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HomeMy WebLinkAbout07-30-1997 • r • City Council Agenda Packet July 30, 1.997 fit • • Agenda No. + Agenda Item Data 7 3 ACENDA CITY OF DENTON CITY COUNCIL July 30, 1997 A Joint Work Session of the City oc Denton City Council and the Planning and Zoning Commission on Wednesday, July 30, 1997 at 5; 30 p.m. in the Central Jury Room of ,he Denton Municipal Complex, 601 E. Hickory, Denton, Texas at which the following items will be considered: NOTE: A Work Session is used to explore matters of interest to one or more City Council Members or the City Manager for the purpose of giving staff direction into whether or not such matters should be placed on a future regular or special meeting of the Council for citizen input, City Council deliberation and formal City action. At a work session, the City Council generally receives informal and preliminary reports and information from City staff, officials, members of City committees, and the individual or organization proposing council action, if invited by City Council or City Manager to participate in the session. Participation by individuals and members of organizations invited to speak ceases when the Mayor announces the session is being closed to public input. Although Work Sessions are public meetings, and citizens have a legal right to attend, they are not public hearings, so citizens are not allowed to participate in the session unless invited to do so by the Mayor. Any citizen may supply to the City Council, prior to the beginning of the session, a written report regarding the citizen's opinion on the matter being explored. Should the Council direct the matter be placed on a regular meeting agenda, the staff will generally prepare c final report deEning the proposed action, which will be made available to all citizens prior to the regular meeting at which citizen input is sought. The purpose of this procedure is to allow citizens attending the regular meeting the opportunity to hear the views of their fellow citizens without having to attend two meetings. 5;30 p.m. I . Continue the review and discussion, schedule of topics, and give staff direction on Vision, policies, and the Comprehensive and Denton Development Plans. • CERTIFICATE 1 certify that the above notice of meeting was posted on the bulletin board at the City Hall of the City of Denton, Texas, on the day of 1997 at o'clock (a, m.) (p.m.) • 0 • CITY SECRETARY • i NOTEr THE CENTRAL JURY ROOM OF THE DENTON MUNICIPAL COMPLEX IS ACCESSIBLE 'AN ACCORDANCE WITH THE AMERICANS WITH DISABILITIES ACT. THE CITY WILL PROVIDE SIGN LANGUAGE INTERPRETERS FOR THE HEARING IMPAIRED IF REQUESTED AT LEAST 48 HOURS IN ADVANCE OF THE SCHEDULED MEETING. PLEASE CALL THE CITY SECRETARY'S OFFICE AT 566.8309 OR USE TELECOMMUNICATIONS DEVICES FOR THE DEAF (TDD) BY CALLING 1-800-RELAY-TX SO THAT A SIGN LANGUAGE INTERPRETER CAN BE SCHEDULED THROUGH THE CITY SECRETARY'S OFFICE. A00003A61 1 • I k 1 f • • WIL, 0 • e. Agenda Na, r v Agenda Item Date AGENDA CITY OF DENTON CITY COUNCIL July 30, 1997 A Joint Work Scssiun of the City of Denton City Council and the Planning and Zoning Commission on Wednesday, July 30, 5997 at 5:30 p.m. In the Central Jury Room of the Denton Municipal Complex, 601 F. Hickory, Denton, Texas at which the following items will be considered: NOTE: A Work Session is used to explore matters of interest to one or more City Coutxil members or the city manager for the purpose of giving staff direction into whether or not such matters should be placed on a futurc regular or special meeting of the Council for citizen input, City Council deliberation and formal City action. At a work session, the City Council generally receives informal and preliminary reports and information from Ctty staff, officials, members of City committees, and the individual or organization proposing council action, if invited by City Ctwncil or City Manager to participate in the session. Participation by individuals and members of organizations invited to speak ceases when the Mayor aanounces the session Is being closed to public input. Although Work Sessions are public rneet(ngs, and citizens have a legal right to attend, they are not public hearings, so citizens are not allowed to participate in the session unless invited to do so by the Mayor. Any citizen may supply to the City Council, prior to the beginning of the session, a written report regarding the citizen's opinion on the matter being explored. Should the Council direct the matter be placed on a regular meeting agenda, the staff will generally prepate a final report defining the proposed action, which will be made available to all citizens prior to the regular meeting at which citizen input is sought, The purpose of this pnncdure is to aLow citizens attending the regular mccling the opportunity to hear the views of their fellow citizens without having to attend two meetbags. 5,30 p.m. I. Continue the review and discussion, schedule of topics, and give staff direction on Vision, policies, and the Comprehensive and Denton Development Plays. CERTIFICATE 1 I certify that the above notice of meeting was posted on the bulletin board at the City Hall of the City of Denton, Texas, on the day of . 1997 at o'clock (a.m.) (p.m.) CITY SECRETARY ' O NOTE: THE CENTRAL JURY ROOM OF THE DFNTON MUNICIPAL COMPLEX J IS ACCESSIBLE IN ACCORDANCE WITH THE AMERICANS WITH DISABILITIES ACS'. THE CITY WILL PROVIDE SIGN LANGUAGE C INTERPRETERS FOR THE HEARING IMPAIRED IF REQUESTED AT LEAST 48 HOURS IN ADVANCE OF THE SCHEDULED MEETING, PLEASE CALL THE CITY SECRETARY'S OFFICE AT 566.8309 OR USE TELECOMMUNICATIONS DEVICES FOR THE DEAF (TOD) BY CALLING 1.800-RELAY•TX SO THAT A SIGN LANGUAGE INTERPRETER CAN BE SCHEDULED THROUGH THE CITY SECRETARY'S OFFICE. w n rrmn A n t r • • .-.•lrrrr_rrrrrrrrrrrrr.~rrrrr,~rr~frrrrrreh~~rr~~rrrr,~: JOINT CITY COUNCIL ! P&Z WORK SESSION ON Wednesday, July 30, 1997 Dinner at 5:30 PM, Meeting begins at 6:00 PM f City of Denton Municipal Complex, Central Jury Room f f, 601 East Hickory, Denton, Texas r~ 01 1 r' DISCUSSION ITEMS f ' 1. PROPOSED SCHEDULE o a. Items referred to other Boards ! Commissions Scenic Corridors !r Park Dedication Landscaping /Tree Preservation .r ■ f b, City Council Topics - Proposed Work Session Schedule • Development Impact Fees - Drainage System Capacity - Erosion & Sedimentation Control `5 C. City Council Topics - For VISION & POLICY Level Discussion r' - Transportation Impacts - Density/Quality - Neighborhood Impacts C ■ - City/DISD - Architectural/Aesthetic Standards & Overlay Districts - Intensity Calculations d. City Council Topics - For Plan Consensus - Public Involvement - Public Education 2. PROCESS: REFORMATTING OF EXISTING DOCUMENTS a. "A VISION FOR DENTON - THE 21ST CENTURY" ~t discussion of proposed format and content In. The 1988 DDP and the 1997 Draft DDP identification of differences • discussion of merging the two documents before separation of policies from comprehensive plan elements c. Comparison of topics addressed in the VISION & DDP documents 3. FUTURE WORKSHOPS NOTEBOOK CONTENTS TAB 1 - The City of Denton Plan [From Previous City Courcil Work Session] • • TAB 2 - A Vision for Denton - The 21" Century [Original Document) TAB 3 - A Vision for Denton - The 21" Century [Reformatted] TAB 4 - The 1988 DDP Compared with the 1997 Draft DDP: Policy Differences rrrr_r~•rrrr~rr~~r rrr.~~r - - 0 • • rrrr,rrrrrrrrr,rrrrrrrvrrrr.•rrr,N~r. frrrrrr~r~r~rr~rrr.~.~; ~ r ATTACHMENT: Provided for confirmation purposes i CONCLUSIONS FROM SATURDAY. JULY 19T" COUNCIL WORK SESSION r 1. ORGANIZE DISCUSSIONS TOPICS TO AVOID UNNECESSARY f' DELAYS, REFERRING SOME ITEMS TO STAFF & COMMISSIONS f rr, FOR IMPLEMENTATION, AND KEEPING OTHERS FOR FURTHER VISION AND/OR POLICY DISCUSSION a. Referred For Implementation - Scenic Corridors: referred to P&Z Commission - Park Dedication: referred to Parks & Recreation Board - LandscapinglTree Preservation Requirements: referred to P&Z Commission; the topics will be combined r. r, b. Implementation Tools - Overlay Districts: Applications uncertain at current time i - Development Impact Fees: Possible application for .r drainage, water, sewer, or roadway costs; Utilities j Dept, is prepared to provide separate briefings c. Master Plan Issues C - Drainage System Capacity. The Impact of new development Is a master plan issue that needs comprehensive plan attention, development Impact fees may resolve capital Improvements needs; Erosion & Sedimentation Control is also a master plan issue rr'r' d. Held Back For Further Deliberation - Transportation Impacts, Density/Quality, ei hborhood Preservation, City/DISD, Architectura✓Aesthetic r' Standards, Intensity Calculations: Staff will organize presentations for joint Council/P&Z work sessions e. Consensus Building r" - Public Involvement Procedures & Public Education: Both • items are interrelated and need to be addressed ■ throughout the process r~ 2. DEVELOP MORE FULLY THE PROPOSED PROCESS a. Reformat the existing VISION document as appropriate o rf b. Reformat the DDP Documents c. Merge VISION and DDP to allow comparison 0 • d. Identify statements suitable for POLICY consideration rr r rf~rr:~rr_rrrr r wiWv, ~rWr ~r r~~r THE CITY OF DENTON PLAN The City of Denton is a unique community, interested in preserving its own Identity, and careful to balance quality of life considerations in the face of developmental growth pressures. The development of a growth management strategy Is an important community objective, but competing Interests seem to be unable to reach some semblance of mutual agreement. A new approach could be considered, seeking to use the strengths of past planning efforts advantageously, The relationships between different planning-related elements may need to be sequentially organized and clearly defined, and furthermore, a higher degree of precision in describing how Denton will grow may be needed to ensure fair and consistent treatment of all city shareholders. PLANNING PROCESS EXISTINGOArA A basic sequence of planning activities is ;G:oliaprde 1nfoinj.don Rnou¢a A vd'-eBlly suggested In the flowchart shown at the left. An An organizational framework is critical to the development of a community plan. ToRSeAA a PROCESS must go hand In hand with r0i °0"0"lTSj "'1 ~ ` LanO Uai Dam9nd? SUBSTANCE, Atthougll the Denton ".r+.e+llmF•ol+::i . Development Plan (DDP) is considered the wSIDN city's plan, it is in reality a policy document, eoMMUNITY The DDP should be considered as a part of Mlaalon Sufam~ r : 4y:nral,0oa:~+ a larger process, a gradual refinement from aoe;.cuwS~f, a broad vision to several narrowly defined implementation actions. Each step is POLICY STATEMENT! Denton ORS+IOpmir~t PA Oewn Man.o• :nI important, depends on the quality of its 17 predecessor, and is manageable as an independent task, This gradual refinement process also enhances public participation c,tywiaeApplic. on o uooa Opportunities and cultivates community Implementation stralti consensus for the plan. The level of Pnorit as I scnedues financial Impact and commitment increases SMALL with every step, and the gradual AREAL PLANS ry P~ Naarrow Narrow scope or Interest development of a broad base of support Is Area • Specific'-sues crucial to successful plan implementation. 