long term improvements to the infrastructure of the Lincoln Water System during the planning period. The Lincoln Water System Facilities Master Plan was adopted as a subarea plan in 2014. The projected maximum day water demand for year 2040 is 115 million gallons per day (MGD), and for 2060 is 143 MGD based on the assumed population growth rate. Maximum day water demands include adjustments for increased industrial water use. The 2020 Facilities Master Plan update also adjusted future seasonal peak water demands to account for predicted climate changes that are expected to increase summer water use through the planning period. Additional supply, treatment, and transmission improvements will be necessary to meet these growing demands. <
> The well fields currently owned by the Lincoln Water System have a projected maximum capacity approximately equal to the projected need by 2040 to 2050. An additional source of water that could include an interconnection with Metropolitan Utility District of Omaha or developing an new source of supply will need to be acquired in the planning period to meet these demands and a financial plan adopted to fund such a project. These options are outlined in the 2014 Water Facilites Master Plan. Developing a strategy for securing a second source of water supply is also part of Lincoln’s Climate Action Plan. As with demand projections, the 2020 Facilities Master Plan update also adjusted available water supply to account for climate change by using reduced summer streamflows in the later years of the planning period. Lincoln’s drinking water currently meets all of the State and Federal regulations regarding water quality. As new drinking water regulations are implemented, additional treatment may be required. LWS strives for environmental stewardship in all aspects of its operations. LWS actively promotes water conservation to customers and works to conserve energy in system operations. Operators continually work toward the best balance between system energy needs and the variable rate schedules provided by both Lincoln Electric System and Omaha Public Power District. Residential water bills are determined by an increasing block structure. The more water the resident uses, the higher the price per unit of water. Traditionally, residential water use has been a major cause of fluctuations between low winter and high summer use. The price structure’s intent is to encourage water conservation and the water rates are competitive with local and regional cities. In the event that water restrictions are necessary whether from drought or natural disasters, the Water Management Plan is used to guide and govern restrictions that include implementing Water Shortage Rates. Elements **Figure E8.d: Existing and Future City of Lincoln Water Pressure Zones** <
> *Note: Water pressure zone boundary updates to align with the 2050 Future Service Limit will be updated with the next Water Facilities Master Plan. Elements ### Rural and Town Water Services Water service to rural Lancaster County residents is obtained through private water systems (i.e., private wells), rural water districts, or Sanitary Improvement Districts (SIDs). The Lincoln-Lancaster County Health Department enforces standards on wells within the city limits and three-mile extraterritorial jurisdiction. In addition, the Property Transfer Code enforces standards on wells throughout the county which serve private residences. These standards are applied when ownership changes through the sale of property. The Lower Platte South Natural Resources District is maintaining a Groundwater Management Plan for the County to ensure the protection of this resource. Two rural water districts supply potable water to Lancaster County residents; Lancaster Rural Water District No. 1 and Cass County Rural Water District No. 2. These rural associations include property owners adjacent to the City limits. There are three SID's providing water services to area residents: Emerald, Holland, and Walton. Cities and villages in Lancaster County collect water from municipally owned wells. Some communities are provided water via contract from rural water districts. Limited well source and poor water quality in some areas contribute to reliance on rural water districts. ### Groundwater Management Plan In April 1995, the Lower Platte South Natural Resources District (LPSNRD) adopted a Groundwater Management Plan. This Plan describes steps for managing the area's groundwater to protect its future quality and quantity and has led to the designation by the LPSNRD of a Groundwater Management Area. This designation provides the District with the authority to regulate nonpoint sources in the urban and rural areas that might affect groundwater quality and quantity. The LPSNRD conducts an annual review assessing the District's actions, activities, and effectiveness under the Rules and Regulations for implementation of the Ground Water Management Plan. ### Wastewater Services The City of Lincoln Wastewater System is a publicly owned and operated system. The system is a revenue producing and self-supporting, enterprise fund system (i.e., no tax funds are used). The Department of Transportation and Utilities Wastewater Division manages the operation of the system. ### Collection System In general, the wastewater collection system is a gravity flow system that is designed to accommodate urbanization of drainage basins. The existing system includes 16 lift stations to assist in pumping and conveying the wastewater in the collection system. The collection system currently serves 11 major drainage basins, with more than 1,128 miles of sanitary sewer pipes ranging in size from 8" to 90" in diameter. This system encourages orderly growth within the natural drainage basin boundaries. Elements Figure E8.e: Existing and Future City of Lincoln Wastewater Improvements <
> *Note: Wastewater improvements to align with the 2050 Future Service Limit will be updated with the next Wastewater Master Plan.* Elements ## Water Resource Recovery Facilities There are two water resource recovery facilities (WRRF) in operation: The Theresa Street and Northeast Wastewater Facilities serve different areas of the City. The Theresa Street facility is located at 2400 Theresa St., near N. 27th Street and Cornhusker Highway, and currently serves approximately 70% of the City. The Northeast facility is located at 7000 N. 70th Street, near N. 70th and Salt Creek and serves the remaining 30% of the City. By the year 2040, because of strong growth projected to the south and east, the Northeast Facility will have increased to about 40-45% of the service and the Theresa Street Facility will serve the remaining 55-60% of the City. The Theresa St. facility also receives liquid wastes from liquid waste haulers providing services to Lincoln and Lancaster County businesses and residents. Treated effluent from both facilities is discharged into Salt Creek. Prior to being discharged into Salt Creek, the effluent from the Theresa Street Facility is used in an innovative process to heat and cool buildings located at the Nebraska Innovation Campus (NIC). Treated effluent is pumped from a n pump station at the recovery facility to a heat exchanger building located on the NIC. The effluent is the thermal energy source for the Central Renewable Energy System (CRES). The thermal property is transferred between the two systems and CRES water is pumped to each tenant building on the NIC. The two systems do not mix, and the effluent is then returned to the treatment facility discharge point into Salt Creek. Wastewater solids that have been biologically treated and stabilized are called biosolids. Following treatment and processing, biosolids become a nutrient rich organic material that can be recycled and applied as a fertilizer to improve and maintain productive solids and stimulate plant growth. All biosolids produced from the two water resource recovery facilities meet Federal and State regulatory standards and are beneficially applied on cropland through a farm cooperator program operated by the City’s Wastewater System Biosolids Coordinator. <
> Biogas, consisting of methane and carbon dioxide, is a byproduct of the wastewater solids stabilization or anaerobic digestion process. At the Theresa Street Facility, biogas is recovered and processed as renewable natural gas (RNG). Once processed, the RNG is marketed and distributed as a transportation fuel qualifying as an advanced biofuel under the EPA Federal Renewable Fuels (RFS) and California’s Low Carbon Fuel Standard (LCFS) programs. Revenue is generated from the sale of environmental and monetary attributes through both programs. Lincoln Transportation and Utilities completed the Lincoln Wastewater Facilities Master Plan in 2015. The plan is a guide for short-term and long-term improvements to the infrastructure of the Lincoln Wastewater System during the planning period, as well as potential service extensions beyond Lincoln’s anticipated future service limits. ### Rural and Town Wastewater Services Residents in unincorporated areas employ on-site septic and/or lagoon treatment systems. Lancaster County has adopted standards for on-site wastewater treatment systems that are enforced by the Lincoln – Lancaster County Health Department. Each incorporated city and village in the county operates a municipally-owned wastewater collection and treatment facility. In addition, on-site septic treatment systems are permitted within their planning and zoning jurisdictions. Elements There are a number of subdivision developments in Lancaster County that utilize shared infrastructure systems. These systems are typically for sewer collection and treatment within the development and provide no connections or services to outside development or communities. Three Sanitary Improvement Districts provide sanitary sewer to local residents: Cheney (lagoon), Holland (lagoon), Emerald (lagoon). These larger point-source and community systems (towns, subdivision systems and SIDs) are reviewed and approved by the Nebraska Department of Environmental Quality. ## Watershed Management As discussed in the Environmental Resources Element, Lancaster County is primarily within the Salt Creek watershed. When it rains in Lincoln, stormwater flows into drainage inlets, gutters, and underground pipes before reaching Salt Creek, which drains into the Platte River. Rain that falls on hard surfaces like rooftops, parking lots and other surfaces can carry pollutants into our streams and lakes. Lincoln occasionally gets more rain than the storm drain system or streams can adequately convey, which can lead to flooding. ### Floodplain and Stormwater Management Local floodplain and stormwater management responsibility is shared by the City of Lincoln, which assumes care of the tributaries and storm drain system, and the Lower Platte South Natural Resources District (LPSNRD), which maintains the main stream channels. Both the City of Lincoln and Lancaster County participate in the National Flood Insurance Program administered by the Federal Emergency Management Agency (FEMA). Water quality from stormwater is managed under the Federal Clean Water Act. The National Pollutant Discharge Elimination System (NPDES) program addresses non-agricultural sources of stormwater discharge. This program is administered in the State by the Nebraska Department of Environment and Energy (NDEE). The City of Lincoln in coordination with the LPSNRD developed a Clean Water Program to identify the actions needed to improve the quality of stormwater runoff from developed (post-construction) areas to meet, at minimum, state standards. ### Comprehensive Watershed Management The City of Lincoln Watershed Management program combines previously separate floodplain and stormwater management initiatives. This approach recognizes that floodplains, tributaries, and upland areas are all part of a comprehensive, integrated watershed system. A comprehensive approach to watershed planning is crucial as development expands into new basins around the Lincoln city limits and as redevelopment occurs within the existing urban area. A comprehensive watershed management program needs to incorporate a range of strategies including land use planning, conservation design for new subdivisions, conservation efforts, appropriate standards for floodplains and stormwater, flood warning system development/expansion, stream stabilization, stormwater storage basins, and other structural flood control efforts. As part of the overall watershed management program, the City, in cooperation with the LPSNRD, has developed a unified master watershed management plan. This plan is a compendium of previously approved Watershed Master Plan Studies and is to be used as a planning tool to be referenced in conjunction with proposed developments and as a guide in the preparation of future capital improvement projects. The Comprehensive Watershed Master Plan evaluates and proposes projects to address a wide range of water resources, and is formulated in cooperation with other local, state and federal agencies. Elements <
> Watershed planning and the performance and adequacy of stormwater storage basins and other measures to prevent increases in peak flows will require continued assessment with the growth of the City. Upstream detention facilities are critical to preventing localized downstream flooding, further increases to the floodplain, and if properly designed also help to reduce pollutant loads to downstream waterbodies. Development and significant redevelopment projects need to meet stormwater quality requirements through the use of Stormwater Quality Best Management Practices facilities. Requirements can be accomplished through the use of detention facilities that are developed in a manner that incorporates water quality best management practices and causes minimal adverse impact to existing residential, agricultural and other land uses. Basin management plans are a more recent watershed planning initiative that is part of the ongoing effort to proactively forecast, evaluate and manage stormwater quality impacts associated with existing and future development and redevelopment of the City. These plans provide available information on the source of contaminants and how such contaminants can be reduced through projects and programs. They also include information for the education of the public on water quality and include projects to protect and restore stream channels. The first of these basin management plans (Antelope Creek from Holmes Lake to Salt Creek) provides a framework upon which future plans may be built. ### Floodplain Management The overriding policy for the floodplain is a “No Adverse Impact” policy for the City and County, which means that the community has a goal of insuring that the action of one property owner does not adversely impact the flooding risk for other properties. The majority of the strategies below relate back to and support this umbrella concept. The No Adverse Impact concept is supported by the Map 1.3: Growth Tiers with Priority Areas which designates the majority of floodplain areas outside of the existing urban area as Green Space, Environmental Resources, and Agricultural Stream Corridors. This supports the opportunity to reduce the risk of flood damage to life and property and to preserve the important functions of floodplains. This concept is more explicitly supported by the Salt Creek Flood Storage Area Standards and the Flood Regulations for New Growth Areas which protect flood storage in the areas with greatest risk for impacts. While regulations to support the No Adverse Impact concept have not been fully adopted throughout the Existing Urban Area or in the County’s jurisdiction, goals and strategies in this plan support minimizing impacts to the floodplain in all circumstances. Elements # Solid Waste (Sustainable Materials Management) The City of Lincoln has entered into interlocal agreements with Lancaster County and all the villages and cities in Lancaster County, with the exception of Hallam, to serve as the lead agency for solid waste management in the County. The Lincoln Transportation and Utilities Department, Solid Waste Operations in conjunction with the Lincoln-Lancaster County Health Department Environmental Division oversees the City and County's solid waste management programs. In 2013, the City completed the Solid Waste Plan 2040, which shall serve as a guidance document, communication tool, and a resource for policy decisions. This Plan was updated in 2021 and the recommendations shall be incorporated into that guidance document. ## Collection Lincoln Municipal Code requires collection and removal of solid waste by a licensed waste hauler from single family residences at least once a week and at least twice a week for all other residential properties. However, homeowners are allowed by ordinance to self-haul waste from their own residence to the City operated small vehicle transfer station located at 5101 North 48th Street. All licensed waste haulers are also required to offer recycling services to all residential and commercial customers. Three villages in the county — Bennet, Davey and Panama — operate solid waste transfer stations. Residents transport their waste to these facilities. All other communities in the county offer residential waste collection. ## Disposal The City of Lincoln's primary solid waste sanitary landfill, Bluff Road Landfill, is located at Nebraska Highway 77 (N. 56th St.) and Bluff Road, just north of I-80. This facility began operating in the late 1980's. It accepts approximately 800 tons of waste each day. The facility is projected to be at capacity near the year 2035 based on current generation rates and the projected population growth rate of 1.2 percent per year. Planning for expansion of the Bluff Road Landfill on City owned property just east of the existing site is underway and formal site approval by Council has been completed via resolution. The City policy of public ownership, operation and financing of integrated solid waste management services is anticipated to continue during the planning period. The expansion into this additional landfill area has not been permitted by the State of Nebraska Department of Environment and Energy. A portion of Lincoln's and Lancaster County's waste is also being exported outside Lancaster County. Some waste haulers choose to utilize landfills in other nearby counties. The City also operates a landfill for construction and demolition debris at 5101 North 48th Street. This facility is located on the site of the County's previous solid waste landfill, and it also hosts the small vehicle transfer station for the general public to bring waste to the landfill. The construction and demolition debris landfill is projected to have capacity through the year 2029. While this landfill should be completed and closed, the N. 48th Street transfer station and recycling areas are scheduled to remain. ## Environmental Services Lincoln's Solid Waste Operations and the Lincoln-Lancaster Health Department (Environmental Health Division) provide a wide assortment of integrated solid waste management services. These range from source reduction and pollution prevention to recycling and disposal. Many of these services are voluntary — that is, they are not specifically required by any federal or state regulations. The City considers these services to be like any other utility, and recycling services should be accessible to every resident in the community. Diversion of waste from landfill disposal extends the life of the landfill, conserves natural resources, contributes to the local economy by creating jobs to collect and sort recyclables and reduces greenhouse gas emissions by producing products with recycled content versus raw material. Recycling collection site were Elements consolidated in 2020-2021 to optimize the system for collection, provide surveillance to prevent illegal dumping and efficiently utilize rate revenues. Development, maintenance and ultimate closure of the Bluff Road Landfill, as well as daily operations, are funded by a fee collected for disposal of wastes in the landfill. Other solid waste management programs are funded by a combination of user fees, revenue bonds and an occupation tax assessed to refuse haulers collecting refuse in the city or in the county and utilizing the Bluff Road Landfill for disposal. These forms of financing for solid waste management are anticipated to continue during the planning period. In 2018, the City of Lincoln passed a resolution banning corrugated cardboard from the City’s Landfills. This resulted in diversion of over 14,000 tons annually of this material. This resolution also required every waste collection company to offer curb-side recycling to all of its customers. Recycling helps to save landfill space, conserves resources, and reduces greenhouse gas emissions. For those reasons, the City has established a goal of increasing waste reduction and recycling and reducing the per capita rate. This goal in accordance with the Solid Waste Plan 2040 and the 2021 Update reduces the per capita disposal rate of 1,970 pounds per person in 2014 to 1,510 pounds per capita per year by 2050. The City manages multiple recyclable collection sites in the City of Lincoln, accepting newspapers, cardboard, mixed paper (junk mail, magazines), glass bottles, plastic bottles, tin cans and aluminum cans. <
> Residents and businesses also have the option to subscribe to single stream recycling collection services through private haulers for a nominal fee. Commercial waste generators that generate sufficient amounts of cardboard, office paper, or other recyclables can also obtain collection services for specific recyclable commodities. ### Landfill Gas Collection and Control Landfill Gas consists of about 50% methane and 45% carbon dioxide, with other trace gases resulting from biological decomposition of solid waste. Methane is of particular concern as a greenhouse gas since each unit of methane has an effect equivalent to 21 units of carbon dioxide. An active landfill gas collection system is in place at the Bluff Road Landfill and in cooperation with the Lincoln Electric System’s Terry Bundy Generating Station is producing approximately 4 MW of electricity. Future collection phases will be constructed as landfilling of waste continues until the landfill reaches capacity. As additional methane is produced from the landfill the city plans to evaluate and implement a best use of this resource, including expanding electrical production, injection to a gas pipeline for use as vehicle fuel or other uses for this non-fossil, low carbon energy source. ### Strategies for Solid Waste Management The guiding principle of privately-owned and operated refuse and recyclables collection services with public ownership, operation and financing of other solid waste management services related to disposal, transfer, processing and environmental protection will continue during the planning period. Other services related to managing solid wastes are currently offered by privately-owned business and include material processing and organic waste composting facilities. The private sector also operates material reuse services as a component of a comprehensive integrated waste management system. Elements The management of solid waste is beginning yet another paradigm shift; one that recognizes the resource value of the materials currently being put into landfills. The decades long concept of the linear economy (often referred to as “take, make, waste (or dispose)”) is shifting to the circular economy, which employs strategies that use the Earth’s finite natural resources and thru improved product design and manufacturing processes consciously minimize the environmental impacts from production and consumption. The concept of a circular economy is much more than recycling; much more than zero waste concepts. It is considered and promoted as a viable solution to challenges like climate change. In contrast to the linear economy, the circular economy concludes nothing is waste and promotes thinking and behavior to that end; but, it will take decades to transition. At the local government operational level, the concept of the circular economy can be thought of as sustainable materials management (SMM). Again, a rather recent paradigm shift from terminology such as solid waste management. Information suggests the EPA began this transition in 2010 when the Office of Resource Conservation and Recovery shifted program emphasis from a broad array of resource recovery initiatives to sustainable materials management. Figure E8.f: Solid Waste Circular Economy <
> Electric Service The Lincoln Electric System (LES) is owned by the City of Lincoln. It is operated under the direction of an administrative board appointed by the Mayor and ratified by City Council. LES is revenue producing and self-supporting (i.e., no tax funds are used by the system). LES provides electric service to the City of Lincoln and much of the surrounding area within Lincoln’s three-mile planning jurisdiction. The LES service area includes the City of Waverly and the unincorporated villages of Cheney, Walton, Prairie Home, and Emerald. The balance of Lancaster County, including cities and villages, is served by the Norris Public Power District. Norris Public Power District (Norris) and Lincoln Electric System (LES) have a formal Joint Planning and Service Area Adjustment Agreement. This agreement establishes a “Joint Use Area” which is primarily east and southeast of Lincoln. LES provides all electrical generating capacity and energy, but both LES and Norris, own distribution facilities in the area. LES and Norris may amend this joint area in the future. Elements The customer-owned utility should continue to maintain a diverse generation portfolio with a balanced mix of resources. By the year 2050, the LES peak load is projected to increase by about 121 megawatts (MW) to a peak load of 888 MW. This forecast includes load reductions through the LES Sustainable Energy Program and the Air Conditioning Load Control programs. LES will need to continue to build new 115 kilovolt (kV) lines in growth areas in order to serve the new development. In addition, LES will need to add new substation sites to serve these new growth areas. Lincoln Electric System is actively involved in efforts to educate homeowners, builders, and businesses about energy conservation including publications, presentations and individual on-site assessments. Elements Figure E8.g: LES Service Area and LES/Norris Joint Planning Area <
> PlanForward 2050 3.111 Elements ### Wind Energy Lincoln Electric System currently operates multiple renewable resources within the county, including two wind turbines, a community solar project, and a landfill-gas-to-energy plant. In addition, LES currently has contracts for energy from regional hydroelectric generation and seven other wind projects. LES will continue to pursue the development of wind and other renewable generation technologies to the extent they are feasible, economical, and consistent with LES power supply needs. ### Technology Lincoln has developed a well-designed fiber optic network to serve residential, business, education, and public facilities. This network ensures a high quality of life, serve as an economic development tool, and provide efficient public services. In 2015, the City of Lincoln partnered with Allo Communications to complete a fiber optic network, providing faster broadband speeds, including 1-gigabit service available to every home and business in Lincoln. The project was completed in 2018. Technological innovation also includes the concept of creating a “Smart City”. Smart City technology includes a myriad of devices that communicate with each other to deliver a variety of different benefits – the range of scale and connectivity and complexity can vary greatly and lead to a variety of different outcomes. Smart City technology is not only what we see in the streets and buildings, but it is the invisible infrastructure that we do not see that is the glue that binds all this together. In some ways the quality and performance of this infrastructure is more important than the individual buildings it serves. In addition, the development of a Smart City is more than just incorporating technology into the physical landscape – the data collected is only useful if it’s organized, analyzed and used in daily operations to make the City more resilient, sustainable and efficient. ### Natural Gas Service Blacks Hills Energy owns and operates natural gas and distribution systems in Lincoln and eight other incorporated and unincorporated communities in Lancaster County. The company serves about 100,400 residential, commercial and industrial customers in Lincoln and another nearly 3,000 in Waverly, Walton, Cheney, Bennet, Firth, Panama, Hickman, and Holland. Two major interstate natural gas pipelines traverse the county. They are owned and operated by Northern Natural Gas and Natural Gas Pipelines of America. The interstate pipelines supply Black Hills Energy with natural gas at our town border station. Black Hills Energy is the only local natural gas distribution company in the county. Liquefied propane is the other major fuel used in Lancaster County. Several propane distributors serve urban and rural customers throughout the county. As the community and the nation grows, energy needs increase and additional pipeline facilities will be required. Key energy infrastructure is traditionally placed outside of city limits. As the community grows, it encroaches on these areas requiring additional safety investments and security enhancements as required by the Department of Transportation’s Pipeline and Hazardous Materials Safety Administration’s 49 Code of Federal Regulations Part 192. <
> PlanForward recognizes the need for pipelines in the community but also notes that certain land uses should not be located near pipelines. This new policy reinforces the need to separate residential uses and buildings with vulnerable populations from pipelines. P61. Industrial Zoning and Pipelines: Discourage residential land uses and buildings with vulnerable populations from locating near high-pressure pipelines and industrial zoning districts. Provide adequate separation between vulnerable populations and hazardous materials to protect and promote the public’s health. Elements ### Policies Related to this Element P48: Renewable Energy P49: Conservation of Energy P50: Water Quantity and Quality P51: Groundwater P52: Wastewater System P53: Gravity Flow Collection System P54: Wastewater Resource Recovery Facilities P56: Landfill P57: Landfill Gas P58: Waste Reduction P59: Electric Utility P60: Technology P61: Industrial Zoning and Pipelines ### Goals Related to this Element G8: Community Resiliency G10: Effective Government G14: Technology Elements # E9: Transportation This element discusses the multimodal transportation network with regards to the elements of the Long Range Transportation Plan which include transportation goals, outreach and public participation, needs assessment, needs based plan, funding outlook, and fiscally constrained plan. It describes a balanced local transportation system built upon PlanForward’s vision. <
> The Lincoln and Lancaster County transportation network supports the movement of people, goods and services within and through the area. It is essential for the growing community to properly maintain and expand the multimodal transportation network in a manner that supports existing residents and new growth envisioned by PlanForward. The Lincoln Metropolitan Planning Organization (MPO) 2050 Long Range Transportation Plan (LRTP) provides the blueprint for the area’s transportation planning process over the next 29 years. The transportation planning process is completed every five years as a collaborative effort among the City of Lincoln, Lancaster County, Nebraska Department of Transportation (NDOT), StarTran and other agencies. The LRTP meets all federal requirements and addresses the goals, objectives, and action steps to meet the community's vision for the future. <
> The City of Lincoln is the federally recognized MPO for the Lincoln Metropolitan Area serving Lincoln and Lancaster County to carry out transportation planning and decision-making. The MPO coordinates the planning activities of all transportation-related agencies and adopts long range plans to guide transportation investment decisions. The Lincoln MPO 2050 LRTP anticipates many changes will influence the transportation network. Changing demographics, employment patterns, and technologies will create challenges for provision of transportation services and facilities. These challenges are best addressed when the five themes of PlanForward are integrated with the eight goals of the LRTP as described and illustrated below. Elements A well-maintained transportation system. An efficient, reliable, and well-connected transportation system that leverages innovation and technology for moving people and freight. A multi-modal system that provides travel options to support a more compact, livable urban environment. A safe and secure transportation system. A transportation system that supports economic vitality for residents and businesses. A transportation system that enhances the natural, cultural, and built environment. Collaboration in funding transportation projects that maximizes user benefits. Transportation investments developed through an inclusive process that promotes equitable outcomes. <
> Elements The coordinated planning effort between the LRTP and PlanForward strengthens the connection between land use and transportation decisions. The Transportation Vision and Goals are described in *Chapter 2* of the LRTP. Lincoln and Lancaster County face significant financial challenges in the construction of new transportation facilities and the care and maintenance of an expanding and aging system. Technology changes and increasing demands for alternative transportation options will also present new challenges and opportunities to ensure that the transportation system equitably serves the needs of all people within the planning area. PlanForward refreshes the outlook for growth and land use in the City and County. Increased emphasis on mixed use redevelopment and infill within the existing City will add density concentrated along major transportation and utility corridors. While the density assumptions proposed in PlanForward are relatively modest, they are significant to the process of planning transportation infrastructure. PlanForward and the LRTP anticipate a community of complete neighborhoods with housing options in a variety of settings and walkable, bikeable, and transit access to commercial centers and entertainment. This approach leads to improved access for all transportation modes in existing neighborhoods, safe connections for all users, and construction of new neighborhoods with Complete Streets and accessible amenities over the next several decades. **Complete Streets are public and private streets that include some combination of appropriate infrastructure, as determined by the surrounding context, that accommodate all modes of transportation, including private vehicles, public transportation, walking, and bicycling.** As Lincoln and Lancaster County’s population continues to grow, there will be greater demand for additional transportation infrastructure. With aging infrastructure and increasing construction costs to provide sustainable and resilient infrastructure, transportation funding is strained to meet the needs for repair, replacement, and growth. This is due to several factors, including vehicle fuel efficiency, gas-tax rates not increasing with inflation or vehicle technologies, project cost inflation, and other federal and state resources not raising enough funds to meet the current and future demands of the network. The LRTP continues to address funding issues by evaluating options to gain efficiencies in the existing system, strategic investment in the growth of the transportation network, and providing a transportation network that encourages active transportation like bicycling and walking as reliable and equitable forms of commuting. Continued discussion about the need for, and approach to, increasing transportation funding remains a community priority. ### Existing Conditions and Issues An inventory of the existing transportation system offers a snapshot of how transportation supports Lincoln and Lancaster County today. The details of the assessment completed for the LRTP are described in *Chapter 4* of the LRTP. <
> Elements **Community Growth and Travel Patterns** PlanForward will accommodate population growth including associated commercial space and industrial areas through 2050. Increasing employment and economic growth will change travel patterns and demand. The transportation network currently supports almost 47,000 people traveling to work from outside Lancaster County and more than 127,000 people traveling to work from within the County. Transportation costs for area residents make up an average of 23% of total household costs. This factor can vary greatly based on household income and personal vehicle use. More than 81% of residents in Lincoln and Lancaster County commute to work by driving a single occupant vehicle. Approximately 6% use public transportation, walk, or bike to work. Providing infrastructure for all modes of transportation is necessary to support future anticipated growth envisioned by PlanForward. **Active Transportation and Multi-Use Trails** Supporting active modes of transportation such as walking and bicycling is a crucial characteristic of a multimodal transportation system – improved public health and quality of life can be linked to communities that have enabled safe, comfortable, and convenient active transportation. Today, Lincoln's biking and walking network includes 255 miles of trails, 145 miles of on-street bike routes, and 1,500 miles of sidewalk. The Lincoln Bike Plan (2019), Complete Streets Policy, expanded bike share infrastructure, and Shared Micromobility ordinance have increased the use of active transportation modes in recent years. The Lincoln Bike Plan identified approximately 56% of streets that are considered low stress for bicyclists, meaning bicyclists have minimal interaction with motor vehicles. Adding dedicated bike lanes and advancing Complete Streets program recommendations for new projects will support a growing network that accommodates more bicycles, scooters, and pedestrians in Lincoln and connect to the expanding trail network throughout the County. The Lincoln City Council approved a shared micromobility scooter pilot program which launched September 1, 2020. Scooter vendors provided up to 250 electric scooters for public use within downtown Lincoln. With more than 66,000 trips made in Lincoln during the first year, the pilot program expanded the use e-scooter on public roadways, sidewalks and bike lanes. Use was prohibited on hiker-biker or multi-use trails and within restricted areas such as the University of Nebraska-Lincoln campus, Centennial Mall, and the Nebraska State Capitol grounds. Vulnerable road users (i.e., motorcyclists, pedestrians, bicyclists and persons with disabilities or reduced mobility) present additional safety considerations for the transportation network. The previous 10 years of data for the City of Lincoln indicates that the reported rate of bicyclists and pedestrians involved in a crash with a vehicle is slightly improved today, although bike crash rates have steadily increased since lows accomplished in 2015. Perceived and demonstrated safety are key elements of successful bicycle and pedestrian networks. People may choose to ride or walk only if they feel safe and comfortable on the bikeway and pedestrian networks. According to the City of Lincoln Crash Data Analysis for 2012 to 2016, crashes involving pedestrians and bicyclists accounted for 3 percent of all crashes, but 12 percent of all severe crashes, which is disproportionate to the number of people bicycling and walking. Pedestrian and Bike Crash frequency is one of five intersection criteria the City of Lincoln uses to prioritize safety countermeasures. Elements <
> ***Existing Transit System*** StarTran, the division of the City of Lincoln responsible for public transit, operates 14 fixed bus routes within city limits. Service routes and operations are directed by the Transit Development Plan which works to optimize transit investments to meet the needs of both transit-dependent and mode-choice riders. In 2020, StarTran began operating VanLNK, the city-run, on-demand transit service that allows riders to hail a van by smartphone app and designate their pickup location and destination for a trip fee. The StarTran paratransit program serves those with a disability that prevents the person from riding a regular city bus. Lancaster County Public Rural Transit offers a north and south route provided on alternating days of the week between Monday and Thursday. Transit ridership served by StarTran reached approximately 2.4 million trips in 2019, which is an increase of more than eight percent from 2016. Limitations of the current transit system include the lack of a multimodal transit transfer center and an aging bus storage and maintenance facility. ***Existing Roadway System*** The Lincoln MPO is served today by an extensive system of streets and highways. This system ranges from roads capable of safely carrying thousands of vehicles each hour, down to local residential streets that help form the character of neighborhoods. The street system further plays a vital role in commerce by carrying products to all portions of the City and County. The rural road network also links the agricultural community to key transportation centers, allowing their commodities to be shipped around the world. <
