Flagstaff schedules regional plan reviews; approves trail system alignment framework for October adoption

Flagstaff Open Space Commission Charts Regional Plan Review as Trail System and Development Priorities Collide

The Flagstaff Open Space Commission convened May 13 to hear three substantive presentations—on education programming, trail system planning, and regional plan process—that collectively exposed a fault line between the city's transportation and open space agendas, particularly as the region prepares for two critical decisions: the Observatory Mesa trail expansion vote (May 14 at city council) and the John Wesley Powell development open house (May 21 at the Aquiplex).

The commission, acting under the leadership of Chair Robert Thomas, voted to schedule formal reviews of the revised regional plan chapter 8 (Parks, Recreation, Open Space) for August and September meetings, ahead of the October council adoption vote and May 2026 voter ratification. That decision, supported by majority voice vote, reflects Commissioner Miranda Norton's concern that the tight timeline—final draft in August, citizen review and planning/zoning public hearings in September—leaves little room for substantive commission input unless commissioners act early and aggressively.

Key Speeches

"We can't ask them to take care of it until they like love where they're at." — Ashley Fenny, open space educator, citing David Sobel on place-based education

"I worry about being put into basically a transportation element thinking." — Commissioner Norton, expressing concern that bikeways and FOOTS trails are being conflated in regional plan mapping

"The more we can sort of share information, talk about things like when the regional plan is going on right now and what's the role of the commission and reviewing that and providing information. I think just, you know, continuing to plan and share information and make sure that we're all in lock step." — Martin Instefjord, transportation planner, on coordination between FOOTS and open space planning

Timeline

• Approval of minutes: April 28, 2025 meeting minutes approved unanimously with no edits.
• Public comment period: No public comment offered.
• Education program presentation: Ashley Fenny provided comprehensive update on 2024–2025 programming serving 2,838 individuals (1,500+ youth) through field trips, classroom visits, guided hikes, and community events.
• FOOTS presentation: Martin Instefjord delivered detailed overview of trail planning, funding, implementation mechanisms, and regional plan considerations; extended Q&A lasting approximately 90 minutes.
• Council liaison report: David Spence reported on Observatory Mesa council agenda for May 14 and provided updates on Picture Canyon trail work and McMillan Mesa.
• Planning & zoning report: Commissioner Norton outlined JW Powell open house (May 21), regional plan retreat insights, and suburban center zoning concerns.
• Future agenda votes: Majority voice vote to add regional plan chapter 8 review to August and September agendas.

Opposition

While the meeting contained no formal public opposition, Commissioner Norton articulated concerns about the regional plan process:

1. Trail delineation conflation: Bikeway and FOOTS trail elements are being merged on regional plan maps, risking loss of FOOTS' dual transportation-recreation function and open space connection role.
2. Loss of influence at approval stage: Commissioner Norton stated, "I'm losing a little bit of influence um as it trickles on down the approval stage and I would sure like us to you know regain some of that."
3. JW Powell suburban center overlay: Proposed high-density zoning (29+ units per acre) overlays the commission's top-priority wildlife corridor and regional park connection area.
4. Hoffman Tank area protection: The Hoffman Tank wash, not designated as a flood plain, receives minimal development protection despite being identified as a critical connector; commission has earmarked $1 million from 2004 bond fund for potential acquisition.
5. Absence of open space master plan: Unlike some city departments, the commission lacks a strategic master plan to fall back on if regional plan language is insufficient.
6. Tight regional plan review timeline: Final draft in August, citizen review end of August, planning/zoning hearings in September, council adoption October, voter ratification May 2026—leaving only weeks for commission formal input.
7. Unclear trail delineation on private development: Regional plan process has not resolved how planned FOOTS trails should be depicted across private property or what authority exists to enforce their inclusion in phased developments.

Support

The commission received positive feedback on the education program:

1. Commission praised Ashley Fenny's work developing stewardship: Members noted that place-based education builds emotional connection to open space, essential for long-term conservation.
2. Suggestions for program expansion: David Spence encouraged outreach to Camp Colton (aspiring to reach every sixth grader); Commissioner Joyce suggested Lower Observatory and CCC camps as partners.
3. Recognition of funding model: Commission acknowledged Ashley's position is funded through August 2026 via Arizona State Parks heritage grant; expressed support for full-time funding in commission's fall budget analysis.
4. Volunteer infrastructure: Commission affirmed use of volunteer database and encouraged recruitment for June field trip support.