'L IMPLEMENTATION 94 Three improvements In Denton's planning process should be considered. First, the A actual steps in the process should be ZOWNG ORDINANCE formally recognized and defined. This would SUBDIVISION REOULATIONS y ANNEKATION PLAN allow tasks to be organized properly, allow INFRASTRUCTURE MASTER PLAN! I CAPITAL IMPROVEMENT! PROGRAM complex issues to be addressed at a BUDGETS /BONDS $ IMPACT FEES consistent and manageable level, and would PUBUC ARVI TIE! PLAN! VOLUIC FAC I ITIENTLA PROD RAM! recognize that Denton's 'Plan" contains several phases that are proglessivety tiered l as the plan's scope narrows. Second, the linkages between steps in the process should be formally recognized. For example, Existing Data and Forecasts should be acknowledged as the 0 context within which the Community Vision Is formulated, and in turn, the Community Vision should be the starting point for Policy Statement work. This relationship does not appear to be as well pronounced as it could be at the present time. Third, two additional steps In the process should be considered, the Comprehensive Plan and Small Area Plans. These plans provide ...,.-,rte 0 e opportunities for further clarification of policy statements, particularly when geographic applications may differ from area to area. Issues raised during recent DOP public meetings indicate that interpretative flexibility is a cause of concern to both developers and neighborhood residents, and may be a significant obstacle to reaching plan consensus. Developers typically want to avoid project ambiguity or inconsistent application of a community's development 'rules' contained In the plan. When policy statements leave room for broad Interpretation, Investment risks become greater due to the uncertainty involved when facing discretionary decisions made by city councils. The Ideal situation for a private developer Is to identify all project costs at an early stage and make a decision on project feasibility before significant Investments are made. The ability to conduct a thorough evaluation of a project Is, the afore, greatly enhanced when a plan Is clear and specific, At the same time, neighborhood residents worry that plans that can be broadly Interpreted will contain 'loopholes' that developers can exploit. The perception that private developers are better prepared to handle the technical aspects of a project causes concern that neighborhoods are constantly operating at a competitive disadvantage. Wthoul the intermediate step of refining policy statements Into a more detailed citywide plan or smaller area plans, the DDP is hotly debated and efficient Implementation Is hindered. Consensus might be possible if more detail is provided. Plans referenced in this discussion paper are not limited to policy clarification. To avoid becoming 'shelf documents', Denton's plan needs to be equipped with an implementation strategy. In recognition of the Importance of linkages, the plan should contain project priorities, schedules for completion, and Implementation responsibilities. A well-prepared Implementation slratew allows projects to be properly coordinated, and permits efficient use of limited city resources. Many city councils consider the implementation strategy to be a flexible work program, describing progress expectations of administrative staff. The comprehensive plan Integrates policy objectives with the practical considerations of master plans for municipal water, sanitary sewer, stormwater, thoroughfares, parks, public facilities, or other services. A final point needs to be considered - the addition of more specific plans requires more effort and resources. THE DENTON PLAN S THE DEVELOPMENT PROCESS The components of the plan must also be viewed within the context of the Interplay between public objectives and private Investment and development. The process of private development is subject to a type of 'funneling' sequence. Starting at the top of the graphic provided on the next page, the VISION can be thought of as afl-encompassing, broad in scope, extending beyond even the city's own boundaries. It Is an expression of community sentiment, designed for flexibility and impossible to enforce. The VISION does not prescribe Implementation to any significant degree, proposing possibly only to stimulate other planning related activities. By the time the process reaches its conclus'on, the scope of the process narrows to Individual sites and structures within rigidly defined, legally established property ownership rights. Several highly coordinated implementation actions must be accomplished before a CERTIFICATE OF OCCUPANCY is issued, and the level of site investment intensifies as project completion Is approached. • r Two concepts mentioned previously as factors that contribute to misunderstandings between developers and neighborhood residents are illustrated by the graphic. Residents are normally asked to participate In the development of items shown at the top of the process, when j consensus Is needed among a population group. As the process narrows, however, collective interests begin to give way to individual rights. Public consensus for'gray' objectives also gives way to 'black and-white' regulatory compliance. It is easy to understand why citizen groups • develop mistrust because of the'insider' status enjoyed by developers, and conversely, the claim p J that residents frequently misunderstand the complexities of development Is equally understandable. All of the steps are critical to growth, and new to be coordinated and clear If individual projects are to be considered an expression of community vision. C r • • 1O.N P~OLIC A~TE1VI ,t Ct•}6M S sM ZO p ~ iI I~ C GRAPHIC: THE PUBLIC PLAN & THE DEVELOPMENT PROCESS July 19, 1997 City Council Work Session Discusslon Document prepared by Planning 8 Development Department • i ~ ti ~ • O • 1 • • • C> O A VISION FOR DENT ON THE 21 ST CENTURY MISSION :To devefap Denton u a LEADING ENTREPRENEURLkL city the attracts HIGH-TECH, HIGH-SIULL. HIGH-PAYING JOBS. INITIATIVE ; Busness and ladustdal Park lmbthh aams& Dn.bpm Cupm Lbe PMQ, Cu a.®t [Vo r 4„ J EDC estabOsbrd to premok avnmmk deretepmed l5ifl In the ruwwdty. t~ Q0-`' l e T Gev`LO sw.y Le..o-rt pv►a A~rdep ~ptr.q prL ~ wed OU.p p CMk y. Sundt Gkny wd Premier my + LL6a.Y 4.Ldat Oda1y trGr. aDG Dr.dop pnrlrr anr+V rae r rrf eoen. Opus Trh Cmlr. ~a S~ 1' • • • t i I A VISION. FOR DENTON - THE 21 ST CENTURY k MISSION To develop Dectoo u e LPADING ENIVMREMUkfAL city t6At amwb MOH•TKE. IBOH•SX= MOH•PAMO JOBS. J INITIATIVE : Pmi& lit. t®® t . W.e d. or"a+• A.A s..e..i. ~ ~r •+w/ wk a Iglo.d udam raft Ic6aftrvctun Net lode dnelopmmt. A lodtr; entnprmnuW city. sae er~.t. ~ r A.th • i s 0 tie IW V~\M- _ ~ 2 ti n. ii 11MI gsr.rr~µ....Y ~ y r+~.~r • } t~ ~ 1~ :T • • A VISION FOR DENTON - THE 21 ST CENTURY MISSION • ' To develop Jkmoa u t tYADLYO IIi1'RFPRFNEZJRI/Y eiry tLt tmxu HJOH•TECFJ, HIOHSKIIl, HIGH-PAYING JOBS. INITIATIVE , tier ea tod Rer se Derelopmeol PoGcfu Cm e"•7'e~W s:e~ °i" ~.,eer mom. Ifiu 6ia.ary mramtlxd derefopmeul roes. L~ p . . 3 '~ruuww.+.»a,.rr r.~' • • • O A VISION FOR DENTON - THE 21 ST CENTURY MISSION I develop lloo as s SAFE, ArMACTIVB community whh S7RONO NE OHRORHOODS, a UNIQUE IDENI7TY, and a aeote of HISTORICAL PRIDE, INITIATIVE : NeI=bborbooda COUABOUTM ZMRT i 1' r'~F : w rwt.. ~a Aset Mr d r.~ Mir mA un rsIr I toe.4n Ean derdop J to adder arcneanS bins. w ~LF>l~!J!G*E J~ pay. aTt eoM :tetra rout = = vizrh 0 dearey Pa., N "raw mwlbabosh aaabaA • N.Id,LeAeeA rmm MC an.fao. New ash wr"s &r4w aamrot Cater. • Itl10E H,~pyryey N Cwaaw ro -rill asew A tame& da hn" Ucl~j • ~ awto a,Wsa, cart`o, O c.e.w { «It Ass naWb4 aemoty MaabaW 0--amt. rshurq, w Mda qub w eapwom a Appbabi m wraal r,% Cm* a'y ae r of OnAra 6AOr Itfpaab ad ~i • • • 'r 0 0 Ca rtdhbabrd o"m w hdtity. [nA4 a w b w C.wd. X"bwl Neljtbedmdt taw a acme of pddq Wrngq and • bwdrv Dow wWLblw dmyawefiElnt F-I Dadap ~ PA&h DYaAW xm%" ad apdw • Ota kaddalwo b'•bYL Dndy N4babw•4 blmdq Xajad w wmd.e. 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I De.dp mLknaa 111 a..a Welvb tw eireaem aYnlarle A6W a mWm trd pLe. 1mD4mlm aeY~ Y Oda CCOW04% bdww V 'Rd j lYf~ai a ! 1t.M YY y¢t~ua aMr ex•4p ♦ts dY ee1d6w7tao~ • RAN "a DWrr~ play saftlif • 0 hW h publk tr dos oLa mod eson Dndp ea.dr ptWw na o Nefe6bozhxde hen 1degole maeY to puM and ' th.6m may'plop, ft a and a ste+e mr.rr►w prs 4 {<ky WA-bo u CRY VA e.r.ol lmd w ~Moer bfrj pis tend! yatp M ter Wk," ~wpn~w, 1►i awa.pa ee na • eerie "I'll,t7 n 4 s • • A VISION FOR DENTON - THE 21 ST CENTURY MISSION : To develop Deutco u a SAFE, ATTRAC[IVE community with STRDNG NEIGHBORHOODS, it UNIQUE IDENTITY, Ind ■ Icotl of HISTORICAL ?RIDE. INITIATIVE : F~haacewayl Dn.mp m pr rIIamat pannra =crry ^ ma~ret pw•7 hp i~ a{{.a,]]oe mawl ptawp prortde . ra« of .td.d ALL end ends ■ dL Wlctfoa tsmt other pLws ~d yM,1,rdo !p w IJSt fw0. R1 Wr.,~ Md a 04 t R WWI% Atrti D..r D.tn pty tot fee ttd td VOL t wd a. Wum Dt1rt. 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R"Im pimcmod mt..dmrdt Iw1 MdloL ad wppR m AM led sum CITY asa tWdrDnm ttAMq Yr.7'tan SW. pwwnm Y memdlmu Y 1.rm pa::~ N les' ` lsmaG► Mdq}rs~.ts for WWA Cwew~ C.adrtmm sduaffia .ad m tMol ms lwdrty LDI toad mrd Trot N tm .a6 7modoPtad pdwtm. A ftard. fl ~ Ctt ma.s1 VLSD hr Mod d m.Pprt =plaad^a. an lhaowt tpwfA ardrldw no C.sdao. dlww is hod "d ak" tsd sad appgeob • Qw s 9Dgl bib pb" tots mrwyprvt pomp kv 61 jl~ aK hots mroo Dome. Croft a ta4mdm Mott [mach: sffwu m bw m • ouwa a.t..m added dode ter ridef y d C17•Y a- So bopro's ~ d omnrrldma boo B.pddd wppe d at pwga and ma6bbGi abpw.na.tmdmb m d~rp a v me mad Mom • - e pnpry and M 1 bdnd pwmb m tad `....~.---.ww Cmmmptes~amb ehd t v1b C.Msm dlmrb m w rrr El h +r4 a ward-dImimp&dap -fibm m dndwl nip • • • A VISION FOR DENTON - THE 21 ST CENTURY MISSION To develop Denton u a « oter of divuse and atteu3la historical, cultural, and recreatioml opportaeitiu. INITIATIVE : AU and Entertainment Conidor D"" MbW Cmddw l "dfimdk t DAm V" baeentw ~ bwedrlr "a mqw r h. cdr qa Llak ldeaLW*d dirtrku to corrfdar. r pD.6r.b uW9.44 W sVw lakm Gre.e7a ` tN nwnn aytw a.Mece aenya bftmdar%& p•+ ~TL b°i°Q.'1r ma a4.r GMen G4n n • ~~+1 ~ r ~,ry r Pdw Att Cm'ldn~ Ddemr bamdwla and ay7r laYeer Ce4nra PgrwvCal" r dal. ~ a babah Mimarfr W e.Jw 65.oq CW~yi DAN rrmrmdowlemell Sa V w-...wwr~ .r MOM" • • • A VISION FOR DENTON - THE 21 ST CENTURY MISSION . To deveiop venton as a cater of dive•.re and acemble 6latoricd, caItmid, and recmdoad opportunities, INITIATIVE . ArU and Ba wslament Corridor Dndw yrdam4. ht,aay d. qm lls.aq boil" heaaarr hdemaa lrI ndUu Dewnlawa Iafuding Wider Waltwgti !Wa L btLns aaa mm col". F~ o'~`~ma.ae I « l+edou etde of I • e is ~i 10 • • r A VISION FOR DENTON - THE 21 ST CENTURY i MISSION : To develop Denton as a center of diverse and accessible bistccical, cukural, and rwreational oppolwaides. INITIATIVE : Arts and Eotertainment Corridor Impmf e. r w m,a Mad aw awn' rc-t"-1 P d. y Po- --av Impm", Arthtlk~ Altloj and pedotrfao ~ Wmata Amrat ® ao+~v e.