> ***Surface Condition***: The City of Lincoln roadway network consists of almost 200 million square feet of paved surfaces. Effective maintenance of these roadways requires ongoing prioritization and management. With approximately 45 percent of the roadway surface areas of the City rated as Good or Very Good in 2017, the City can prioritize funding to keep these roadway surfaces in this condition for as long as possible. Preventing roadway surfaces from degrading to Poor conditions is more cost effective than reconstructing them. The County prioritizes street resurfacing work to maintain more heavily traveled roads to receive State funding for street resurfacing. Elements State highways are maintained by NDOT. Approximately 88% of interstate segments and 34% of National Highway System non-interstate segments were rated as Good pavement condition in 2019. The City, County, and State also track condition of more than 600 bridges to prioritize the maintenance and possible replacements that may be necessary. Approximately 69%, 39% and 73% respectively were rated to be in Good condition as of 2020. **Congestion:** Roadway use is measured by traffic volume data that is available from more than 1,350 intersections within Lincoln. The Lincoln MPO regional travel demand model is used to compare current traffic volumes with future traffic forecasts based on land use growth and planned network improvements. Vehicle miles traveled on the network are projected to increase approximately 35 percent during the planning period. Without making new investments into the transportation network beyond the existing system and projects committed within the next five years, the percent of congested roadways is projected to increase by 2050 from 4.8 miles to 51.1 miles or approximately 6.5% of the overall network. **Safety:** Safety is a top priority not only for Lincoln and Lancaster County but also at state and federal levels. State crash data collected over the five-year time period between 2014 and 2018 show that there were approximately 43,500 crashes in Lincoln and 1,400 in Lancaster County, an average of roughly 9,000 crashes per year. Crashes that involve injuries or fatalities are an important focus for safety study. Between 2014 and 2018, there were 9,947 crashes resulting in injury or fatality – approximately 22 percent – and the remaining crashes involved property damage only. The City of Lincoln performed a crash data analysis in 2019 to measure how well each intersection performed from a safety context with reference to other similar intersections. Findings of the analysis help prioritize intersection improvement projects. **Existing Freight System** Lincoln and Lancaster County’s economic vitality and the quality of life it offers depends on the ability of manufacturers, retailers, and distributors to efficiently transport their goods throughout the region. From package carriers to pizza deliverers, many workers in freight delivery roles rely on the transportation system to carry out their day-to-day tasks efficiently. Congestion, poor maintenance, and other street issues are particularly disruptive to their business operations. Even people without a direct connection to the freight industry benefit from it every day, further highlighting the economic necessity of smooth delivery operations. The proliferation of digital shopping and smartphone apps began well before the COVID-19 global pandemic fundamentally changed reliance on goods and services provided through online interfaces. Door-to-door pickup as well as delivery of everything from groceries and restaurant meals to dry cleaning is changing the freight industry considerably. Coordination efforts with the freight community to further integrate freight interests into the transportation planning process supports transportation decision making. Specific activities that are beneficial to the freight industry include ongoing information dissemination and dialogue efforts to inform the freight industry of upcoming projects and related impacts on detours and routing. Other activities include moving forward with projects involving intersection improvements and improvements along major freight routes, such as Highway 2. Elements <
> Freight movement by trucks represents approximately 86% of all freight value and approximately 81% of the total weight of freight moved through the area. This movement places a local as well as regional prioritization on maintaining major highways of the transportation network. Although proportional values may change during the planning period, truck freight will continue to represent the greatest demand for freight movement compared to rail, pipeline, and air freight during the planning period. The South Beltway project will redirect existing freight movements from the current Highway 2 alignment and increase the system efficiency and reliability for future freight haulers. ### Existing Rail System A network of tracks serving two Class I railroads and two Class III railroads extends radially from central Lincoln. Four railroad companies operate lines in Lincoln and Lancaster County: the BSF Railway, the Union Pacific Railroad (UPRR), the OL&B Railroad, and the Omaha Public Power District (OPPD). Activity on the railroad lines ranges from 1 train per day (on the UPRR and OPPD lines) to 63 trains per day on the BNSF-Creston line. Beginning in January 2021, operation was renewed along the Highway 2 line with approximately 300 trains annually delivering freight to the OPPD plant. Coal and agricultural products are the primary freight being moved by train through Lincoln, with some local manufacturing such as Kawasaki shipping light rail cars to the east coast. While the railroad lines through Lincoln and Lancaster County are critically important to the local economy, many railroad crossings with the street network are at-grade resulting in safety problems and travel delays. The Lincoln/ Lancaster County Railroad Transportation Safety District (RTSD) was formed in 1971 and identifies railroad crossings in need of work, prioritizes projects, and conducts studies to plan future work. The RTSD’s mission has been to eliminate, as much as possible, conflicts between highway traffic and railroads in Lincoln and Lancaster County. Since its inception, many projects from its early long-range plan have been completed. The number of at-grade railroad crossings of public streets in Lancaster County has been reduced from 210 in 1970 to 114 today. ### Existing Airports and Airfields The Lincoln Airport is the major air facility servicing Lincoln, Lancaster County, and the region. It provides an important transportation link to national and international markets. It is located in the northwestern part of Lincoln, with access provided by Interstate and State highways. Smaller private airports and airfields are also located throughout the County. The current Airport Master Plan and future updates can prompt landside transportation infrastructure projects that support intermodal connectivity and expansion of complementary land uses adjacent to the airport. Elements # Community Input on Transportation <
> **Major Public Outreach Efforts** Broad based, inclusive community outreach efforts for the LRTP encouraged active participation in identifying the vision, goals, and needs of the region. In response to practical challenges COVID-19 Directed Health Measures presented, public outreach methods successfully utilized digital resources and tools that could bring the public into the participation process. The Lincoln MPO reached out to stakeholders across the region through online engagement opportunities, virtual public meetings, in-person public meetings, and focus groups representing the diverse interests of Lincoln and Lancaster County. Community input processes and outcomes are described in the *Chapter 3* of the LRTP. Information gathered throughout the LRTP community engagement revealed several recurring themes: * Technology generates both excitement and some concern; it should improve travel efficiency but must also improve safety for all users, not just cars. * As Lincoln experiences continued growth (both infill development and new development in the fringe areas), the transportation network needs to support evolving travel needs, including accessible transportation options like biking, walking, and riding transit. * Ongoing maintenance remains a top priority for the public. * Environmental awareness has emerged as a new key theme of the community, stemming from the Lincoln Climate Action Plan and the community’s understanding of transportation’s role in achieving sustainability goals. * Equity is a desired focus for guiding transportation planning and decisions; access to a transit system and safe streets that accommodate all modes is important for underserved and overburdened communities. * Additional funding is needed to construct and maintain the multimodal transportation system. * Desire for Complete Streets is an emerging theme to support more active transportation, specifically the on-street bicycle network and trail system. * Travel Patterns experienced a significant change during the COVID-19 pandemic. Directed Health Measures requiring work and education to occur remotely created once in a lifetime changes to trips for work, shopping, and services. Significant growth of on-demand and freight delivery also introduced new variables for travel demand. These changes were not perceived to be permanent, but some aspects are anticipated to continue. Planning for future travel demands should reflect shifting travel behaviors. Elements # Planning for the Transportation Needs of 2050 ## The 2050 Needs Based Plan The LRTP Needs Based Plan identifies current and future programs and projects in the transportation system that would be necessary to address all the transportation needs of Lincoln and Lancaster County through 2050. The details of the Needs Based Plan are described in the Chapter 5 of the LRTP. Current and future needs and candidate projects for the transportation system were compiled from various sources that include: * Current planning studies * MPO planning committees * MPO technical tools (e.g., the 2050 Travel Demand Model, Growth Projections, GIS analysis and engineering studies) * Community input through Focus Group meetings, public meetings, and online surveys Surface transportation needs cover all modes including roadway, transit, bicycling, walking, and rail (specifically the railroad crossing needs). Satisfying these needs would realize the transportation vision if funding limitations were not a consideration. The Needs Based Plan includes more than $1.8 billion in roadway capital projects and nearly $60 million in trail projects (in 2021 dollars), among other needs. Projects built in future years will be more expensive than 2021 estimates. Increasing project costs and ongoing transportation needs will exceed the ability to fund all projects and programs identified in the Needs Based Pan. ## Fiscally Constrained Transportation Plan ### Revenue Forecasts Between 2022 and 2050, an estimated $4.6 billion in transportation revenues can be reasonably expected for the Lincoln MPO. A combination of Federal, State, local, private and donated funding serve to provide programmatic funding needed to complete multimodal transportation projects. The available revenue sources and revenue forecasts are described in the Chapter 6 of the LRTP. Approximately $3.08 billion of the transportation revenue is either restricted to specific types of projects (e.g., Federal Transit Administration funds must be used for transit capital and operations) or committed to specific projects or categories (e.g., 25% of Lincoln on the Move sales tax funds are committed to specific growth projects). The remaining $1.53 billion of transportation revenue is flexible and could be used in a variety of ways to achieve the Lincoln MPO goals. The Surface Transportation Block Grant Program (STBG) funds, a portion of the flexible funds (approximately $239 million), can be used in Lincoln or Lancaster County. The LRTP recommends a 70% (Lincoln)/30% (Lancaster County) split for these funds. This split will provide federal funding for construction of priority projects in the urban and urbanizing areas (that will likely be annexed into the City of Lincoln), as well as some critical rural projects. Revenue forecasts are not adequate to achieve the goals of LRTP and meet all of the region’s transportation needs. The LRTP strongly encourages pursuit of additional revenues to fund the transportation improvements that are vital to a thriving community. The LRTP funding strategy recognizes the limited funding availability and strives to optimize the use of the reasonably expected funds based in input from the LRTP Committees and the community in combination with technical analysis. The LRTP funding strategy for the urban area focuses on applying available revenue to take care of the existing system – fully funding operations and maintenance, and prioritizing rehabilitation of critical roads and bridges. Elements The Plan recognizes the importance of making the system function as efficiently as possible while supporting the community growth envisioned in PlanForward. The Urban Area funding strategy includes: * Focusing operations and maintenance, road and bridge rehabilitation, as well as trail and sidewalk rehabilitation * Encouraging flexible and performance-based geometric designs that effectively address congestion within funding limitations and right-of-way constraints * Placing emphasis on addressing congestion at intersection bottlenecks and leveraging technology to improve the efficiency of major corridors * Supporting community growth through public-private partnerships * Supporting both infill development and Lincoln’s Climate Action Plan through continuation of funding for transit service and bicycle and pedestrian infrastructure ### Fiscally Constrained Transportation Plan The process of developing the LRTP ensures that the available funds are allocated to address needs that best support the combination of transportation goals. Although available funding levels will limit the ability to address all needs identified in the Plan, the funding strategy and recommended resource allocation will optimize available funds and enable a functional transportation system. Figure E9.a illustrates the distribution of program funding and the portion of funding for each type of need of the recommended resource allocation described by the Plan. The resource allocation is detailed in the Fiscally Constrained Plan, as documented in Chapter 7 of the LRTP. ### NDOT Highways Program NDOT has identified 10 projects within the Lincoln MPO, totaling over $616 million in needs (2021 dollars). The <
> $419 million in state and federal revenues dedicated to the NDOT Highways Program will primarily address asset preservation needs, completion of the South Beltway project scheduled to be completed by spring of 2024, and the West Beltway project. There is not adequate funding to complete all 10 projects, particularly since the construction Elements cost of the projects will increase over time and the revenue growth is not anticipated to keep pace with the construction cost increases. ### Lancaster County Rural Roads Program Lancaster County’s roads and bridges form the backbone of the local economy. These important farm-to-market and home-to-work routes connect Lancaster County’s residents to economic opportunities, centers of education, and entertainment venues in the local market and to points beyond. Close coordination between the Lancaster County Engineer’s Office and MPO staff occurred during the development of the LRTP update to identify a needs based rural roads program. <
> Lancaster County annually updates its One and Six-Year (1 & 6) Road and Bridge Construction Program, and the Planning Commission reviews this program with regards to conformity with the Comprehensive Plan. The LRTP supports the Transportation goal, element, and policies of the Comprehensive Plan. While many of the 1 & 6 projects are included in the LRTP Rural Road and Bridge Capital Projects, additional bridge projects may be needed. The 1 & 6 project needs typically fall in the following program areas: | Operations & Maintenance | Pavement Maintenance & Pipes | Road & Bridge Capital Projects | | :--- | :--- | :--- | | • Bridge scour repair | • Pipe culvert replacements | • Bridge sized structures | | • Bridge pile repair | • Under 20 concrete box culverts | • Grading in preparation for pavement | | • Bridge channel repair | • Pavement preservation (fog, crack and chip seal, etc. | • New pavement | | | • Pavement overlays | • Intersection improvements | | | • Pavement overlays and widening | | The rural roads program funds three program areas: Capital Projects, Pavement Maintenance & Pipes, and Operations & Maintenance. A gap analysis conducted for Lancaster County in 2018 identified a significant Elements Figure E9.b-1: Fiscally Constrained Rural Road and Bridge Capital Projects <
> | | | | | :--- | :--- | :--- | | # Project ID | Fiscally Constrained Lancaster County Roadway Projects | City And Village Limits | | | Committed Lancaster County Roadway Projects | * Partially Funded | MPO Boundary | 0 4 Miles | | | NORTH | | Elements Figure E9.b-2: Fiscally Constrained Urban Roadway Capital Projects <
> Elements annual funding gap, which would continue based on the LRTP revenue forecasts and recommended resource allocation. The LRTP identifies 95 capital projects in the County, with project costs totaling over $160 million (2021 dollars). With approximately $188 million of available revenue allocated to rural road capital projects over the next 29 years, only 26 of these projects listed on Table 7.5 in Chapter 7 of the LRTP could be constructed when accounting for construction cost inflation over time. Sixty-nine capital projects would remain unfunded. ### City of Lincoln Urban Roads Program Without additional revenue sources, several important transportation urban area project and program categories will not have adequate funding. Additional revenue sources, including continuation of the Lincoln on the Move sales tax, would significantly help to meet the community’s transportation needs. The Lincoln on the Move 1/4 cent sales tax and the Highway Allocation Bond will allow the city to construct more projects in the first four years of the plan, with an average funding level of nearly $22 million per year for capital projects. After the 1/4 cent sales tax sunsets in 2025, the average funding level for capital projects would be reduced to $16 million per year, reducing the number of projects that can be completed annually in the final 25 years of the plan. ### System Operations & Maintenance, Minor Intersection: The Operations and Maintenance program meets the day-to-day requirements of the urban street system. The street maintenance program includes services and functions like street sweeping, snow removal, stormwater ditch and drainage maintenance, culvert maintenance, minor intersection improvements, mowing, crack sealing, pothole repair, signing, and pavement markings, among other tasks. The cost to maintain and operate the transportation system is increasing. Lincoln Transportation and Utilities (LTU) employs 125 people to maintain and operate the transportation system. As the cost of materials, wages and healthcare for employees increases, the cost to complete the essential functions of operations and maintenance (O&M) increases. An estimated $1.08 billion is needed for Lincoln’s O&M program through 2050, which represents a higher proportion of the projected revenues than anticipated in the previous LRTP. The LRTP fully funds Lincoln’s O&M program. ### Road & Bridge Rehabilitation: The Rehabilitation program includes the repair of arterial and residential roads when the pavement conditions deteriorate to an unacceptable level as well as bridge rehabilitation and signal replacements. Money invested today in the ongoing maintenance and repair of the street system saves a significant amount of money in the future by avoiding the costs associated with full reconstruction of roadways. The City’s target is to rehabilitate 5 percent of the arterial street system each year and 3 percent of the residential street system. That is, each arterial street would be rehabilitated once every 20 years, and each residential street would be rehabilitated every 33 years. The costs associated with achieving this goal will increase as the system ages, as the community grows and adds miles of streets to be maintained, and as construction costs increase over time. <
> <
> Elements The LRTP funds the Rehabilitation program at a level commensurate with the 2040 LRTP. This includes $518 million of committed and flexible funds, which equates to approximately 350 lane miles when accounting for construction cost inflation. This amount will not fully address Lincoln’s road and bridge rehabilitation needs. **Rail Crossing Program:** Rail crossing projects serve the needs of freight and passenger movements as well as present challenges for vehicles and passenger safety. The LRTP maintains a list of candidate railroad grade separated crossing projects that could be completed over time. The Needs Based Plan for railroad crossings include safety improvements at crossing locations and grade separation projects at 12 crossings. The Railroad Transportation Safety District (RTSD) and State Train Mile Tax revenue provide dedicated funding to improve the safety of railroad crossings through the addition of crossing gates and flashers at at-grade crossings, railroad crossing surface upgrades, pedestrian and bicycle crossings, as well as grade separation projects. With approximately $236 million of committed funding, the railroad crossing program is anticipated to address high priority crossing improvements but will not address the full needs of the program. **Studies, Preliminary Engineering, ROW & Statutorily Required Records:** Roadway Capital Projects: Capital projects include major widening projects, new/reconstructed interchange and major intersection projects, construction of the East Beltway, urban improvement projects (bringing rural roads to two lane urban standards), and other corridor improvements. The LRTP includes 105 urban street capital projects estimated to cost at least $1.04 billion (in 2021 dollars). Identified projects would support the effort to address future congestion anticipated with new growth. **Roadway Capital Projects:** Capital projects include major widening projects, new/reconstructed interchange and major intersection projects, construction of the East Beltway, urban improvement projects (bringing rural roads to two lane urban standards), and other corridor improvements. The LRTP includes 105 urban street capital projects estimated to cost at least $1.04 billion (in 2021 dollars). Identified projects would support the effort to address future congestion anticipated with new growth. Eleven projects with committed funding are anticipated to be constructed within the next four years, and 10 public-private partnership (PPP) projects are expected to be constructed during the LRTP planning horizon. The plan allocates $500 million to roadway capital projects consists solely of committed funds; that is, no flexible funds are included due to the funding shortfall. The amount of funding is anticipated to fund 41 projects listed on Table 7.6 in Chapter 7 of the LRTP (including the 21 committed and public-private partnership projects) when accounting for construction cost inflation. Sixty-four projects remain unfunded. <
> **Two Plus Center Turn Lane Projects:** The City of Lincoln has routinely added a center left turn lane as part of programmed street rehabilitation along two-lane minor arterials and some collector roads. Approximately $51 million (in 2021 dollars) would be required to complete the 14 miles of two plus center turn lane projects. Elements The LRTP allocates approximately $17 million to Two Plus Center Turn Lane projects. These projects are typically done opportunistically in conjunction with roadway rehabilitation projects, and the incremental cost to add the center turn lane is funded through this program. With a typical incremental cost of $2.25 million per mile (2021 dollars), this allocation is anticipated to fund an approximately 2.4 miles of Two Plus Center Turn Lane Projects when accounting for construction cost inflation. Another 1.8 miles of Two Plus One construction will be constructed as a part of federal aid projects in the next four years. Ten miles out of the 14 miles of identified Two Plus One projects would remain unfunded. **ITS and Technology**: The urban street network also relies on Intelligent Transportation System (ITS) and technology investments to increase highway safety, mobility, security, economic health and community development while preserving the environment. Programmatic costs for wide-spread investments are not fully developed, but continuing to deploy ITS solutions to address congestion in the region is identified as a need. Approximately $59 million is allocated to ITS and Technology to allow the continuation of existing programs, including Green Light Lincoln, annual signal equipment upgrades, as well as some planned technology improvements such as automated traffic signal performance measures. The revenue will not, however, support the large capital costs required to invest in new technologies such as transit and emergency signal priority deployment and advanced traffic management system implementation, nor does this level of funding enable LTU to have a pool of funds to opportunistically invest in emerging technologies in transportation. **East Beltway Preservation**: Approximately $23 million is allocated to East Beltway preservation which includes contributions from both Lancaster County and the City of Lincoln. This funding will be used to preserve a portion of the 960 acres of land needed for the future corridor. The public identified the East Beltway as one of the highest priority Roadway Capital Projects; proceeding with construction of a project this size depends on additional funding from the state and/or federal government. No state or federal funding has been identified for completing the East Beltway project. The estimated cost of the project exceeds $315 million (in 2021 dollars). ***Transit*** Providing efficient transit services throughout the city requires careful consideration of the number of routes, the frequency of service, and the hours of service. The Transit Development Plan (TDP) adopted in 2016 provides the framework for monitoring and modifying transit services in response to changes in development patterns and user needs. The TDP is based on adopted service standards and policies and is periodically reviewed and updated by Lincoln Transportation and Utilities – StarTran, under the guidance of the StarTran Advisory Board and the public. The TDP is the main planning document for transit services in Lincoln and is currently being updated with planned completion planned in 2022. <
> Elements Public input provided for the transit system during development to the LRTP encouraged adding similar levels of service during evening and weekend hours and continuing to improve support for intermodal connections for bikers and pedestrians. Transit users also recommend use of ITS and other emerging technologies that provide a reliable transit experience. Continued improvement of route information, streamlined fare payment systems, travel data, real-time bus location information and potentially driverless vehicle service were suggested as ways to support greater numbers of passenger who ride by choice as well as those that depend on transit services. The TDP update will provide recommendations for these ideas. Although Lincoln may not reach the density and demand needed to justify a bus rapid transit (BRT) system within the planning period, efforts should be made to identify potential routes and to concentrate efforts to increase density along potential BRT routes. The “O” Street and N. 27th Street corridors are likely candidates for planning and identification as long-term BRT routes. The projected increase in the 65 and over population creates challenges in service provision. This population increase will create a greater use of demand-responsive public transportation. While all fixed-route services are, and will continue to be, accessible, the need for increased complementary paratransit services will continue. Such services are expensive due to vehicle load constraints and operating policies; therefore, innovative variations of such services will be essential. Expanded transit service within the rural areas of the county or between Lincoln and other larger cities requires additional data to be collected and analyzed to monitor travel patterns in the hopes of identifying opportunities for regional transit. NDOT completed a Lincoln and Omaha intercity feasibility study in 2020. The Lincoln MPO should continue to be involved in these conversations. Operation of StarTran’s bus service is funded through a combination of Federal Transit Administration funds, state transit funds, bus fares, advertising, the University of Nebraska – Lincoln, and transfers from the general fund. The transit revenue forecast of $754 million consists of these committed and restricted funds, the vast majority ($742 million) of which directly funds StarTran’s capital expenses and operations. The remaining $12 million (in FTA 5310 and 5311 funds) provides grant funding for rural transit, hospitals, and non-profit organizations. Due to funding shortfalls, no flexible funds are allocated to transit. This funding level will allow for continuation of StarTran’s current service levels; however, it will not enable service extensions (longer hours and Sunday bus service) and may limit local match contributions to major projects seeking federal funds. *Table 7.7 in Chapter 7* of the LRTP identifies the StarTran funded and priority transit projects. These projects are expected to be funded within the Fiscally Constrained 2050 Plan. The TDP update may result in adjustments to the transit priorities in the region. Additional transit enhancements (such as next bus information and transit signal priority) will be coordinated through the ITS and Technology program, as funds allow. ### Active Transportation Walking, biking and other forms of non-motorized travel will support the growth scenario and other goals in PlanForward and will meet the demands for safe, connected, and equitable forms of transportation. The transportation network will require a network of connected infrastructure that not only supports, but encourages use of non-motorized transportation modes for transportation as well as recreation. Public input received during the LRTP process indicated that active transportation infrastructure investments will help the region achieve many of the transportation goals including Livability & Travel Choice, Mobility & System Reliability, Environmental Sustainability, and Transportation Equity. Elements <
> **Trail Rehabilitation:** As the trail system begins to age, rehabilitation of trails is becoming a larger issue. A rehabilitation program should be developed and funded adequately to complete projects as they are needed. Additionally, some trail segments have already begun to see more use than was originally anticipated. New trails should be built to a 10-foot width, and in some areas existing trails should be widened to 10 or 12 feet as they are rehabilitated to better accommodate the volume and mix of trail users. The LRTP allocates $14 million for trail rehabilitation, to reconstruct approximately 16 miles of trails when accounting for construction cost inflation. With nearly 100 miles of concrete trails that will reach their 50-year life expectancy by 2050, the trail rehabilitation program will be considerably underfunded. In addition to concrete trail reconstruction, trail maintenance program needs include bridge and sign replacements, trail widening to accommodate increasing use, mowing, snow removal, and tree control, among other ongoing maintenance requirements. **On-Street Bike Projects:** The City of Lincoln has a strong tradition of supporting bicycle travel, not only for recreation but as a means of transportation. The Lincoln Bike Plan depicts a comprehensive system of off-street and on-street facilities to safely connect neighborhoods and destinations and encourage bicycle travel. The network builds from the existing trail network and on-street bike facilities, including the N Street Cycle Track and bike lanes in the downtown area. It connects on-street bikeways and trails and will ultimately connect people riding bikes to key destinations like bus stops, schools, libraries, employment centers, and social destinations. The plan identified 88 intersection enhancements, 58 miles of new sidepaths, 47 miles of posted bike routes, 11 miles of bicycle boulevards, and other projects to expand the bicycle network. The Lincoln Bike Plan describes a *sidepath* as a separated path along a roadway that serves people bicycling and walking within the street right-of-way and are generally desirable along high-volume or high-speed roadways, where accommodating active transportation within the roadway is impractical. There is currently no committed funding source for implementation of the on-street bike network. The LRTP resource allocation includes a nominal allocation of $6.5 million of flexible funds to the on-street bike program, which will be used to stripe approximately 35 miles of bike lanes, accounting for construction cost inflation. However, this amount falls well short of the funding needed to implement the over 100 miles of proposed bikeways (some of which are more capital-cost intensive than bike lane striping) and the intersection crossing improvements identified in the Lincoln Bike Plan. The LRTP *Table 7.9 in Chapter 7* of the LRTP identifies 11 roadway projects recommended to include the on-street bike project recommended in the Lincoln Bike Plan when constructed. **Pedestrian, Bike Share and Travel Demand Management:** Lincoln currently has a well-developed sidewalk system, and the requirement of sidewalks on both sides of all streets should continue. However, this system needs rehabilitation in many areas. Ideally, the sidewalk rehabilitation program should be funded at a level to replace a minimum of three (3) miles of sidewalk, or one percent of the sidewalk system annually. Pedestrian crossing signals Elements should be updated and installed when warranted at appropriate sites, along with other visual cues to alert drivers to pedestrian crossing points and to increase the safety and security of pedestrians. The resource allocation includes a minimum $1 million annual general fund transfer to the sidewalk rehabilitation program. With the $37 million allocation to this program through 2050, an estimated 46 miles of sidewalk could be replaced, accounting for construction cost inflation. The Transportation Demand Management (TDM) portion of this program may include partnerships with employers to support biking, walking, and transit commuting; flexible work hours; and remote work options. The program could also consider partnerships with Transportation Network Companies (TNC) such as Uber or Lyft, as well as car share options and expansion of the bike share and scooter programs, to support shared mobility options in Lincoln. **Trail Projects:** The current trail network includes nearly 250 miles of trails and utilizes strong support from the community and groups such as the Great Plains Trails Network along with various public funds to continue expanding the network. The LRTP development process identified 64 candidate trail projects totaling nearly $60 million (in 2021 dollars). Approximately $28 million in revenue is anticipated for trail projects through committed or restricted funding sources. Due to funding shortfalls, no flexible funds are allocated to trail projects. This amount would fund 31 projects listed on *Table 7.8 in Chapter 7* of the LRTP (including 10 trail projects with committed funding in the Transportation Improvement Program, Capital Improvement Program or other agreements) when accounting for construction cost inflation. Thirty-three projects would remain unfunded. Elements <
> Figure E9.c: Priority Trail Projects Elements ## Airports and Airfields The Lincoln Airport will continue to be the principal airport facility serving the Lincoln Metropolitan Area, Lancaster County, and a significant portion of the region in the southeast area of the State. As a member of the Lincoln MPO Technical Committee, the Lincoln Airport Authority is an integral part of the metropolitan area transportation planning process. Specific strategies include ensuring that future developments are aware of their proximity to the airport and that noise issues are appropriately addressed through the Airport Environs Noise District ordinance and the recommendations of the Airport Noise Compatibility Study. The Airport Authority initiated a $54.8 million terminal expansion and modernization project which is estimated to increase passenger counts by 27% to 220,000 annually. Other future considerations include redevelopment of Lincoln Airpark West for various uses such as developing sites for rail-accessible warehousing and seeking opportunities for air-rail-truck freight operations. While these potential developments can make the airport into an intermodal transportation hub, attention will need to be focused on mitigating conflicts among the different freight operations. <
> ## Illustrative Plan Transportation projects and programs that do not have LRTP identified funding revenue are retained in the Illustrative Plan. This unfunded portion of the LRTP is substantial, but it is important to maintain as available funding and project priorities can change during the planning period. Illustrative Plan projects for NDOT Highway (*Table 7.13 in LRTP - Chapter 7*), Rural Road & Bridge (*Table 7.14 in LRTP - Chapter 7*), Urban Roadway (*Table 7.15 in LRTP - Chapter 7*), and Trails (*Table 7.16 in LRTP - Chapter 7*) are presented in the priority order as they were determined by the LRTP goals, public input and technical analysis. New and innovative funding sources must be identified to enable more roadway and trail projects from the Illustrative Plan to be completed. Three funding considerations could make a significant impact on the available revenue available for projects on the Illustrative Plan list. They include: * **Continuation of Sales Tax:** The LRTP revenue forecasts do not account for the continuation of the ¼ cent Lincoln on the Move sales tax beyond 2025. A continuation of the ¼ cent sales tax throughout the planning period would result in $380 million of additional revenue, which could be used to construct an estimated 30 additional roadway capital projects, rehabilitate an additional 210 lane miles of roadway, or provide more adequate funding to address transit, pedestrian, or bicycle needs. If the sales tax were increased to a 1/2 cent, twice the level of funding and associated improvements could be completed! * **Grant Opportunities:** In addition to the ongoing funding sources, the Lincoln MPO and its member agencies can pursue other transportation funds including competitive grants such as Federal Recreational Trails and the portion of the federal Transportation Alternatives Set Aside that is distributed by NDOT through a project-specific competitive process. In addition, there are a variety of federal and non-profit grant programs such as Rebuilding American Infrastructure with Sustainability and Equity (RAISE) grants that could supplement transportation funding available to the Lincoln MPO. Elements * **Highway Allocation Funds:** The current allocation of highway funding is based on federal revenues generated by gas taxes. These revenues have remained stagnant, and no significant change has been made to state sales tax on fuel consumption. In fact, the rate decreased from 33.2 cents a gallon to 28.7 cents a gallon in 2021 although the portion of the rate that is considered Fixed Tax has remained unchanged at 16.3 cents per gallon. Funding the transportation system with gas tax revenues will become unsustainable and require different funding sources over time as vehicles become more fuel efficient and more vehicles are converted to electric power. ### Policies Related to this Element P15: Infrastructure and Economic Development P62: Transportation Equity P63: Transportation and the Environment P64: Complete Streets P65: Transportation and Managing Growth P66: Congestion Management P67: Transportation and Economic Health P68: Pedestrians P69: Bicycles P70: Transit P71: Public ROW and Access P72: Freight P73: Shared Mobility P74: Advanced Mobility P75: Transportation Partnerships P76: Transportation Safety P77: Transportation Maintenance P78: Transportation Funding P79: Airport ### Goals Related to this Element G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G4: Economic Opportunity G5: Equity and Inclusion Elements G6: Healthy, Active, and Connected People G7: Environmental Stewardship and Sustainability G14: Technology G15: Transportation # PLAN forward ## Lincoln-Lancaster County 2050 Comprehensive Plan The Lincoln-Lancaster County 2050 Comprehensive Plan is a roadmap to “plan forward”, not only in time, but in concept, to envision a community that is Livable, Equitable, Thriving, Resilient, and Innovative. # Policies <
> CITY OF LINCOLN NEBRASKA LANCASTER NEBRASKA COUNTY Policies PlanForward consists of 80 policies, followed by multiple action steps. These policies and action steps represent the key components of the Lincoln-Lancaster County Comprehensive Plan. Each policy relates to goals and elements. P1: Housing Affordability P2: Existing Neighborhoods P3: Developing Neighborhoods P4: Rural Housing P5: Downtown P6: Nodes and Corridors P7: Redevelopment Incentives P8: Infill and Redevelopment P9: Skilled, Diverse, and Trained Workforce P10: Supporting Small Businesses P11: Parking Requirements P12: Economic Growth P13: Commercial and Industrial Centers P14: Commercial Infill P15: Infrastructure and Economic Development P16: Rural Economy P17: Predictability P18: Conservation Design P19: Native Prairie P20: Ecology and Habitat P21: Floodplains and Riparian Areas P22: Local Food P23: Salt Valley Greenway and Connective Green Corridors Concept Implementation P24: Environmental Resource Protection P25: Open Space with Development P26: Community Forestry Management P27: Regional Parks and Tournament Facilities P28: Community Parks P29: Neighborhood Parks Policies *P30: Recreation Centers / Community Learning Centers* *P31: Aquatic Facilities* *P32: Other Recreational Facilities and Activities* *P33: Parks and Recreation Partnerships* *P34: Urban Design Standards* *P35: Entry Corridors* *P36: Public Art* *P37: Historic Preservation* *P38: State Capitol* *P39: Community Space* *P40: Libraries* *P41: Fire and Rescue* *P42: Law Enforcement* *P43: Health Care Access* *P44: Education* *P45: Early Childhood Care and Education* *P46: Public Buildings* *P47: Civic Participation* *P48: Renewable Energy* *P49: Conservation of Energy* *P50: Water Quantity and Quality* *P51: Groundwater* *P52: Wastewater System* *P53: Gravity Flow Collection System* *P54: Wastewater Resource Recovery Facilities* *P55: Watershed Planning* *P56: Landfill* *P57: Landfill Gas* *P58: Waste Reduction* *P59: Electric Utility* *P60: Technology* *P61: Industrial Zoning and Pipelines* *P62: Transportation Equity* *P63: Transportation and the Environment* *P64: Complete Streets* *P65: Transportation and Managing Growth* *P66: Congestion Management* *P67: Transportation and Economic Health* *P68: Pedestrians* *P69: Bicycles* *P70: Transit* *P71: Public ROW and Access* *P72: Freight* *P73: Shared Mobility* *P74: Advanced Mobility* *P75: Transportation Partnerships* *P76: Transportation Safety* *P77: Transportation Maintenance* *P78: Transportation Funding* *P79: Airport* *P80: Annexation* Policies # P1: Housing Affordability *Make available a safe residential dwelling for all residents.* <