Project Details

Education Program (Ashley Fenny)

• Individuals served (2024–2025): 2,838 total; 1,500+ youth (pre-K to 12th grade)
• Activities: 50 field trips (40 to properties, 10 classroom visits); 17 guided hikes; community event booths; visiting school programs
• Partner organizations: Willow Bend (third-grade field trip program targeting all FUSD third graders), Big Brothers Big Sisters, Boys and Girls Club, Flagstaff Community Explorers, NAU (Americorps, fire ecology lab), Arizona Game and Fish, Coconino National Forest Service, Flagstaff Festival of Science, Seeds of Stewardship (trail work), Nature's Educators Coalition of Northern Arizona (NECNA—98-member coalition with website at neckna.org)
• Funding: Base budget $47,000 for buses and materials; Ashley's position ($29,000 annually, estimated) funded through heritage grant (Aug. 2026); prior position was VISTA (AmeriCorps) volunteer
• Future goals: Continuous engagement model (third, seventh, tenth grades); expansion to charter schools and Coconino High School; partnership with Camp Colton for universal sixth-grade exposure

Flagstaff Urban Trail System (FOOTS) Overview (Martin Instefjord)

• Existing system: 59 miles (roughly half paved, half aggregate-surfaced)
• Planned system: 75 miles additional planned; ultimate vision ~130 miles
• Funding sources: Prop. 419 (2018 transportation sales tax, originally $29M allocated, now exceeding projections but facing higher construction costs); heritage grants (historical); BBB funds (now maintenance-only, no capital); federal and state grants (variable); city standalone project budget
• Implementation mechanisms:
  1. Private development (zoning code requires "public improvements" including FOOTS along planned alignments per regional plan map; developers must connect to FOOTS within 100 ft)
  2. City capital projects (Lone Tree Overpass, BU University roundabout, Riverpass, Butler Fourth Corridor, downtown Mile)
  3. Standalone city projects (prioritized by four factors: generators, social factors, need/functionality, completion/connectivity)
• Regional plan status: Existing FOOTS map reflects 2014 regional plan (2030 version); new 2045 regional plan in revision; five ATMP maps adopted into regional plan (sidewalks, bikeways, crossings, grade-separated crossings, FOOTS trails, forest access/trailheads)
• Major private developments with FOOTS: Canyon del Rio, Juniper Point, Timber Sky (west of Woody Mountain Road), Lake Mary housing, Symmetry/Gibson/Elkridge LLC area (JW Powell corridor)
• Priority trail projects (standalone, by ranking): Red (first priority), orange (second), yellow (third), light blue (fourth); most funding directed to red and some orange
• Capital improvements map: Includes Lone Tree Overpass (with anticipated north-south connection to Switzer Canyon via red cliff climb), BU University roundabout, Riverpass, Butler Fourth Corridor, downtown Mile

Regional Plan Process (Commissioner Norton, from Planning & Zoning)

• Current chapter under revision: Chapter 8 (Parks, Recreation, Open Space)
• Major rewrites in progress: Implementation guidelines being moved from chapters to goals and policies; sidebars for best practices added
• Publication and timeline: Final draft August 2025; citizen review and planning/zoning public hearings September; city council review and adoption vote October; voter ratification May 2026
• Core priorities elevated: Housing attainability, equity, and climate; open space shifted to secondary priority under "natural and cultural resources"
• Commission concerns: Suburban center zoning overlay (29+ units per acre) on JW Powell corridor (Symmetry property, Gibson property, Hoffman Tank area); loss of specificity in trail delineation on private land; regional park designation potentially weakened to "regional park and open space"

Observatory Mesa Greater Trail Plan (David Spence liaison update)

• Council vote: May 14, 2025 (tomorrow from May 13 meeting date)
• Plan scope: 24 miles of unplanned trail reduced/refined to 27 miles of planned trail
• Commission attendance: Quorum announced; members encouraged to attend as individuals

John Wesley Powell Specific Plan Open Khara House

• Date/time/location: Wednesday, May 21, 5:30–7:30 p.m., Aquiplex
• Study area: JW Powell Road corridor from I-40 south, including Hoffman Tank wash, Symmetry property, and Gibson property
• Commission priority: Top-tier wildlife corridor and regional park connection; $1 million from 2004 bond fund earmarked for potential acquisition in this area
• Zoning concern: Proposed suburban center overlay (highest-density suburban classification)

Vote Breakdown

• April 28 minutes approval: Unanimous (all members present voted "I")
• Regional plan chapter review on August/September agendas: Majority voice vote (specific individual votes not stated in transcript); Commissioner Norton formally requested; support from Commissioners Joyce and others expressed by show of hands
• Hidden Hollow access as continuing agenda item: Mentioned informally; no formal vote recorded

Outcome & Next Steps

The commission formally scheduled regional plan chapter 8 reviews for August and September agendas to enable substantive input before the October city council adoption vote. Commissioners are encouraged to attend the May 14 Observatory Mesa council meeting and the May 21 JW Powell open house as individuals (not as the commission collectively, but drawing on commission knowledge). Robert (staff) will distribute open house materials and regional plan updates. Next regular commission meeting: June 23, 2025 (moved from typical fourth Monday due to Memorial Day).