+a.d .r. racer faera.r * da mVY~r ~aaatY e rm4 rwt aifi~mw and aM renA Avaelr Y ere M a,mau,d, 1td~a1 /4~. tlra q Noma i e e ' crrr' AN NgW,. - 1 at ,4. • • e 1 A VISION FOR DENTON - THE 21 ST CENTURY MISSION : To develop Denton u t center of diverse Lod mcatbie hiftoria% cultW, vW teemfieal epporNoitim t INITIATIVE : Aru tad Fohrtdtoment comdor DrJsp CuAdon tulwc®um P" maw, • /pay b wr FJdVGOtd QlTIdOrL GrTT A= MT M Qp Ka &A TA& IN "ll 0d.W r,&*Am Cw ldw Re Twu 1# 5"" a RIOT b Tn4 Na a LUhni N.R r cmw All N"d~.rmT Y svr • e f~ 12 ~f 1 k e • s r • A VISION FOR DENTON - THE 21 ST CENTURY MISSION : To develop Denton u e center of diverse and ec=ble 64todcal. culhuel, and recrcetionel oppoRUOida. INITIATIVE : Arts end Entertainment Coeridor Am cwmw tiib mmtt amy4 n dap ' D"a" Ddp cddAm uvwm d elwe Enhamd AN Corridor. crr,t. To 1e 0e A ]t"mra Tn Lo t • ~.T Dndol e4me~d Lspa~e' RdrLW 16 ►L u nmr DYVkI h ~dr~~ ~ . redly ?IaMlsep e.a nrroaA ~ I)eLdy: TYetfe, ►vRke ek.} idran/r GmtX t A ' yvplm.d Todd Tr b • " O i _ ceeddw M AN of td teW 7E: PubllcWyate PertaersWp ~..r., 13 t. 02 • I A VISION FOR DENTON - THE 21 ST CENTURY i MISSION : To develop beaton v a enter of divem and aocm bie bhtorieal, euitusi, and recteasonal opporwz det INITIATIVE : Am aad EnrrAelameot Coaidor Rv WIN ® ■ bmbp Um rr Mod me rAM o Cwo.n' a gar uladtb is 8uppad and taham a _ Cwrt~r r7rrn rcUcTl s o 'a i .~..ti 14 • r • • C_ A VISION FOR DENTON - THE 21 ST CEN'T'URY MISSION . To develop Notoo a a center of diverse and aoceatible h4todoal, culftud, and recradond oppoftunltim INITIATIVE , Dealtn Fine ku mewoo center at un p.&p rmmn w Ptvp F71 Nca W eyp 6.sa tm M.& and rAd Mtn LAndffia BWWL V Two" aieac Ypmw.f~ fsr4 ~ m..t< ocm.s acd trr+r D-4 JcW en ap.seJ. lA/T • ED t»~ ,a ' 15 as 1. • ~ ~ 0 f • 0 • , h 1 A VISION FOR DENTON THE 21 ST CENTURY promotes EXCFI2E*!CE in IlFELON6 1.Fi\ANAIO by providing MISSION ' To develop Denton u a community that EDUCATIONAL AND TPA NINO OPPORTUNUMS. INITIATIVE . DISD Recovaud u an Excellent School System imyYmmt man. yrs. nCtn 1. .U&a aaa 66Vdm tmy7eweresa E Aaaaa ass mAkc To Wo amUent p43c schools b I ♦ ♦ la 16 • • r • i A VISION FOR DENTON - THE 21 ST CENTURY MISSION ' To develop Dentoa as a community that promotes EXCEI]ENCE It LWELONO !EARNING by providins EDUCATIONAL AND TRAIIMG OPPORTTJNPPIF_4. INITIATIVE . Electroric Idormatioo Network i o..agy tem. g.n saea~e antes wwm'tw taw uosa: ar r e r W nprl Mwgav. AeorstLh electroak ln[ocmatfga ~ avlgr. IdwmNgs gMge, i it Mae metwnt% 2"A" l i Prodd. mtnnd gates for ,nfd,ly t1Nt Ft W& IsIeFtome awe _ gm~.twn~ r...n c to Lm to o rr.aov ataLmle aunt/ ;+.c.v< tvti.d trga.ea. artgna. W ~ DmF4 lt~ W gagga pgpne< 1 T1V DLN mY GTt 1WA W Qtl.n ~a 17 ,..-".'r`1R+~.^rM"► n. „ ....~w....~r.ra.Yrwiw..w.4...ww e • A VISION FOR DENTON - THE 21 ST CENTURY MISSION To develop Deotoo w ■ community that promote EXCELLENCE is uFEWNO LE". Wo by providing EDUCATIONAL AND TRAINING OPPORTUNiTM. INITIATIVE Providing Oppomml6es for Cowinuiag and Higher Educatiom rmw t"v .w ..ppxL Rwe d fw mi. ro~i Yeanebs a~.r efiwt en opPodunlLSn for mot o%ft ud hlghu .Qunaoe Y nmtaa , fiC71: DD tm Lt.bO.b wo.l len.l b aEAv to®w 6nru i retbr. aloro.Aot 4..r lW le.artl wp.b99e bM4a Wr.edde a.6 ® DWA de L lMT • ~ I c' ~ snppat IV." M"q to rows ,~L..dp t +d.eat" N ar ~ . w tea. :shuA nm tdm.L Pr",9twO-W #pporh ldn b drbra. +oa LM l bbb§A a d opmbd M L 'tlry Wrdoa 1 wu tr+w'1 P4~ • ,t I 1R • e r • A VISION FOR DENTON - THE 21 ST CENTURY MISSION ' To develop Denton u a community that promotes EXCELLENCB is IZEMNO LEARNINO by proA&S EDUCATIONAL AND TRAINING OI PORTUNIT[FS. INITIATIVE Family Reaoiace Center Dodos Imry reaac~ cWV. Core Ndka"'c.ar~ en Ltabttrb it Deacon FamQy Ra mn Ceaier. r'^ I ceski a MCr I.aW m1 aqd V~FM^a • o o a ,'I • • C A VISION FOR DENTON THE 21ST CENTURY We envision Denton in the 21s° century as the North Star of Texas- a community of excellence for living, working, learning, and playing. (This document has been reformatted using the statement wording • from the original publication "A Vision for Denton - The 21 st Century") • • S. a t A VISON FOR DEMON - THE 21ST CENTURY To develop bo'b" ton as a leading entrepreneurial city thaf attracts high tech, h~b skill, high plying lobs. ~ ,,i~~`~ ~ s ~ ~ ~ ~ r i c ~ r ry^ i6 S, t e G, & x ~ x" rr a* < T k r 0 develop Denton a5 a safe, at"tractive cdm"~AR yvkrtli~~r~pg~ @~ neiglibOrhoods, aunique rilentity, and'a stn§g•i wit~orrcai prides r .h a u A~ @ a + r a ti' d, of arrival a~crd make a ■ Major external gatetiVajs provide a sedge m distinctronfrora other''pldces ■ I'ternal corridors tisitlrin the community that mends a prisitiye .n ` cF message, reinforce a sense 'of pride, 'an~l provide landmarks 1?o'r those r in Denton y ■ To develop Denton as u renter: of drverseland accessible historical, F ; cultural, and recreational opportunities ' v F ~ 7 ■ To develop Denton as a community that promotes excellence 1, lifelong learning by providing gc~ueation and training'6004r6ki Ie for all citizens: To develops community ofexcel5lence 1qX Darning , vs f* as d FJv 3L,^y°r i, r~a~l oe~~ 9$j , v T v C ^ni ~ < n: a d ~ '4 7o- ,f^`"~• ' i a.x < yu r 9~~,d pAy ray 'w, y~4 • a f k"h r, r~~rc ~,'~~rrk,~N:?~~~~«~~~r~~i I. 1 Page I • BUSINESS INDUSTRIAL, PARK b 2', x ~ C y w ~2 j - ' 9 V $ J ~ ~ 4 ~ S { g I 9 1 Arf ■ slablish h, n~c 'Ag ges t0' hcghgt ~dpcahott tnstI non x, ° " ; y 8qs 1 , n ro ~ 6 f v 9 ° t S ■ Conduct fr` rtahan Inbby►rig campaign to promote idfiastnict&re toes"f Loop s &Sbkrtv~4'9~~ZFs'~ A fk tl 4Y A ^p f r a'r L K, { e 1y r i "~.,~y, a ,Z ■ ^ Estab s nfrz;s that~Jeadsdt:YOJBPmen , i w ~+"iY °Y k w ~"x ,f i ,At r 6~^a¢ Mb ■ A l ev► r i ce tt i`+ t ec m c ~eVelopr erst~ ,~,y!e~ " e. .....t u.:, a., an.SVa.,ra.c.'. .a .'JJ 97]SS. E'kioAn~~ COMPREHENSIVE PLAN:(Including resource allocation priorities and implementation strategy) ■ Develop and implement strategic marketing plan. ■ Review the Denton Development Plan ■ Work with owners to develop general development plan. ■ Extend and build streets, water and sewer. ■ Develop premier gateway site as tech center ■ Establish gateway industrial parks MALL AREA PLAN: MELEMENTA7'ION: ■ Develop three gateway parks and major industrial sites.( Pilot Gateway, Summit Gateway, and Premier Gateway parks) ■ Appoint task force to review and recommend changes ■ Design and develop streamlined development process ■ Hire business facilitator ■ Develop computer-based aid for developers and `Development Process User Guide" ■ Establish a technical training center • ■ Establish an Economic Development Corporation r I - I i t , Page 2 :T~ 717.7 770 • • NEIGHBORHOODS c PO 11ICy ■ Create a; collaborative effort arrtorJg cons nuruty institutions ; businesses, and rtefghbbrho ■ CreAte,n$ighborhbod cohr<sion and identity a A ■ Identify end pre{ene neighborhood characterishts r ■ , Revitalize neighborhood ■ All neigFtborhoods have adequate, infrastrucSUrb, a ; leighborhaods,hive Adequate access fo public:and eoinrtuntty fac ttUes ■ bcveiop tract 1 polcetes and a five year i atcg>` plan 9 ■ ; nevelbp~brpad~based pre elgehGtt appr~vai o~'a bond eloctoari k ~ ~ ~'b r lmgtement land iise pbtic~cs that rncot~rage mixed u ,developm nts & ^ q' l j ■ Re uric nev, det~e~opments~to "tar "rr td master rrai Is plan. 1 b , ~ COMPRE 11ENSLU PLAN (Including resource allocation priorities and implementation strategy) ■ Develop an infrastructure plan including drainage, sidewalks, and bike trails ■ Establish a public transportation plan and ensure access to recreation, shopping, schools, parks, and churches C ■ Preparc a master drainage study ■ Create city and neighborhood forums and town meetings. ■ Operate COPS and neighborhood oriented service delivery programs ■ Assess available community facilities. ■ Adopt a five year plan for housing and community development. SMALL AREA PLAN, ■ Develop neighborhood priorities ■ Develop neighborhood identity LA1PLEb1ENTATION: ■ Offer leadership training. ■ Develop neighborhood pri orities, ■ Develop newcomers guide. ■ Acquire additional infrastructure funding through a bond election ■ Implement five year CIP ■ Fund a master drainage study ■ Establish neighborhood resource center. b ■ Establish neighborhood associations including citizens and businesses Page 3 r i ENTRANCE-WAYS ~2LICY: ' ■ Develop and,implement policies for corridor guidelines. S Develop ttierntrty netghbbriiood ■ Create a collaborative effort to develop a unique adeattfy along the IR s ra l ncbu< ge deveIdpers to design and maintain t'ntrarrces that enhance 'thelt prbperty and th corridor. ■ Create,;a colia,Wrattve effort bet«een existing 'corl5 uerc~sl edustnal Sites az s 4 e 9• w. ♦ neighbtYlhoods to imprUYe'cprltdors: utld support Of all ~gi,&Os to-o] ti a r Encourage develppers to de.'stgn aril maintain entrances that enhances their property pri Sale CPrr1a(~r ~ ii w ti ~ ° ~ n ~ ~ w a ' i c m ' ~ i ~ ~ B 7 c a > ~ tr ~ ,u~ r Epcoura'g~ at[ in f i II deve16ftent to d6 g Ae rttrao and encourage'm tin developments to edd elements d ' a w n a ` COMPREHENSIVE P AN:(Including resource allocation priorities and implementation strategy) ■ Create a task force to develop standards for banner event signage to be placed on private and public property ■ Create city and neighborhood forums and town meetings. ■ Review placement standards and guidelines including placement in medians of "berm" star ■ Develop program to consolidate directional signs at intersections. ■ Develop major external gateways with monument-style highway markers ■ Develop corridors along external entranceways with distinctive landscaping ■ Develop internal corridors that correct various districts of the city ■ Develop internal directional signage ■ Develop internal gateways to specific areas in the city; i.e. UNT, TWU, Square, etc Connect motorized access with bike plan and gateway design by using signage and landscaping. SHALL AREA PLAN: • ■ Consider options for design of pavement logos and street sign logos for historic district and other areas that have designated entranceways. ■ Continue gateway design elements one quarter mile to one half mile off 135 exit or past entrance to city. Priority: Dallas Drive, University Drive, Fort Worth Drive, Carroll Boulevard, and Sherman Drive. IdIPLEMENTATION; ■ Install first phase of color coded directional signs at intersections. r , l Page 4 r g (lt • ■ Establish a communication r etwork to encourage the use of a consistent theme Le