> Housing is a basic human need. Safe housing in a variety of product types should be available across all income levels in our community. According to HUD’s Office of Policy Development and Research, housing has the capacity to help improve residents’ health, access to education, and employment prospects. In order for people to thrive they should be able to live in a quality home and also be able to pay other nondiscretionary costs. Being able to afford housing is a key component to promoting positive life outcomes. ## Action Steps 1. Implement the housing and neighborhood strategies as embodied in the Affordable Housing Coordinated Action Plan, City of Lincoln Consolidated and Annual Action Plans and subsequent housing and neighborhood plans. These plans provide the core for affordable housing and neighborhood preservation actions for public and private agencies. 2. Distribute and preserve affordable housing throughout the community to be near job opportunities and public transit and to provide housing choices within existing and developing neighborhoods. 3. Encourage public/private partnerships with housing entities such as Lincoln Housing Authority, Affordable Housing Initiatives, Habitat for Humanity, and NeighborWorks Lincoln. 4. Provide for more education of the public about affordable housing and code enforcement. 5. Promote the preservation, maintenance and renovation of existing housing and neighborhoods throughout the city, with special emphasis on low and moderate income neighborhoods. 6. Preserve the existing affordable housing stock, increase the supply of affordable owner and renter units, and add more variety in housing types. 7. Find ways to ensure that long-range infrastructure needs, such as sidewalks, street lights, street trees, etc., are not lost in the desire to solve an immediate need for housing. 8. Enforce better property maintenance, both interior and exterior, by implementing proactive code enforcement, to help preserve affordable housing and encourage residents to take pride in and maintain their homes. 9. Pursue additional sources for the City’s Affordable Housing Fund. 10. Continue to develop affordable housing zoning text amendments that implement recommendations from the Affordable Housing Coordinated Action Plan and other documents and community input. 11. Support development of an Affordable Housing Consortium to build strategic partnerships, develop a shared vision, and create a funding mechanism for shared risk as essential components for creating new housing product types and lower price-points. 12. Update the Greater Nebraska PACE District (GNPD) program to provide a broader range of eligible applicants, facilities and equipment with a targeted outreach and marketing effort towards low income and multi-family housing support. Work with National Institute of Food and Agriculture (NIFA) and Nebraska Department of Policies Environment and Energy (NDEE) to evaluate funding/low interest loan subsidy assistance. Utilize PACE proceeds to help fund Energy Efficiency (EE) in municipal operations and/or support low income EE. 13. Convene City, LES, Community Action and other resource providers to develop a joint plan to address energy efficiency in low income and multi-family housing stock. Research federal, state, local, and private funding sources for low-income energy efficiency programs. 14. Engage Black Hills Energy about partnering with the City to create an incentive-based program for the installation of direct use high efficiency natural gas appliances for space and water heating, including gas absorption heat pumps, furnaces and water heaters in low income residential areas. ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G5: Equity and Inclusion ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E2: Infill and Redevelopment Policies # P2: Existing Neighborhoods ## Continue our commitment to strong, diverse, and complete neighborhoods. <
> Strong, diverse, and complete neighborhoods provide more than just the basic element of housing – they also support the overall health and well-being of the people that live there. Preserving existing housing for owners and renters and a mix of supporting uses should remain the focus in established neighborhoods, with modest opportunities for infill and redevelopment. Existing neighborhoods often contain a mix of uses including neighborhood commercial uses, parks, and schools. The patterns of land use in existing neighborhoods support walkability and already achieve many of the Complete Neighborhoods recommendations. ## Action Steps 1. Promote the preservation, maintenance, and renovation of existing housing and supporting neighborhood uses throughout the City, with special emphasis on low and moderate income neighborhoods. 2. Maintain and enhance infrastructure and services, commensurate with needs, in existing neighborhoods. 3. Encourage well-designed and appropriately placed density, including within existing apartment and group living complexes and in redeveloping commercial or industrial centers, where there is land available for additional buildings or expansions. Provide flexibility to the marketplace in siting future residential development locations. This includes appropriately placed infill in prioritized Nodes and Corridors, neighborhood edges, and underutilized commercial or industrial sites. 4. Recognize that broad economic diversity within existing neighborhoods encourages reinvestment and improves quality of life for all residents while acknowledging the need for affordable housing. 5. Preserve, protect and promote the character and unique features of urban neighborhoods, including their historical and architectural elements. 6. Promote the continued use of residential dwellings and all types of buildings, to maintain the character of neighborhoods and to preserve portions of our past. Building code requirements for the rehabilitation of existing buildings should protect the safety of building occupants, while recognizing the need for flexibility that comes with rehabilitating existing buildings. 7. Implement the housing and neighborhood strategies as embodied in the Affordable Housing Coordinated Action Plan, City of Lincoln Consolidated, Annual Action Plans, and subsequent housing and neighborhood plans. These plans provide the core for affordable housing and neighborhood preservation actions for public and private agencies. 8. Retain and encourage a mix of housing in existing and new neighborhoods in order to provide a mix of housing types at a variety of price points. 9. Implement elements of Complete Neighborhoods for existing neighborhoods. 10. Develop and utilize a measurement tool to evaluate neighborhoods in terms of how well they achieve PlanForward’s goals for design, sustainability, and Complete Neighborhoods goals. Policies 11. Encourage public and private investment in neighborhood infrastructure and services to support economic diversity that improves the quality of life for all residents. 12. Balance expanding housing options and neighborhood character. Infill development should include housing for a variety of incomes and households and should complement the character of the existing neighborhood by including appropriate transitions, scale, and context. 13. Preserve areas designated for multi-family and group living housing in approved plans to support a distributed choice in affordable housing. 14. Evaluate potential updates to the zoning code to allow expanded opportunities for ADUs throughout the community. 15. Develop and propose zoning text amendments that will allow platted, nonconforming lots to be buildable. 16. Review the Community Unit Plan requirements and consider revisions to meet the intent of developing creative, quality, and unique residential developments. Such revisions may include minimum densities and a minimum mix of housing types. 17. Promote neighborhood and community design that supports healthy and active lifestyles. 18. Enforce better property maintenance, both interior and exterior, by implementing proactive code enforcement, to help preserve affordable housing and encourage residents to take pride in and maintain their homes. 19. Encourage creation of rental rehab programs to improve the quality of affordable rental housing and support the City’s Lead Hazard Control and Healthy Homes programs. 20. Examine current residential zoning districts and propose modifications to encourage ‘missing middle’ units (single-family attached, cottage courts, townhomes, live-work, and a variety of three- and four-plex configurations), including affordable units, to people with a range of incomes. Neighborhood edges in particular present an opportunity for missing middle housing. 21. Encourage a variety of housing types including townhomes, senior living facilities, low/no maintenance condominiums, accessory dwelling units, multi-family development, and small lot single-family units. 22. Following an assessment of current City environmental education programs, create a “Climate-Smart Future” education and community relations program that focuses on residents and businesses most impacted by climate related risks, including vulnerable neighborhoods. 23. Consider zoning revisions that align with home occupation trends and the community’s expectations. 24. Explore economic development incentives to attract grocery stores to neighborhoods lacking access to fresh food/ ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G12: History and Culture G13: Community Appearance ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E2: Infill and Redevelopment Policies # P3: Developing Neighborhoods Accommodate and encourage growth that aligns with PlanForward’s growth scenario and provides a mix of housing options with convenient access to parks, schools, shopping, jobs, and other community resources. <
> A neighborhood is more than housing – great neighborhoods combine all the elements of parks, education, commercial areas, environmental resources, and housing together in one place. Thus, principles from the Complete Neighborhoods Goal and Element also apply here. Developing neighborhoods should have a variety of housing types and sizes, plus commercial and employment opportunities. Developing a pedestrian orientation of buildings and street networks that provides substantial connectivity is also a priority for developing areas. Neighborhood commercial centers provide services and retail goods oriented to the neighborhood level, with significant pedestrian orientation and access, and should be planned for and integrated into new neighborhoods. ### Action Steps 1. Provide for an adequate supply of land and timely infrastructure improvements that meet the demands of growth. 2. Structure incentives to encourage higher densities to make greater use of the community’s infrastructure. 3. Encourage new development to achieve densities greater than five dwelling units per gross acre by zoning at least 20% of residentially zoned land in developing areas to allow greater than five dwelling units per acre by right. 4. Develop new design standards or zoning tools that encourage density, optimize infrastructure costs, and help lower the overall cost of property development. 5. Implement elements of Complete Neighborhoods for Developing Areas. 6. Develop and utilize a measurement tool to evaluate neighborhoods in terms of how well they achieve PlanForward’s goals for design, sustainability, and Complete Neighborhoods goals. 7. Encourage public and private investment in neighborhood infrastructure and services to support economic diversity that improves the quality of life for all residents. 8. Include housing for a variety of incomes and households throughout the community that is integrated into neighborhoods and provides appropriate transitions, scale, and context. 9. Promote mixed-income neighborhoods. 10. Preserve areas designated for multi-family, and group living housing in approved plans to support a distributed choice in affordable housing. 11. Support addition of higher density development in existing multi-family development. 12. Evaluate potential updates to the zoning code to allow expanded opportunities for ADUs throughout the community. Policies 13. Review the Community Unit Plan requirements and consider revisions to meet the intent of developing creative, quality, and unique residential developments. 14. Promote neighborhood and community design that supports healthy and active lifestyles., such as the benefits of street trees. 15. Examine current residential zoning districts and propose modifications to encourage ‘missing middle’ units (single-family attached, cottage courts, townhomes, live-work, and a variety of three- and four-plex configurations), including affordable units, to people with a range of incomes. Neighborhood edges in particular present an opportunity for missing middle housing. 16. Encourage a variety of housing types including townhomes, senior living facilities, low/no maintenance condominiums, accessory dwelling units, multi-family development, and small lot single-family units. 17. Consider zoning revisions that align with home occupation trends and the community’s expectations. ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G13: Community Appearance ### Elements Related to this Policy E1: Complete Neighborhoods & Housing Policies # P4: Rural Housing *Allow for acreage development in appropriate areas of Lancaster County while preserving land resources for efficient future urban development, continued agricultural uses, and natural open spaces.* <
> There is a small but steady demand for acreages in rural Lancaster County, and planning for limited acreage development will ensure that demand can be met while minimizing negative impacts. Allowing for development of additional acreages will increase housing choice in Lancaster County. There is already ample supply of potential acreage areas that can meet demand for at least the next two decades. Additional acreage development in any of the growth tiers is discouraged. Over the past 10 years there have been approximately 60 new acreage homes per year built in rural Lancaster County. As of January 1, 2021 there was a supply of approximately 1,300 potential new acreage units, either through existing approvals that haven’t been built or Low Density Residential areas on the Future Land Use map that do not yet have approvals. ## Action Steps 1. Preserve agricultural land within Tier I, II, and III growth areas, both to reduce conflicts in the future growth of Lincoln and to ensure available land for the production of food products that are important to the health and economic vitality of the community. 2. Support acreage development within areas with development approvals, on areas designated as low-density residential in the County, and on areas designated as low-density residential in the village and smaller city jurisdictions. 3. Continue to use GIS data and other sources, along with adopted county zoning criteria, to help determine which lands are most suitable for acreage development. 4. Require applicants seeking plan designation or rezoning for acreages to provide information on water quality and quantity if planning to use on-site wells. 5. Pursue state legislation to enable the County to establish a transfer of development rights program that helps encourage acreage development in more suitable locations while protecting environmental resources and prime farmland, while also respecting property rights by compensating owners who agree to the transfers. 6. Encourage an existing or new private land trust to pursue the donation of agricultural easements on prime farmland in the county. 7. Expand education for prospective home buyers on the implications of rural living. 8. Educate homeowners in acreage subdivisions of the City’s annexation and growth policies. 9. Review the “build-through” model for acreages in the County and make recommendations that align with the PlanForward policies and growth scenario. Policies ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G11: Rural Environment ### Elements Related to this Policy E1: Complete Neighborhoods & Housing Policies # P5: Downtown *Continue to make Greater Downtown a major focus for mixed-use reuse, infill and redevelopment.* <
> Downtown Lincoln is the heart of our community, a unique common ground for all Lincoln and Lancaster County residents. It is also emerging as an attractive place to live, becoming an increasingly vibrant mixed-use neighborhood. Over 1,600 dwelling units were permitted in Greater Downtown from 2011 to 2020. The Plan envisions an additional 5,000 dwelling units in this core area by 2050. A strong downtown is important to the economic future of the community. Downtown is the main hub of employment, entertainment, government agencies and higher education. Over the years, there have been significant public and private investments in new building construction, renovations, and infrastructure. In order to capitalize on these collective investments, further development in the Greater Downtown should be realized. Downtown is discussed in more detail with the Downtown Lincoln Master Plan, which was adopted in 2018 as part of the Comprehensive Plan. ## Action Steps 1. Support development and implementation of the Downtown Master Plan, South Haymarket Neighborhood Plan, Antelope Valley Redevelopment Plan, Lincoln Center Redevelopment Plan, and South of Downtown Redevelopment & Strategic Plan. 2. Ensure that new development is compatible with the existing Downtown and is pedestrian-oriented. 3. Maintain the urban environment, including a mix of land uses with a major focus on residential uses, including a variety of types and affordable to diverse income levels. 4. Encourage higher density development with parking areas at the rear of buildings, below grade, or on upper floors of multi-use parking structures. 5. Retain the City's government center in Downtown and wherever possible locate local, state, and federal offices Downtown when expansions and relocations are considered or new facilities are located. 6. Continue to support Downtown as the entertainment center of the community through development of the Music District proposed in the Downtown Master Plan, continued enhancements and programming for public spaces such as the Railyard, Tower Square, Union Plaza and the future South Haymarket Park, along with maintaining Lincoln's successful Theater Policy. 7. Develop a strategic plan for the future of downtown parking to address changes to parking and curb lane demand caused by the increase in rideshare, food pickup and delivery, alternative-fuel vehicles, and future autonomous vehicles. The plan would address items such as the mix of parking/drop-off areas and options for serving alternative-fuel vehicles. 8. Continue to preserve and enhance Downtown's role as the community's major office and employment center. Policies ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G3: High-Quality Workforce G4: Economic Opportunity G5: Equity and Inclusion G6: Healthy, Active, and Connected People G10: Effective Government G12: History and Culture G13: Community Appearance G14: Technology G15: Transportation ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E2: Infill and Redevelopment E3: Business, Economy, and Workforce E4: Environmental Resources E5: Parks, Recreation, & Open Space E6: Placemaking E7: Community Facilities E9: Transportation Policies # P6: Nodes and Corridors Facilitate the redevelopment of prioritized Nodes and Corridors to create high-quality mobility-focused neighborhoods. Focus efforts on supporting additional jobs and residential development, including a variety of housing types and price points. <
> Nodes encompass generalized locations of commercial and industrial land uses with access to arterial streets, public transportation, and proximity to community facilities such as parks and schools. As the foundation of a great new neighborhood, nodes should provide services and retail goods oriented to the residents in and adjacent to the development, with significant pedestrian orientation and access. The adaptive reuse of historic or other existing structures into mixed uses is encouraged. The size, scope, and spacing of a node will depend on the Commercial Center designation. Nodes should be located on arterials and should have access to public transit. They should provide adequate facilities for multi-modal transportation including a complete sidewalk network, transit stops, automobile parking and circulation, and storage of bicycles. This concept is designed and intended to be mutually beneficial for existing adjacent neighborhoods and the new mixed use neighborhood created by the redeveloped center. Newer commercial centers that are not yet fully developed are encouraged to utilize this concept as a guide for amending their approved plans to develop as mixed use centers. Corridors represent priorities for future public transportation enhancements (such as increases in level of service), areas to encourage mixed use redevelopment of commercial strips, and connections for Mixed Use Redevelopment Nodes and/or commercial centers. Corridors are typically a half block to a block wide along arterial streets in commercially or industrially-zoned areas. Since they are often located on major arterials between commercial centers, they experience a lot of traffic and usually have transit service. Corridors present opportunities for small-scale reuse or redevelopment projects and should include a mix of land use types, especially residential including a variety of types and affordable to diverse income levels. The adaptive reuse of historic or other existing structures into mixed uses is encouraged. Due to the linear nature of Corridors, existing residential neighborhoods are often next door or across the alley from the commercial strip or industrial remnant. This close relationship makes the adoption of design standards very important in proceeding with this strategy. Design standards should be developed for Redevelopment Nodes and Corridors. As of 2020, urban design standards generally only cover residential areas inside the 1950 City limits and the Downtown. Most commercial areas of the city are not under any design review and sometimes create rough edges and poor entryways to neighborhoods. Establishing design standards for Redevelopment Nodes and Corridors should result in better design within commercial centers and soften the transition to surrounding neighborhoods. ### Action Steps 1. For Primary Mixed Use Redevelopment Nodes and Corridors examine updates to the B-5 Planned Regional Business zoning district that would address items such as: density, site layout, parking, building scale, and design standards. 2. Develop design standards to be utilized across all Mixed Use Redevelopment Nodes and Corridors. Design standards should be clearly written and allow for an efficient, expeditious review process, while especially focusing on the interface with residential neighborhoods, attractive streetscapes, and safe and comfortable movement of people – whatever their mode of travel. Policies 3. Implement nodes and corridor principles as discussed in the Infill and Redevelopment element. 4. Continue utilizing TIF, and evaluate other incentives, to promote high-quality development in targeted areas. 5. Evaluate expanding core TIF eligibility to blighted areas beyond the 1950 city limits. 6. Coordinate transit and other mobility enhancements with nodes and corridor areas. 7. Examine policies to encourage commercial Floor Area Ratios of at least 0.5 within buildable areas designated for commercial development inside the project boundary (including public and semi-public buildings). This strategy encourages significant returns on public investment by developing high-quality properties with sustained value, long-term viable businesses to generate sales tax, and efficient use of land and infrastructure resources. 8. Examine policies to encourage residential densities of at least 15 dwelling units per gross acre within buildable areas inside the project boundary. This strategy encourages significant returns on public investment by developing high-quality properties with sustained value, supports new businesses in the mixed use center, makes public transportation more viable, and uses land and infrastructure more efficiently. ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G3: High-Quality Workforce G4: Economic Opportunity G5: Equity and Inclusion G6: Healthy, Active, and Connected People G12: History and Culture G13: Community Appearance G15: Transportation ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E2: Infill and Redevelopment E3: Business, Economy, and Workforce E6: Placemaking E9: Transportation Policies # P7: Redevelopment Incentives *Develop incentives and other methods to reduce the cost and risk of infill and redevelopment.* <
> Facilitating infill and redevelopment in the existing city requires both a nuanced understanding of the challenges associated with redevelopment projects and a well-thought out set of strategies to overcome them. Commonly cited challenges to infill and redevelopment include land cost and assembly, access to financing, and zoning requirements. ## Action Steps 1. Evaluate expanding TIF eligibility to blighted areas beyond the 1950 city limits. 2. Offer property tax abatement in addition to TIF (the City’s current financial incentive). This would require a State constitutional amendment to the previously approved provision which applies only to historic properties. 3. Examine new tax policies such as a “land value tax” that taxes the land and not the improvements, to discourage holding unimproved property and encourage development at higher densities; this would require a State constitutional amendment. 4. Support and increase the capacity of Community Development Corporations (CDC) or incorporated nonprofit organizations or groups, such as the Affordable Housing Consortium, that raises equity for projects, purchase land, offer services, and engage in other activities that promote and support community development. 5. Examine the potential for extending impact fee exclusions beyond Downtown/Antelope Valley to other designated redevelopment areas. 6. Continue to reduce the time it takes to move city-assisted projects through the City review process. 7. Land assembly: a. Implement a strategic land banking program to purchase and hold land for future development to reduce developer risk associated with land assembly and enhance development potential. b. Maintain a current and accurate inventory of potential redevelopment sites that are owned by the City and available for surplus. 8. Infrastructure and amenities: a. Attract infill and redevelopment with complementary public improvements such as plazas and enhanced streetscapes. b. Provide convenient transit service and pedestrian/bicycle connections and facilities. 9. Utilize the turnback tax to facilitate affordable redevelopment. 10. Evaluate affordable housing requirements for residential redevelopment projects that utilize TIF. 11. Continue evaluating new blighted areas to see if they meet the statutory requirements of extreme blight, and if so, formally designate the areas as extremely blighted. 12. Continue use of 20-year TIF as authorized by the State legislature. Policies ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G4: Economic Opportunity G5: Equity and Inclusion G10: Effective Government ### Elements Related to this Policy E2: Infill and Redevelopment E3: Business, Economy, and Workforce E6: Placemaking Policies # P8: Infill and Redevelopment *Encourage infill and redevelopment in appropriate locations throughout the community in order to meet the assumption for 25% of all new dwelling units being infill.* <
> Increased infill allows the community to grow our population and tax base while focusing public dollars on maintaining what we already have, rather than spending money constructing and maintaining new facilities. Infill projects should target existing underdeveloped or redeveloping areas in order to remove blighted conditions and more efficiently utilize existing infrastructure. There are many potential redevelopment sites in Lincoln today. Major redevelopment sites are discussed in more detail with the Nodes and Corridors policies (links). This policy discusses the general concept of infill and redevelopment, including smaller redevelopment opportunities that are not part of our Nodes and Corridors discussions. Examples include adding residential uses to underutilized neighborhood commercial centers or adding “missing middle” housing such as cottages, townhomes, or small apartment buildings to large parcels, such as former school sites or residential acreage properties, in existing neighborhoods. ### Action Steps 1. Encourage redevelopment of aging and underutilized commercial centers, along with other large sites in existing areas such as former schools and residential acreages, to add a variety of housing types that are affordable to diverse income levels. A mix of residential and commercial uses is desirable in locations with good visibility and access, such as most existing commercial centers, but in some cases redevelopment sites are more suited for exclusively residential uses. 2. Encourage redeveloped commercial centers to incorporate a variety of medium and high-density housing affordable to diverse income levels that could serve as a transitional use to less intensive residential development and benefit from walkable access to the commercial area and transit. 3. Develop new design standards for redevelopment projects, particularly TIF projects, that encourage density, a variety of housing types, optimize infrastructure costs, and help lower the overall cost of property development. Design standards provide assurance that projects will enhance and add enduring quality to the surrounding neighborhood and avoid conflicting visions among developers, neighbors, and city officials. 4. Provide a mechanism for adjustments in older zoning districts to lot area, height, setbacks, and parking standards, similar to the provisions already available for newer districts. 5. Strive for predictability for neighborhoods and developers for residential development and redevelopment. 6. Encourage efforts to find new uses for abandoned, under-utilized or “brownfield” sites that are contaminated, through redevelopment and environmental mitigation. 7. Environmentally sensitive areas (i.e. floodplains, wetlands, native prairie) may not be appropriate for redevelopment. When redevelopment does occur, environmentally sensitive areas need to be considered and incorporated holistically as part of a redevelopment project. Policies ### Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G2: Complete Neighborhoods G4: Economic Opportunity ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E2: Infill and Redevelopment E3: Business, Economy, and Workforce Policies # P9: Skilled, Diverse, and Trained Workforce *Support development of a skilled, diverse, and trained workforce that enables economic growth and high-quality jobs.* <
> The benefits of a high-quality workforce are twofold: 1) it is important that residents from diverse backgrounds have the opportunity to acquire the education and skills necessary to obtain quality jobs, and 2) it is important for business owners and entrepreneurs to have access to a top-talent workforce so that they can sustain and grow their businesses. A high-quality workforce benefits the entire community because it attracts quality employers and entrepreneurs, which helps to grow our population and tax base and facilitates quality of life investments across a variety of sectors, and it ensures that Lincoln and Lancaster County are well-positioned to compete in tomorrow’s economy. Supporting jobs and career pathways that create economic stability and mobility is critical to cultivating an economy beneficial for all. A key barrier to achieving economic stability and mobility is inequitable access to education and skills training. ## Action Steps 1. Support workforce development programs that work to eliminate employment disparities. An example is the current job training partnership managed through a collaborative effort between the Workforce Innovation and Opportunity Act, the Lincoln Partnership for Economic Development, and the Lincoln Manufacturing Council. 2. Support implementation of the workforce recommendations from the Mayor’s Economic Recovery Task Force. 3. Support high-quality community-based, culturally appropriate, and accessible employment training programs that allow employers to hire a more diverse workforce and provide more residents access to living wage jobs; and ensure that workforce development programs and City initiatives emphasize in-demand careers that provide for financial stability. As an example, the Workforce Innovation and Opportunity Act, administered through the City of Lincoln and the Greater Lincoln Workforce Development, can help fund both classroom and work-based training for eligible job seekers. Expand partnerships and opportunities to create apprenticeship and training programs for trade professions and growing professions such as information technology with employers throughout the community. 4. Expand partnerships and opportunities to create apprenticeship and training programs for trade professions and growing professions such as information technology with employers throughout the community. Continue to collect and use workforce and demographic data to inform investments in employment and training programs. 5. Promote healthy, safe, just, and equitable workplaces with adequate protections for all workers. 6. Promote ongoing training around cultural competency with local businesses and within City and County government to help combat implicit bias in hiring and to support retention of diversity in the workforce. Expand and implement strategies to eliminate barriers to workforce training and employment for individuals who have been convicted as a felon or previously incarcerated. 7. Continue to collect and use workforce and demographic data to inform investments in employment and training programs, and other community services such as transit routes. Policies 8. Continue to recruit, retain, and set clear pathways for advancement to support a diverse City and County government workforce that reflects the demographics of the community. 9. Promote and invest in resources that provide professional networking opportunities and exposure to career and job opportunities, with a focus on targeted communities based on needs. An example of an existing program is the New Americans Task Force’s CareerLadder program to support immigrant and refugee residents, which includes professional connectors, employment pathways, and MyCity Academy. 10. Expand and implement strategies to eliminate barriers to workforce training and employment for individuals who have been convicted as a felon or previously incarcerated. 11. Expand and implement strategies to develop workforce training opportunities and career exposure for youth, through internships, on-the-job training, and apprenticeship programs. 12. Utilize the Workforce Innovation and Opportunity Act to promote workforce development for “green” industries. Examples include increasing on-the-job training subsidies for green employers and working with Southeast Community College (SCC) to create career ladders targeted for green industries. ### Goals Supported by this Policy G3: High-Quality Workforce G4: Economic Opportunity G5: Equity and Inclusion ### Elements Related to this Policy E3: Business, Economy, and Workforce Policies <
> # P10: Supporting Small Businesses ## Support the development, growth, and retention of small businesses. Supporting small business is important to the local economy for a variety of reasons. In Lancaster County approximately 94 percent of all establishments employ fewer than 50 people according to the County Business Patterns report published by the US Census Bureau. Small businesses provide an opportunity for local entrepreneurs to enter the marketplace, serve as a platform for innovation, and nurture businesses that specialize in niche products and services. ## Action Steps 1. Provide and enhance business technical assistance tools and programs to adapt to the changing needs of the business environment, such as developing connections to financial institutions that provide access to capital and providing technical assistance and entrepreneurship support through the Lincoln Partnership for Economic Development. 2. Use city purchasing authority to support small and local businesses when allowed by law and regulation. 3. Provide assistance, such as a collected database of resources, to small and local businesses to get minority-owned business certifications that make them more competitive for government contracts. 4. Develop strategies to minimize the displacement of businesses in buildings that will be redeveloped, including ways to reduce barriers to relocate within the new development. 5. Develop strategies to include affordable commercial tenant spaces for small businesses in new developments. 6. Regularly review and update City ordinances, policies and processes to make them friendlier for small businesses and entrepreneurs. 7. Support the creation of public and non-profit incubator and co-op spaces, including shared commercial kitchens, workshops, and access to technologies and equipment. 8. Create a multi-agency staff team to help new businesses sort through regulatory challenges and connect with resources. 9. Promote the development of smaller stores next to larger anchor stores in commercial centers during the development review process to encourage small businesses and to provide a variety of goods and services for customers utilizing the centers. 10. Continue and expand green recognition program (via Health Department) that promotes and awards local businesses and leaders in energy efficiency who prioritize sustainable practices. ## Goals Supported by this Policy G3: High-Quality Workforce G4: Economic Opportunity G5: Equity and Inclusion Policies ### Elements Related to this Policy E2: Infill and Redevelopment E3: Business, Economy, and Workforce Policies # P11: Parking Requirements Evaluate the elimination or reduction of minimum parking requirements in additional zoning districts. <
> Minimum parking requirements can increase development costs and lead to an excess of unused parking spaces. They can also make it difficult to redevelop small underutilized commercial and residential properties. If implemented in a thoughtful manner, eliminating or reducing minimum parking requirements can allow property owners to determine their parking needs while minimizing impact on neighboring properties. The B-4 (Downtown) district is currently the only zoning district without minimum parking requirements. In addition to zoning changes, the City can support reduced private sector parking by maintaining a robust multi-modal transportation system and continuing to operate public parking facilities in downtown and other limited locations throughout Lincoln. ### Action Steps 1. Conduct a comprehensive review of existing parking requirements and curb management practices, actual parking needs, case studies from other communities, and stakeholder input. 2. Eliminate or reduce minimum parking requirements in additional zoning districts and include conditions that minimize the impact on neighboring properties. 3. Encourage large employers and public agencies to provide bike parking, lockers, and shower facilities to help reduce on-site automobile parking demand. ### Goals Supported by this Policy G2: Complete Neighborhoods G4: Economic Opportunity G6: Healthy, Active, and Connected People G13: Community Appearance G15: Transportation ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E2: Infill and Redevelopment E3: Business, Economy, and Workforce E9: Transportation Policies # P12: Economic Growth *Promote and foster appropriate, balanced, and focused future economic growth that maintains the quality of life of the community.* <
> It is expected that employment in Lancaster County will continue to grow across all sectors during the planning period, matching the slow and steady projected population growth discussed in the Growth Framework (link) section of the plan. Community resources should be leveraged to maintain steady growth across all sectors of the economy. ## Action Steps 1. Offer incentives for “primary” employers – that is, for companies where the majority of their business and sales come from outside Lancaster County. 2. Locate all new commercial and industrial development within Lincoln or within the smaller incorporated communities in Lancaster County. Certain commercial uses that are compatible with agriculture and the rural environment, such as commercial wind and solar energy facilities, are allowed in rural areas of the county. 3. Continue to coordinate the City’s economic development efforts with research and development functions of the University of Nebraska-Lincoln, including continued development of Innovation Campus. The success of the University’s research and development is important to the future of the city. 4. Continue to fund the Lincoln Partnership for Economic Development (LPED) and promote business retention, recruitment, and workforce development strategies and outcomes for the City of Lincoln through this public/private partnership. 5. Encourage public-private partnerships, strategic alliances, and collaborative efforts as a means to accomplish future economic objectives. 6. Explore additional opportunities for streamlining the zoning and building permitting processes. 7. Focus primarily on retention and expansion of existing businesses; attracting new businesses should also be encouraged. ## Goals Supported by this Policy G3: High-Quality Workforce G4: Economic Opportunity ## Elements Related to this Policy E3: Business, Economy, and Workforce Policies # P13: Commercial and Industrial Centers Support high-quality commercial and industrial centers located throughout the community. <