Commissioner Norton emphasized that written comments submitted individually or as a commission during the August/September review window will be essential, given the compressed timeline for formal citizen review and planning/zoning public hearings in September.

Controversies & Context

Trail delineation conflict: Martin Instefjord's detailed presentation revealed ongoing tension within city planning about whether FOOTS trails and bikeways should be treated as distinct systems (as they were conceptually in 1970s/1980s bicycle plans) or conflated into a single transportation network. FOOTS originally served dual functions—connecting communities to natural areas and recreational destinations—while bikeways were narrowly transportation-focused. In recent years, bikeways have evolved (separated bike lanes, protected lanes) and no longer require parallel FOOTS trails for non-vehicular users. Instefjord cautioned against rebuilding FOOTS alongside new roads like Butler Avenue when separated bike lanes could serve the same commuting function. Commissioner Norton objected, stating that FOOTS serve recreation and open space connection functions that bikeways do not: "Whereas the foots both and it seemed to lose its connection for one of its purposes and that is connecting open spaces, schools, parks and things like that which Foots does."

Private development and trail placement: Instefjord acknowledged that city zoning code provisions requiring private developers to include planned FOOTS trails provide little guidance on how trails should be incorporated—whether through natural features (washes, hillsides), along edges, or meaningfully through development. He stated: "We have very little in code or guidance or anything um to give us footholds or things to rely on when we work with the developers." Commissioner Norton expanded on this concern: absent stronger regulations or guidelines, developers often relegate trails to property perimeters or leave them out entirely when phasing developments over years. She raised the stakes: "There's land that's left and it's not like horses are getting completely developed but how do we plan that so those things are tied together that's a real challenge."

JW Powell suburban center zoning: Commissioner Norton's most pointed concerns centered on the JW Powell corridor—a large undeveloped area identified by the commission as its top priority for wildlife connectivity and regional park access. The proposed 2045 regional plan overlays suburban center zoning (highest-density suburban category, 29+ units per acre) directly on this corridor. Norton expressed alarm that the commission's priority had not translated into protective land-use designation and that the timing of the specific plan open house (May 21) aligns with the regional plan revision process, creating an opportunity to weigh in. She noted the commission has earmarked $1 million from a 2004 bond for potential acquisition in the Hoffman Tank area but worried the window to influence outcomes is closing.

Absence of open space master plan: Unlike the city's Active Transportation Master Plan (ATMP) and other department master plans, the open space commission has no strategic master plan. This gap means that inspiration priorities articulated in the commission's strategic plan (including wash systems and wildlife corridors not necessarily reflected in regional plan FOOTS alignments) carry less weight in development approval processes. Commissioner Norton stated: "We don't have a master plan for open space. So, the more that's in the regional plan, the better off everyone is."

Education program funding sustainability: Robert acknowledged that Ashley Fenny's position is funded only through August 2026 via the Arizona State Parks heritage grant. The commission will formally request full-time funding in its fall budget analysis. Prior to Fenny's hire, the position was staffed by a VISTA volunteer (AmeriCorps partner) and before that by Sarah Holdage. The heritage grant allows only limited reapplications for the same capacity-building role, forcing the city to seek alternative funding—potentially BBB funds (though those are dwindling) or additional grants. Robert stated: "We have informed the budget team when we were in front of them this past year that we are funded for um through I think August of 2026 and that we there will be a request to like fully fund this position moving forward."

Duration

• This meeting: Approximately 3.5 hours (meeting began with opening remarks and land acknowledgment, education presentation ~30 min, FOOTS presentation with Q&A ~90 min, liaison and planning reports ~45 min, future agenda discussion ~15 min)
• Total meeting time: Not explicitly stated; meeting ended after future agenda items with no closing time noted in transcript

Other Notable Items

Picture Canyon Dawn Weaver Trail alignment: David Spence reported that city council was informed of ongoing state-level agency approval for a new trail alignment; work is progressing. McMillan Mesa wildlife observation: David Spence reported spotting a white albino deer in a herd on Cedar Hill near McMillan Mesa, underscoring the value of preserved open space in the community. NECNA (Nature's Educators Coalition of Northern Arizona): Ashley highlighted a 98-member coalition of nature educators across the city with shared lesson plans and events (neckna.org), offering opportunities for coordination and professional development. Active Transportation Master Plan integration: Martin noted that five ATMP maps were adopted into the regional plan, lending them authority and weight in development guidance. Hidden Hollow access: Commissioner Fox raised access improvements to Hidden Hollow as a potential future agenda item; no formal action taken but noted as potential continuing agenda item.