star, limestone, sandstone, for use d,rooghout the city as a "welcome" to Denton. ■ Establish funding program for education and implementation of tree and landscaping projects. r Promote special activities like Denton Redbud Days that help educate the public about planting trees throughout Denton. ■ Install mid-block directional signs on major entrances. ■ Continue efforts to fund and place trees throughout Denton. • Page 5 • • ARTS AND ENTERTAINMENT CORRIDOR { koUcy ~ I F~ IA r.' c ;hr rS e W r y r • ppvetopa pgc~~triari frtegdly downt4'dn ~r ~ ~ ~ ,kr ~J~ ~ ~ aR xo: Y r,j c ~ COINIPREHEiVUVE PLAN:(lncluding resource allocation priorities and implementation strategy) ■ Define UNT boundaries ■ Define Square/ Do%AmtoNvn boundaries ■ Define TWU boundaries. ■ Define Municipal Complex boundaries. ■ Define Arts Corridor boundaries. ■ Define Preservation /Incentive boundaries. ■ Develop corridors enhancement plan ■ Provide for the enhancement of the Arts Corridor. ■ Develop and use the Diesel Power Plant to support and enhance the Arts Corridor. ■ Develop district corridor identifications e Develop a corridors enhancement plan \ SMALL. AREA PLAN: e Facilitate public improvements including streets, medians and gateways. ■ Develop cultural use. ■ Research tax increment financing ■ Develop Planned Improvement district ■ Develop design guidelines ■ Develop corridors enhancement plan for Mckinney-Bell to City Hall, Bell- Eagle to TWU, Oakland pedestrian corridor from TWU to Square, Rails to Trails, Hickory- Square to UNT. ■ Develop use for Diesel Power Plant • 131P NI.NTATIOI\: G Identify funding incentives for color banners, plants etc; Signage and corner treatment. ■ Brick pavers on surrounding sidewalks. ■ Lighting on business side of Square. - • ■ Create incentives to do uniform awnings ans. sgnage. • • ■ Improve the service streets behind the Square. III C Develop dumpster screening and placement. Page b 1 r l i i ■ Develop parking. a Identify funding incentives for planting. ■ Rebuild sidewalks ■ Clean up utilities a Add Iighting ■ Build a cultural walk on Hickory, from Visual Arts center to Square. ■ Create tax incentives ■ Identify Grants/Loans ■ Implement Facad-; Easements ■ Implement Ordinances, Signage, landscaping etc. ■ Include in bond issue. ■ Construct 'back wall'. ■ Develop building for the UNT music and fine arts program. ■ Develop joint use agreement. ■ Improve the service streets behind the Square ■ Develop a cultural use for the diesel power plant C • r . Page 7 r i • ^ Y i PUC EDUCATION ~ ~ d k x t v a r ~ y v s y n 3y' ° i 6 W v> n L t t^.: 4 V~vd 2 aeM~' ° a L r p ?n w 1`' n r r K ■ i'o hive p~(cxttenl~ubtle"sch~~~xa r ` ~ .~-.i ti9 aS f~ttl [ f S~ °wy nSxP.„Pa xc t~~aa'~~A x~k tyxa°vv~Y9~!?P y{~y Ya ~ a n r ,t,. ln{''.f ) 8 k na _pya'Xi,. ` r; k+ "w! ° > w k~ w ~k u e•» y ~a a yy Valt br9 J,1f~11 y o" M 1 y F x Ya>X4,~r Y xy >24. c a vd('Ati 1¢ ~r m aS COMPREHENSIVE PLAN:(Including resource allocation priorities and implementation strategy ■ Formulate and adopt a master plan SMALL AREA P •AN IMPLEMENTATION: ■ Implement the DISD master plan. C r I a C Page 8 n 4 V+PrA•Nt ~ ~ i, ~ Na 4 y¢, a r ~ n c \^4 .n... ~ f < 61, ELECTRONIC INFORMATION NETWORK LlLiosrcY. r ^9> 51 ':h~ 5 rseg eb (,G'y y'v~~ ' ' y wr c v d'~ s `q §S 1 § u ~'4 kiG r~ : a ors a J,F r eMn t- ~r~{ti ~s~ ~ s~ ~ s p,~w y x~ s ~ L c xds a C "l~ ~ y 9 K. ,.^kl' c4` 3z n ~5Y`9 f:n t 9' h C v 5~ Y jw l r y'j 2 < 4 2~5 w s3 a e`~' M 1 7v1aCGt1Ct~=~Y~ulef4C~stblr ` ~ p ut ~M ~`Tn24 ~7Ei lvd'G'~V' ~uCfffi rrtj^ )ttjo ~ ;0r k ~ ,§.~H' ntR t~ItS srn.sz . MYcr ~ Y r ~ a` ' 3~ , s tN 4 L. x~,~y v~ ~ ~A tfi$ ,~e.'~ ~ y~~ , ~ . ~ s P"r~~ s ` ro r3 r~v' : ~1~1:R ' a 4~ :d'ak r :ad, w ~ r^. L, ,RYq'n6'.fh:~'"~K aT COMPREHENSIVE PLAN.(Including resource allocation priorities and implementation strategy ■ Maintain and expand program SMA1 L AREA KLAN INJPLEMENTATION: ■ Establish Central Information System r Establish telephone link ■ Implement training ■ Market system C ■ Implement KIOSK ■ Develop information network ■ Develop electronic literacy program • ti' 0 l Page 9 h r r q , r HIGHER EDUCATION r a ^a t / H 3 M crh 5 F n. r v c ~ S "p s v 0 S °J`.Y a r e v r F ~ ~Ay POLICY e ~ -0r 4 u ^xx 7.g n, s w, r F g ~ k 9 ~ g Yn ' 6 5 (9 M a 4 ~!a ~ k ~h' y C n~ H Z n>, ~ a xN s ';S 4^,~R3 ~ AskC.y c P 7 k: 4"ixv ) v z -u e k 3 r` '2'fy v e z < a~.' k<1- s v` A i a •y's S K t a+ h t " ^ c za,~4 tt ~ ~ ~ ,~^r ~ 4n 8 ~ ~,~~k c ~ x a rw r k s4 ~ v: > a r ~ ~ . t aw n * b'~c. a A ~ 's' v « h ed' 0 . w "y, ! ~ e ~ `a a a e ~ a .-SupnOrE iE~Cl~tldg l~g ~ SCOt'5 °'P 'yl.~r-~`^~ have"~. b y L~ ~"S e ,G y. r~ ~ ux v ~ r ~ e ~ 4 k a ~~.w~~ n.. y Qa~ wa ~ ~a~ d~ 9,,. r<~ A #<2ti :KwS v ^h"~ e ~ JYS wc e'~ ~ x r. ^AF s ia~CQYlilCedtlCati0lt pOI~ilg1~~~~OF ]tf7.~r1$ i~ed9Tre ~ sa~'~'x~K^FV ~ 4 r by " ^M.Aa Jq ~cW P.p ~ ~"^'7 w F R t`~'S ' Y' ~ r rF r ~~W rX' w,~'ro~tdc for uriptt~Sd , tteo~ c c~ r* ant~~6~`~~t3 ~ ~ < ~ w a •sC n A a ~',.u. ~ '~,ka '4t~s'6t EL~* q r Iat~rt ar t~g3atis~ tttt03er EttgahiYlF " w~gcye~op y~ Vast 5~~~il~l~~lC~N. F~~'.,~5'~ ^ ~i~~~~~~c~~` ~ k~~a."~ .ae . !Lwrh.:kwe i,~ -;:b: n`.+:"''.'.'a'a ..~v;' a'~., F'^Rtfi ~,vlr~S ,*aww3f<s'1C'. tcv°~ •'Sd..'. geI COMPREHENSIVE PLAN• (Including resource allocation priorities and implementation strategy) ■ Includes resource allocation priorities and implementation strategies $NIALL AREA PLAN: L 1\IP .EMENTATION: ■ Recruit citizens for state commissions/boards ■ Establish work teams to address common issues ■ Establish biomedical tracer facility ■ Develop a university of 'third age' center ■ Establish a city operated program to contract for training programs • i r ' Page IQ • t F~I)lY RESOURCE CENTER a . j ww"Te.H "Cy?:y ~ ~ µ "4 A.~r Y ~F~'<3' iaT^ d M:. F b >~.f e ~ l OMMPREHENSIVE PLAN: (Including resource allocation priorities and implementation strategy) ■ Include family resource center SMALL AREA PLAN! T31PLEMEhTAT10N: C Develop a family resource center ■ Coordinate "conference on the family" ■ Plan and develop a family resource center a + Page 11 a fi w • r • ~f5. ae r 7 I~~I ',E '4~ Er ~ ~f~ tl x r ~ * ' • • THE 1988 DDP COMPARED WITH THE 1997 DRAFT DDF SHADED TEXT INDICATES A MAJOR CHANGE OR OMISSION OF POLICY IN THE 1997 DRAFT DDP s PREPARED BY r CITY OF DENTON ® PLANNING AND DEVELOPMENT DEPARTMENT 0 0 '4 poll 0 1988 Denson Development Plan 1997 Draft Denton Development Plan PREFACE Part f: Introduction The Land Use Planning Committee, comprised of 1. Preamble: l thir.y•seven members representing the various boards and organizations In the City, developers Interest, and The Denton Development Plan (DDP) establishes an neighborhood groups, prepared the Denton Development integrated policy framework intended to guide the long Plan. term physical development of the city. While the Plan incorporates policies to promote growth and economic development in Denton, it is not intended to be used solely as an economic development tool. Traditional master plans for cities are fixed land use maps forecasting land use developments at specific locations. The Denton Development Plan however, Is more policy and process oriented. The Plan sets out the spatial concepts, policies and guidelines that are to be used to determine the possible land uses for specific areas. In this way the Plan provides greater flexibility and requires fewer amendments over time. The Plan is intended to be used by the City Council, Boards and Commissions, city staff, private and public development interests and citizens as a basis for C consistent and Informed decision making. City staff will use the Plan extensively on a day-to-day basis In dealing with zoning, land subdivision, public utilities and community facilities planning, capital improvement programs, budgeting and related matters. The Committee identified and evaluated four alternative DELETED scenarios for long range development. 1. Current Trends Projections Current trends land use development sets out the base line scenario for growth. This option assumes that there will be no new major control of land uses and that current policies will generally serve to determine the location of most land use developments. It provides for j the dispersal and stripping of commerciallretail activities along freeways and major arterials Including Carroll DELETED Boulevard, Fort Worth Drive, Dallas Drive and University Drive. In the short-term this option will promote economic rrowth but in the long-term it is likely to result ® in uncontrolled urban sprawl, higher costs for public services and facilities and the possible toss of a valuable f tax base to the Lake Cities in the southeast. I AAA0523D - i - 0 • I I 1988 Denton Development Plan 1997 Draft Denton Development Plan I II. Restricted Current Trends This scenario is similar to I except that it emphasizes strip commercial along selected corridors, Le., University Drive and 1-35E, Traffic projections have shown that the proliferation of commerciallretail developments along DELETED 1-35E and University Drive will generate traffic exceeding the planned capacities of these arterials, resulting in extreme congestion. III. 1981 Development Guide Concept With Additional Centers This concept is adopted from the 1981 Development Guide concept map with additional centers In the wider study area. The basic structure provides for three levels of activity centers, the large major activity centers, the DELETED moderate activity centers and the small neighborhood service centers. Additional moderate size centers have been added to follow the same general pattern at the intersection of major thoroughfares. IV. 1981 Development Guide Concept Plan This scenario Is identical to the 1981 concept map. It sets out an organized and balanced urban form and J structure for growth and development. This option provides the opportunity for the Committee to examine the number, size, spacing and function of the DELETED commerciallretail centers. It offers greater benefits in the long-term such as reduced costs for public services and facilities, increased and expanded tax base and greater capacity for mass transit. The Committee rejected current trends and restricted current trends scenarios and selected a plan for balanced growth over the long-term based on a combination of the final two options. The selected alternative and the DELETED concepts, guidelines and policies together provide the • basis for the Denton Development Pan to shape the future directions and growth of the city. The Land Use Planning Committee pfared a high priority on economic development, quality of life Issues and preservation of existing neighborhoods, The members also acknowledged the restrictive tax. base of the City. DELETED They recognized that since approximately 13% of ® Denton's developed land is non-texable, diversified 0 economic development should be emphasized while promoting development in the city. ! I AAA0523D - 2- 0 • .,r I I 1988 Denton Development Plan 1997 Draft Denton Development Plan i I One of the key policies of the Plan relates to city-wide j balanced growth. Thi committee felt strongly that public efforts and funding should be expended to DELETED promote an equitable distribution of development in all areas of the city as opposed to following growth towards the southeast. The following document contains the policies and goals for Denton to prosper and grow Into the twenty-first DELETED century. DENTON DEVELOPMENT PLAN CHAPTER I: INTRODUCTION A. Background The Denton Development Guide was adopted in 1981 and subsequently it has been widely used as a policy framework to promote land use planning and development within the City. The first half decade of the 80's initiated a period of rapid population growth DELETED and an increase in development activities. Between 1980-1985 population increased from 48,063 to ! 