> Lincoln remains the county’s dominant home to both the commercial and industrial sectors of the local economy. Most of the recent growth in commercial and industrial space has occurred within the city limits of Lincoln, with other incorporated communities experiencing some growth as well. This clustering of commercial and industrial activity in the City of Lincoln has been completed in accordance with the goals of previous comprehensive plans, and PlanForward continues this development pattern. Commercial and industrial center locations are described in more detail in the Business & Economy element (link). ## Action Steps 1. Implement commercial center location and design principles as discussed in the Business & Economy element. 2. Discourage “four corner commercial development” – with commercial uses at all four corners of an intersection – in order to promote walkability and ease of movement within each commercial center. 3. Implement industrial center principles as discussed in the Business & Economy element. 4. Continue incentive-based (residential, commercial, or industrial) programs promoting the installation of renewable energy systems. Incentives may include offering rebates on purchasing equipment, attractive net metering pricing, tax incentives, height allowances, setback, and area-based incentives, expedited permitting, and others. ## Goals Supported by this Policy G3: High-Quality Workforce G4: Economic Opportunity ## Elements Related to this Policy E3: Business, Economy, and Workforce Policies # P14: Commercial Infill ## Develop infill commercial areas to be compatible with the character of the area. <
> Lincoln has many aging commercial sites. While in some cases these sites will be redeveloped for residential or a mix of uses, many aging commercial sites will be redeveloped with new commercial uses. Commercial infill, particularly neighborhood-scale commercial uses, are an important piece to developing and maintaining complete neighborhoods throughout the community. ### Action Steps 1. Implement commercial infill redevelopment principles as discussed in the *Business & Economy element.* 2. Maintain and encourage businesses that conveniently serve nearby residents, while ensuring compatibility with adjacent neighborhoods. 3. Avoid encroachment into existing neighborhoods during expansion of existing commercial and industrial uses, and take steps to ensure expansions are in scale with the adjacent neighborhood, use appropriate screening, fulfill a demonstrated need, and do not hinder health and safety. 4. Prioritize retaining areas for continued residential development in older sections of the community by maintaining existing housing and supporting infill housing. Prior to approving the removal of housing to provide additional parking for existing centers, alternatives such as reduced parking requirements, shared parking, additional on-street parking, and/or the removal of other commercial structures should be explored. 5. Maintain and encourage ethnically diverse commercial establishments that are beneficial to existing neighborhoods. ### Goals Supported by this Policy G3: High-Quality Workforce G4: Economic Opportunity ### Elements Related to this Policy E2: Infill and Redevelopment E3: Business, Economy, and Workforce Policies # P15: Infrastructure and Economic Development *Seek to efficiently utilize investments in existing and future public infrastructure to advance economic development opportunities.* <
> A key element to supporting future development in Lancaster County is ensuring that adequate sites are available with associated infrastructure. ### Action Steps 1. Continue to provide adequate sites with associated infrastructure to serve the community’s economic development needs. 2. Continue the County’s support for road improvements that accommodate commercial and other development within the smaller incorporated areas. 3. Continue the work of the City and LPED to maintain an inventory of potential economic development sites and their current status in terms of planning and infrastructure. 4. Continue incentive-based (residential, commercial, or industrial) programs promoting the installation of renewable energy systems. Incentives may include offering rebates on purchasing equipment, attractive net metering pricing, tax incentives, height allowances, setback, and area-based incentives, expedited permitting, and others. ### Goals Supported by this Policy G4: Economic Opportunity G10: Effective Government ### Elements Related to this Policy E3: Business, Economy, and Workforce E9: Transportation Policies # P16: Rural Economy Support agriculture as the primary driver of the rural economy, but recognize that some compatible land uses are also appropriate for these areas. <
> Agriculture is the dominant land use in Lancaster County, accounting for roughly 3/4 of all land. While this land is largely considered “undeveloped,” it is an important economic factor in the county’s future. Agriculture’s impact on the local economy goes beyond the sale at the end of production. Farms of all sizes make purchases of goods and services in the city and county throughout the year, which contribute to the local tax base and sustain growth for other businesses in the agriculture industry. Agricultural activities include growing crops for global markets and local consumption, raising livestock, or producing other agricultural products such as wine. Though agricultural activity is identified as a separate land use category in PlanForward, agricultural land does constitute a distinctive natural resource feature as well. These lands are an integral element in the natural landscape, providing habitat as well as serving as a basic element of the County’s historic signature landscape. ## Action Steps 1. Support appropriate use of accessory home businesses, and locate businesses within the commercial areas of incorporated towns when they expand beyond the definition of home occupation. 2. Home occupations should be limited to uses incidental to a property’s residential and/or agricultural use and have minimal impact on neighboring properties. 3. Continue efforts to preserve the viability of the county’s agriculture industry through zoning, easements, and other means. 4. Support all types of agriculture, including modern high-yield techniques such as animal feeding operations with appropriate conditions to limit impact on neighbors and the environment. 5. Support solar and wind energy conversion systems in agricultural areas of the county. 6. Convene various stakeholders (UNL Extension, Lincoln-Lancaster County Food Policy Council (Lincoln-Lancaster FPC), Community Crops, Local producers, etc.) to host community conversations, expanding education, awareness, and support for local food and regenerative agriculture (no till, multispecies cover crops, reduction in and/or elimination of use of synthetic chemicals, toxic pesticides, and Genetically-modified Organisms (GMO)) to increase crop yield, lower production costs, improve soil fertility and water-holding capacity, and sequester carbon. 7. Use partnerships and programs from local, state, and federal agencies, UNL’s School of Natural Resources, and business and nonprofit organizations to promote conservation practices on farm ground to protect its long-term productivity, provide additional environmental services, and reduce potential conflict between neighboring uses. 8. Provide opportunities to support both large-scale and small-scale agriculture and non-traditional cropping/production systems to support local and regional economic growth. Policies 9. Review the county zoning ordinance to create an inventory of non-agricultural uses currently allowed in rural areas of the county to evaluate possible changes. ### Goals Supported by this Policy G4: Economic Opportunity G11: Rural Environment ### Elements Related to this Policy E3: Business, Economy, and Workforce Policies <
> # P17: Predictability *Strive for predictability for neighborhoods and developers.* Predictability provides assurances for surrounding property owners as well as prospective developers. ## Action Steps 1. Continue to make updates as needed to zoning and subdivision ordinances, along with design standards, to support economic development, complete neighborhoods, and other PlanForward initiatives. 2. Support timely and efficient implementation of the growth tiers framework through the Capitol Improvement Program and other coordinated infrastructure enhancements. ## Goals Supported by this Policy G10: Effective Government ## Elements Related to this Policy E1: Complete Neighborhoods & Housing E2: Infill and Redevelopment E7: Community Facilities E8: Energy & Utilities E9: Transportation Policies # P18: Conservation Design *Promote conservation design principles with both new growth and redevelopment projects.* <
> Conservation design is a type of development where buildings are grouped together on part of the site while permanently protecting the remainder of the site from development. This type of development provides great flexibility of design to fit site-specific resource protection needs. Conservation design creates the same number of residences under current zoning and subdivision regulations or may offer incentives, such as a density bonus, to encourage this type of development. There is a savings in development and maintenance costs due to less road surface, shorter utility runs, less grading and other site preparation costs. The preserved land may be owned and managed by a homeowners association, a land trust, or the City. Conservation-focused design can help to reduce the heat island effect, increase shade, protect habitat, slow stormwater runoff, and improve mental health. Site designs that are compatible with the natural characteristics of the site, conservation design for new subdivisions, clustering development, minimizing grading and impervious surfaces, and preserving site hydrology to the maximum extent possible are encouraged. ### Action Steps 1. Encourage conservation design principles as part of the development process. Developments that incorporate conservation design principles should be eligible for greater densities, height, lot, and area adjustments. Examples of conservation design best practices include: a. Development setbacks beyond the minimum floodplain corridor in order to help preserve riparian habitat. b. Land area within new developments that is designated specifically for trees and/or prairie. c. Sustainable landscape design that includes native and drought-tolerant plantings, limited use of turf grass, rain gardens, bioswales, infiltration beds, and constructed wetlands. d. Cluster subdivision design that protects flood-prone areas by grouping new development in less-sensitive areas within a subdivision while maintaining a high overall building density. e. Dedication of a portion or all of a building’s roof space as a green roof. f. Minimizing disturbance of the natural topography on a development site. 2. Incorporate conservation design principles into public projects and development projects utilizing public funds (such as TIF) as appropriate. 3. Incorporate conservation design into new subdivisions with the initial steps of completing an inventory of existing and future land uses, natural resource evaluation, and a build out map. 4. Promote development of conservation design standards of new subdivisions that maximize open space conservation and interconnected network of such open spaces while being sensitive to overall building density. Policies 5. Develop project approaches which view stormwater as an asset, by working with the natural topography and using wetlands, floodplains, and natural drainage corridors as natural ways to manage flood flows and stormwater runoff. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, and Open Space Policies <
> # P19: Native Prairie ## Protect, restore, and enhance native prairies This feature refers to the tallgrass prairie areas that are dominated by big bluestem, little bluestem, indiangrass, and sideoats grama grass species. Numerous wildflowers and forbs are also found in these prairies, including golden rod, purple coneflower, purple prairie clover, and black-eyed susan. Prairies are also incredibly rich in wildlife and host native mammals, amphibians, reptiles, and birds. Though historically they were the region's prevailing natural condition, native prairies are an increasingly rare feature on the Nebraska landscape. This resource thrives in conditions of disturbance caused by fires, grazing, haying, and then periods of rest. Management strategies that mimic natural disturbance are important for diverse, healthy prairie. In native prairies plants and soil work together as a natural solution for carbon sequestration. Healthy soil and plant communities hold carbon in their organic material and keep it from escaping into the atmosphere. Lancaster County is fortunate to have approximately 9,000 acres of native prairie remaining, mainly in the west central portion of the county, although they are scattered throughout the county in patches of land that must remain whole if their integrity as a natural resource feature is to continue. Nine Mile Prairie, Pioneers Park and Spring Creek Prairie are three of the larger massings of native grasslands in the county. ## Action Steps 1. Develop planning guidelines, management techniques and supporting policies for preserving native prairies and grassland. 2. Coordinate prescribed burn plans among public agencies. 3. Identify opportunities to work with property owners to acquire land or conservation easements that can serve as buffer areas around prairies and other natural areas for management and resource protection as well as support use of federal, state, or local conservation programs. 4. Investigate means for encouraging native prairie restoration by private entities. 5. Utilize the University of Nebraska Center for Grassland Studies in assessing alternatives for grassland preservation and restoration. 6. Resurvey and update the County's prairie and grassland inventory for inclusion in the Natural Resources Geographic Information Systems (NRGIS). 7. Include prairie managers in review of any Growth Tier Changes that may directly impact a designated prairie. 8. Expand native prairie plantings through strategies such as requiring the addition of native prairie plantings to detention ponds and runoff areas, as well as residential or commercial development. Continue to support or expand the Prairie in the Parks program. 9. Continue to support the Lincoln Parks Foundation and Parks and Recreation Department Land Trust initiative, working in partnership with landowners to preserve native prairie, wetland areas, and other natural resources. Policies 10. Create a Carbon Sequestration Plan. This plan would involve an analysis of Lincoln's tree canopy, parks and greenways, open lands, composting activity, open water areas, impervious surfaces, grasslands, and native prairie. 11. Work with homeowner associations, partner organizations, and agencies to increase use of native plants and prairie in landscaping. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, & Open Space Policies # P20: Ecology and Habitat *Protect the natural habitat for threatened and endangered species.* <
> Lancaster County is home to a distinctive association of threatened and endangered species of plants and animals that represents a highly valued environmental legacy. Endangered species in Lancaster County include the Salt Creek tiger beetle (State and Federal Endangered), Western Prairie Fringed Orchid (State and Federal Threatened), Saltwort or Western Glasswort (State Endangered), Red Knot (Federal Threatened), Whooping Crane (State and Federal Endangered), and the Northern Long-Eared Bat (State and Federal Threatened). Other vulnerable species having habitat or that have historically been found in Lancaster County include the Bald Eagle (State and Federal Threatened), River Otter (State Threatened), Small White Lady's Finger Orchid (State Threatened), Topeka Shiner (State and Federal Endangered), Massasauga Rattle Snake (State Threatened) and American Burying Beetle (State and Federal Endangered). ### Action Steps 1. Research continues into the conservation of Nebraska’s eastern saline wetlands, which will enhance Salt Creek tiger beetle habitat. This will continue to include authorizing or soliciting funding for hydrology or hydrogeology research of the habitat area, determining basin-wide impacts of land use and human activities on the wetlands, characterizing the tiger beetle’s biology and habitat, and assessing the economic impacts of potential management efforts. 2. Continue cooperation between public and private entities to protect habitat for threatened and endangered species. Current efforts include those of the Saline Wetlands Conservation Partnership, the USDA Natural Resource Conservation Service, the Nature Conservancy, Nebraska Audubon, and others. 3. Landowners with saline wetlands and within the 500-foot buffer zones should be offered assistance concerning programs to preserve and protect wetlands and transition lands occurring on private property. 4. Continue to investigate incentives allowing land owners to pursue voluntary purchases, conservation easements, transfer of development right (TDR) or other similar preservation options. 5. Continue to explore grant opportunities for saline wetland preservation and enhancement. 6. Continue the public education effort to raise awareness of the Salt Creek tiger beetle and its unique habitat. 7. Review and revise regulations as appropriate for requiring buffer areas around critical natural areas. 8. Continue support of native plantings, creation of community gardens, expansion of pollinator habitat by the Parks and Recreation Department. 9. Create a Carbon Sequestration Plan. This plan would involve an analysis of Lincoln's tree canopy, parks and greenways, open lands, composting activity, open water areas, impervious surfaces, grasslands, and native prairie. Policies ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, and Open Space Policies # P21: Floodplains and Riparian Areas ## Protect and preserve floodplains and other riparian areas for flood storage, conveyance and other natural resource benefits. <
> Currently about 14% of Lancaster County is designated as floodplains. Floodplains provide multiple benefits to both the natural (flood storage and conveyance, flora and fauna habitat preservation and diversity, stormwater quality, groundwater recharge) and the built (recreation, public health and safety, economic) environments. The overriding policy for the floodplain is a "No Adverse Impact" policy for the City and County, which means that the community has a goal of insuring that the action of one property owner does not adversely impact the flooding risk for other properties. ## Action Steps 1. Designate areas for future urban development outside of the floodplain and floodway to avoid introducing new development to flood risks and to preserve the important functions of the floodplain. 2. Develop and utilize watershed plans during the review and evaluation of proposed developments and as a guide in the preparation of future capital improvement projects. 3. Develop project and development reviews which view stormwater as an asset, by working with the natural topography and using wetlands, floodplains, and natural drainage corridors as natural ways to manage flood flows and stormwater runoff. 4. Implement a Rain to Recreation watershed approach to reduce flood damages, protect water quality and natural areas, while providing for recreational and educational opportunities so as to realize multiple benefits. 5. Preserve and enhance vegetative buffers along stream corridors to slow the flow of stormwater, filter pollutants, preserve natural areas, protect the biological health of the stream from adjacent future land uses, and conserve other natural functions of the floodplain. 6. Develop and implement a floodplain buyout program for the City and County to restore floodplain functions while being sensitive to the need to minimize impacts on neighborhoods and historic districts. 7. Continue to develop a comprehensive, watershed approach to floodplain mapping and to improve the accuracy by making it a priority to which specific resources are dedicated. 8. Retain City or County property in the floodplain in public ownership whenever practical. Retain conservation easements to protect floodplain functions where unusual circumstances merit the consideration of surplus property or vacation of right-of-way in the floodplain. 9. Continue to implement education efforts to promote environmental stewardship and to notify floodplain property owners and prospective buyers of flood risks. 10. Consider maintaining no net fill conditions for properties in the floodplain being developed or redeveloped. Maintain no net fill conditions for those properties seeking Special Permits through Planning, Tax Increment Financing, or on former City property. Policies 11. Engage in a public engagement process to review and assess implementation of recommendations of the Salt Creek Resiliency Study, per the City of Lincoln Climate Action Plan. 12. Maintain the Community Rating System (CRS) rating that allows for a 25% reduction in flood insurance premiums for property owners in floodplains. 13. Prepare for federal adoption and make publicly available an updated floodplain map for Lincoln that reflects increased precipitation and streamflow projections based on precipitation data from NOAA Atlas 14 data. 14. Continue and enhance current outreach and education efforts with landowners and business owners located in the revised floodplain about their flood risk. Develop a comprehensive outreach and education strategy with residents in the revised floodplain about their flood risk. 15. In response to the findings of the Salt Creek Resiliency Study, assemble key partners and leaders in the City and County to develop comprehensive strategies that reduce flooding risks, improve soil health, sequester carbon, and maintain natural systems within the City and County, to include the Parks Foundation Land Trust initiative. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, & Open Space Policies # P22: Local Food *Encourage opportunities to grow local food, as locally produced food can provide a secure source of nutritious food that has a reduced impact on the environment and increased benefit to the health of consumers.* <
> The local food movement was born of a desire to provide a secure source of nutritious food that has a reduced impact on the environment and increased benefit to the health of consumers. Many urban areas have few sources of fresh produce, meats and dairy products; and many consumers must rely upon convenience foods and fast food restaurants. Local food production and consumption contributes to a more sustainable and resilient food supply chain, supports the local economy, and creates jobs and vocational training opportunities. ## Action Steps 1. Continue to promote the preservation of prime farmland in the rural areas of the county. 2. Continue to promote public-private partnerships that build stronger food networks and promote urban agriculture. An example of a successful partnership is the LPS Farm to School program. 3. Continue to provide the opportunity for Community Gardens to be developed on appropriate park property. 4. Promote urban gardens in all parts of the community, with focus on neighborhoods that lack convenient access to fresh foods. 5. Allow commercial agriculture, including points of sale for foods grown on-site, in all zoning districts at appropriate locations and with appropriate standards. 6. Encourage home gardens and edible landscaping and consider amending ordinances that might inhibit gardening for personal food production. 7. Encourage increased points of sale of local foods. 8. Double the number of acres in Lancaster County that are growing edible food by 2035. (From a 2017 baseline of 341) 9. Evaluate potential for local food production through urban market gardening on designated City owned properties – some of which may currently be in row crop production. Establish criteria for evaluation such as soil condition, availability of water for irrigation, impact on adjacent uses, et 10. Explore potential property tax incentives for agricultural use of vacant properties. 11. Work with the Lincoln Housing Authority and other partners to provide opportunities for community gardens that would allow home gardens for those in LHA dwellings. 12. Convene various stakeholders (UNL Extension, Lincoln-Lancaster County Food Policy Council (Lincoln Lancaster FPC), Community Crops, Local producers, etc.) to host community conversations, expanding education, awareness, and support for local food and regenerative agriculture. Policies 13. Evaluate City farm management contracts to require sustainable, regenerative agriculture practices (no till, multispecies cover crops, reduction in use of synthetic chemicals, toxic pesticides, and Genetically-modified Organisms (GMO)) to increase crop yield, lower production costs, and sequester carbon. 14. Conduct 128a brownfield site assessments on vacant lots for use as community gardens / urban agriculture. 15. Maintain database of City-owned property within the three-mile jurisdiction potentially available for community gardens / urban agriculture. 16. Develop a pilot program on City-owned property that is currently in row crop production for regenerative agriculture production. Identify a partner to act as land manager and/or consider reduced lease rate for local food producer that uses sustainable, regenerative agriculture practices to produce local food and products. 17. Assist institutional purchasers (UNL, schools, hospitals, etc.) to adopt local food purchasing percentage targets and create a model policy for the preferential purchasing of local food by public and private instittutions. 18. Encourage all public entities to explore leasing public land to prospective farmers and market gardeners. 19. Encourage the development of a curriculum for agriculture and local food-growing in LPS and other school districts as well as UNL and Southeast Community College to help recruit and train a new generation of farmers and market gardeners. Community Crops’ “Beginning Farmer Program” is a leading example. 20. Confer with economic development organizations such as the Chamber of Commerce as well as grocers and restaurants to investigate how best to enlist the private sector in expanding local food production, market development and career vocational opportunities in agriculture. 21. Consider economic development programs to support small food and farm businesses, including a low-interest revolving loan fund. Ensure that these programs are accessible to ethnic/minority food businesses and farms. 22. Seek out grant opportunities from state, federal and philanthropic organizations to assist with and support feasibility studies, and capital and operating expenses, as appropriate, for a food hub/commercial kitchen. 23. Compile information on existing food recovery, gleaning, and composting programs in Lincoln and Lancaster County and encourage all agencies with points of contact in the food system to cross-promote food recovery efforts. 24. Support the coordination of pantries and emergency food providers to improve recovery of safe, healthy food from area retail food outlets. ### Goals Supported by this Policy G5: Equity and Inclusion G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E5: Parks, Recreation, & Open Space Policies # P23: Salt Valley Greenway and Connecting Green Corridors Concept Implementation *Use the Salt Valley Greenway and Connecting Corridors concept to embody the PlanForward Vision and environmental resource principles.* <
> Since the first City/County Comprehensive Plan in 1961, the Salt Creek watershed has influenced planning for open space, greenways, recreation, and environmental resources in Lincoln and Lancaster County. The Salt Valley Greenway wraps around the City of Lincoln and is fed by tributaries that radiate out into the surrounding rolling hills. The effect is that of a large loop, primarily made of Salt Creek and Stevens Creek, with connecting green corridors linking urban and rural areas. Corridors which generally follow Salt Creek and its tributaries provide multiple benefits; creating connections between urban and rural areas, providing connections to the County’s Salt Valley Lakes, creating green partitions which help to prevent a “wall-to-wall” urban feel, connecting habitat for the movement of wildlife, protecting floodplain, and many others. Implementation of the Salt Valley Greenway and connecting corridor concept will provide an environmental framework upon which a thriving economy can be built. ### Action Steps 1. Develop a strategic plan for acquiring and conserving lands within the Salt Valley Greenway and Connecting Corridors through cooperative efforts of public agencies, private organizations, and individuals. 2. Encourage the development of a public-private partnership that will concentrate efforts on further planning, funding, land acquisition, and development of the Salt Valley Greenway and its connecting corridors. This should be viewed as a local natural resource as well as a major economic development program. 3. Identify and pursue funding sources for the acquisition of significant properties forming the Greenway. 4. Continue to use conservation easements to protect greenway areas where it may be desirable to allow compatible land uses such as row crop farming or pasturing. 5. Use of fee simple title may be more appropriate for areas that are best maintained in a natural state due to particularly sensitive features such as rare or sensitive areas, or that have value for resource-based recreation like hiking, interpretive activities, and wildlife viewing. Develop criteria and priorities to determine land areas that are most appropriately acquired and managed by a public agency. 6. The City should work with the Nebraska Game and Parks Commission and the Lower Platte South Natural Resources District (NRD) to provide recreation facilities around the Salt Valley Lakes and other natural resource sites. 7. Provide trail access over time to the Salt Valley Lakes and other natural resources via connections to the Salt Valley Greenway and associated tributary stream corridors. 8. Prepare and distribute information to community residents regarding the functions and value of the Salt Valley Greenway, and of the plans for its creation. 9. Utilize greenway linkages for commuter/ recreation trails. 10. Apply implementation tools specific to each of the Salt Valley Greenway and Connecting Corridor segments: a. Continue to develop the Prairie Corridor on Haines Branch to connect Pioneers Park Nature Center with Conestoga Lake and then continue south through the Village of Denton and on to Policies Spring Creek Prairie Audubon Center. This project includes preservation and restoration of over 7,000 acres of tallgrass prairie, wetlands, and wooded riparian corridor wound through by an extension of the City’s trail network. Use the Salt Valley Greenway and Prairie Corridor Master Plan and partners to identify unique areas of the County and promote private lands stewardship on land in or adjacent to Prairie Corridor. b. Seek the early acquisition (or the application of other management techniques) of land along Stevens Creek and within the Stevens Creek Basin for future greenways, open space and park uses. Examine possible park and open space potential around Walton where the MoPac and future Stevens Creek Trails will connect. Use the Stevens Creek Watershed Master Plan as a guide for identification of areas of opportunity. c. Continue development of the “Crescent Green” concept to provide a continuous greenway and open space corridor around the west and northern part of Lincoln. d. Explore alternatives for creating a greenway corridor along the South and East Beltways. The corridor could range from park-like areas those along Highway 2, to more riparian settings as are found in Wilderness Park. Planning for these corridors should be coordinated with planning for the trail network. e. Continue the advancement of the greenway corridor along Interstate 80, between North 27th Street and the City of Waverly. This corridor already includes a number of wetland areas (both saline and fresh water) that are under public ownership – City of Lincoln and the Lower Platte South Natural Resources District in particular. The corridor contains the Warner Wetlands and the City’s wetlands mitigation bank. The area is a major entryway into the City of Lincoln and provides associated trail and open space opportunities. f. Extend the protected greenspace along Salt Creek extending south of Saltillo Road to the South Beltway, in conjunction with enhanced floodplain mapping for this area. This extension may be accomplished through a combination of land purchases, conservation easements, donations, and other options. Work with other incorporated communities within the county — notably Roca and Hickman — to coordinate the Greenway’s extension. g. Continue the efforts along the Rock Creek and Little Salt Creek stream corridors to conserve and enhance Nebraska's most limited and endangered wetland type, which provides habitat for a variety of native plant and animal species, including two endangered species. Link these important natural resource corridors to the Salt Valley Greenway via future county trails. Policies ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, & Open Space Policies # P24: Environmental Resource Protection *Environmental resources provide the framework for a healthy, active, and economically vibrant community.* <
> Lancaster County boasts a diverse set of environmental resources and landscape types that should be respected and maintained. The Greenprint Challenge, developed by the City of Lincoln/Lancaster County Planning Department, Parks and Recreation, and the Lower Platte South NRD in 2001, provides an approach for sound and sensitive urban and rural development that is interwoven with the community’s desire for maintaining and enhancing the ecological and economic benefits of our natural and cultural environment. Although 20 years old, the resources identified, and the recommended principles for their protection, in the Greenprint Challenge are still applicable today and will continue to be in the future. Lancaster County’s environmental resources reside within a broad range of settings that should be considered as policy and decisions are made. The Plan should consider both the local and broader regional and global impacts of actions affecting environmental resources. ## Action Steps 1. Pursue a variety of funding and financing options on a continuing basis. These may include: enlisting a land trust to enable donations of land, capital improvements programming providing for further acquisition of park property and natural areas, and grant funding from such sources as the Land and Water Conservation Fund, various floodplain and water quality funding programs, and the Nebraska Environmental Trust. 2. Conduct outreach efforts bringing together private landowners, environmental interests, and the development community to seek a common understanding and approach regarding natural resource features and the vision described in this Plan. 3. Consider the relationship among environmental resources (i.e., prairies, riparian corridors, floodplains, freshwater and saline wetlands, and other natural areas), key corridors/linkages, and the adjacent land uses for appropriate management and resource protection. 4. Implement the “Prairie in the Park” concept by including prairie plantings and pollinator gardens in all new park master plans. Work to retrofit existing parks with prairie plantings and pollinator gardens as they are rehabilitated. Continue support of native plantings, creation of community gardens, and expansion of pollinator habitat by the Parks and Recreation Department. 5. Support natural climate solutions identified in the Climate Action Plan including carbon sequestration, interconnected habitats, flood mitigation and water conservation and apply strategies to quantify the benefits of ecosystem services. 6. Encourage efforts to preserve healthy soils and agricultural practices that enrich depleted soils. This could include mandatory sequestration of topsoil during construction, use of multi-species cover crops, and review of pesticides to evaluate their impact on soil health. 7. Investigate means for encouraging native prairie restoration by private entities. Policies 8. Utilize the University of Nebraska School of Natural Resources and Center for Grassland Studies in assessing alternatives for grassland preservation and restoration. 9. Resurvey and update the County’s prairie and grassland inventory for inclusion in the Natural Resources Geographic Information Systems (NRGIS). Support implementation of efforts and plans that protect and preserve habitat for Federally and State threatened and endangered species including the Saline Wetlands Implementation Plan and State Wildlife Action Plan and its supplement. 10. Support implementation of efforts and plans that protect and preserve habitat for Federally and State threatened and endangered species including the Saline Wetlands Implementation Plan and State Wildlife Action Plan and its supplement. 11. Continue cooperation between public and private entities to protect habitat for threatened and endangered species. Current efforts include those of the Saline Wetlands Conservation Partnership, the USDA Natural Resource Conservation Service, the Nature Conservancy, Nebraska Audubon, and others. 12. Landowners with saline wetlands and within the 500-foot buffer zones should be offered assistance concerning programs to preserve and protect wetlands and transition lands occurring on private property. 13. Document or promote historic, cultural and archeological sites throughout the City and County. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, & Open Space ## P25: Open Space with Development ### The community should continue to acquire parkland and conserve open space areas commensurate with expanding development, population growth, and community needs. <
> While planning for future growth is integral to the Plan, it is equally important that environmental resource features be accorded similar attention. The community should invest planning resources into the early identification of those areas that are most valued as part of the Greenprint Challenge. This principle supports the notion of “getting ahead of the game” by knowing what resources are most valued, where they are located, and what actions should be made within the broader planning process to secure their future for the community. ### Action Steps 1. Acquisition and development of parks and open space areas should conserve and enhance signature landscapes and environmental resources, and provide opportunities for outdoor active and passive recreation. 2. Integrate the natural resource feature concepts into future planning activities such as zoning and subdivision review, watershed master planning, subarea planning, transportation and utility planning, and floodplain management studies. 3. Pursue stormwater management practices that consider both water quality and quantity approaches near freshwater wetlands. Buffer areas should be encouraged at their perimeters to decrease the effects of adjacent future uses. 4. Designate areas for future urban development outside of the floodplain and floodway in order to mitigate the impacts of flooding and preserve natural flood storage. Floodplain in public ownership should remain in public ownership. However, where it is determined that there is public benefit to releasing floodplain property to private ownership, flood storage capacity should be maintained through easements, deed restrictions, or other tools. 5. Utilize a “Rain to Recreation” approach to open space and greenway linkages that is coordinated with the City’s watershed management program and the Lower Platte South Natural Resources District to reduce flood damages, protect water quality and natural areas, while providing for recreational and educational opportunities to realize multiple benefits. 6. Provide appropriate incentives to encourage landowners to preserve saline and freshwater wetlands. Incentives to be used or considered further include: a. Special density credits or bonuses within a Community Unit Plan for wetland conservation. b. Utilize these areas for wetland bank mitigation. c. Technical assistance for wetland preservation and enhancement. d. Conservation easements with tax incentives. e. Fee simple purchase of land for preservation. Policies f. Tax benefits from charitable donations of land and easements for preservation. 7. Trails should be an integral part of the community’s green spaces and corridors. Pursue the active coordination of all future trail network extensions and enhancements. The urban network of trails should connect employment centers, shopping areas, schools, and residential neighborhoods. 8. Seek establishment of trail easements or comparable options along selected county roads. 9. Monitor rail lines which may be abandoned in the future for acquisition as trails as part of an overall open space and recreation system for the county. 10. Preserve prime agricultural land within the Tier I and Tier II areas, both to reduce conflicts in the future growth of Lincoln and to ensure available land for the production of food products that are important to the health and economic vitality of the community. 11. Develop planning guidelines, management techniques and supporting policies for preserving native prairies and grassland. 12. Encourage the retention of linear connections of green spaces wherever possible. Efforts should be made to preserve small stream corridors throughout future developments. Adopt revised minimum corridor standards to preserve longer and wider stream corridors. 13. Pursue greenways connecting urban and rural areas. Such corridors should follow stream courses and connect valuable natural resource areas. 14. Ensure that as greenways and open space corridors are identified and created, provisions are made for possible future access points across these areas. This may include, but not be limited to, access for new road alignments, road widenings, utilities, and other similar services 15. Identify open space areas that are particularly valued by community residents for rare or unique attributes and establish development regulations utilizing a balance of incentive and mandatory measures. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G11: Rural Environment ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, & Open Space Policies # P26: Community Forestry Management *Comprehensive and adaptive community forestry management approaches should be applied as part of sustaining the urban forest.* <