61,000, representing a growth rate of 4.8% annually, l compared with a low to moderate growth rate of 1.8% per year in the preceding decade 1970.1980. The 1981 Denton Development Guide policy required a major update every five to ten years. The major update depended on population growth and the extent of DELETED amendments during the preceding years. In 1985 the City Council reque3ted a major update of the 1981 Guide. B. Furpose The Denton Development Plan establishes an integrated policy framework to direct and manage the long term physical development of the city. The Plan incorporates • a statement of public policy intended to be used by decision makers, City staff, private development interests, citizens and public Interest gpoups as a basis DELETED 3 for informed dec+sion making. City staff will use the Plan extensively o, a day-to-day basis in dealing with zoning, land subdivision, public utilities and community facilities planning, capital improvement programs, ® budgeting and related matters. • • Persons interested in the development of land within the greater Denton Planning Area are encouraged to read the r entire plan. The Plan provides the policies and DELETED guidelines to assist in achieving concept approval of development proposals. AAA0523D - 3 - c"` "Imp • • 1988 Denton Development Plan 1997 Draft Denton Development Plan The Plan's main purpcse is to create a foundation for the more detailed functional plans and studies necessary in day-to-day decision making. The use of the Plan includes discussion, negotiations, refinement, re-drafting DELETED or commitment to the policies in the consensus planning process. Continuous adherence will facilitate the achievement of the following goals of this plan: 1. Assistance to comprehensive decision making In an integratec planning process. 2. Providing a check list to insure that all Issues are considered in decision making. 3. Encourage and promote coordination, uniformity, and consistency In the administration of development DELETED policies. 4. Set out policies and guidelines to assist developers in obtaining approval from the Planning and Zoning Commission and the City Council. 5. Reduce public cost. The Denton Development Plan fulfills the legal \ requirements set out under Section 211.004 of the Local 1 Government Code of the State of Texas which states"... (zoning) regulations must be cdopted in accordarce with a comprehensive plan." The plan also provides the basis for the City code of ordinances Appendix A, Article 1.01 which states that... (The Subdivision and Land DELETED Development Regulations)... 'shall conform and be properly related to the Proposals, policies shown in the 1 officially adopted master plan{s}," and Appendix B, Article 1 "IThe Zoning Regulation:;) have been made in accordance with a comprehensive plan for the purpose of promoting the health, safety, morals and general welfare of the City." C. $cooe • Traditional master plans for cities are essentially fixed j design maps forecasting land usage at specific locations. These master plans rapidly become outdated and have DELETED often been regarded as obstacles to growth rather than guidelines for orderly development. • Alternatively the Denton Development Plan establishes I~ O • an integrated framework for physical development with extensive built-in flexibility. The Plan does not Identify site specific land uses. It is more process oriented. The DELETED Plan sets out the concepts, policies and guidelines to determine the possible land use development on specific sites. The general goals and objectives of the Plan are contained In Chapter If. AAA0523D - - 4 - • r • r I 1988 Denton Development Plan 1997 Draft Denton Development Plan The Denton Development Plan covers a study area of approximately 144 square miles. The study area is considered adequate to accommodate urban growth and development to the year 2010'. In general the study area is bounded by the Elm Fork Trinity River on the east and extends to the south to include portions of the City of Corinth and Argyle. On the west it follows a line DELETED approximately three 13) miles west of the Denton Municipal Airport and east of and adjacent to the City of Krum. The northern boundary generally follows the watershed between Milem and Clear Creeks and FM 428. The map on page 5 shows the boundaries of the study area. 'Land use Analysis 2010. Planning and Development Department, March, 1986, page 24. D. The Planning Process The Denton Development Plan was developed by a thirty-seven member Land Use Planning Committee representing a wide cross section of the City. DELETED 'For more details see the Planning Process booklet. Planning and Development Department, City of Denton, March, 1986. C INSERT MAP HERE "Section Map of the Greater Denton DELETED Planning Area" The committee included ten neighborhood representatives and members nominated by ma,or DELETED organizations and boards operating in the City. The Land Use Planning Committee convened twelve workshops between February and November, 1986. The initial series of workshops concentrated on developing background data and understanding current DELETED trends, policies and problems. In these sessions City r staff presented introductory workbooks, projections and analyses of population, land use, transportation and I public infrastructures. In the later workshops the Land Use Committee worked I in three separate teams using planning aids and large City maps to simulate possible scenarios for land use development to th3 year 2010. Through the workshops, DELETED questionnaires, and discussions, the major issues and policies were developed into three alternative concept fB plans. The policy framework incorporated In this Plan represents a composite of the three scenarios. 9 In the final stages of the process the Committee nominated nine team coordinators who were responsible DELETED l L for preparing the final working draft. I AA0523D - "5' • A r r.- • • 1988 Denton Development Plan 1997 Draft Denton Development Plan E. Ma'or Issues The Land Use Planning Committee identified six {6) major Issues, with related goals and objectives, DELETED Integrated to form the basis of this plan. 1. Intensity Concentration and Standards The Land Use Planning Committee was concerned with the higher land use intensities developing in low Intensity areas. The Committee agreed that the intensity policies DELETED are important to the "achievement of quality growth In a small town atmosphere." 2. Compact Growth Based on current trends development, the Committee concluded that leap-frog and sprawling development incur higher public costs for roads, water, wastewater DELETED and community facilities, and underutilization of existing services and Infrastructures. 3. Use of Public Funds to Encourage Balanced Growth The Committee was concerned with past development in certain areas that resulted in high city development costs. The Committee agreed that public funds should be used to encourage and promote growth so that there DELETED is an equitable distribution of development in all areas of the city. The five planning areas are shown on map on page B. 4. Urban Design The Land Use Planning Committee iterated the need for urban design standards to enhance the character and image of the built environment. It agreed that the living environment in the city can be enhanced if greater DELETED emphasis is given to architectural design and layout, landscaping, tree and foliage preservation, signago and the protection of historic landmarks. 5. Economic Development r The Land Use Planning Committee was concerned about the urban economic base in the greater Denton Planning area. It was agreed that priority be given to • developments that strengthen and diversify the local DELETED economy, resulting in a wider range of employment O J opportunities and thus expanding the tax base of the city. J AAA0523D - 8 - , C_ ~ Oil it ION • • w 1988 Denton Development Plan 1997 Draft Denton Development Plan 6. Plan Implementation The Committee emphasized that the Denton Development Plan must be followed consistently, fairly, DELETED and positively to promote long-term quality growth and economic development. CHAPTER II: THE PLAN A, Goals and Objectives 2. Goals: One of the major goals of the long range plan Is to We envision Denton In the 21st Century as the North accommodate planned growth to the year 2010. It Is Star of Taxes- a community of excellence for living, recognized that the spatial form and pattern of future working, learning, and playing. The physical growth will determine to a large extent, the quality of development of Denton will have the following life for the citizens of Denton. The specific goals and characteristics and outcomes: objectives serve to provide the basis of the plan to shape the future of the City. The specific goals and objectives of the Denton DELETED Development Plan can be summarized as follows: 1. Provide a framework to encourage public support for planned growth as opposed to responding to current DELETED trends. C 2. Promote and encourage balanced growth so that ■ Development takes place in all areas of the city. development takes place equitably in all planning areas of the city. 3. Provide opportunities for diversified housing with ■ Diversified housing is built for low, moderate, and emphasis on housing for low to moderate income levels, high income families. 4. Promote the development of a stable and diversified economic base to generate increasing job opportunities DELETED and a broader tax structure. 5. Encourage the economic utilization of lands in the f Lend in the vicinity of the municipal airport is vicinity of the municipal airport. economically utilized. 6. Promote the development of an urban center In the III The major activity area in the northwest continues to . northwest to create a balance with the centers in the grow to balance the central and southeast major activity southeast and central areas. areas. 