> The Urban Forest represents a significant community investment, both public and private. Although not technically part of the natural environment, the environmental benefits are far-reaching and highly important to the community. ## Action Steps 1. Resources should be allocated and available to areas with increasing development and population. 2. Implement the recommendations of the Community Forestry Advisory Committee to ensure no genus of tree composes more than 10% of the City’s public trees. Consider selection of appropriate street tree species in new climate scenario. 3. Systematically and proactively manage trees on public property. 4. Continue to plant and replant public trees through City tax funds, grants, and public/private partnerships. 5. With the arrival of the Emerald Ash Borer in April of 2018, and in cooperation with public and private partners, implement the response plan and funding strategy that involves phased removal and replacement of ash trees and preservation of some high value ash trees. 6. Replace public ash trees on a one-to-one basis with a diverse mix of tree species. 7. Monitor other emergent insect infestations and diseases that threaten the vitality of public trees; develop readiness plans. 8. Promote public education regarding the planting and care of trees, and opportunities for volunteer involvement in planting and maintaining public trees. 9. Street trees require ongoing, regular management to assure adequate clearance over sidewalks and over streets, and to maintain visibility of traffic safety signage. Consideration needs to be given to appropriate management of street trees over time so that their benefits are achieved. 10. Consider development of regulations that promote preservation of significant trees within new commercial and residential subdivisions. 11. Continue to require that parking lot trees be planted with new construction and consider increasing the number of required trees. 12. Replacement of a damaged street tree is at the request of the property owner. Assess street tree coverage and provide assistance as needed to ensure consistent street tree canopies across all neighborhoods. 13. Assess baseline tree canopy with emphasis on low-income neighborhoods and prioritize tree plantings to reduce heat island effect, increase stormwater management, and reduce utility bills. 14. Increase funding resources to meet recommended tree replacement goal of 1:1 and to reduce pruning cycle of street trees from 25+ years to under 10 years. Policies 15. Create a Carbon Sequestration Plan. This plan would involve an analysis of Lincoln's tree canopy, parks and greenways, open lands, composting activity, open water areas, impervious surfaces, grasslands, and native prairie. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency ### Elements Related to this Policy E4: Environmental Resources E5: Parks, Recreation, & Open Space Policies <
> # P27: Regional Parks and Tournament Facilities *Continue to provide and expand Regional Parks and Tournament Sports Facilities to serve Lincoln and the larger community.* Regional Parks and Tournament Sports Facilities are tracts of land that encompass special or unique facilities and features that are of interest to diverse groups throughout the community. Regional Parks primarily provide opportunities for day use activities that may include community festival/ gathering spaces, picnicking, hiking, sports, fishing, canoeing, boating, and environmental interpretation/appreciation. Fields and courts for organized sports activities may be secondary or primary uses. ## Action Steps 1. Continue to enhance opportunities for interpretation of native landscapes and ecosystems indigenous to eastern Nebraska through conservation of additional parcels for buffering and enhancement of visitor facilities at the Pioneers Park Nature Center. 2. Formalize a strategy for the development, marketing, and management of a tournament sports complex at the Oak Creek Park/Oak Lake Park site. 3. Explore opportunities to provide enhanced water recreation activities at Holmes Lake in Holmes Park. 4. Acquire additional land adjacent to parkland at N 98th and Adams. This property is currently adequate for a Community Park but it is desirable to increase the size to serve a Regional Park function. 5. New, large park facilities are significant capital expenditures and need financing beyond the typical funding. Identify a funding strategy to address the gap in capital repair and replacement funding and provide for new recreational opportunities in the community. ## Goals Supported by this Policy G6: Healthy, Active, and Connected People ## Elements Related to this Policy E5: Parks, Recreation, & Open Space Policies # P28: Community Parks *Continue to provide Community Park facilities as the City grows.* <
> Community Parks are typically 30 to 50 acre sites that are readily accessible from arterial streets and the commuter/recreational trail system. Community Parks may include play fields and play courts for organized sports, a playground with an accessible fall surface, facilities for day use activities including a picnic shelter and restroom, seating, walking paths, and off-street parking. They may also include a swimming pool and/or a recreation center. Community Parks often include areas left in a natural state with meadows, prairies, forest, wetlands and other natural features as part of Parks and Recreation's FUNctional Landscapes program. Community Parks often include activity areas consistent with those located in neighborhood parks and as a result, Community Parks may serve as the Neighborhood Park for surrounding residential areas. The Plan recognizes the need for about 150 acres of new Community Park land. Three new Community Park sites are anticipated. ## Action Steps 1. Locate Community Parks on a collector or arterial street to accommodate automobile access and parking; park sites should also be readily accessible by pedestrians and bicyclists from a commuter/recreation trail. 2. Locate Community Parks adjacent to middle schools where possible. 3. Community Parks should be adjacent to greenway linkages. 4. Provide buffering between Community Park activities and adjacent residential areas to minimize traffic and noise impacts. 5. Enact design standards for field and parking lot lighting that seek to minimize glare, light spill-over onto adjacent properties, and impacts on the dark night sky. 6. Select sites for Community Parks that allow for multiple functions, such as stormwater management and habitat conservation. 7. Focus on the development and maintenance of sports fields and associated day use facilities. 8. Establish Youth Baseball/Softball complexes as part of Community Parks throughout the city; form partnerships with youth baseball organizations and Lincoln Public Schools for maintenance and utilization strategies. 9. Create pedestrian connections between surrounding residential development and neighborhood-related park features such as playgrounds and park shelters. 10. New, large park facilities are significant capital expenditures and need financing beyond the typical funding. Identify a funding strategy to address the gap in capital repair and replacement funding and provide for new recreational opportunities in the community. 11. Develop Jensen Park, southeast of Yankee Hill Road and South 84th Street as a Community Park as funding becomes available. Policies 12. Develop Bison Park, located southeast of West Van Dorn and South Coddington Avenue as a Community Park as funding becomes available. 13. Acquire and develop a Community Park in the Stevens Creek basin in the vicinity of A Street and South 120th Street as funding becomes available. 14. Acquire a Community Park site in northwest Lincoln ideally in proximity to Little Salt Creek with the site integrating both active recreation options and natural resource land conservation. ### Goals Supported by this Policy G2: Complete Neighborhoods G6: Healthy, Active, and Connected People ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E5: Parks, Recreation, & Open Space Policies # P29: Neighborhood Parks *Continue to develop Neighborhood Parks to serve newly developing areas of Lincoln.* <
> Neighborhood parks are centrally located within areas of residential development and intended to be accessible by no more than a ten-minute walk from residences within the neighborhood. Typical activity areas include playground equipment, open lawn areas for informal games and activities or play courts with a single basketball goal for informal games, shaded seating, and walking paths. When possible, neighborhood parks are co-located with elementary schools, a concept referred to as “Sparks.” Neighborhood parks that are associated with schools are typically 2 acres in size and located so that they can be accessed by students during the day and still easily accessible to the neighborhood when school is not in session. When parks are not located with schools, an area of about 4 acres is desirable to provide some of the open play area which is provided by school playfields in a “Spark.” In some cases, Neighborhood Park services are provided within larger Community Parks. ## Action Steps 1. Locate Neighborhood Parks close to the center of residential areas and within a 10-minute walking distance of a majority of residents; park sites should be readily accessible by pedestrians and bicyclists. 2. Develop “Sparks” such that site planning and development is coordinated, anticipating that the primary use of the Spark will be school students during the school day and related after school programming; Sparks will be available for use of neighborhood during the evening, weekend, and summer hours. 3. Locate Neighborhood Parks adjacent to greenway linkages where possible. Where possible, select sites for Neighborhood Parks that allow for multiple functions, such as stormwater management or habitat conservation. 4. As the City continues to grow and the community demographics shift, seek out opportunities to provide neighborhood park activities that address the needs of different cultures, age groups, and abilities. 5. Locate park sites where residents living in surrounding homes, people in passing vehicles, or pedestrians can view activities in the park to provide for informal supervision. 6. Identify opportunities to acquire and develop Neighborhood Parks in established neighborhoods that are deficient in Neighborhood Park resources, particularly in those neighborhoods where indicators of vulnerability are higher. 7. Continue joint planning activities between the City of Lincoln and Lincoln Public Schools for selection and acquisition of future school/park sites. Policies ### Goals Supported by this Policy G2: Complete Neighborhoods G6: Healthy, Active, and Connected People ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E5: Parks, Recreation, & Open Space Policies # P30: Recreation Centers / Community Learning Centers The City supports a comprehensive recreation approach including neighborhood based services; community-wide celebrations, leagues and events; partnerships and collaborations with many organizations and community members; to provide services that support active living, youth development, livable neighborhoods and family life for all community members. <
> The Parks and Recreation Department operates six neighborhood recreation and community centers offering youth development (before and after school programs, summer day camps), recreation, leisure interest, fitness and human services programs. Three of the facilities are co-located with schools (Belmont, Calvert, and Irving), and three are freestanding buildings (Air Park leased from the Airport Authority, Easterday and F Street). The City facilities were constructed between the 1970's and early 2000's. Therapeutic and adaptive recreation programs are a primary emphasis of programming at Easterday Recreation Center. A new recreation center replacing the current Air Park Recreation Center facility is anticipated to be completed in 2023. This facility will be co-located with the Williams Branch Library and will be adjacent to Arnold Elementary School. A major update and expansion of the Easterday Recreation Center is also planned. ## Action Steps 1. Explore opportunities with Lincoln Public Schools to develop multi-purpose community space (activity centers) with new school facilities, allowing for expanded community programs and activities at school sites. a. An activity center should include a large multipurpose space, public restrooms and shared office and storage space for community agencies and organizations offering programs in the center. b. Access to the activity center should be designed so that it can be restricted to the school during school hours and accessed via a separate entrance after hours. c. Activity centers should also be designed so that they can be used in combination with the school gym, media center, cafeteria and entry lobby to support youth programs before and after school, as well as a variety of other community activities. 2. Complete a major renovation and possible expansion of Easterday Recreation Center in order to support unique programming at that site. 3. Complete the Air Park Recreation Center replacement, jointly located with the Williams Branch Library. 4. Continue to encourage and support expansion of the community learning center initiative as a model for offering neighborhood-based services to residents. 5. Explore opportunities to work with the Lincoln YMCA and Lincoln Public Schools to develop new community recreation center facilities in additional areas of Lincoln similar to the school / YMCA / park model of Moore Middle School in southeast Lincoln and Schoo Middle School / YMCA in northwest Lincoln. Policies ### Goals Supported by this Policy G2: Complete Neighborhoods G6: Healthy, Active, and Connected People ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E5: Parks, Recreation, & Open Space Policies <
> # P31: Aquatic Facilities *Continue to provide opportunities for aquatic activities with emphasis on facilities that serve quadrants of the Cityand are easily accessible by pedestrians and bicycles.* Aquatic Facilities are developed to provide opportunities for water recreation activities. The City of Lincoln owns and manages ten Aquatic Facilities: nine outdoor public pools, and one free-standing sprayground in Trago Park. The City should maintain its commitment to outdoor water recreation activities; however no additional Neighborhood Pools should be constructed in the future because of the low cost-recovery and the level of ongoing tax support required for annual operations and maintenance. ## Action Steps 1. Continue to maintain and upgrade mechanical systems of existing outdoor swimming pools; regularly add features to Neighborhood Pools to make them inviting and attractive to visitors. 2. Complete a major renovation of Star City Shores, adding new features. 3. Construct a new Community Pool facility similar to Star City Shores in the Steven Creek basin. 4. Provide Spray Park amenities in each of the four quadrants of the City. 5. Renovate three existing Community Pools (Highlands, University Place, and Woods) over time as needed. 6. Renovate four of the Neighborhood Pools (Air Park, Belmont, Eden and Irvingdale) to bring the pool basins and bathhouses into compliance with accessibility guidelines, as has been completed at Ballard Pool, contingent upon adequate funding for annual operations and for repair/renovation costs. 7. Consider public-private partnerships with organizations such as the YMCA to provide access to outdoor pools in Lincoln that are outside of the service area of City operated pools on a non-membership, fee-for-use basis. 8. Explore opportunities as they emerge to promote development of an indoor aquatics center with competition facilities as an emphasis; potential partners include UNL and one or more private partners. ## Goals Supported by this Policy G2: Complete Neighborhoods G6: Healthy, Active, and Connected People ## Elements Related to this Policy E1: Complete Neighborhoods & Housing E5: Parks, Recreation, & Open Space Policies # P32: Other Recreational Facilities and Activities *Continue to provide a wide variety of recreational opportunities to the people of Lincoln and Lancaster County and continually monitor current trends in recreation.* <
> Within Lancaster County, a wide variety of recreational opportunities are presented by both public and private sectors. Lincoln Parks and Recreation has facilities ranging from golf courses to wilderness trails, from horseshoe pits to skate parks, and from public gardens to dog runs. These park facilities serve a wide range of interests, ages, cultures and activity levels. Park facilities strive to reflect the ever-changing demographics of the community they serve. Parks also serve an important economic development role and can play a large part in the decisions made by businesses and individuals as they select a future home. ## Action Steps 1. Continue to update and implement plans and projects included in the Department’s 10-Year Facilities Plan, including the Wilderness Park User Experience Master Plan. 2. Continue to plan for the long-term operation and maintenance of the City’s five public golf courses. 3. Continue to work with the Lincoln Plant Conservatory to explore the viability and sustainability of a plant conservatory in Lincoln. 4. Consider expansion of dog run facilities into two additional sites as envisioned in the Dog Facility Master Plan. 5. Complete the construction of a downtown dog park as the South Haymarket park develops. 6. Continue to work with Friends of Woods Tennis to provide community tennis programming in Woods Park. Explore development additional indoor and outdoor courts within the capacity of Woods Park as community interest in tennis grows. 7. Explore opportunities to upgrade and better maintain public tennis courts in parks. 8. The current LOS for Pickleball is one court per 14,000 residents, desired LOS is one court per 7,000 residents. Approximately 15 additional courts will be required over the planning period to meet this LOS. (Note: the level of service is calculated at 50% for striped dual-use courts and 100% for dedicated courts) 9. Continue to work with Pickleball Lincoln to evaluate opportunities for expansion of pickleball courts and program through shared use of outdoor tennis courts and development of additional dedicated outdoor pickleball courts. Plan for additional facilities, perhaps of 6 to 10 courts, in each quadrant of the City. 10. Coordinate facilities and programming for the Prairie Corridor to support and enhance the work of the Pioneers Park Nature Center. 11. Continue to seek opportunities to partner with other agencies and organizations to provide special facilities on park property as appropriate. 12. Continue to monitor local and national trends in recreation in order to provide recreational opportunities that reflect the needs and desires of the Lincoln community. Policies 13. Implement the end use master plan for a bike park on the soon to be decommissioned N. 48th Street Landfill. Consideration of access from both major roadways and the commuter trail system is important. Identify community partners for planning, funding and long-term management of this park. 14. Evaluate the capacity of Lincoln’s Community and Neighborhood parks to include new recreational features such as pickleball courts, skate park amenities, disk golf baskets, and others in underutilized areas. These limited facilities make activities available to a wider audience and provide an opportunity for those new to the sports to try them and gain confidence to participate at larger facilities. 15. Coordinate with the YMCA in their efforts to replace aging centers and expand into new growth areas, particularly replacement of the downtown and northeast centers and future growth into Stevens Creek. 16. The current LOS for disk golf is one hole per 7,000 residents. This LOS should be maintained over the planning period which will require an additional 18 holes. Stevens Creek Park and Jensen Park could be locations for future courses. 17. Develop an 18-hole disk golf course on the Beal Slough Greenway north of Pine Lake Road, as part of a public/private partnership. 18. Complete upgrade of the skate park at Peter Pan Park to the same or better standard as the skate park at Tierra Park. 19. Explore the relocation of the radio-controlled car racing facility at Oak Lake Park to the eastern end of Star City Shores. The new facility should be designed to allow for ADA access. 20. Consider expanding the Disk Golf facilities to reach the 54 holes required for a large disk golf tournament. ### Goals Supported by this Policy G2: Complete Neighborhoods G6: Healthy, Active, and Connected People ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E5: Parks, Recreation, & Open Space Policies # P33: Parks and Recreation Partnerships *Identify and foster partnerships with agencies and private organizations to provide a full range ofpark and recreational services to Lincoln and Lancaster County.* <
> Community partnerships are critical to developing a park, recreation, and open space system that fully serve the people of Lincoln and Lancaster County. The Parks and Recreation Department has a long history of partnerships. These partnerships broaden the resources available for important public projects and result in a better outcome. Partnerships can also foster a sense of community ownership and assure a more equitable outcome. ## Action Steps 1. Identify and foster partnerships to maintain and operate parks, recreation programs and natural areas in the county. This structure may involve existing agencies, reflecting a modification in current responsibilities and authorities. The entity should have clear responsibility to act both inside and outside the City of Lincoln and its extra-territorial limits. 2. Continue the cooperative efforts of the City of Lincoln, Lancaster County, Lower Platte South Natural Resources District, the Nebraska Game and Parks Commission, and other partners on various efforts including land conservation, wildlife and habitat preservation, flood management, recreation, maintenance, and game management. 3. Formalize cooperative agreements between the City of Lincoln, Lancaster County and the Lower Platte South Natural Resources District and other partners as appropriate regarding planning, funding, conservation and management of open space and greenway areas. 4. Continue to develop a cooperative relationship with the Nebraska Game and Parks Commission and the Lower Platte South Natural Resource District to provide recreation facilities within rural areas of the community. 5. Establish an organizational structure for coordination of open space conservation activities between public agencies and private organizations. 6. Identify cooperating partner agencies and organizations and formalize roles and responsibilities for acquisition and development of parkland and conservation of open space and natural areas. 7. Continue to refine roles and responsibilities associated with the new Lincoln Parks Foundation land trust and identify any necessary agreements to be put in place for that effort. 8. Continue to work with Lincoln Public Schools to identify opportunities to co-locate park and school facilities, and to develop Activity Centers in new schools to support Community Learning Center / full-service community school programming 9. Continue to formalize partnership agreements to clarify roles and responsibilities, with the goal of maximizing effectiveness of cooperative efforts. 10. Continue to support the Lincoln Parks Foundation and Parks and Recreation Department Land Trust initiative, working in partnership with landowners to preserve native prairie, wetland areas, and other natural resources. Policies ### Goals Supported by this Policy G6: Healthy, Active, and Connected People ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E5: Parks, Recreation, & Open Space Policies # P34: Urban Design Standards *Design standards should be developed, monitored, and revised as necessary to express and protect community values without imposing delays or restricting creativity.* <
> Urban design is the concept and practice of studying people’s experience of their physical environment—both visual and functional—then consciously striving to improve that experience. It is essential both to preserve and enhance key existing elements and to create improvements that mesh with and strengthen a distinctive and enjoyable place. When successful, urban design and historic preservation make a community more enjoyable for residents, more attractive to visitors, and more competitive in drawing new businesses and retaining existing ones. A truly sustainable community recognizes and builds on its heritage by fostering good urban design, creating a sense of place and uniqueness that supports a strong economy, values environmental assets, and promotes social engagement and interaction. Successful urban design requires cooperation of public and private sectors. ## Action Steps 1. Implement expanded commercial design standards that could be applied across various zoning districts or corridors. Design standards should be clearly written and allow for an efficient, expeditious review process, while especially focusing on the interface with residential neighborhoods, attractive streetscapes, and safe and comfortable movement of people – whatever their mode of travel. 2. Continue to identify and maintain high-value Capitol View Corridors and protect those views through regulations and guidelines, including vistas that gain prominence as the community grows. Structures that may interfere with these public corridors should be reviewed by the Capitol Environs Commission and a recommendation made within the context of their overall effect upon the view. 3. Prepare and periodically update subarea plans for the redevelopment of mixed use corridors and nodes to facilitate predictable, expeditious, well-designed improvements and investments. 4. Monitor and update the Downtown Master Plan periodically, as the adopted guide to redevelopment of the community's center, as identified in the *Infill and Redevelopment chapter*. 5. Extend the contributions of Urban Design Committee to advise on building projects of Lancaster County and other local government agencies as appropriate. 6. Create a redevelopment toolkit to provide guidance and best practices for design considerations with redevelopment projects. 7. Strengthen design standards for commercial and mixed-use development along major travel corridors, to reflect a positive visual image that engenders community pride and identity. 8. Evaluate the expansion of the neighborhood design standards area to apply for residential districts within the 1970 city limits boundary. Neighborhood Design Standards currently apply within the 1950 city limits boundary. Policies ### Goals Supported by this Policy G10: Effective Government G12: History and Culture G13: Community Appearance ### Elements Related to this Policy E6: Placemaking Policies # P35: Entry Corridors Entryways should be studied, protected, and enhanced to create and express community pride. <
> Attractive, well-designed entryways can have a lasting impression on new visitors, positively shaping their perception of the community as a whole and increasing the likelihood of a return visit. Inversely, poorly designed – or poorly maintained – entryways can deter visitors from exploring a community or coming back more often. For local residents and employees who travel the entryway regularly or live in close proximity, successful corridors can positively impact their quality of life, promote community pride, and fuel future reinvestment in the surrounding area. ## Action Steps 1. Study key entryways to Lincoln and adopt zoning tools and incentives to protect and enhance “first impressions” of the community, including a thoughtful, distinctive, and attractive system of “wayfinding” signs to key community attractions. 2. Continue and update a wayfinding system of related, attractive signs guiding and orienting motorists, bicyclists, and pedestrians throughout the community. 3. Preserve and enhance the character of key entry points and corridors into the City of Lincoln through enhanced landscaping and public art in rights-of-way, and respectful development of adjacent properties. ## Goals Supported by this Policy G10: Effective Government G12: History and Culture G13: Community Appearance ## Elements Related to this Policy E6: Placemaking Policies # P36: Public Art *Public art is an important means by which the community can strengthen its sense of place and promote a positive image.* <
> Done successfully, public art can transform a public way or space into an experience or moment to remember. A collection of these experiences spread out throughout the community can enhance community pride and establish a sense of place that both residents and visitors will benefit from and embrace. ### Action Steps 1. The corridors along I-180 from Interstate 80 to the entry into Downtown, and from Lincoln Municipal Airport along Cornhusker Highway from N. 11th Street to N. 56th Street should be a special focus for public/private partnerships to identify special themes and appropriate sites for public art. 2. Support implementation of the Public Arts Master Plan for the City of Lincoln which identifies art projects and policies that enhance the cultural fabric of the City. 3. When evaluating the public art inventory and identifying future locations, the aim should be to locate significant works of art throughout the city so that the public collection can be enjoyed by all. 4. The inclusion of public art should be considered during the conceptualization and design of any major public project, with a focus on context-driven art that feels integral to the urban experience. 5. Seek the early integration of the talents of artists with architects, landscape architects, and engineers on public improvements. 6. Prioritize the inclusion of artists and public art advocates as key stakeholders in the planning and design process for public improvement projects, and work to establish public-private partnerships with Public Art Lincoln and other relevant organizations to facilitate the inclusion of public art in said projects. Identified stakeholders should be representative of the art community's diverse representation across backgrounds and cultures. 7. Prioritize the implementation of public art projects and creative urban design installations that have broad appeal to the community, including those which have interactive qualities or facilitate social interaction in the public spaces in which they exist. ### Goals Supported by this Policy G12: History and Culture G13: Community Appearance ### Elements Related to this Policy E6: Placemaking Policies # P37: Historic Preservation *The community’s distinctive character and desirable quality of life should be supported by exercising stewardship of historic resources throughout the County.* <
> Many parts of PlanForward contribute to the attainment of this statement, but urban design and specifically historic preservation, relate most directly to guarding and enhancing the community’s physical image. The community’s distinctive character and desirable quality of life for current residents and for future generations should be supported by exercising stewardship of historic resources throughout the County, while maximizing benefits of past investments in public infrastructure and private property. Historic areas and quality new development share underlying aspects of good design— durable materials, thoughtful attention to maintaining or creating a desirable overall setting, accessibility by multiple modes and all people, well-designed and effective signs that communicate without dominating, and sustainable, maintainable landscaping. When successful, urban design and historic preservation make a community more enjoyable for residents, more attractive to visitors, and more competitive in drawing new businesses and retaining existing ones. ## Action Steps 1. Expand the community’s historic preservation program to include Lancaster County through interlocal agreements between Lancaster County, the City of Lincoln, and other incorporated communities. Widen the scope of the mission and membership of the Historic Preservation Commission to include all of Lancaster County. 2. Lincoln and Lancaster County should work in partnership with state and federal historic preservation programs, but local landmark protections are usually the most effective and appropriate. 3. Continuously monitor and improve local programs and regulations, especially working to balance conflicting regulations that may offer alternatives to achieve life-safety goals while protecting threatened historic resources. 4. City and county governmental policies should provide for the protection and enhancement of historic resources. 5. Continue to inventory, research, evaluate, and celebrate the full range of historic resources including standing structures, distinctive neighborhoods and regions, landscapes, and buried cultural materials throughout Lancaster County, collaborating with individuals, associations, and institutions. 6. Designate landmarks and districts through the local preservation ordinance and the National Register of Historic Places. 7. Seek incentives and regulatory support to maintain, rehabilitate, and minimize energy utilization of existing buildings in order to make it more feasible to rehabilitate and continue to use older buildings.Implement a public policy of the careful stewardship of significant, publicly owned historic resources, including a full and open examination of alternatives when major alterations or demolition are considered. Policies 8. Continue the educational outreach effort of the historic preservation program through tours, publications, on-line information, and presentations, in order to share the results of historic preservation and research with the broadest audience of residents and visitors. 9. Monitor local preservation efforts and local, state, and federal incentive programs to improve and apply the most effective tools for preserving, maintaining, and utilizing historic resources as fully utilized components of the community. 10. Include a procedure in the preservation ordinance for temporary protection of significant historic resources threatened with demolition, to allow time to explore and implement alternatives. 11. Support and participate in neighborhood, community, and statewide groups interested in historic preservation. 12. Encourage protection and discourage destruction of buried cultural resources either by vandals, looters, or insensitive construction. 13. Most historic property is and should be privately owned and maintained. Public property, especially publicly owned historic property, is a community trust and should be maintained, preserved, and utilized in an exemplary fashion. 14. Encourage the continued use and maintenance of historic resources, including properties not formally designated as landmarks. 15. Inventory and pursue the preservation of unique features to provide special educational and interpretive opportunities. These include quarries and areas of geological significance, remnants of historic trails, unique bluffs near Bennet, the sandstone prairies, and historic pits and grasslands around Hickman and Roca. ### Goals Supported by this Policy G10: Effective Government G12: History and Culture G13: Community Appearance ### Elements Related to this Policy E6: Placemaking Policies # P38: State Capitol *Protect and enhance the State Capitol building’s stature within the community.* <
> The 400-foot State Capitol is the key historic, architectural, and geographic landmark of the city and surrounding countryside. Views to the Capitol are highly valued by the people of Lancaster County and the State of Nebraska and should be protected and enjoyed for generations. From distant vistas along Interstate 80 to intimate glimpses from core neighborhoods, views of the Capitol enrich and unify this place. Many of the best elements of Lincoln’s built environment are based on Capitol views—the Malls, the tree-framed vistas from Pioneers Park, and the homeowners’ park in Woodsshire Historic District. The community’s opportunity to benefit from the Capitol is further enhanced by improvements to its immediate setting, especially in the axial malls which extend from the Capitol in the cardinal directions, such as Centennial Mall. ### Action Steps 1. Continue to enforce standards for Capitol View Corridors to protect key vistas of the Capitol and identify new view corridors as the community grows. 2. Prioritize continued maintenance and enhancement of the Centennial Mall, J Street, Goodhue Boulevard and Lincoln Mall streetscapes within the Capitol Environs District, with a goal of preserving beautiful, active malls that lead to the Capitol. 3. Continue the work of the Capitol Environs Commission to protect and enhance the capitol environs area. This work should include regular review of the Capitol Environs Design Standards to ensure that the standards provide a valuable framework for decision-making by the Commission. 4. Engage the Capitol Environs Commission early in major redevelopment projects located within the Environs District to guarantee that developers understand the expected level of design to be achieved. 5. Coordinate efforts between the Capitol Environs Commission and the Nebraska Capitol Commission to address mutual interests of the City of Lincoln and the State of Nebraska as it relates to the preservation and enhancement of the Capitol and its environs. 6. Map the location and investigate the availability for preservation of several locations in the County that offer distinguished views and vistas of the state Capitol. Many of these locations may be appropriate for public ownership as future parks or open space. Efforts should be made to acquire these parcels should they become available. 7. Seek opportunities to incorporate scenic views, corridors, and natural areas into parks, trails, and other recreational facilities. Policies ### Goals Supported by this Policy G10: Effective Government G12: History and Culture G13: Community Appearance ### Elements Related to this Policy E6: Placemaking Policies # P39: Community Space *Enhance existing community gathering spaces and look for opportunities for new gathering spaces.* <
> An important aspect of building a strong, livable community is the establishment of shared spaces that allow for the type of human connections that become possible with frequent casual interaction. Examples of these spaces include public parks and plazas, as well as flexible streetscapes that can be programmed to host farmers markets, concerts, and other events that contribute to a sense of place. Whether new or old, community spaces should be viewed as ever-evolving and capable of being modified to fit the changing needs of the community. This can be a difficult concept for a municipality to embrace, because public improvement projects are typically built with permanence in mind. Regardless, it is essential that this permanence not get in the way of a space’s ability to adapt over time. ### Action Steps 1. Develop a framework or toolkit to analyze and improve existing public spaces to better serve their surrounding community. For new spaces, a similar framework should be developed to ensure that the design of proposed public spaces meet community expectations. 2. Engage diverse stakeholder groups in the enhancement of existing community spaces and the development of new community spaces to ensure that the insights and desires of the community are being weighed equitably. 3. Partner with local organizations and businesses to better activate and program Lincoln’s community spaces in a ways that aim to both enhance the space and benefit the surrounding local economy. 4. Identify and prioritize funding for the ongoing maintenance and enhancement of existing and new community spaces. 5. Explore and implement temporary design solutions, often referred to as urban prototyping or tactical urbanism, as a way to experiment with new ideas that may lead to more permanent design improvements in community spaces. Work closely with interested and impacted organizations and community groups to develop, test and refine these design solutions. 6. Support implementation of community-led placemaking projects in the public right-of-way and other community spaces that add to the vibrancy of Lincoln by developing and refining clear approval processes. Further, establish a community placemaking fund to support and facilitate such efforts. Policies ### Goals Supported by this Policy G6: Healthy, Active, and Connected People G12: History and Culture G13: Community Appearance ### Elements Related to this Policy E5: Parks, Recreation, & Open Space E6: Placemaking E7: Community Facilities Policies # P40: Libraries *Balanced and accessible service should be provided to all.* <
> As public libraries in Lincoln and nationally update their services, certain trends have emerged. With increased use of downloadable books, libraries designate less space for books and create more space for uses such as Maker Spaces, technology, family library use, and general conference spaces that support everything from quiet study to large training sessions. Most libraries have a variety of collaborative partners, engaging in projects to ensure internet access, encourage people to read aloud to young children, and assist people with technology in its varied uses. Libraries are often described as community centers based on learning, literature, and literacy. ## Action Steps 1. As additional new libraries are being considered or libraries renovated, the following factors are important: a. Library locations should be distributed to parallel the city's geography and population patterns. b. Placement should consider equity, neighborhood and downtown development, transportation corridors, pedestrian and mass transit accessibility, public school patterns, and agencies and services that complement the library system. c. Technology may change operational process, customer expectations, and the layout of library spaces. d. Co-location of libraries with other facilities or services may optimize costs and best serve the community. e. Community demand suggests increasing the amount and variety of gathering spaces. f. Spaces should be adaptable and responsive to changes in demographics, community priorities, or unexpected events. g. Strong consideration must be given to materials and systems that are durable, efficient and environmentally appropriate. h. Trauma-informed design should be incorporated into updated and new buildings to create spaces that promote safety, wellbeing, and healing. Examples in the library would include shorter shelving that maintains good sightlines, and use of technology equipment that can be moved to a place of the customer’s own choosing. 2. The following should be maintained or expanded: a. Services to Lancaster County through contractual arrangements. b. Innovative ways to serve people living in poverty. c. Community campaigns in support of community goals, such as preparing young children for school success and promoting stable internet access. d. Events held in partnership with other organizations, such as job fairs and community resource assistance. 3. The following should be introduced: Policies a. A program to circulate internet hot spots for those who do not have stable internet at home, with consideration also for access to reliable equipment and effective training. b. Collaborative projects in support of environmental sustainability, such as community gardens, pollinator gardens, landscaping using native plants, and outlets for electric vehicles. c. Selection of sites for two new branch libraries. d. Construction of a new Central Library downtown. ## Goals Supported by this Policy G5: Equity and Inclusion G9: Civic Participation G10: Effective Government G14: Technology ## Elements Related to this Policy E7: Community Facilities Policies # P41: Fire and Rescue *Provide timely and effective emergency response services.* <