7. EncouragA a spatial pattern of land use development ■ The spatial pattern and timing of development occurs which reduces the cost of public services and so that the cost of public services and Infrastructure are infrastructure. minimized. 8. Promote in-fill development within the Loop 288 ! In-fill development within Loop 288 occurs In order to e corridor to secure maximum utilization of existing s=cure maximum utilization of existing services and services and infrastructure. Infrastructure. O 9. Protection of residential neighborhoods from the ■ Residential neighborhoods are protected from the intrusion of incompatible land uses, traffic, noise and intrusion of Incompatible fatd uses, traffic, noise and pollution. pollution. AAA0523D - 7 - • r ~ • f j 1988 Denton Developm^nt Plan 1997 Draft Denton Development Plan .1 10. Improve the design, image and character of the city ■ Thu design, Image and character of the city Is 1 by preserving existing vegetation and natural topography improved. end encouraging adequate landscaping in new r developments. 11. Provide an Integrated framework to guide the long term development of public utilities and community DELETED facilities. i.e. Promote land use diversity to encourage housing ! Land use is diveree. and community facilities in close proximity to ■ Housing, community facilities, employment, and employment centers. shopping are in close pros;,i :y. 13. Promote the development of a land use pattern ■ The land use pattern Is conducive to the successful conducive to the successful Implementation of a mass implementation of a mass transit system. transit system, 14. Promote distribution of land uses resulting in less ■ Development occurs that minimizes traffic congestion. traffic congestion, 15. Promote and encourage revitalization and ■ The downtown continues to revitalize ant redevelop. redevelopment in the existing Central Business District. ■ Denton will continue to be recognized as a unique and great place to live, work, learn, and play. I r ti tr • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 3, PlarsM: pottciea"artd ordtnanceb z~ ~ ~ The PdfWaco f the Development fKan are Entafideif;o ba Gons(cered and us9d in' c pf driCe','wkty aopl cetite federaf, 'Staid artd City r8gula ns as yieP as other plans ao'd ponies of the oOtYO,Q ntprt ,.fit P ioilpitiin~ 8re exgmpres of thajm'of (delyused fns, pQGctds a c. n o~d~nencas " ' Thb Corhprahenst$e tonlrtg Ordinance '4Wl 3d , r ~qF !r i, x '.a a ~>x r°!~ 4 11, y d e q~ ~ t I, 4 (mf T~Sa S~ibdivratp3l andiLanQ beValOpntent Regulatrons~r S ICE ~~~~k ,di A,t 8x~iµ v,t,p eF4 ^ B,~tiYr - % Tha Sign and Aaver~Eain~ ~evide3~{iegu~at~io~ir ~~r k k n y a G' ° 'u t hw 9 X 9° A~ p`YC": _ 1>jbt fLands6AP 61, Screen r>~ and TCee PresaEvatloft~~ ordUlancb 5- x nj X21 Fhe 06lldin63Regu~atk1r19 4 »i q` i~w~ ;aQ r 3W r F: 7 u x 't -W s! he _atar and, Waste(vater'Mastei Plans for the Ctt+ C a MuNew SOtid West! Master Plan s C i%Tha?arksap fi6c'A4trcn'~lasteiPlx f6fltheCI Denton a of Oanton lw' The- 4~ls Plan for this City, M0 Rd Homo Park Ordinance F`: u ~ COmprahensiya Master l7rairi2ge pte~ ` ~ f 35 Ent~ancaway Goals IScen~c Corridors? ■ Consolidated; Piark for' k6us(ntt and Community; Opc~veiOAra?ent "'t 5: z ~a P a ~ • The 'Cap tat fmprovement Prpgrem°, A 468,614 Municipal AErpbrt Master Pfan ~ FTT r.,,Sc "d a R t tM e , y Ca~ttal Improw',n?~+1~ program , ,<<7 s P ~ , X Fafr f~0ea( arE s F '..r q Y 6Sd 3 ds S i~ ~horbugh(aro grid Cppe~.tar Str88!'Pf~rY 4'~ e AAA05-230 _ _ 9 _ . r ' { t1, TIR 1. • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 8. Lona Range Plan The tong range pisn Is based on desired population and land use to the year 2014'. Population is expected to maintain a compounded annual growth rate of 4%"to' 1990 and then stabilize at 39,6 to the year 2010, The DELETED population planned for the City and the Greater Denton° Planning Area is shown in Table 1. 'See Land Use Analysis 2010, Planning and Development Department, March, 1986. TABLE 1: i PLANNED POPULATION FOR CITY OF DENTON AND GREATER DENTON PLANNING AREA. 1990-2010. j 1985 1990 2000 2010 DELETED City of Denton 58,000 72,000 98,000 131,700. Greater Denton Planning Area 60,500 `77,500 105,200 14t,600 The planned increase In total population to the year 2010 will generate new demands for employment, DELETED housing, transportation, shopping, public utilities, community services ar,d facilities. These demands have been estimated to determine land use development and growth required to adequately serve the needs of the City in the future, The total projected acreage of new developments by, land use DELETED categories for 1990, 2000, and 2010 is shown in fable ll. TABLE IL PLANNED LAND USE GROWTH 1990 • 2010 I Land Existing Figures represent Cumulathw Use Developed total acres of Growth, Categor es Aces planned growth in Acres 1990 1984 1990 2000 2010 .7010 Single Family 3,133 907 1,552 2,033 4,432 Mutfl-Farmly 440 129 222 - 290 641 DELETED Commercial 667 243 415 545 1,203 Industrial 31" 162 277 - 363 802 Institutional 1,555 324 554 726 1,604 Transportation and utilities 1,859 667 970 1,270 2,607 TOTAL, 7,951 2,332 3,990 5,221 11,549 The major features of the long range plan are as follows: DELETED A 0 AAA0523D - 10- r • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 1. Population and Size The plan incorporates an area of approximately' 144 square miles defined as the 2010 utility service area and described as the Greater Banton Planning Area in DELETED this document. It is intended to accommodate a planned population of 141,500 by the year 2010, 2. Land Use Growth The plan provides the framework and basis for land use development to meet the demands for new employment, E housing, commercial, social and pubtic services and facilities.' It is projected that the total area of developed lands will be expanded by 11,549 acres to meet DELETED demands for new growth to the year 2010. The major goal of the long range plan is to achieve a_balanced distribution of developed lands in all five planning areas. 3. Urban Form and Structure The long range plan establishes a network of f activity centers based on the village concept 2 The general location of these centers are shown on the DELETED concept map on page 16. 7The village concept is used to describe the relationship between a center and its service area. The center is the hut) for a wide range of activities including commercial/retail, community services, and facilities and employment, This is where people meet and interact while working, shopping or enjoying leisure activities. a. Major Activity Centers 1 h Urban Centers These are the largest centers strategically located to encourage the concentration of commercial, retail, office, fight industrial and multifamily housing. These centers are intended to serve as the hub for economic DELETED • activity and employment. According to the plan; the northwest urban center should be approximately equal in size to the southeast center by the year 2010.r 2) Special Purpose Activity Center The plan designates a special purpose activity center in h the vicinity of the Municipal Airport. This center Is 0 a intended to encourage the establishment of an industrial DELETED economic base given the locabonal advantages of this site in terms of access to rail, motor and air { transportation, I AAA0523D - 11 - • 1988 Denton Development Plan 1997 Draft Denton Development Plan Moderate Activity Centers The plan proposes a number of moderate activity centers emphasizing a wide diversity of land use developments. The moderate activity centers are located about a mile DELETED apart at the Intersection of and abutting major thoroughfares. They are Intended to serve as mini-town centers with mixed use developments. c. Low Intensity Areas All the other areas shown on the concept plan and not included in the centers outlined above are intended to be DELETED used primarily for single family residential developments. At the neighborhood level, the plan Incorporates a network of small commercialtretail centers with direct DELETED access to a collector type street or larger thoroughfare. 4. Thoroughfare Network The proposed land use pattern will be served by an updated thoroughfare network. The thoroughfare system has been designed so as to provide greater DELETED capacities to locations which have been designated by the plan to generate long-term higher traffic volumes. 5. 2010 Development Program (A new definition of need) The phasing of land use developments and scheduling of public infrastructures and community services and facilities over the plan period in accordance with the goals, objectives and policies of this plan will be incorporated into a 2010 city wide development DELETED program. The implementation schedule for public infrastructures is to be used as the basis for defining planned needs. The rationale for meeting planned needs in the short-term will ultimately reduce or eliminate the current perceived needs in the long-term. • 6. The Greater Denton Planning Area. The scope of the plan covers an area defined as the 2010 utility service area which includes the cities of Corinth, Hickory Creek and part of the city of Argyle. The general objective of the plan is to promote physical DELETED @ development in the entire study area but to encourage the priority use of public funds to support infrastructure • @ development within the half mile limit of the Loop 288. INSERT Concept MAP HERE. DELETED AAA0523D 12- • • i 1988 Denton Development Plan 1997 Draft Denton Development Plan CHAPTER III: DEVELOPMENT POLICIES A. 1Rtroduction The development policies In this section deal with intensity area, housing, transportation, economic development, parks and recreation, urban design, balanced growth and compact growth. The policies are both general and specific. The general policies provide a framework for more detailed functional planning (e.g. DELETED utility master plan). The specific policies are Intended to be implemented In the short term along with all other City wide policies contained in the plan. They have been designed to be consistent with and to accelerate the realization of the wider goals and objectives of the long range plan. B. intensity Area Policies _ The intensity policies provide a city-wide framework for promoting and regulating land use development. The framework is based on a maximum Intensity allocation for the planning area as a whole. The maximum intensity allocation consists of 11) maximum number and C intensity of moderate centers; (21 maximum size and DELETED number of major activity centers; and, (3) size and intensity of low intensity areas. The Intensity policies should be given priority in all planning activities. City staff should use these policies on a day to day basis before applying other city-wide policies In dealing with land use proposals. Thus developers are encouraged to DELETED use the following policies and guidelines when preparing land plans. A change in an intensity eta dard is considered a major I decision of the City; therefore, incremental planning activities and decisions that will change the Intensity of DELETED an area should be referred for an intensity study by the Planning and Zoning Commission. (See Section 8 - Intensity Amendments.) ^ie sa L n 4w',~ wpb y it r fr ~ w ~ x o Kk n!k ~ ~ ~ , ti °£~W ~ 1. Major Activity Centers ➢fvt 0 At' I f iExPof,c~aa~~ wy" q v~~,~ ~ ~ 5~r ~}b~rt~, •nH t l ~`(ra a. Purpose and Intent The purpose of designating major activity canters Is to 5t 6 ~e~pNeiy~t~ fbf~ f ! Gf • provide a policy commitment to a specific location in t" Ilpf'l:~c wridisf;zd!~ t' wf o' r +p • a0 order to: t:yl~dont~>C.A egT $*f 1" l l AAA05252 - 13- r F p: 0 ..rte..--•-;_ r~ r~ .i. ti. M nth • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 1) Ensure a commitment to the business community that act;viti:s in these areas will be supported by City Government while making a commitment to other DELETED residents that their neighborhoods and local streets and facilities will not be disrupted by an unplanned major activity center In their neighborhood. 2) Ensure that adequate public infrastructure to support Policy 1.2. these centers Is available. Major roads, utilities and Ensure that adequate public Infrastructure is available to other public expenditures should be built and encouraged support these centers. Major roads, utilities and other in this area either through Capital Improvement Programs public Infrastructures should be built and encouraged in or private funding. the high Intensity centers and corridors either through Capital Improvement Programs or private funding. 3) Ensure that the long-range plan achieves balanced growth within the City. DELETED b. Location The Denton Development Plan identifies four major DELETED activity centers in the following areas: 11 1.35N; Hwy 77; North Loop 288 area Policy 1.1. 21 Golden Triangle Mall area to Mayhill Road Locations. As shown on the concept map. 3) Airport 4) Downtown area r l c, Specific Center Charecteristics° Policy 1.4. Development of nationally recognized high amenity 3The major activity centers in the north, the Golden busi essAndustrial park(s) should be encouraged. Triangle Mall, and the downtown area have been designated as urban centers. These centers are intended to provide a wide range of urban services including commercialfretait, personal and professional services and leisure activities to major sections of the City. \ 1) Southern Urban Center and Northern Urban Center The Northern and Southern Urban Centers are intended to have a commercial and industrial emphasis, and to DELETED • encourage a mixture of employment and high density residential uses. To promote balanced growth, a major goal of this Plan is that the Northern Urban Center be comparable in size, DELETED employment, and density to the Southern Urban Center by 2010. • 2) Special Purpose Activity Center: • The airport area is proposed as the major industrial area in 0.9 City due to its access to air, rail, and motor DELETED / transportation (See Chapter IV, Specific Area Policies), l AAA05252 - 14- • . 1988 Denton Development Plan 1997 Draft Denton Development Plan 31 Central Urban Center: j This Plan recognizes the unique aspects of the original downtown area as a special purpose high intensity center. A priority policy of the Plan Is the continued support of the downtown area. As part of a program initiated by a Central Business District Association, the DELETED City would support public expenditures in an effort to upgrade and preserve the area. Innovative programs, with emphasis upon pedestrian traffic within the downtown area while developing perimeter parking should be explored. d. Diversity and High Density Residential Policy 1.e. Land use density Including high density housing is Land use d versity, including high-density housing, encouraged in these areas. should be encouraged but new low density housing should be discouraged. This housing will provide a Policy 1.7. transition to lower intensity adjacent areas but also Except in the downtown center, low density housing In provide transportation balance and energy conservation those areas should be discouraged. However, low by having housing in close proximity to job., and density housing In these areas may be required to services. provide mitigation from the Impact of adjacent or near- oy major activity areas, to include IH•35 and Loop 288. e. Low Density Neighborhood Protection Policy 1.3. { The development of these high Intensity centers and Low density residential areas on the fringe of these corridors will not disrupt existing residential major activity centers should be protected by such neighborhoods or future predominantly single family measures as Intensity gradation, strict site design development. requirements, transportation planning and implementation, land use balance and landscaping. Policy 1.8. Further, traffic planning should ensure that no local Existing and future low density residential areas on the residential streets are utilized for general circulation to fringe of these major activity centers should be the centers. Development of neighborhood associations protected by such measures as land use transition, such and councils are encouraged to further ensure as office, medium density housing, campus style neighborhood protection, bus,nsss parks, and open space, end buffering; site plan, design requirements and transportation Impact analysis, That would be part of zoning case analysis. Policy 1.9. Traffic planning should ensure that no local residential streets are utilized for general circulation to these high Intensity areas. Po icy 1.5. 2o11111g case related intensity analysis in these areas Is • not necessary, i ~ • ~ C AAA05252 - i6- ~ ti • • _ I 1988 Denton Development Plan 1997 Draft Denton Development Plan 2. Moderate Activity Centers JO blatoVe 2 .ti Moderate tntan6iiy Aroas'aild Corridor , .2 "Z C As r'rlM%vw a. Purpose and Intent A wddaveeity bf land Ussa t1atF tart irStahaB tfrad, t~+at ~n inp~or actfvityrare~~4 +nnN~~cCirr a~O~+~~ls)hYfeys~ The purpose of identifying moderate activity centers and do"signated artar7at streets and then dnterseotiorja parallels many of the purposes discussed earlier for „n a ° xc major centers, Including balanced city wide growth? „ Fp 4 N ~a `ga x,ja Planning infrastruc:„ re !or the limited size of these centers helps ensure balanced development In the City. b LOCBUOn and Site ` Policy 2.1, Locations: as shown on the Concept Mop. MOderats aC1rV:ty senteYS3brE [opated atth6 fntarseot<on of tWd p,rifierYaaitarials an aj, s ratepics,lo ati0n abutting a freeway isn" ara'Spac3d appro~ fri$6teiy a mica r a , P F d "n+r, spelt., ( P.4 A; rTK H.l; BK, Y,rW The eiletal ~O~etiona o~ rrlodarate aenfars are shov;f~ b map on P800 ,16. Cantata bra e Mdfdmlffti~~+ acres it size Ot er Ca ter"s na~r;tie lergor'or srrla11 r Of, DELETED locked desS t~a~rt aFrrlde ~patt as IteCesS~+}ot 91laCi~C~, ptennin reasons. c. Intensity Standard Policy 2.2. Intensity Standard. The Intensity standard for moderate The intensity standard for moderate activity centers Is activity areas is a maximum of 350 intensity trips per 350 vehicle trips per day per gross acre ft/d/ac). A 60 acre. ' acre moderate center for example will have a total of (60 ac X 350 tld/ac) 21,000 intensity standard. d. Diversity Policl' 2.3. Diversity. Land use diversity will be encouraged In Land use diversity will be encouraged in moderate moderate areas to promote the following: centers to promote the following: - A sense of "my part of town' (the village center Improving the community's image. concept) • Reduction of cross-town traffic. - Intensity on lend use gradation - Location of jobs and housing In close proximity - Transportationfland use balance )reduction of - Access is adequately managed, such as limiting cross-town traffic' curb cuts, providing parallel access roads and • Location of jobs and housing In close proximity developer provided turn lanes and roadway capacity enhancements. Land use diver city shall be defined as uses other than the dominant land uses in the area such as commercial, DELETED retail, light industrial, and office. I AAA05252 - 16 - r)4r +uY • • :.t r. 1988 Denton Development Plan 1997 Draft Denton Development Plan 1) Bonus Policy 2.4. Moderate Area Bonus. Intensity bonuses for mixed land The diversity policy of the Plan allows for intensity use developments that include public or nonprofit bonuses for mixed land use developments that Include community type service facilities or uses, such as public or nonprofit community type service facilities or churches, schools, libraries, fire stations, police stations, uses, such as churches, schools, libraries, fire stations, perks, open spaces, or governmental offices may be police stations, parks, open spaces, or governmental given. A developer may qualify for an Intensity bonus offices. To meet the requirements for a bonus, land for for a mixed use development by putting a community the community facility or use must be within the 60 acre type facility or designating a land use for a community designated area of a moderate activity center and facility at or close to a major Intersection In the cannot abut the outer boundary of the center. moderate area. A developer may qualify for a bonus by putting a The formula for calculating intensity bonuses shall be as community type facility or designating a land use for a follows: community facility at or close to the major Intersection of the moderate node. Number of acres, x 3502 plus The formula for calculating Intensity bonuses shall be as Number of acres, x 60, follows: 1 Number of acres designed for governmental offices Number of acres, x 3502 or community services and facilities plus 2 -Intensity factor for moderate center Number of acres, x 60, 3 =intensity factor for low Intensity area 1 =Number of acres designed for governmental offices The intensity bonus can be used to extend the or community services and facilities boundaries of the moderato area. For example, a 5 acre 2 =Intensity factor for moderate center park shall earn a bonus of 2,050 Intensity trips 15 x 350 3 =Intensity factor for low intensity area + 5 x 60). If this Is rsed to develop multi-family housing at 25 units per acre it will expand the center by The Intensity bonus can be used to extend the (2,050/200.) 