> Lincoln Fire and Rescue and the 17 volunteer rural fire departments that serve outside of Lincoln will continue to evaluate ways to maintain and enhance services as needed. ## Action Steps 1. Fire and Rescue services must be able to grow as the community grows to continue to provide timely public safety services. 2. Continue to routinely monitor the response time from all existing stations. 3. Lincoln Fire and Rescue should continue to identify needed fire facilities that will allow them to meet or exceed the National Fire Protection Association standards with a response time of 6.20 minutes for fire suppression, 6 minutes for medical calls, 90 percent of the time, and to meet the City Ordinance standard of 8 minutes or less for ambulance response to critical calls, 90 percent of the time. 4. Explore the possibility of relocating fire stations to meet the community's needs of changing development patterns. 5. Lincoln Fire and Rescue should strive to partner with abutting fire jurisdictions to provide public safety services equal to or above existing public safety services. 6. Continue to follow the City of Lincoln Equity, Access and Diversity Plan, that endeavors to recruit and hire employees without discrimination based on an individual's protected classes. ## Goals Supported by this Policy G5: Equity and Inclusion G10: Effective Government ## Elements Related to this Policy E7: Community Facilities Policies <
> # P42: Law Enforcement *Provide efficient delivery of public safety services to the community.* The Lincoln Police Department and Lancaster County Sheriff's Office are anticipated to remain as the sole providers of law enforcement services to the City and County during the planning period. The Sheriff's Office will continue to provide contract law enforcement support to the various incorporated towns of the county. In addition to the Lincoln Police Department, the City of Lincoln also has law enforcement presence on the UNL campus from the University of Nebraska-Lincoln Police Department as well as Nebraska State Patrol presence as a part of the Capitol Security Division. The Lincoln Police Department has focused on community-based policing in Lincoln since 1975 and have embarked upon comprehensive strategic planning initiatives to enhance their efforts. The Lincoln Police Department notes that they will continue to build on some of their most powerful strengths: a highly educated and capable work force, a respect for research and evaluation, and a willingness to change. They also acknowledge that they will continue to learn from local/national events and industry best practices, collaborate with the community on decision-making processes and policy decisions, and focus on continuous improvement and innovation as we adapt to a changing city, society, and world. ## Action Steps 1. Continue to promote the cooperation exhibited by the city, county, University of Nebraska police and State Patrol in furthering the efficient delivery of public safety services to the community. 2. The Lincoln Police Department will experience a need for additional full-service assembly stations and other facilities located within the community. The Capital Improvement Program will be used to plan and finance projects needed to meet this growing need. 3. Continue development and implementation of neighborhood watch and crime prevention initiatives. 4. Continue to follow the City of Lincoln Equity, Access and Diversity Plan, that endeavors to recruit and hire employees without discrimination based on an individual’s protected classes. 5. Continue to implement cooperative programs with the community, such as the TRACE (Trust, Respect, Accountability, Collaboration, and Equity) initiative, Project Restore, or Take Pause and seek opportunities to interact with the public in less formal settings. 6. Respond to changing needs of the growing community in order to provide public safety services. ## Goals Supported by this Policy G5: Equity and Inclusion G10: Effective Government ## Elements Related to this Policy E7: Community Facilities Policies # P43: Health Care Access *Encourage health care service facilities to meet the demand of the community’s growth and need based on changing demographics.* <
> ## Action Steps 1. Develop Lincoln as a major network of quality regional health care services at reasonable costs. 2. Encourage medical services, including physical and mental health care services, to be integrated and accessible throughout the community. 3. Provide for accessible and quality physical and mental health care services in appropriate areas in and around residential neighborhoods. 4. Any hospital expansion will need to take into consideration the impact on adjacent neighborhoods. 5. Hospitals should plan on using parking garages and multi-story construction in order to maximize use of the land. 6. Plan for further construction on medical campuses. 7. Assess health equity impacts of climate change in Lincoln. Utilize Center for Disease Control's (CDC) Building Resistance to Climate Effects model to develop strategies to reduce impacts on human health. 8. Advocate for health equity. 9. Optimize health – personal, environmental, and behavioral – for all residents. 10. Use results from Community Health assessment to reduce health inequities within the community. 11. Explore ways to improve Emergency Service response time to ER. ## Goals Supported by this Policy G6: Healthy, Active, and Connected People ## Elements Related to this Policy E7: Community Facilities Policies <
> # P44: Education *Encourage cooperative planning and site development between the City and public and private educational institutions.* Lancaster County has ten public school districts, the largest being Lincoln Public Schools (LPS), the only public school district in Lincoln. In addition, there are dozens of private and parochial schools in the county, with a majority located in Lincoln. Lincoln is also home to several colleges and universities, including University of Nebraska, Nebraska Wesleyan University, Union College, Southeast Community College and satellite campuses for Doane University and Bellevue University. ## Action Steps 1. Elementary and middle schools should be sized and located to enable children to walk or bicycle to them in order to create good health habits and minimize vehicle traffic in neighborhoods at the beginning and end of the school day. Middle schools and high schools should also allow for multiple modes of access, including pedestrian and bicycle, and be located in areas with the capacity to accommodate the increased automobile traffic and parking associated with these uses. 2. Lincoln Public Schools is the only public school district within the City of Lincoln, and the Lincoln Public School boundary will continue to expand as the city limits of Lincoln expand. 3. Schools are vital to the preservation of existing neighborhoods, and every effort should be made to enhance and retain ‘neighborhood schools.’ 4. Coordinate school site selection with subarea plans, community open space, and trails system development. Develop new schools on sites where they serve as the heart of the neighborhood. 5. Plan for joint school sites with other public or civic uses when feasible. Examples of uses that could be appropriate as part of a school or civic campus include parks, recreational facilities, health clinics, and libraries. 6. Coordinate neighborhood revitalization and transportation plans for the surrounding areas with University of Nebraska, Nebraska Wesleyan University, Union College, and Southeast Community College. 7. Assist educational institutions with being “good neighbors” with surrounding residential areas and ensure that neighborhoods are involved in the discussion of any zoning changes related to campus boundary updates. ### Goals Supported by this Policy G3: High-Quality Workforce G5: Equity and Inclusion ### Elements Related to this Policy E7: Community Facilities Policies # P45: Early Childhood Care and Education *Evaluate methods to improve access to and quality of early childhood care and education experiences.* <
> Education is a basic human right, and beginning education early in life has many benefits. Having access to high-quality early childhood care and education should be available across all income levels. Early childhood care and education experiences include settings and programs that aim to support positive outcomes for young children, birth to age 8, and their families (i.e., child care, home visitation, preschool, early intervention services, parks, cultural institutions). According to UNESCO (United Nations Educational, Scientific and Cultural Organization): “Early childhood care and education (ECCE) is more than preparation for primary school. It aims at the holistic development of a child’s social, emotional, cognitive and physical needs in order to build a solid and broad foundation for lifelong learning and wellbeing. ECCE has the possibility to nurture caring, capable and responsible future citizens.” More than 125 child care centers are located across Lincoln, including many preschools. A specific example of ECCE is Lincoln Public Schools’ Early Childhood Programs. These programs provide quality learning experiences to help promote growth of young children and their families. They accomplish this by offering a variety of free quality programs from birth, including the student child learning centers, birth-five early childhood special education services, and half-day preschool with several options to best meet the needs of families. Currently, 29 of 40 elementary schools have free, early childhood programs. ### Action Steps 1. Locate child care centers within neighborhoods and near schools and parks when possible. 2. Examine building and zoning code requirements for child care centers and family child care homes to determine if there are any obstacles that could be removed while maintaining the safety of the building occupants. 3. Consider access to educational institutions, places of employment, and childcare services, when planning public transportation investments. 4. Expand the use of park facilities, public buildings, and cultural institutions for enriching early childhood experiences. 5. Support philanthropic and advocacy groups that provide all children with access to high quality early childhood care and education (i.e., Lincoln Littles). 6. Support efforts that build capacity of ECCE workforce to support stability of experiences for children and families (i.e., childcare providers, professionals that work with families). 7. Support the City’s Lead Hazard Control and Healthy Homes programs to foster economic stability and access to healthy and safe housing. 8. Promote public-private partnerships to increase resources for low-income families to access high-quality early learning programs to promote kindergarten readiness. Policies 9. Support Lincoln Public Schools’ efforts to provide early childhood programs in all elementary schools. 10. Support an increase in access to prenatal care and targeted home visitation services for new parents, including fathers. 11. Support continued collaboration with providers of healthcare and social services, and partner with organizations to support healthy development of babies and toddlers. 12. Consider ways to leverage seniors in assisting to create intergenerational connections (i.e., NeighborLNK, grand-friends). 13. Expand community partnerships between Lincoln Public Schools, the University of Nebraska, and other social service agencies to provide additional funding and services (such as EduCare Lincoln). 14. Educate childcare providers on climate-related health issues for young children. ### Goals Supported by this Policy G2: Complete Neighborhoods G3: High-Quality Workforce G5: Equity and Inclusion ### Elements Related to this Policy E1: Complete Neighborhoods & Housing E7: Community Facilities Policies # P46: Public Buildings *Public buildings and structures should be well built, functional, energy efficient, and designed to blend attractively within the context of surrounding development or to serve as a guide for future development or redevelopment.* <
> PlanForward recognizes that it should encourage positive influences upon the environment through ordinances and regulations and ensure that public facilities set a high standard of urban design. During the time period covered by this Plan, there will likely be a need to construct, renovate, or abandon certain public buildings and facilities not already discussed in this document. At such time as these events may occur, public officials should make decisions that recognize and respect the vision of this Plan. This may apply to the siting of a new facility, the abandonment of an existing one, the way renovations are undertaken, the manner of financing used to complete the work, the arrangements made for the facility's operation, the process followed in making the decision, and the timing of the action. The Lancaster County Facilities Study 2020-2030 should also be used to make informed capital facilities decisions based on the documented set of recommendations. ## Action Steps 1. Increase energy efficiency and the use of renewable energy in municipal operations. Achieve 100% net renewable/ carbon neutral by 2035. 2. Prioritize native plantings on municipal and development projects. 3. Future public buildings should be designed, built, and maintained to ensure good indoor air quality to help protect the public's health. 4. The location of public buildings should support the policies of the Comprehensive Plan and adopted subarea plans. 5. The City's government center must remain Downtown. All efforts should be made to locate local, state, and federal offices Downtown when expansions and relocations are considered. 6. Lincoln and Lancaster County should seek to integrate concepts that result in more energy efficient, lower-cost, less environmentally damaging, and more occupant-friendly facilities. 7. Ensure that public building projects meet, and in some cases exceed, any zoning and design standards requirements that apply to private development and redevelopment. 8. Engage the appropriate design review board early on in the design and development of new public facilities, including review of projects in the Capital Improvement Program. 9. Develop a teleworking policy for City employees to allow for efficient use of public buildings. 10. Public buildings and structures should be well built, durable, and highly functional. Most should be designed to blend attractively within the context of surrounding development. Major civic structures should serve as focal points in the community and should be of superior, even iconic, design. All public projects should be worthy to serve as guides for future development or redevelopment. Policies 11. Investigate the return-on-investment potential associated with energy efficiency measures, renewable sources of energy, greenspace, and natural landscapes for major City facility projects, including the Central Library project, Multimodal Transit Center, and Bus Facility. ### Goals Supported by this Policy G9: Civic Participation G10: Effective Government ### Elements Related to this Policy E7: Community Facilities Policies # P47: Civic Participation *Maintain a commitment to engaging all members of the community with civic processes.* <
> It is important to ensure that all members of the community have the opportunity to be informed and involved with civic processes. ## Action Steps 1. Create an on-demand virtual participation option for all public input events. On-demand virtual events allow for participation from home or other location with internet access at a time that fits with an individual's schedule. 2. Explore enhanced accessibility options at public hearings, including virtual participation, as state law allows. 3. Create a language access policy for the City and County to ensure greater access to translation and interpretation services for residents with limited English proficiency. 4. Continue to support diverse representation on appointed City and County boards and commissions. 5. Continue training and education for the local government workforce to understand biases that may be built into our processes and how to address those biases. 6. Actively engage with cultural groups and neighborhood organizations so that residents can stay informed about activities in their community and provide ideas for planning and public policy. 7. Continue to follow the City of Lincoln Equity, Access and Diversity Plan, that endeavors to recruit and retain employees that reflect the diversity of the community. 8. Encourage developers and others with planning proposals to make early contact with neighborhood groups and other interested parties. This will allow for a greater understanding of the issues and for time to seek resolution of contentious items. 9. Maintain current mailing and contact lists of local neighborhood groups and homeowner associations that is available to the public. 10. Notify surrounding property owners, interested groups, and other appropriate agencies of formal development applications. 11. Explore options to expand free internet access for those in need. ## Goals Supported by this Policy G9: Civic Participation G10: Effective Government G14: Technology ## Elements Related to this Policy E7: Community Facilities Policies # P48: Renewable Energy ## Make renewable energy/low-carbon generation and consumption a key element to the community’s sustainable future. <
> Local government entities, including all local utilities, should strive to increase utilization of renewable energy sources such as wind power, hydropower, solar energy, biomass, and geothermal energy. Energy providers such as Lincoln Electric System, Norris Public Power District and Black Hills Energy should strive to produce or purchase a higher percentage of energy from renewable and low-carbon sources. The Lincoln Climate Action Plan offers a bold and ambitious vision to reduce net greenhouse gas emissions 80% by 2050 and represents the first plan of its kind in the state of Nebraska. To develop and advance the Plan, the City worked closely with community partners such as the Lincoln Electric System, which set a complementary goal to achieve net zero carbon dioxide production from its power generation portfolio by 2040. Today, on a nameplate basis, the LES generating capacity portfolio is now essentially split equally between renewables, natural gas, and coal. Over the last decade, LES has increased renewable energy production from the equivalent of 9% of total retail sales in 2010 to 49% in 2020. LES’ carbon intensity, the rate at which LES’ aggregate generating fleet produces CO2 (tons/net MWh), has dropped 45% from 2010 to 2020. Over this same period, the actual CO2 production (tons) of LES’ aggregate generating fleet has been reduced by 53%. ## Action Steps 1. Promote increased adoption of accessory wind and solar facilities on residential and commercial properties throughout the county. 2. Seek opportunities to add accessory wind and solar facilities to public facilities. 3. Support the development of commercial wind and solar energy facilities throughout the county. 4. Implement the actions needed to achieve SOLSMART “gold” status, which indicates that City/County policy and processes are solar friendly. 5. Incorporate the use of alternative fuels into local government and institutional operations. 6. Continue incentive-based (residential, commercial, or industrial) programs promoting the installation of renewable energy systems. Incentives may include offering rebates on purchasing equipment, attractive net metering pricing, tax incentives, height allowances, setback, and area-based incentives, expedited permitting, and others. 7. Increase energy efficiency and the use of renewable energy in municipal operations. Achieve 100% net renewable/carbon neutral by 2035. 8. Pursue the LES Board adopted goal to achieve net zero carbon dioxide production from its generation portfolio by 2040. Policies ## Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G9: Civic Participation G10: Effective Government G11: Rural Environment ## Elements Related to this Policy E4: Environmental Resources E7: Community Facilities E8: Energy & Utilities Policies <
> # P49: Conservation of Energy *Promote the conservation and efficient use of energy in all areas.* Because of the limited amount of nonrenewable energy sources on Earth, and the impact that nonrenewable resource consumption has on the Earth, it is important to both reduce consumption of resources and substitute non-renewable resources with renewable ones, so that our natural resources will be available for future generations. When fossil fuels such as oil, coal, and gas, are burned to produce energy, carbon dioxide, nitrous oxides, and methane are emitted into Earth’s atmosphere. These "greenhouse gases" trap the Sun's heat around Earth's surface, acting as a transparent blanket that warms the Earth. In the last 100 years, the level of carbon dioxide from human activities have skyrocketed in the Earth's atmosphere causing global temperatures to rise. At the local level, energy conservation saves money and energy which benefits both homeowners and businesses. Energy conservation is also an important element of the City of Lincoln Climate Action Plan. ## Action Steps 1. Land Use and Development: a. Consider prioritizing infrastructure investment based on projects that can show net energy reduction. b. Provide incentives for projects that meet third-party green building standards. c. Encourage higher density housing in/near large commercial developments, redevelopment nodes, and corridors and employment centers. d. Encourage energy efficient compact development, conservation design for new subdivisions and mixed use development. e. Revise codes to allow for more opportunities to work and live in the same place. 2. Transportation: a. Include provisions for safe and convenient pedestrian and bicycle use. b. Continue implementation of the Green Light Lincoln initiative including tracking and reporting of time and fuel savings along with emissions reduction metrics attributable to the program. c. Incorporate use of technology and fiber capacity. d. Expand transit services to increase use of transit. e. Encourage integration of alternative modes of transportation in new developments. f. Encourage transit-oriented development near transit stops, bicycle pathways and bicycle parking stations. g. Encourage telecommuting to reduce vehicle miles traveled. h. Encourage employers to initiate work schedules that will help alleviate congestion at peak hours. i. Encourage carpooling, car/ bike sharing, and use of transit. Policies 3. Buildings and Landscaping: a. Retrofit and weatherize existing buildings with energy efficient technologies. b. Incorporate energy-efficient design and technology into new buildings and renovations. c. Encourage orientation and siting of new buildings to take advantage of solar heating and cooling breezes. d. Use landscaping to provide shade to reduce heating and cooling demands and to act as windbreaks. e. Use Stormwater Quality Best Management Practices to improve stormwater runoff from new or substantially improved buildings. f. Continue and expand incentive-based programs to promote energy-efficiencies in commercial and residential buildings, such as those by the City (Tax-Increment Financing (TIF) and Property Assessed Clean Energy (PACE)) and LES (Sustainable Energy Program (SEP)). g. Per State law, adopt the 2018 International Energy Conservation (Commercial) following review by the Building Code Task Force with recommendations for amendments. h. Reduce irrigation needs by incentivizing conservation practices and native planting. 4. Public and Semi Public: a. Conduct and maintain an updated energy audit of all buildings. b. Promote weatherization programs. c. Educate the public on the benefits of energy efficient buildings and development. d. Improve the City's ability to measure energy use and conservation efforts. e. Continue to provide and promote waste reduction, reuse and recycling options. f. Explore opportunities for using grey water. g. Promote and encourage the use of water conservation systems and conservation design for new subdivisions in City and County codes. h. Continue investigating the feasibility of public-private partnerships that finance energy efficiency retrofits of existing buildings (i.e. Property Assessed Clean Energy (PACE), Energy Service Company (ESCO)). i. Convert City fleet to 100% electric/renewable/alternative fuels by 2040 (technology will have to be available to support the goal). j. Create a Carbon Sequestration Plan. This plan would involve an analysis of Lincoln's tree canopy, parks and greenways, open lands, composting activity, open water areas, impervious surfaces, grasslands, and prairie. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G9: Civic Participation G10: Effective Government G11: Rural Environment Policies ### Elements Related to this Policy E4: Environmental Resources E7: Community Facilities E8: Energy & Utilities Policies # P50: Water Quantity and Quality *Ensure that public water systems continue to provide an adequate quantity and quality of water.* <
> Water improvements must be in accordance with the Lincoln Water System Facilities Master Plan and the Comprehensive Plan. The Lincoln Water System Facilities Master Plan will guide future actions and serve as the basis for facilities planning and improvements. ## Action Steps 1. Continue to work toward a cooperative agreement and planning effort regarding changes in service boundaries between the City of Lincoln, Lancaster Rural Water District No. 1 and Cass County Rural Water District No. 2. 2. Continue to encourage water conservation practices with the development of the City and County. 3. Continue to utilize impact fees to recover a portion of the capital costs to build water mains. This includes increasing the capacity of the existing water treatment facilities for future growth. 4. Continue to collect water service and water usage utility fees to pay for operation, maintenance, debt service, replacement improvements, and fund the majority of water capital improvements, including growth related projects. 5. Continue the strategic use of revenue bonds to finance growth and expansion of the water system. (Revenue bonds are not a new source of revenue, but rather a means to address the timing of improvements.) 6. Make improvements to the existing treatment process to ensure water quality exceeds regulatory requirements. 7. Develop a strategy and funding source(s) for securing a second source of water supply. 8. Develop a strategy and program to meet new lead and copper rules affecting customer owned lead water service lines. ## Goals Supported by this Policy G10: Effective Government ## Elements Related to this Policy E8: Energy & Utilities Policies # P51: Groundwater Ensure that the county’s rural groundwater resources are sustainably utilized. <
> Some rural development projects, such as large agriculture operations, can be significant water users. Care should be taken to ensure that new groundwater users do not jeopardize groundwater access for neighboring properties. ## Action Steps 1. Development proposals in rural areas without a public water system should demonstrate adequate groundwater availability as a condition of approval. 2. Work with State and Federal agencies to develop a geographic inventory of groundwater access and quality throughout the county and use that information to guide rural land use decisions. ## Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G11: Rural Environment ## Elements Related to this Policy E8: Energy & Utilities Policies # P52: Wastewater System The City’s Wastewater system is comprised of two entities, Collection and Water Resource Recovery. Together they transport wastewater from the community, treat the wastewater – meeting regulatory compliance, and recover resources. <
> Approximately 35 MGD (millions of gallons a day) of wastewater is transported from throughout the community, through a pipe network called the collection system to one of the two water resource recovery facilities. The system is owned by the City of Lincoln and managed by the City’s Transportation and Utilities Department under the direction of the Mayor and City Council. It is a revenue producing and self-supporting enterprise fund system (i.e., no tax funds are used). ### Action Steps 1. Continue to utilize impact fees to recover a portion of the capital costs for future growth, to build trunk sewer lines in the collection system and capacity improvements at the existing water resource recovery facilities. 2. Continue to collect utility fees to pay for operation, maintenance, debt service, replacement improvements, and fund the majority of wastewater capital improvements, including growth related projects. 3. Continue the strategic use of revenue bonds as a means to address the timing of improvements. ### Goals Supported by this Policy G10: Effective Government ### Elements Related to this Policy E8: Energy & Utilities Policies # P53: Gravity Flow Collection System The City’s wastewater collection system, in general, will continue to be a gravity flow system that is designed to use gravity as the main energy source to convey wastewater from the community to the wate resource recovery facilities. <
> A gravity flow wastewater collection system encourages orderly growth within the natural drainage basin boundaries and is an efficient and reliable way to serve urban areas. This policy encourages urban growth from the lower portion of the drainage basin to the upper and discourages pumping of wastewater across basin boundaries. ### Action Steps 1. Continue to use gravity as free energy conveyance for wastewater. 2. Enhance programs to manage I&I (inflow and infiltration) into the system, thereby preserving pipeline capacity for wastewater and not ground water. 3. Support infill development which utilizes existing infrastructure. 4. Utilize the CIP to plan for and expand the collection system to follow the comprehensive plan growth tiers of development. ### Goals Supported by this Policy G10: Effective Government ### Elements Related to this Policy E8: Energy & Utilities Policies <
> # P54: Wastewater Resource Recovery Facilities *Facility improvements must be in accordance with the Lincoln Water Resource Recovery Facilities Plan and population growth as outlined in the Comprehensive Plan.* The Lincoln Water Resource Recovery Facilities Plan will guide future actions and serve as the basis for facilities planning and improvements to meet growth demands of the community and new regulatory guidelines. Resources recovered from the wastewater at the facility: clean water, heat energy, bio solids (fertilizer), and natural gas. ## Action Steps 1. Expand facilities as necessary to meet population growth and regulatory discharge limits. 2. Maintain and expand programs to recycle and reuse treated wastewater effluent. 3. Continue to develop and utilize the thermal heat recovery program. 4. Promote bio-solids where appropriate. 5. Continue efficient operations of the Biogas to Vehicle Fuel Project. 6. Encourage point source treatment of clean wastewater at industries, so that it can be discharged to the environment and avoid using up water resource recovery capacity. ## Goals Supported by this Policy G10: Effective Government ## Elements Related to this Policy E8: Energy & Utilities Policies # P55: Watershed Planning Continue comprehensive watershed management planning efforts to address both new growth and redevelopment within the existing city. <
> The City of Lincoln Watershed Management program combines previously separate floodplain and stormwater management initiatives. This approach recognizes that floodplains, tributaries, and upland areas are all part of a comprehensive, integrated watershed system. A comprehensive approach to watershed planning is crucial as development expands into new basins around the Lincoln city limits and as redevelopment occurs within the existing urban area. A comprehensive watershed management program needs to incorporate a range of strategies including land use planning, conservation design for new subdivisions, conservation efforts, appropriate standards for floodplains and stormwater, flood warning system development/expansion, stream stabilization, stormwater storage basins, and other structural flood control efforts. ## Action Steps 1. Develop and utilize watershed plans during the review and evaluation of proposed developments and as a guide in the preparation of future capital improvement projects. 2. Unify individual plans into a Comprehensive Watershed Management Master Plan for Lincoln and future growth areas. 3. Seek broad public participation in the location and design of specific watershed management projects, and evaluate the relative benefits as they relate to flood hazard reduction, water quality, channel integrity, natural character, bridges, culverts, and existing public and private structures. 4. Consider the creation of a stormwater utility to provide for a steady revenue source to address the growing needs of the stormwater and watershed management system. 5. Continue to designate stormwater bond dollars to flood control, streambank stabilization, erosion, and sediment control projects, until a new funding source becomes available. 6. Continue implementing green infrastructure strategies such as rain gardens, bioswales and permeable pavement to reduce stormwater runoff. Expand guidance/resources, incentives, and implementation. ## Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G10: Effective Government ## Elements Related to this Policy E4: Environmental Resources E8: Energy & Utilities Policies # P56: Waste Management System *Ensure adequate system capacity is available to serve city and county residents.* <
> The Lincoln Transportation and Utilities Department, Solid Waste Operations in conjunction with the Lincoln-Lancaster County Health Department Environmental Division oversees the City and County's solid waste management programs. ## Action Steps 1. Accept only waste generated in Lincoln and Lancaster County at the publicly owned and operated disposal, transfer and processing facilities. 2. Discourage future urban acreage developments in the area around the Bluff Road Solid Waste Management Facility and the LES owned Terry Bundy Generating Station, which are both located between North 56th Street and North 84th Street, and between Interstate 80 and Bluff Road. Acreage development could negatively impact the operations at these facilities critical to the plan area. 3. Update the Solid Waste Management Plan every 5 years and coinciding generally with the updates to the Comprehensive Plan to review population growth, calculate waste generation, determine disposal and processing capacity in existing City permitted facilities and existing private processing facilities serving Lincoln and Lancaster County, and review the capacity for the private sector to collect waste and recyclables. 4. Create a county-wide integrated, efficient, environmentally safe and conservation-oriented waste management system, including convenient recycling opportunities and other waste diversion programs. 5. Implement the recommendations of the 2040 Solid Waste Management Plan and the 2021 Solid Waste Management Plan Update, particularly those actions that additionally support the recommendations of the Climate Action Plan. 6. Work collaboratively with private sector collection and processing businesses to understand the GHG emissions attributable to the collection and processing of waste, recyclables, and organics in Lincoln and Lancaster County. ## Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G10: Effective Government ## Elements Related to this Policy E4: Environmental Resources E8: Energy and Utilities Policies # P57: Energy from Waste and Emission Reductions: *Capture and utilization of biogas/landfill gas at the Bluff Road Landfill.* <
> Landfill Gas consists of about 50% methane and 45% carbon dioxide, with other trace gases resulting from biological decomposition of solid waste. Methane is of particular concern as a greenhouse gas since each unit of methane has an effect equivalent to 21 units of carbon dioxide. An active landfill gas collection system is in place at the Bluff Road Landfill and in cooperation with the Lincoln Electric System’s Terry Bundy Generating Station is producing approximately 4 MW of electricity. Future collection phases will be constructed as landfilling of waste continues until the landfill reaches capacity. As additional methane is produced from the landfill the city plans to evaluate and implement a best use of this resource, including expanding electrical production, injection to a gas pipeline for use as vehicle fuel or other uses for this non-fossil, low carbon energy source. ### Action Steps 1. Conduct an emissions-reduction analysis and evaluation of net benefits of organic waste diversion from the landfill alongside the landfill gas alternatives analysis. 2. Pursue implementation of the landfill gas utilization option that meets the objectives in the Climate Action Plan and optimizes revenue. 3. Expand the landfill gas collection and control system as required by Clean Air Act regulations and expand or enhance the utilization system when technically and economically feasible to maximize revenue from the sale of methane. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G10: Effective Government ### Elements Related to this Policy E4: Environmental Resources E8: Energy and Utilities Policies <
> # P58: Waste Reduction and Diversion *Reduce per capita per year waste disposal per goals established in the Solid Waste Management Plan.* The guiding principle of privately-owned and operated refuse and recyclables collection services with public ownership, operation and financing of other solid waste management services related to disposal, transfer, processing and environmental protection will continue during the planning period. Other services related to managing solid wastes are currently offered by privately-owned business and include material processing and organic waste composting facilities. The private sector also operates material reuse services as a component of a comprehensive integrated waste management system. ## Action Steps 1. Develop standards for future commercial and industrial development to ensure sufficient space is allocated for separation and handling of recyclables, organic wastes, and wastes that must be landfilled. 2. Promote the use of products with recycled content and support product stewardship concepts, particularly the step of engineering products so less waste is generated, less energy is needed, and less natural resources are consumed in manufacturing and using the product. 3. Promote curbside recycling service while continuing a network of City offered recyclables collection sites. 4. Provide technical assistance to cities and villages and neighborhood associations to ensure success of recycling and organic waste diversion/composting initiatives. 5. Collaborate with the private recycling collectors and material processors to continuously educate the public about the value of recycling, the right materials to recycle, and the opportunities to recycle. 6. Engage the private sector businesses, governmental and quasi-governmental agencies and community leaders in developing strategies for achieving reduced landfill disposal goals, including developing support for legislated actions required to support such initiatives. 7. Collaborate with businesses, agencies and non-profit organizations to strategically promote activities and programs that follow the Food Waste Recovery hierarchy, including participating in the education of the public on the reduction of GHG emissions from avoiding disposal. 8. Monitor the EPA released National Framework for Advancing the U.S. Recycling System (2019) and forthcoming legislation and grant opportunities, to address critical areas for action identified as: promoting education and outreach, enhancing materials management infrastructure, strengthening secondary materials markets, and enhancing measurement. ## Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G10: Effective Government Policies ### Elements Related to this Policy E4: Environmental Resources E8: Energy and Utilities Policies <
> # P59: Electric Utility ## Norris Public Power and Lincoln Electric System should continue their cooperative effort in regard to future growth areas of Lincoln and changes in service boundaries between the two utilities. Lincoln Electric System is the sole electrical utility within the City of Lincoln and much of the 3-mile jurisdiction. Norris Public Power District is the primary provider for the remainder of the county. ### Action Steps 1. As LES plans new transmission line routes, it will continue its policy of examining multiple options and conducting public forums on proposed routes in order to minimize the impact of new lines as much as feasible. 2. Continue, and amend as necessary, the Norris/ LES Agreement which provides for cooperative planning and utility service in Lincoln and Lancaster County. 3. Within the City of Lincoln, wherever feasible and affordable, continue a phased program to relocate overhead utility distribution lines underground. 4. Continue to purchase efficient equipment (transformers, conductor, etc.) to reduce system energy losses and increase energy efficiency. 5. Continue to investigate the development of Smart Grid technology to increase efficiency and allow consumers a higher degree of control over their energy usage. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency ### Elements Related to this Policy E8: Energy & Utilities Policies # P60: Technology *Lincoln and Lancaster County will support ongoing technological innovation across all sectors in the community.* <
> Lincoln has developed a well-designed fiber optic network to serve residential, business, education, and public facilities. This network ensures a high quality of life, serve as an economic development tool, and provide efficient public services. In 2018, the City of Lincoln partnered with Allo Communications to complete a fiber optic network, providing faster broadband speeds, including 1-gigabit service available to every home and business in Lincoln. Technological innovation also includes the concept of creating a “Smart City”. Smart City technology includes a myriad of devices that communicate with each other to deliver a variety of different benefits – the range of scale and connectivity and complexity can vary greatly and lead to a variety of different outcomes. Smart City technology is not only what we see in the streets and buildings, but it is the invisible infrastructure that we do not see that is the glue that binds all this together. In some ways the quality and performance of this infrastructure is more important than the individual buildings it serves. In addition, the development of a Smart City is more than just incorporating technology into the physical landscape – the data collected is only useful if it’s organized, analyzed and used in daily operations to make the City more resilient, sustainable and efficient. ## Action Steps 1. Focus technology investments on developing a public safety network and a public safety 5G network. 2. Facilitate a joint trenching policy for developing neighborhoods so that fiber is automatically added during construction and installation of other utilities. 3. Implement the Lancaster County broadband plan to bring fiber to every incorporated place in Lancaster County and make wireless internet faster for rural users. 4. Develop a City-wide technology plan to coordinate decision-making across the organization, outline necessary steps to ensure safety of our technology infrastructure, and implement Smart City technology throughout the community. 5. Position Lincoln to be an autonomous vehicle-ready city. 6. Incorporate a system of smart kiosks into the existing wayfinding or bike share system of related, attractive signs guiding and orienting motorists, bicyclists, and pedestrians throughout the community, and obtain local artist collaboration on the design. 7. Continue to incorporate technology into the Downtown parking system such as using parking sensors, parking apps, and additional electronic vehicle infrastructure (i.e., autonomous shuttle parking and vehicle charging). 8. Utilize the fiber infrastructure for technology applications in Downtown such as wireless research, vehicle to infrastructure components, and smart cities applications. These applications should also consider the needs of businesses and entrepreneurs of all sizes. 9. Ensure the new broadband infrastructure is available to every student within our community through partnership with educational, business, and community leaders. Policies 10. Formalize a teleworking policy for City and County employees that can serve as a model in our community. 11. Pursue funding to implement technological innovation throughout the community (i.e., Smart City Challenge Grant, the National Science Foundation, and other federal grant programs). 12. Increase access to information technology for all members of Lincoln and Lancaster County, especially within minority, low income, disabled, rural, and aging communities. 13. Develop a public/private technology advisory board to review future technology needs and provide best practices to meet those needs. 14. Facilitate digital literacy and access to technological tools for residents to use in finding jobs, interacting with government and connecting with one another. 15. Ensure that all residents have equitable access to information infrastructure. 16. Use technology to allow residents opportunities to participate in city and county public meetings, forums, and other decision-making processes. 17. Use technology to streamline City and County development services to allow community members the ability to access services online. 18. Explore the use of 3D printing technology for the construction of affordable housing in Lincoln and Lancaster County. ### Goals Supported by this Policy G14: Technology ### Elements Related to this Policy E7: Community Facilities E8: Energy & Utilities E9: Transportation Policies # P61: Industrial Zoning and Pipelines *Discourage residential land uses and buildings with vulnerable populations from locating near high-pressure pipelines and industrial zoning districts. Provide adequate separation between vulnerable populations and hazardous materials to protect and promote the public’s health.* <
> There are several major pipelines that travel through Lancaster County and parts of our community. Our community will continue to grow into where these high-pressure pipelines are currently located and additional pipelines will be required to support the growth of our community and the nation. Most of these new pipelines are proposed and developed by private companies. These pipelines transport large quantities of hazardous materials that can have serious public health and safety impacts to adjacent properties in the event of pipeline failure or damage. Therefore, uses with vulnerable populations including residential structures, childcare centers, retirement facilities, schools, or hospitals should not be located near pipelines. Uses that are acceptable near pipelines include residential garages, commercial and industrial uses, parking lots, open spaces or roads. Industrial zoning can also pose a significant risk to adjacent properties with vulnerable populations due to the types of uses that can store, use or produce hazardous materials. Rail lines are also a concern near vulnerable populations due to the transport of hazardous materials in large quantities. ## Action Steps 1. Land uses with vulnerable populations should not be located within pipeline planning areas. For large high-pressure pipelines, pipeline planning areas are established based upon pipeline metrics or the United States Department of Transportation’s Emergency Response Guidebook. Most high-pressure pipelines have a planning area of approximately 150-250 feet from either side of the pipeline. 2. Land uses with vulnerable populations should not be located within 300 feet of an industrially-zoned district or heavy industrial use such as a rail line. Even if a given industrial site does not include hazardous materials at present, a hazardous use could be added in the future. 3. Do not support expansion of existing residential uses currently located within a pipeline planning area or within 300 feet of an industrial zoning district. 4. Businesses and government agencies should continue to work together on developing and updating Emergency Management Plans for dealing with accidents and emergencies. 5. Continue strategic re-zonings of legacy industrial districts to less intensive commercial zoning districts when near residential uses. ## Goals Supported by this Policy G1: Safe, Affordable, and Accessible Housing G8: Community Resiliency ## Elements Related to this Policy E8: Energy & Utilities Policies <
> # P62: Transportation Equity *Prioritize equity in planning and implementing safe transportation systems to facilitate freedom of movement for all community members.* Every community member depends on a transportation network and services to meet their access and connectivity needs. As such, equitable transportation means identifying and working to eliminate disparity in the quality of and access to transportation options for all community members. Lincoln is actively working to engage stakeholders across the community who can illuminate issues of inequity in various forms, including transportation, through the *One Lincoln* initiative. Inequity in some U.S. cities is reflected in historical transportation decisions that physically divided or severely hindered less affluent neighborhoods and residents of color (especially Black populations). Some of those decisions illustrate how lasting damage can occur through unjust and short-sighted transportation policies. Lincoln must avoid these types of disruptive transportation investments moving forward. Transportation investments should intentionally eliminate disparity and undue barriers to already overburdened and underserved populations. By keeping the needs of diverse community members in mind, Lincoln and Lancaster County can commit to transportation decisions that support the mobility needs of all residents. ## Action Steps 1. Expand and maintain infrastructure for all modes of transportation serving overburdened and underserved populations. 2. Remove physical, temporal and language barriers to transit ridership. 3. Offer night and weekend transit operational hours for overburdened and underserved populations. 4. Broaden transit public input and validate priorities, alternatives and plans with diverse stakeholders. 5. Expand representation of overburdened and underserved populations serving on the StarTran Advisory Board. 6. Continue working with Lincoln Public Schools that support transit use by students from overburdened and underserved populations. 7. Routinely distribute multi-lingual transportation information through human service providers locally and One Lincoln partners. 8. Provide equitable access to transit and shared mobility options for unbanked community members and those without access to credit card payment options. 9. Use insight and information from municipal and county service agencies to target mobility support for our aging population. Policies ### Goals Supported by this Policy G5: Equity and Inclusion G15: Transportation ### Elements Related to this Policy E9: Transportation Policies # P63: Transportation and the Environment Incorporate environmental stewardship, sustainability, and resiliency into transportation decisions and investments. <
> Lincoln and Lancaster County currently comply with federal air quality standards that support a great quality of life for residents and allow greater flexibility for transportation infrastructure investments. This is a desired state now and for all future generations. The transportation sector is the nation’s leading source of greenhouse gas (GHG) emissions, and total emissions have steadily grown within our region as daily vehicle miles traveled and congestion levels have increased. Decisions within the region will address threats to transportation infrastructure and human health anticipated to result from climate change. The Lincoln Climate Action Plan was developed through an inclusive and robust stakeholder development process in 2020. It recognizes both the global threat and the local implications that climate change can have on the safety and well-being of all community members, as well as the resilience of public infrastructure such as roads and bridges. For its part, transportation is recognized in the plan with a compelling list of strategies meant to reverse the trend and help achieve the goal of 80 percent net GHG reduction by 2050. A portion of single occupancy vehicle trips must be replaced by alternative modes, and internal combustion engines must be replaced with cleaner fuel sources to achieve this goal. Action steps are necessary now to begin transitioning the region toward a more resilient and sustainable future. Actions taken to accomplish these outcomes will not only protect air quality but expand the ability to avoid other environmental impacts and enrich the overall community experience. Land use and transportation decisions will be made together to support community connections with cultural enrichment opportunities, parks, and natural spaces. Design decisions will be needed to protect stormwater runoff quality, reassign or remove impervious surface, maintain corridor aesthetics and viewsheds, as well as reduce long-term infrastructure costs by incorporating resilient standards and best practices. ### Action Steps 1. Support the Lincoln Climate Action Plan to build a decarbonized and efficient Transportation System. 2. Develop a Travel Demand Management program. 3. Promote active commuter incentives. 4. Incentivize adoption of electric vehicles by City employees. 5. Add electric charging stations with public access. 6. Electrify municipal fleet with electric vehicles and charging stations. 7. Coordinate with businesses to ensure workplaces have adequate facilities for active commuters. 8. Design roadways to limit stormwater runoff with permeable or disconnected surfaces. 9. Incorporate cultural and natural resources within the network of active transportation corridors. Policies 10. Encourage resilience planning specific to transportation design and construction to address climate risks of flooding and severe weather events and when applying best practices for benefit cost analysis to federal aid transportation projects. ### Goals Supported by this Policy G7: Environmental Stewardship and Sustainability G8: Community Resiliency G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P64: Complete Streets Plan, design, build, and maintain streets to provide travel mode choice and to accommodate people of all ages and abilities. The City of Lincoln adopted a Complete Streets Policy through an Executive Order/Administrative Regulation in 2013. Complete Streets are public and private streets that include some combination of appropriate infrastructure, as determined by the surrounding context, that accommodate all modes of transportation, including private vehicles, public transportation, walking, and bicycling. An interdepartmental steering committee continues to encourage design and operation of a transportation system that reflects this transportation policy. The group coordinates projects relating to design, planning, construction, reconstruction or rehabilitation of public and private streets, or development projects that would substantially impact or cause construction of public or private streets between City departments. Funding has been directed to the Complete Streets Policy initiatives to address known gaps and to demonstrate the potential outcomes of implementing the policy. As part of this effort, streets are identified as best candidates for improvements that accommodate multiple travel mode choices to develop a network of complete streets for the community. Not all streets need to be built as complete streets to accomplish this. The City is staffed and organized to take the next steps toward a Complete Streets Program that includes the necessary standards, processes and best practices needed to fully accomplish the Complete Streets Policy. Continued progress toward Complete Streets will be achieved through standards to be established for all mode types within existing and improved public right-of-way (ROW). New infrastructure design will consider such standards for all modes and avoid future retrofits required to make this older infrastructure accessible and safe for non-motorists. Modifications will also be considered for existing infrastructure to better support non-motorists. For all modes to be safe and accessible, development must accommodate their needs. Retrofitting existing infrastructure to add accessibility and safety features is inefficient and costly. ## Action Steps 1. Expand the Complete Streets Program to include a Complete Streets Plan, procedures, guidelines, and project review process. 2. Establish department policy statements affirming the value of Complete Streets and the structural and non-structural design elements that will achieve the objectives of Complete Streets when making program and project review decisions within the traveled way and ROW. 3. Publish an annual Complete Streets Report that includes a record of projects that were reviewed, summarizes any design standards that conflicted with best practices, and lists exceptions that were approved from adopted design standards. 4. Deliver multimedia campaign and educational information about Complete Streets Program and how to safely interact with different modes during travel. 5. Update Complete Streets Gap Analysis and Prioritization Strategy with a focus on gaps that exist within underserved and overburdened communities, funding outlook, and public-private partnership opportunities. 6. Prioritize Complete Streets projects that address gaps that exist within underserved and overburdened communities. Policies 7. Enhance neighborhoods by adding safe and accessible connections to transit, multiuse trails, sidewalks and bicycle facilities. 8. Continue to develop standards for Quiet Streets on low volume roads where traffic calming prioritizes walking and cycling over motorized vehicles. Quiet Streets enable people using active transportation to make use of the entire roadway, not just sidewalks or the side of the street. 9. Complete demonstration projects to accomplish Complete Streets objectives and gain public input by implementing lower cost and temporary solutions that address infrastructure challenges identified in the gap analysis. ### Goals Supported by this Policy G5: Equity and Inclusion G6: Healthy, Active, and Connected People G15: Transportation ### Elements Related to this Policy E9: Transportation Policies # P65: Transportation and Managing Growth *Integrate land use and transportation decisions to ensure transportation infrastructure can supporttravel demands associated with growth.* <
> An estimated 48,000 new Lincoln households are anticipated by 2050. This growth presents the community with important decisions about how to make transportation investments that provide for the needs of existing community members and support the needs of future residents and businesses. By directing more residential households toward infill locations, additional transportation opportunities are realized. Greater densities will add support for multiple modes of transportation and reduce the distances between housing and jobs or services. Taking advantage of infill opportunities also slows the pace that new infrastructure is needed, although edge growth will support ¾ of expected population growth and expand the roadway network. Development decisions are driven by market-based conditions influenced by demand, development requirements, and costs. Roadways in new growth areas are planned to accommodate connections with diverse community assets such as parks and schools as well as Complete Streets amenities for non-motorized transportation that are often missing but needed in older developed neighborhoods. Transportation infrastructure supports all land use types and growth anticipated for the community. Individual households will make decisions about acceptable travel distances, and the transportation network will support reliable and efficient travel options. Alternative modes of transportation will be integrated within all new growth and development decisions to provide travel choice and ensure that the value of existing infrastructure is maximized through system optimization. ## Action Steps 1. Increase multimodal connections within and between all neighborhoods and commercial centers. 2. Support infill development by providing high-quality transit service to attract riders who would select transit over driving (often called “Choice Riders”). 3. Provide first and last mile connections and intermodal amenities at transit stops. 4. Serve traffic projected in the near term through signal optimization and capacity improvements. 5. Implement funding decisions that reinforce opportunity for Lancaster County to turn over roadway infrastructure in good condition as Lincoln grows outward. 6. Pave roadways that support future service limits with efficient transitions from rural to urban conditions. 7. Support multimodal connections available along the current Highway 2 alignment following completion of the South Beltway project. 8. Implement Access Management Policy on internal transportation routes (e.g., State highways and City arterials) to support efficient access to adjacent businesses and external transportation connectors (e.g., Interstates and Freeways) to minimize disruption to future land uses. Policies ### Goals Supported by this Policy G10: Effective Government G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P66: Congestion Management Manage an efficient and reliable multimodal transportation network. Transportation congestion occurs when travel demand and infrastructure capacity are not well aligned. This causes travel to be delayed, less efficient, and produce greater amounts of GHGs. Congestion delay fluctuates throughout the day and can also be influenced by special or emergency events. The Lincoln MPO updated the Congestion Management Process in 2020 to meet federal requirements, identify causes of congestion, and develop incremental strategies that maximize the efficiency and reliability of the multimodal transportation network. Many strategies are captured within action steps listed in other policies. The Lincoln MPO includes high priority strategies that are listed here as action steps for managing congestion. ### Action Steps 1. Implement the Congestion Management Process. 2. Encourage infill and mixed-use development that aligns with the PlanForward growth scenario. 3. Structure transit fares to encourage additional choice ridership. 4. Add and improve access to the network of complete streets. 5. Improve safety of existing bicycle and pedestrian facilities. 6. Optimize traffic signal coordination and adaptive communication. 7. Coordinate access controls for all roadway types. 8. Improve congesting and congested intersections. 9. Complete 2+1 roadway projects that can address congested road segments. 10. Consider the impacts that emerging technologies in transportation (e.g., autonomous vehicles and online good delivery) may have on travel behaviors and the future capacity needs of the system. ### Goals Supported by this Policy G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P67: Transportation and Economic Health *Foster economic health through transportation investments that improve access to education, employment, and services and reduce transportation costs.* A well-organized and maintained multimodal transportation network supports a thriving economy collectively as well as for individual households. Comprehensive transportation infrastructure is necessary for community members to access education, employment, and essential services and to connect to the diverse cultural and economic opportunities available throughout the region. Lincoln and Lancaster County benefit from strong relationships with local businesses and support their growth through multimodal transportation investments and policies. Innovation is valued and investments in transportation infrastructure and high-speed internet will influence how commerce, work, and education are delivered. Lincoln will continue to approach transportation investments that ensure economic benefits are equitably distributed. ## Action Steps 1. Expand operational alternatives that create public/private partnerships with large companies to increase employee transit ridership. 2. Continue working with Lincoln Public Schools that support transit use by students from overburdened and underserved populations. 3. Develop commitments to working with Southeast Community College, the University of Nebraska, Lincoln and other educational institutions to ensure access to education and training programs for all city residents. 4. Provide well-maintained infrastructure for all modes of transportation that support existing businesses and services inside the City. 5. Encourage redevelopment that adds a mix of uses that diversify the economic potential and access to jobs within neighborhoods. 6. Provide quiet streets as part of the Complete Streets Program that support greater demand for active transportation access to stores, services, and entertainment venues. 7. Eliminate or reduce minimum parking requirements where land use and active transportation infrastructure plans support zero or limited-vehicle households and businesses. 8. Implement the downtown two-way traffic study recommendations. ## Goals Supported by this Policy G15: Transportation ## Elements Related to this Policy E3: Business, Economy, and Workforce E9: Transportation Policies # P68: Pedestrians *Improve the safety and connectivity of the pedestrian environment to encourage walking and the use of mobility aids as a mode of transportation.* <
> For most trips, walking or the use of a mobility aid is required to move between destinations. Comfort and use of the pedestrian environment is supported by sidewalks, crosswalks, pedestrian ramps, traffic signals and signs of various kinds, and lighting. The pedestrian environment is expanded when access is provided to transit stops, shared mobility devices, multiuse trails, and walkable districts with markets and recreational amenities. The pedestrian environment offers community members unique opportunities to interact with neighbors and neighborhoods. It provides critical corridors for safe access to schools, as well as essential services when connectivity is provided and maintained. Various development design requirements have been implemented over time, and some parts of the pedestrian environment support walking and mobility aids better than others. The transportation network will continue to be improved by creating and maintaining a safe and connected pedestrian environment throughout the community. ## Action Steps 1. Continue to require all new development to abide by design standards for sidewalk alignment and cross-sections when constructing sidewalks and intersections for all street improvements. 2. Require or direct the repair of existing sidewalk sections that have become unsafe for walking or use of mobility devices. 3. Coordinate sidewalk and intersection safety improvements into roadway projects. 4. Provide comprehensive and safe pedestrian walking routes with accessible sidewalks and curb ramps that are safe, accessible and comfortable to pedestrians from neighborhoods to schools. 5. Improve the safety and function of school zones and walking routes for students and pedestrians at all public and private schools in Lincoln as detailed in the City's School Zone Standards. 6. Preserve the downtown sidewalks for pedestrian traffic only by providing safe and connected on-street infrastructure for other modes. 7. Protect vehicle sight distances to minimize the potential conflict with pedestrian crossings. 8. Coordinate the construction and maintenance of safe crossings or grade separations for pedestrians where high traffic streets and highways make crossing difficult. 9. Calm traffic strategically along roadways to help reduce vehicle speeds and provide a safe pedestrian environment within neighborhoods, school zones, and commercial districts. 10. Ensure pedestrian crossings and pedestrian ramps are included in the program of snow removal where street plows leave residual piles of snow as they pass and reinforce the timely removal of snow and ice from sidewalks by residents and businesses. 11. Implement safety campaigns targeting specific user behavior for both pedestrians and motorists. Policies ### Goals Supported by this Policy G6: Healthy, Active, and Connected People G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P69: Bicycles *Improve and expand the on-street bicycle and trail network to support public health, recreation, and bicycling as a mode of transportation.* Lincoln supports an award-winning trail network distributed throughout the community. The trail network has grown from 23 miles to more than 255 miles over the past 30 years. On-street bicycle facilities have added another 144 miles of infrastructure for bicyclists to the community and the first two-way, protected Cycle Track was built in Lincoln along N Street between Antelope Creek and South 7th Street. Within the region, trails connect users to parks, lakes, and wilderness areas. Major trail networks connect riders to communities such as Marysville, Kansas, south of Beatrice and Omaha . Locally, the cities of Hickman and Waverly have also developed trails, and bicyclists use the gravel roads throughout Lancaster County for exercise, recreation, and entertainment including annual race events that bring up to 1,600 riders from around the world. Infrastructure improvements for bicyclists in the community is supported by active groups that focus on transportation safety, access, equity, public health, and recreation. The 2019 Lincoln On-Street Bike Plan was created with the community’s support to direct the expansion of on-street bicycle infrastructure that makes bicycling for work, errands, recreation, or leisure attractive to more community members. Increasing the number of trips, specifically those that are 3 miles or less, by bicycles is one approach to reducing vehicle miles traveled, congestion, and GHG emissions while improving public health and supporting a thriving economy. ## Action Steps 1. Identify additional funding to coordinate and construct the Lincoln On-Street Bike Plan projects. 2. Continue to advance a comprehensive vision for the regional trail network that can be supported by various funding partners. 3. Where possible, include sidepath construction concurrently with roadway projects to minimize construction cost and traffic disruption. 4. Coordinate proposed on-street bicycle facility projects into roadway projects. 5. Develop design guidance reflecting industry best practices and prioritization for each bicycle facility type, including a bike boulevard system and consideration of on-gravel bike routes. 6. Establish and enforce bike parking standards for all new development and redevelopment of commercial, multi-family housing units and mixed-use redevelopment projects. 7. Update bicycle traffic rules to accommodate best practices that support safe operation of bicycles in the traveled way as well as signalized and stop sign intersections. 8. Protect vehicle sight distances to minimize the potential conflict with bicycle crossings. 9. Coordinate the construction and maintenance of safe crossings or grade separations for bicyclists where high traffic streets and highways make crossing difficult. 10. Strive to increase amenities that demonstrate Lincoln to be the most bicycle friendly community in the Midwest. Policies 11. Implement safety campaigns targeting specific user behavior for both cyclists and motorists. 12. Provide safe and accessible bicycle connectivity to neighborhoods, employment centers, commercial areas, and schools. ### Goals Supported by this Policy G6: Healthy, Active, and Connected People G15: Transportation ### Elements Related to this Policy E9: Transportation Policies # P70: Transit *Enhance the community's public transportation operations as a means of expanding economic equity and travel choice.* <
> StarTran strives to make transit service and infrastructure decisions that leverage available funding and optimize service for the community. More than 85 percent of the community is served by transit routes. Available service times and frequencies are a source of ongoing community discussion to serve the needs of transit-dependent populations. Use of the transit system has steadily increased over the past decade. Route changes implemented in 2018 retained the hub and spoke orientation and moved routes to arterial streets. In 2020, a StarTran Multimodal Transit Transfer Center Feasibility & Concept Design Study for downtown was completed. Transit use was affected negatively during the COVID-19 pandemic and transit was offered fare-free for the duration. The community input received about transit helps direct the 2021 update to the Transit Development Plan. Operational decisions that increase transit use in the City, County and between Omaha and Lincoln can reduce individual household transportation costs, provide access to jobs and education, and support environmental goals to reduce GHG emissions. ## Action Steps 1. Seek funding for and construct a new downtown Multimodal Transportation Center. 2. Incorporate more paratransit, flex route, and demand-response support, advanced technology integration, and off-peak service hours where feasible. 3. Broaden transit development public input and validate priorities, alternatives, and plans with diverse stakeholders. 4. Study, recommend, and program for additional intermodal transfer hubs that reduce trip times and increase system connectivity locally and with a regional transit system to Omaha. 5. Expand central signal system software capabilities to provide adaptive signal control technology and other intelligent transportation system infrastructure that supports transit signal priority. 6. Complete demonstration projects that illustrate the potential for transportation innovations to improve and integrate with standards for making vehicle communication (V2X) and advanced mobility decisions that improve transit operations. 7. Provide high-quality transit service and study Bus Rapid Transit (BRT) opportunities to attract choice riders and support infill development. BRT is high-capacity bus-based transit system that delivers fast and efficient service that may include dedicated lanes, busways, traffic signal priority, off-board fare collection, elevated platforms and enhanced stations. 8. Improve the transit experience by reducing the distance between the transit stop and traveler’s destination (known as first/last mile connections) and adding amenities at transit stops. 9. Maintain high-quality and remotely accessed transit on-board security cameras. 10. Implement recommendations in StarTran’s current and 2021 TDP. Policies ## Goals Supported by this Policy G5: Equity and Inclusion G15: Transportation ## Elements Related to this Policy E9: Transportation Policies <
> # P71: Public ROW and Access Manage public ROW and access to balance multimodal mobility needs and protect the value of adjacent property. The public spaces along transportation corridors have the potential to enhance individual and shared experiences throughout the community. The identity of the community can be communicated through design elements that exist outside the traveled way. Well-coordinated landscaping, public art, pedestrian lighting, and wayfinding can serve to orient individuals and make the traveling experience positive. The ROW can also be used to accomplish multiple purposes, such as easement for utilities, sidepaths, grading for stormwater management, and siting for transit stops. Transportation design requirements help coordinate an effective public ROW and access. Where design requirements are flexible, recommendations that encourage the best use of the public space should be made. ### Action Steps 1. Monitor the relative cost-benefit analysis of programmatic roadway design standards for sidewalks, stormwater management, lane sizes, trails, culverts and ROW widths currently required. 2. Update and implement a design framework for public ROW and access based on study findings. 3. Encourage flexible and performance-based geometric design processes and best practices that address challenges to transportation agencies created by funding and right-of-way constraints. 4. Require public and private development to abide by required design standards and make flexible decisions based on the value of investment. 5. Expand wayfinding and orientation provided within the pedestrian environment throughout the community. 6. Preserve access control standards to support an efficient transportation network that is safe for active transportation users as well. 7. Preserve or provide adequate ROW space for healthy street trees and temporary snow storage. 8. Consider strategies that reduce the impacts of transportation projects on existing neighborhoods. ### Goals Supported by this Policy G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P72: Freight *Preserve and enhance the efficiency of the freight system to support the local, regional, and national economy.* Freight transportation within and through the community supports the economy, creates jobs, and provides materials needed for everyday life to occur. Freight movement is a positive indicator of economic strength. Providing reliable, efficient, and safe corridors for freight movement attracts more economic growth. Freight movement is supported by roadways, traffic operations, railroad lines and crossings, pipelines, and airlines. A freight network that uses freeways and highways reduces congestion and makes the transportation network safer for all users. Transportation planning will continue to support the development of a freeway system that completes the South Beltway and coordinates a future East Beltway to support regional traffic demand and reliable movement of freight. ## Action Steps 1. Maintain a network of truck routes that provides for the safe, efficient, and reliable delivery of goods. 2. Continue to use the Railroad Transportation Safety District (RTSD) in its mission to reduce the number of conflicts between traffic and railroads. 3. Improve railroad crossings, quiet zones, and grade separations when warranted and that have the greatest economic and safety return on investment to the overall community. 4. Continue corridor preservation, funding, and planning for the East Beltway. 5. Support opportunities to expand the intermodal facility in and possibly adjacent to the Lincoln Airport and Airpark areas. 6. Develop and conduct a pilot project that generates alternate revenue sources (i.e., price the curb) within specified short-term parking areas for freight deliveries to downtown offices, businesses, and residents. 7. Coordinate with State and County partners to consider freight parking and electric refueling plan recommendations that would best support autonomous freight platoon storage. ## Goals Supported by this Policy G15: Transportation ## Elements Related to this Policy E9: Transportation Policies <
> # P73: Shared Mobility *Recognize the role for Mobility as a Service provider to help address mobility needs and transportation inequities.* Shared mobility involves transportation services that are shared among users, either in parallel or one after another. These services include shared micromobility, such as bike sharing or scooter sharing, public transit, such as StarTran, and ridesharing via transportation network companies (TNCs). Lincoln has two shared micromobility programs that provide low-cost transportation alternatives compared to personal vehicle ownership and use. BikeLNK, Lincoln’s bikeshare program, was implemented in partnership with LTU in 2018. Currently, BikeLNK has 21 docking stations that support 105 traditional bikes and 12 electric bikes (e-bikes) with an additional 13 e-bikes as part of a demonstration. ScooterLNK is Lincoln’s second shared micromobility program created in 2020 as a one-year scooter pilot program. Two private electric scooter companies were chosen to participate in the pilot and deployed shared e-scooters in the City ROW for Lincoln residents to use as a transportation alternative to personal vehicles. Shared micromobility may lead to increased use of personal micromobility options throughout the community, reducing the need for some personal vehicles. Additionally, continued expansion and use of these shared transportation services will increase demand for safe on-street infrastructure to limit conflicts with pedestrians and vehicles. Shared mobility is also being used with StarTran’s on-demand service, VanLNK, as well as with private ride hailing service providers to help diversify the transportation options available for the community. Access to shared mobility may provide cost-effective alternatives to personal vehicle ownership if it is well coordinated with the active transportation and transit network. ## Action Steps 1. Continue to develop partnerships that support BikeLNK operations. 2. Provide safe, accessible, and well-connected on-street infrastructure for shared mobility devices to use. 3. Establish Mobility Data Specification tools that organize information about use of shared micromobility services to evaluate the demand, equitable distribution of services, and safety performance. 4. Leverage dynamic route-generating technology innovations to expand microtransit opportunities in Lincoln and Lancaster County. 5. Expand the range and capabilities for technology integration between shared mobility options and users. 6. Incorporate shared mobility into the design review of development and encourage standards for built form for a comprehensive shared mobility network. 7. Dedicate parking areas for carpool, vanpool, and shared micromobility vehicles in municipal garages. 8. Develop partnerships with large employers and commercial center operators to place shared mobility devices that can provide employees with access to services within 3 miles. 9. Coordinate shared mobility device access to be accessible from transit stops, transfer stations, and transfer hubs. Policies 10. Provide comprehensive and safe multimodal corridors that promote the use of shared mobility for first/last mile trips or to connect between other modes of transit. 11. Support transport of personal electric scooters on all StarTran buses to encourage more ridership, especially along routes that serve schools. 12. Update personal e-scooter traffic rules to accommodate best practices that support safe operation of e-scooters in the traveled way as well as signalized and stop sign intersections. **Goals Supported by this Policy** G15: Transportation **Elements Related to this Policy** E9: Transportation Policies <
> # P74: Advanced Mobility ## Support the orderly deployment of advanced mobility technologies that preserve and enhance the safety of all road users. Future mobility experiences and options will be modified through incremental advances in technology. Public and private investments into the market for autonomous vehicles, connected technologies, and drone delivery will integrate into the market driven products available to the public. Civic investments will be made to traffic operations infrastructure and lead to improvements to the safety, efficiency, and reliability of the transportation network. Safety for all community members will be prioritized in the decisions made to adopt and regulate local implementation of advanced mobility options. It is uncertain if autonomous vehicles will reduce or increase the number of vehicle miles traveled. Other advances in technology that support more employees working from home may also influence traffic behaviors over time. Technology advances for mobility have the potential to influence long-term transportation decisions and should be directed to achieve the broadest and most equitable community benefit. ### Action Steps 1. Develop strategies to accommodate future mobility options and vehicle technologies for Delivery Economy – rules and regulations for operating on the transportation network and vehicle requirements (e.g., drones, scooters, delivery robots). 2. Develop strategies to accommodate future mobility options and vehicle technologies for Roadway Design Standards - include vehicle communication (V2X) standards/guidelines to accommodate evolving vehicle and communications technologies. 3. Revise rules and regulations that currently prohibit or deter advanced mobility technologies. 4. Develop policies to facilitate partnerships with the private sector (e.g., Transportation Network Companies) to complement and/or provide transportation services. 5. Develop policies to monetize technology uses that support advanced mobility and use funds to complete smart technology transportation projects. 6. Leverage a growing economy to support research in advancing carbon neutral transportation options that leverage technology to reduce vehicle miles traveled and congestion. 7. Create policies/regulations to ensure that service territories for advanced mobility technologies extend outside the downtown core. 8. Study parking and development strategies that reimagine the use of public spaces for automated vehicles and the incremental replacement of on-street parking with curbside drop-off and pick-up areas. 9. Establish drone delivery regulations that protect individuals and infrastructure safety and security. 10. Incorporate autonomous shuttles into the StarTran fleet. 11. Study opportunities to capture the value of autonomous vehicles to equitably distribute the cost across all community members. Policies ### Goals Supported by this Policy G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P75: Transportation Partnerships Seek partnerships with both public and private entities to finance mutually beneficial transportation projects. Effective multimodal transportation planning and implementation is achieved by coordinating activities of public agencies toward the shared vision of the LRTP. The City of Lincoln, Lancaster County, and the State of Nebraska serve essential roles in developing and maintaining the roadway and bridge network. Integrating a transit system coordinated by StarTran and trail development supported by the Lower Platte South Natural Resource District expands the capabilities of the transportation network to support the community. Community partners provide conduits to share information about the transportation system, and private development expands opportunities to maximize the value of public investments in transportation. Partnerships generate access to greater amounts of transportation funding and ensure the transportation system is built in a coordinated manner. ## Action Steps 1. Develop County roadways within Lincoln growth Tier I & II with the intent to transfer infrastructure of good condition that meet design standards that support edge growth. 2. Continue planning and development of a freeway system that efficiently and safely moves regional and thru traffic without using arterial roadways. 3. Collaborate with agencies and associations to develop and distribute educational programs related to safety and security of the transportation system. 4. Maintain proactive working relationships with railroad operators to facilitate effective processes for planning and constructing at-grade and grade separated crossing improvements. 5. Leverage the University of Nebraska for more opportunities to research safety, integrating active transportation, shared mobility, and advanced mobility. ## Goals Supported by this Policy G15: Transportation ## Elements Related to this Policy E9: Transportation Policies # P76: Transportation Safety Strive to reduce transportation-related deaths and injuries, especially for vulnerable users (pedestrians, bicyclists, motorcycle users, the elderly, youth, and individuals with disabilities). <
> Transportation infrastructure planning and design must always consider the safety of community members. Transportation-related deaths and injuries on City, County, and State roadways affect the community and individuals negatively. Reflecting on the variety of conditions that can contribute to crashes with any mode of transportation serves to help make the future transportation network safer. All transportation partners will continue to evaluate data and improve the design and implementation of safe streets, railroad crossings, and active transportation infrastructure. ## Action Steps 1. Prioritize the protection of vulnerable road users such as bicyclists and pedestrians. 2. Generate community support to establish and reach specific goals for reducing transportation-related deaths and injuries. 3. Engage a transportation safety taskforce to review transportation safety data, consider trends and best practices for improving safety, and advise local officials how to implement strategies that make the transportation network safer. 4. Adopt an action plan that clearly describes the strategies, responsibilities, interim targets, timelines and measures of effectiveness. 5. Adopt messaging that emphasizes that traffic deaths and injuries are preventable. 6. Prioritize transportation resources based on evidence of the greatest needs and impacts for safety. 7. Support updates to state and local regulations that make the multimodal transportation network safer. 8. Provide physical separation between on-street bicyclist and motorists based on safety countermeasure best practices and available crash data. 9. Update municipal code to allow bicyclists to occupy full lane, not just as close as practicable to the right-hand side of the right-hand lane, where physical separation is not provided. 10. Implement incident management planning to help the transportation system recover swiftly from incidents. 11. Study and recommend changes to posted speed limits within residential neighborhoods to expand the low stress network for on-street bicycle users. 12. Evaluate roadway width for collectors and design streets for slower speeds. 13. Study and recommend policies that prioritize walkability and safety near employment centers, commercial corridors, and high-density residential areas in manner similar to that of School Zone Standards. 14. Provide intersection crossings that are safe for bicyclists and pedestrians. 15. Maintain high-quality and remotely accessed transit on-board security cameras. Policies ### Goals Supported by this Policy G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P77: Transportation Maintenance *Optimize the maintenance of transportation infrastructure through data-driven asset management.* Transportation infrastructure represents the largest land use type for which a public agency is accountable. Preservation and maintenance of the transportation network is important to the community. Poor road conditions can cause extra wear and tear on vehicles and add barriers to active transportation use. Roadways, bridges, trails, traffic controls, and sidewalks require ongoing maintenance schedules, and all new infrastructure increases future maintenance costs. Addressing deferred maintenance is prioritized to maintain infrastructure in good condition and repair degraded infrastructure. The community also desires to ensure that infrastructure maintenance supports equitable outcomes that may direct more funding to some areas of the community than others for periods of time. ## Action Steps 1. Continue to communicate about Lincoln on the Move rehabilitation projects, forecasted maintenance plan, and funding parameters. 2. Advance system preservation (e.g., filling potholes, repairs and crack sealing) to extend the life-cycle cost of existing streets and program rehabilitation of major and residential streets annually with priority for resolving deferred maintenance equitably throughout the community. 3. Continue to strive for methods that use durable and resilient materials for all new construction and assets. 4. Continue annual programming for the sidewalk replacement and rehabilitation program to meet the safety, access, and connectivity needs of residents within the city. 5. Continue snow and ice removal for the on-street bicycle and pedestrian network including intersections. 6. Establish multiuse trail condition standards and methods for segment evaluation used to program maintenance type and timing. 7. Use decision support tools recommended by StarTran's Transit Asset Management Plan (TAMP) to optimize lifecycle planning of capital public transportation assets. ## Goals Supported by this Policy G10: Effective Government G15: Transportation ## Elements Related to this Policy E9: Transportation Policies # P78: Transportation Funding *Seek innovative finance and funding methods to support continued investment in transportation infrastructure projects that benefit the community.* <
> City, County, and State partners coordinate funding and leverage available federal funds, regional funds, developer commitments, transit farebox fees, and private contributions to build and maintain the multimodal transportation network. Community members desire a well-maintained transportation network that grows with the needs of development. Available funding is directed to address these outcomes, but anticipated funding levels are not adequate to meet the identified multimodal needs. Innovative funding strategies can both stretch the value of each dollar and identify new funding sources to address unmet needs. The transition to electric vehicles will result in less federal gas tax funds available for transportation improvements and maintenance. Local funding strategies must also explore transportation financing alternatives for the community to evaluate so that future funding strategies are reasonably understood. ## Action Steps 1. Implement the funding program and construct the committed and priority projects per the Fiscally Constrained Plan in the LRTP. 2. Coordinate with state and federal agencies on developing new and updated transportation funding opportunities to meet transportation needs of the community. 3. Establish dedicated and sustainable funding sources for pedestrian and bicycle projects and programs. 4. Capitalize on opportunities to leverage alternative funding sources, such as public-private partnerships, for roadway improvements and transit services. 5. Coordinate with NDOT to program funding solutions for constructing the East Beltway. 6. Continue to use the Railroad Transportation Safety District (RTSD) in its mission to reduce the number of conflicts between roadway traffic and railroads and to study, design, and construct railroad crossing improvements that have the greatest economic and safety return on investment to the overall community. 7. Encourage flexible and performance-based, geometric design processes and best practices that address challenges to transportation agencies created by funding and right-of-way constraints. 8. Program new construction that supports growth areas and increased corridor density for residential and commercial growth as city limits expand in support of the PlanForward growth scenario. 9. Maintain a quality transportation system in all areas of the community by balancing the distribution of program funding equitably. 10. Identify new funding sources as increased electrification of personal vehicles, which don't pay fuel tax, may reduce funding over time. 11. Incorporate sustainable funding sources and mechanisms and protect maintenance funding with user type fees or taxes to keep up with constant maintenance needs. Policies 12. Develop policies to monetize technology uses that support advanced mobility and use funds to complete smart technology transportation projects. 13. Actively communicate with the community about the benefits of multimodal and safety investments, as well as the allocation of transportation funding that is achieving system development and maintenance priorities. ### Goals Supported by this Policy G10: Effective Government G15: Transportation ### Elements Related to this Policy E9: Transportation Policies <
> # P79: Airport ## Ensure the Lincoln Municipal Airport is efficient, accessible, and environmentally sound. The Lincoln Airport provides for the air transportation needs of the community and connects visitors from around the world to the region. The airport is located with convenient access to private air carriers, industrial distribution, and national security facilities. Landside transportation infrastructure supports the efficient and accessible operation of the airport; connecting personal vehicles, ride sharing providers, public transit and active transportation with airline travel. Maintaining this infrastructure benefits the economic vitality and mobility of the region. ## Action Steps 1. Support the development of landside transportation infrastructure strategies when the 2007 Airport Master Plan is updated. 2. Support the freight demands associated with airport-based distribution with quality roadway infrastructure. 3. Improve multimodal access to the Lincoln Airport and business park campus. 4. Protect environmental resources on and adjacent to the airport from negative impacts. 5. Maintain compatible land uses and zoning within the 60 DNL and 75 DNL noise contour lines. 6. Continue to enforce zoning restrictions for building and structure height in the approach and turning zones. ## Goals Supported by this Policy G15: Transportation ## Elements Related to this Policy E9: Transportation Policies # P80: Annexation *Annexation should be utilized to provide municipal services in a fair and efficient manner.* <
> The City of Lincoln requires that properties receiving municipal services be located within city limits. City annexation should occur before any property is provided with water, sanitary sewer, or other potential City services. In most cases this also means that annexation must occur prior to a property receiving an urban zoning designation. The City routinely annexes land at the request of a developer or landowner as part of the regular development process. This allows properties to be supplied with City services when they are needed, and the City benefits from the property taxes, utilities, and other fees that City residents pay. Some properties along the City’s edge may not be interested in further development and thus will not request annexation. In some cases it is necessary for the City to initiate annexation of adjacent properties that are already developed and require a minimal public investment to serve. ### Action Steps 1. Regularly evaluate for potential annexation all property along the city’s edge for which basic infrastructure is generally available or planned for in the near term. The City should annex land in Tier 1 Priorities A and B that is contiguous to city limits and generally urban in character. All land that is engulfed by the City should be annexed. 2. Provide advance notice to properties that may be subject to city-initiated annexation. 3. Properties within the Tier 1 Priority A growth area should be annexed upon approval of final plat. 4. Coordinate the provision of services for areas considered for annexation with the Capital Improvement Program. *What does "urban in character" mean?* *The Nebraska Supreme Court (County of Sarpy v. City of Gretna, 309 Neb. 320 [2021]) determined that “urban or suburban in character” relates not only to the specific character of uses on the property, but could also relate to the property’s location, proximity to growth areas, degree of development, and contemplated future development. Lincoln’s city-initiated annexation policy is focused on properties adjacent to city limits within near-term growth areas that generally contain residential uses (including acreages) or other uses typically found in urban settings, along with all properties completely engulfed by the city.* ### Goals Supported by this Policy G10: Effective Government ### Elements Related to this Policy E8: Energy & Utilities # PLAN forward ## Lincoln-Lancaster County 2050 Comprehensive Plan The Lincoln-Lancaster County 2050 Comprehensive Plan is a roadmap to “plan forward”, not only in time, but in concept, to envision a community that is Livable, Equitable, Thriving, Resilient, and Innovative. # Implementation CITY OF LINCOLN NEBRASKA LANCASTER NEBRASKA COUNTY Implementation Once adopted by the City and County, PlanForward becomes the community’s guide for directing its resources and efforts toward making the common vision a reality. The ways to achieve this objective are further described in the sections below. Implementation ## Land Use Administration The planning process has long had at its disposal a number of administrative and regulatory tools for implementing comprehensive plans. Many of these reach back eighty to one hundred years. Some of the land use administration approaches to be used in plan implementation include: **Zoning.** Zoning is a legal means cities and counties use for deciding how land can be used, the intensity of those land uses, and the relationships between various land uses. Nebraska State law, as with most states, requires zoning to be developed in accordance with the community’s adopted Comprehensive Plan. This is one of the primary reasons cities and counties have Comprehensive Plans. As a legal document, zoning is reflected both as a map showing the geographic boundaries of each district and a written ordinance detailing the uses and conditions of each district. For the City of Lincoln, the zoning ordinance is presented in Title 27 of the Lincoln Municipal Code; while the County’s zoning standards are contained in the County Zoning Regulations. **Subdivision.** A subdivision is the process of dividing land into lots and/or streets. While a variety of standards apply to where, when, and how the subdivision of land can happen, having an approved subdivision plat is a basic step in the development process. The City’s subdivision code is found in Title 26 of the Lincoln Municipal Code. For the County, these regulations can be found in the County Subdivision Regulations. **Design Standards.** Special site design or other conditions not otherwise covered in the zoning ordinance or subdivision standards are contained in a series of design standards. These standards spell out unique characteristics that may apply to a type of development proposal. These include, for example, design considerations for childcare centers, trails, new construction in older, established neighborhoods and the downtown/Antelope Valley area. **Five Year Tasks** The Comprehensive Plan includes many policies that contain specific action steps to be completed in the near term. The table below summarizes the specific action steps and work items to be completed within the next five years. This table only includes a small number of the total action steps found in the Comprehensive Plan, and it focuses on items related to land use administration and Planning Department activities. Completion of these action steps will reviewed at the next 5-year plan update. Implementation Table 1.a: Five Year Implementation Tasks | | Priority Action Steps Over Next Five Years | | :--- | :--- | | ----- | **Expand opportunities for residential infill, incuding affordable and "missing middle" housing.** | | P1.10 | Continue to develop affordable housing zoning text amendments that implement recommendations from the Affordable Housing Coordinated Action Plan and other documents and community input. | | P2.20, P3.15 | Examine current residential zoning districts and propose modifications to encourage ‘missing middle’ units (single-family attached, cottage courts, townhomes, live-work, and a variety of three- and four-plex configurations), including affordable units, to people with a range of incomes. Neighborhood edges in particular present an opportunity for missing middle housing. Neighborhood edges in particular present an opportunity for missing middle housing. | | P2.15 | Develop and propose zoning text amendments that will allow platted, nonconforming lots to be buildable. | | P8.4 | Provide a mechanism for adjustments in older zoning districts to lot area, height, setbacks, and parking standards, similar to the provisions already available for newer districts. | | ----- | **Expand access to accessory dwelling units (ADUs).** | | P2.14, P3.12 | Evaluate potential updates to the zoning code to allow expanded opportunities for ADUs throughout the community. | | ----- | **Examine new ways to promote high-quality redevelopment within Mixed Use Redevelopment Nodes and Corridors.** | | P6.1 | For Primary Mixed Use Redevelopment Nodes and Corridors, examine updates to the B-5 Planned Regional Business zoning district that would address items such as: density, site layout, parking, building scale, and design standards. | | P6.2 | Develop design standards to be utilized across all Mixed Use Redevelopment Nodes and Corridors. Design standards should be clearly written and allow for an efficient, expeditious review process, while especially focusing on the interface with residential neighborhoods, attractive streetscapes, and safe and comfortable movement of people – whatever their mode of travel. | | P6.7 | Examine policies to encourage commercial Floor Area Ratios of at least 0.5 within buildable areas designated for commercial development inside the project boundary (including public and semi-public buildings). This strategy encourages significant returns on public investment by developing high-quality properties with sustained value, long-term viable businesses to generate sales tax, and efficient use of land and infrastructure resources. | | P6.8 | Examine policies to encourage residential densities of at least 15 dwelling units per gross acre within buildable areas inside the project boundary. This strategy encourages significant returns on public investment by developing high-quality properties with sustained value, supports new businesses in the mixed use center, makes public transportation more viable, and uses land and infrastructure more efficiently. | | ----- | **Evaluate expansion of design standards from a menu of options.** | Implementation *Nodes and Corridors* | | | | :--- | :--- | | **P6.1** | For Primary Mixed Use Redevelopment Nodes and Corridors examine updates to the B-5 Planned Regional Business zoning district that would address items such as: density, site layout, parking, building scale, and design standards. | | **P6.2** | Develop design standards to be utilized across all Mixed Use Redevelopment Nodes and Corridors. Design standards should be clearly written and allow for an efficient, expeditious review process, while especially focusing on the interface with residential neighborhoods, attractive streetscapes, and safe and comfortable movement of people – whatever their mode of travel. | *Redevelopment Projects* | | | | :--- | :--- | | **P8.3** | Develop new design standards for redevelopment projects, particularly TIF projects, that encourage density, a variety of housing types, optimize infrastructure costs, and help lower the overall cost of property development. Design standards provide assurance that projects will enhance and add enduring quality to the surrounding neighborhood and avoid conflicting visions among developers, neighbors, and city officials. | *Commercial Areas* | | | | :--- | :--- | | **P34.1** | Implement expanded commercial design standards that could be applied across various zoning districts or corridors. Design standards should be clearly written and allow for an efficient, expeditious review process, while especially focusing on the interface with residential neighborhoods, attractive streetscapes, and safe and comfortable movement of people – whatever their mode of travel. | *Corridors and Entryways* | | | | :--- | :--- | | **P34.7** | Strengthen design standards for commercial and mixed-use development along major travel corridors, to reflect a positive visual image that engenders community pride and identity. | | **P35.1** | Study key entryways to Lincoln and adopt zoning tools and incentives to protect and enhance “first impressions” of the community, including a thoughtful, distinctive, and attractive system of “wayfinding” signs to key community attractions. | | **P34.8** | Evaluate the expansion of the neighborhood design standards area to apply for residential districts within the 1970 city limits boundary. Neighborhood Design Standards currently apply within the 1950 city limits boundary. | *Miscellaneous* | | | | :--- | :--- | | **P3.4** | Develop new design standards or zoning tools that encourage density, optimize infrastructure costs, and help lower the overall cost of property development. | | **-----** | **Increase the opportunity for home occupations and live/work arrangements.** | | **P2.23, P3.17** | Consider zoning revisions that align with home occupation trends and the community’s expectations. | | **P49.1e** | Revise codes to allow for more opportunities to work and live in the same place. | | **-----** | **Develop enhanced standards for new developing and redeveloping neighborhoods.** | | **P2.16, P3.13** | Review the Community Unit Plan requirements and consider revisions to meet the intent of developing creative, quality, and unique residential developments. | | **P3.4** | Develop new design standards or zoning tools that encourage density, optimize infrastructure costs, and help lower the overall cost of property development. | Implementation | | | | :--- | :--- | | ----- | **Evaluate options for new acreage subdivisions.** | | P4.9 | Review the "build-through" model for acreages in the County and make recommendations that align with the PlanForward policies and growth scenario. | | ----- | **Eliminate or reduce minimum parking requirements.** | | P11.2 | Eliminate or reduce minimum parking requirements in additional zoning districts and include conditions that minimize the impact on neighboring properties. | | ----- | **Increase opportunities to grow and sell local food.** | | P22.5 | Allow commercial agriculture, including points of sale for foods grown on-site, in all zoning districts at appropriate locations and with appropriate standards. | | P22.9 | Evaluate potential for local food production through urban market gardening on designated City owned properties – some of which may currently be in row crop production. Establish criteria for evaluation such as soil condition, availability of water for irrigation, impact on adjacent uses, etc. | | ----- | **Reduce obstacles to locate child care facilities.** | | P45.2 | Examine building and zoning code requirements for child care centers and family child care homes to determine if there are any obstacles that could be removed while maintaining the safety of the building occupants. | | ----- | **Create a Complete Neighborhoods measurement tool.** | | P2.10, P3.6 | Develop and utilize a measurement tool to evaluate neighborhoods in terms of how well they achieve PlanForward’s goals for design, sustainability, and Complete Neighborhoods goals. | | ----- | **Update the Natural Resources GIS (NRGIS) data file to create an improved inventory of environmental resources in the county.** | | P19.6, P24.9 | Resurvey and update the County’s prairie and grassland inventory for inclusion in the Natural Resources Geographic Information Systems (NRGIS). | | ----- | **Create and evaluate an inventory of non-agriculture uses currently allowed in the county.** | | P16.9 | Review the county zoning ordinance to create an inventory of non-agricultural uses currently allowed in rural areas of the county to evaluate possible changes. | ### Financial Resources The provision of services is one of the primary responsibilities of City and County government. Financing these services without creating an undo financial burden for the taxpayer is, and will continue to be, a challenge. There needs to be a balance between new infrastructure in developing areas and the improvements and maintenance needs of the existing community. It is also important to remember that the initial cost of improvements does not reflect the ongoing maintenance and operations of those facilities. ### Strategies for Financing Rural Infrastructure **Group new acreages in limited areas.** This will enable services to be provided more efficiently, such as minimizing the amount of paved roads, reducing and shortening school bus routes and providing more cost effective rural water district service. **Direct growth to cities and towns.** Direct and support residential, commercial, and industrial growth to incorporated cities and towns in order to maintain a tax base for the services and utilities in the towns, as well as to economize on the costs of services and utilities. Implementation **Strategies for Financing Urban Infrastructure** **Take a Balanced Approach.** The community at large should provide more financing of maintenance and improvements in existing areas. Both new and existing developments should pay their fair share of improvement costs due to growth and maintenance. In general, improvements which are of general benefit to the whole community should be paid by the community, while improvements which are of special benefit to a specific area should be paid by that area. **Develop a Fair and Predictable System.** Distribute infrastructure costs fairly among all property owners who benefit from the improvements. The goal of the financing system is that costs should be known in advance of development. Property owners should participate in funding improvements in new areas at generally the same rate. **Encourage Higher Densities.** Maximize the community’s investment in infrastructure through well-designed and appropriately placed density in residential and commercial development. Both for new development and redevelopment, an increase in well-designed and appropriately placed density will decrease the amount of infrastructure necessary overall in the community. **Minimize Impact on Affordable Housing.** Infrastructure financing should not increase the cost of affordable housing in Lincoln, particularly housing that is targeted for residents making less than 80 percent of the area median income. **Minimize Impact on Those Who Are Not Developing Land.** As much as possible, property owners should only be assessed or pay the improvement costs at the time they seek approval of development proposals or building permits. Financing mechanisms should be sensitive to property owners in an area under development who don’t want to develop their land at that time, but should not encourage them to hold their property out of development indefinitely. Property owners need to be educated about growth and infrastructure plans to reduce the element of surprise and to foster more informed personal planning decisions. **Maintain Expanding System.** The addition of infrastructure and growth of the City requires attention to provide an adequate level of service. Expanding facilities adds financial maintenance needs for all city services. **Capital Improvements Programming** Capital improvements have historically been financed by general revenues, special assessments, user fees, revenue bonds, grants from Federal and State government, other local and state taxes and general obligation bonds. Capital projects can be broadly defined as new projects to meet additional needs of the community and rehabilitation of the built infrastructure. It is imperative that timely maintenance of capital improvements occurs to protect the City’s and County’s investment and minimize future maintenance and replacement costs. As an implementation tool, the capital improvement programming process plays a vital role in guiding when and where the city, and even to some degree rural areas, grow. Capital improvements programming can be separated into two broad areas: **Public Sector Contributions** Capital improvements are generally defined as any improvements with a useful life in excess of 15 years. The direction and timing of these improvements have a powerful influence on the development of a community. Arterial roads, major water mains, trails, wastewater treatment and transmission lines, parks, recreational facilities, street lights, fire and police stations, libraries, government administration buildings, schools, electrical facilities, and sanitary landfills are all basic elements of what makes up a city. Hundreds of millions of dollars of public tax dollars and user fees are invested each year in these facilities. The public process used to determine where and when such investment occurs plays a fundamental role in determining how PlanForward is achieved. Implementation The City of Lincoln designates those capital improvements it plans to build over the next six years through the development of a six-year Capital Improvement Program (CIP). The first two years of the City’s CIP is termed the “Capital Budget,” and it represents the list of projects formally approved and funded by elected officials. The City of Lincoln’s Charter requires that before the City Council can approve a capital project it must undergo a test of “Comprehensive Plan conformity.” This means that the Planning Commission or Planning Department must issue a report stating whether the proposed capital expenditure is consistent with the Comprehensive Plan. Should the project be found to be not in conformance with the Plan, the City Council can still approve the project. No equivalent Plan conformity standard is applied in the County’s CIP process, however the Lancaster County Road and Bridge Construction Program is reviewed for conformance with the Comprehensive Plan and LRTP . A companion document to the City's CIP, called the Transportation Improvement Program or TIP, is prepared on an annual basis. This task is assigned to the Lincoln Metropolitan Planning Organization, a policy making board comprised of representatives from local government and transportation authorities that reviews transportation issues and develops transportation plans and programs for Lincoln and Lancaster County. The TIP gathers together in a single document those local, State and Federal transportation capital projects proposed for the next four years. These include improvements for streets and highways, airports, railroad support facilities, trails, and public transit. Transportation projects must have a finding of substantial conformity to the Comprehensive Plan before they can be included in the TIP. The MPO’s fiscally constrained Long Range Transportation Plan requires that all projects programmed must fall within the limits of funding that can be reasonably expected. Lancaster County prepares an annual Road and Bridge Construction Program, commonly referred to as the “County 1 and 6 Program” because it includes the projects and programs for the first year and a more generalized list of projects going out 6 years in the future. The County 1 and 6 Program supports the projects identified on the Lancaster County Future Road Improvements map, which is a part of the MPO’s Long Range Transportation Plan. This program identifies not only capital improvements but also maintenance projects such as grading and graveling of roads. Projects that use federal funding or are part of a regional system are included in the TIP. ### Private Sector Contributions Private investment is a significant part of the funding used to construct infrastructure in new developments. Most local streets, sidewalks, water, sanitary sewer, and stormwater facilities are built and paid for by the private developer, and impact fees contribute to the larger infrastructure components. Decisions made in the private sector play an important role in managing and guiding the expansion of the urban area. Expenditures from private sources are critical to furthering the growth of the community. Privately funded projects are also expected to conform to the goals and strategies of the Comprehensive Plan. ### Strategies for the Capital Improvement Program * The CIP should be utilized to provide a systematic and predictable forum for determining the timing of infrastructure improvements. * Infrastructure improvements should continue to be implemented only in areas identified for development in the Lincoln/ Lancaster County Comprehensive Plan. One of the most important tools in financing is adherence to the physical plan for the community. Following the Plan for development and systematic improvements throughout Lincoln increases efficiency in construction and maximizes the community’s investment. * The top priority for the City’s Capital Improvement Program (CIP) is to maintain existing infrastructure. * Fully serving Tier I, Priority A areas is a priority. Implementation * Infrastructure funding to serve the growing community relies upon adequate revenue from all sources, including gas tax allocation, wheel tax, impact fees, and water and wastewater fees. It is a priority to explore innovative funding strategies and new sources to fund infrastructure projects. * Use the CIP as a planning and programming guide. ### On-Going Comprehensive Plan Activities While the Comprehensive Plan may have received formal approval, certain long-range planning tasks remain to be completed or continued as part of the Plan's implementation. These include: **Interagency Cooperation and Coordination.** Broad involvement of numerous public agencies and departments were used in the Plan's formulation. The cooperation and coordination of efforts with these groups needs to remain in place during the Plan's implementation. **Joint Planning Commission and Planning Department.** The City and County created a joint City-County Planning Commission and a single City-County Planning Department more than fifty years ago. This structure has served the community well over this period. It is intended that this structure remain in place as a means for furthering the implementation of the Plan. **City-County Common.** The City Council, County Board, and Lincoln Mayor may hold a joint meeting to discuss issues of common concern to them. This group is known as the City-County Common. The Common provides a regular opportunity for the elected officials to discuss planning issues of joint interest to them. **MPO Officials Committee and Technical Committee.** Through the Metropolitan Planning Organization structure, the Officials and Technical Committees lend additional policy and technical oversight to the process. These standing groups meet on a regular basis to review, discuss, and approve matters relating to the area-wide transportation planning process. This includes the annual MPO Unified Planning Work Program, Transportation Improvement Program (TIP), Annual Certification, Long Range Transportation Plan (LRTP) and other related studies and programs. **Subarea Planning and Other Studies.** The Comprehensive Plan provides broad guidance for achieving the community's stated Vision. Putting details to the Plan takes additional effort. One means of doing this is through the preparation of subarea plans. Subarea plans offer greater details about the intended future of an area of the community — including land uses, infrastructure requirements, and development policies and standards. Many of these subarea plans are prepared by the City-County Planning Department, while some are prepared by other agencies and departments. **Design Review Boards.** Design review is coordinated through three boards, each with specific responsibilities: Urban Design Committee, Historic Preservation Commission, and Nebraska Capitol Environs Commission. **Complete Streets Committee.** The committee is tasked with discussing how to implement Complete Streets within the community. The committee is an interdepartmental group comprised or representatives from Planning, Lincoln Transportation & Utilities, StarTran, Urban Development, Building and Safety, Parks and Recreation, and the Health Department. Implementation Subarea plans considered part of this Comprehensive Plan include: * *Wilderness Park Subarea Plan; February 2000* * *NRGIS Greenprint Challenge, August 2001* * *City of Lincoln Strategic Plan for HUD Entitlement Programs; FY 2013-2017, Urban Development* * *Lincoln Water System Facilities Master Plan, June 2014* * *Lincoln Wastewater Facilities Master Plan, November 2015* * *The Implementation Plan for the Conservation of Nebraska’s Eastern Saline Wetlands, 2003* * *Lincoln Public Schools 10 year Plan, December 2019* * *Lincoln Airport F.A.R. Part 150 Noise Compatibility Study, 2003* * *Transit Development Plan, April 2016* * *South Haymarket Neighborhood Plan, December 2015* * *Parks and Recreation 10 Year Facilities Plan, 2019* * *Downtown Lincoln Master Plan, December 2018* * *Lincoln Affordable Housing Coordinated Action Plan, December 2020* * *33rd and Cornhusker Subarea Plan, December 2020* * *City of Lincoln Climate Action Plan, March 2021* * *Comprehensive Watershed Master Plan, October 2022* * *Local Food System Plan. October 2023* * *University Place Subarea Plan, May 2025* As part of the Annual Plan Status Report process, the Planning Director should complete a yearly review of all subarea plans that become five years of age and older. This review would be for the purpose of determining the continued viability and relevance of those subareas plans to the Comprehensive Plan and the long range planning process. ## Plan Amendments The Plan is the community’s collective vision. Yet, change is inevitable. New technologies and new community needs will arise during the planning period which were not foreseen during the Plan’s development. Jobs, housing, transportation, goods and services will shift over time. The amendment process to the Plan must accommodate and help manage the inevitable change in a way that best promotes, and does not compromise, the community’s core values, health and well being. The Plan amendment process must be an open and fair process, utilizing sound planning, economic, social and ecological principals. Amendments to the Plan may be submitted in writing to the Planning Director by any group or individual at any time during the year. The Planning Director may elect to forward the Plan amendment request to the Planning Commission upon submission, or wait to include the request in a compilation that is reviewed by the Planning Commission once each year. Implementation ## Plan Update Process The Federal Highway Administration (FHWA) requires that communities maintain a fiscally constrained Long Range Transportation Plan (LRTP) that is updated every 5 years and embodies at least a 20-year planning horizon in order to receive federal transportation funds. The Lincoln MPO's 2050 LRTP is a companion to the Transportation chapter in the 2050 Comprehensive Plan. By the year 2025, the community will need to begin the process to update the LRTP, and the Comprehensive Plan to meet federal requirements. The update process currently assumes that the Comprehensive Plan undergoes a major update every ten years with a minor update at five years.