10.25 acres. boundaries of the moderate center. For example, a 5 acre park shall earn a bonus of 2,050 intensity trips (5 4 =Unitslacre multiplied by number of trips generated x 350 + 5 x 601. If this is used to develop multi-family by land use, e.g., multi-family generates 8 trips per unit. housing at 25 units per acre it will expand the center by 12,050,200,) 10.25 acres. The develoler providing the community facility Is the individual who r3cefves the bonus and the bonus may be 4 =Unitslacre multiplied by number of Lips generated an Increase in land or In the Intensity allowed for the by land use, e.g., mufti-family generates 8 trips per unit. developer's land. • the developer providing the community facility Is the Individual who receives the bonus and the bonus may be an increase in land or in the intensity allowed for the developer's land. I' AAA05252 - 117- r r t k C • • I 1988 Denton Development Plan 1997 Draft Denton Development Plan 2) Commercial/Retaif Limits In order to encourage diversity In the moderate eerlters;' commercial/retail land uses 'shell be limited to 1'i3 of the total acreage of the center. - For example, a 60 acra moderate center can accommodate a maximum of '20 acres of commerciatiratall land use. In'add tion, the 113 ' DELETED rule shell not apply to,a moderate`riorie that hes been' expanded by a bonus, therefore all Intensity gained from i the bonus may be designated for ccmmercialfretail uses'. Commerciallretail land usas'shall be`encouraged 16Vnot' more than three corners of en ,intersection that DELETED incorporates a moderate certter. " e. High-Density Housing Policy 2.5. High-Density Housing, High density housing Is The Plan encourages high-density housing, including encouraged in moderate areas under the following manufactured housing, in the moderate centers under conditions: the following conditions: 11 Transition andlor buffering between land uses. 1) Transition between land uses 2) Diversity (see above) 2) No direct access to a single family residential street. 3) At least one access by a primary or s°condery arterial with no direct access on a residential street 3) Good site design to protect adjacent single family 4) Limit concentration in moderate node to 750 units areas, such as utilizing large setbacks, landscaped front separated by 112 mite from another concentration yards, buffering; and adequate open space or recreation 51 Good site desi.in standards to protect adjacent single facilities for residents. family areas, such as utilizing large setbacks, landscaped front yards, screening and fences. f. Low Density Neighborhood Housing Protection Low density residential areas should be protected by strict site design control with setbacks, parking, buffering, and landscaping requirements. Further, traffic DELETED planning should ensure the. no local residential streets are utilized for general circulation to the high or moderate intensity developments. ♦ g. Strip Commercial It is the intent os the plan to encourage canteis of. activities and to discourage Or(p commetclitil DELETED development. This will be accomplished by: 0 i AAA05252 - 18 - • r • _ 0 • • 1988 Denton Development Plan 1997 Draft Denton Development Plan J 11 EI'r1~'irng cut~c;ut; a a' r t ^ r .~'s~,~"~st' 21 Requrrtng site plan fevi~einrYfl e x pe~kfng, eet6aeks n , at ~R~`1 ti h e C~R 3t' Enrauraging d erafty 4fla!r~afof atAil'oe l 17 1 nodes b,oke t f%~r high cte~ssir~r~tdtlsidg, atifetc~ 41 OisecUregrcl inn 3g~it ~ m (@z~i~tltixr;` ' Y DELETED commarrcial by te`quitinu f, I rgstrlot~pns, ~uf~erifig I §"U r orlads"cepfnfaF~ g} enbetts~apdl n s L1mnrr~ emou4~t8„of comrit"ear tar r 1a d 5~~ modorste arilow;lntensitytarg> , g 'r'?zr 3. Low Intensity Areas Objective 3. Low Intensity Areas. e. Purpose and Intent Low Intensity areas include all areas on the concept map that have not baen des!gnated as High or Moderate All areas not designated high or moderate Intensity areas Intensity areas. Most residential, especially single family are corsidered low Intensity areas. The primary purpose development will be preserved, developed, or of these areas Is to ensure the overall land redeveloped in safe, attractive, uniquely identifiable use/transportation balance by controlling the overall strong neighborhoods. density and Intensity. Further, these areas represent primary housing areas In the City of Denton. Thus, these areas should emphasize residential use instead of a mixture of residential and nonresidential. b. Location Policy 3.1. Location: As shown on the Concept Map. The general location of these areas is shown on the moo on page 16. c. Sice/fntensity ° ¢r Policy 3.2. t, intensity. The intensity allocation is a maximum of 60 These areas are planned to'correspond tb § tlvgaQ; trips per acre. intensity policy measured it 6D tr`1ps per Cay`per pros,`s acre. The areas should 66 ap`pto)Z'=a~efy 6.4Q,b2res",,,tl: d. Diversity/Neighborhood Protection Policy 3.3. DiveraitylNeighborhood Protection. Small scattered sites Low density residential, small scattered sites of of medium and high density housing, and nonresidential apartments, and nonresidential uses are encouraged in uses may be allowed subject to the following limitations: all wens of the City subject to the following limitatio-is: • f i i - 19 - AAA05252 e • 1988 Denton Development Plan 1997 Draft Denton Development Plan 1) Strict site plan control witnin 7,600 toot of Olsting' Policy 3.3.1. If the overall densityliintensity standard is low density residential, areas. DevalopmentS Must', violated, a development may be subject to let strict site maintain the character of the Brea with architeetula(^, plan, architectural or design review that maintain: the design and landscaping, l area's character, (b) additional landscaping and 2) Traffic design.to Ensure that multi-family and; buffering, and I c) mitigation of potentially harmful nonrosidential uses have aroass to collectors or lateel'I impacts. arterials with no direct' access through reside"Cttial. streets. Policy 3.3.4. Sufficient green space, recreational 3) The avorali derlsityAntensity standard is not AO'sled., facilities and diversity of parks are provided, 4) Sufficient`grean space,' recreational facilities nd diversity of parks are prOVide' Policy 3.3.5. Input Into planning and development 6) Input Into planning oY Oighbt+rhoGd assnClatrorws'ahd review by neighborhood associations and councils is councils ;s ,oncoUtaged., This polity is Intended to. encouraged. This policy is intended to generate Input generate input and not veto pnwor and not veto power. Policy 3.3.11. Existing low density housing Is protected b; good land use transition, screening, buffering, adequate open space, landscaped front yards and buildings in character +.aith the neighborhood. e. Non- residentiotlRetaI1Multi-Family Concentration Policy 3.3.6. Non-residential development should be located at least a half mile from any other 1) Neighborhood Service Center non-reside nVallret ail development measured along and on the same side of a street. Neighborhood service centers are small nodes ut nonresidential estoblishments Intended to offer mainly Policy 3.3.7. The size of non-residential development in convenience goods and services at the neighborhood low Intensity areas should not ceod from 2 to 6 acres level. These centers shall be located at least a half mite dependinp on their access to a specific category of from any other non-residential/retail center. The size of street, as follows: non-residential venters vary from 2 to 5 acres depending on their access to a specific category ,t thoroughfare. Direct access to freeway - 5 acres Direct access to primary or secondary arterial - 3 acres Direct access to freeway - 5 acres Direct access to collector street - 2 acres Direct access to primary or secondary arterial • 3 acres Direct access to collector street - 2 acres 2) Multi-Family Concentration Policy 3.3.2. High density housing and nonresidential uses have access to collectors or laryzr streets or Multi-family housing is defined es apart{Tent highways, and no direct access through residential ` development with density of 12 units or more per acre. streets. The size of multi-family concentrslion shall vary from 100 to 200 units in one location depending on access to Policy 3.3.8. High density housing Is defined as any a specific category of thoroughfares. housing development with density of 12 units or more per acre. The size of a high density housing concentration should not exceed 100 to 200 units In one location depending on access to a specific category • of street, as follows: O O AAA05252 -20- r C 0 • F is 18 Denton Development Plan 1997 Draft Denton Development Plan Direct access to freeway - 200 unite Policy 3.3.3. Adequate access management, such as Direct access to primary or secondary arterial - 150 units limiting curb cuts and developer built roadway capacity Direct access to collector street - 1C0 units improvements such as turn lanes, traffic signals, and parallel sccess roads, occurs. Direct access to freeway - no limit. Direct access to primary or secondary arterial - 150 units Direct access to collector street - 100 unite Multifamily concentrations shall be located at least 112 Policy 3.3.9. High density housing concentrations mile away from the nearest multifamily concentration. should be located at least Y, mile apart, measured along, and on the same side of a street. Policy 3.3.10. Existing street and other public facilities are adequate. i Policy 3.3.12. Adverse impacts are mitigated. f. Manufactured Housing Policy 3.4. Manufactured housing may be compatible with and Manufactured housing may be compatible with allowed in low intensity areas subject to the following developments in the low intensity areas subject to the conditions: following conditions: 11 The overall intensity standard not to be violated 3.4.1. The overall intensity standard is not exceeded. 21 No concentration of more than 200 units 34.2. No concentration of more than 200 units. 31 Access by a collector street or larger 3.4.3. Access by a collector street or I rry^r. 41 Strict site plan control within 1,600 feet of existing 3.4.4. Adverse Impacts are mitigated. single family residential 51 Sufficient green space, recreation facilities, etc, 3.4.5. Sufficient green space and recreation facilities provided are provided. 61 Input Into planning by neighborhood 3.4.6. Input in the Jw, elopment review process by nearby neighborhoods. g. Strip Commercial Policy 3.6. Any form of continuous strip commercidt • development Is strongly discou-aged in low Intensity Any form of continuous strip commercial is strongly areas. discouraged inlor near low Intensity areas. 9 ~ O O C ~ I L AAAO.c:az - 21 - • • 1988 Denton Development Plan 1997 Draft Denton Developirnew Plan 4. intensity Allocation and Calculation Objective 4. Development Decision Making Process and Criteria. As a general planning policy, a specific development should only make use of a proportionato share of the trip In order that development and zoning considerations be generation Intensity allocated for the intensity planning made consistently by basing them on this policies of this area affectud. This policy Is based upon the ratio of the plan, and In order to be in accordance with state law acreage of the proposed development to the acreage and the city charter that require consistency with a contained within the Intensity planning area in which the maator plan, the following policy analysis, decision development Is located. making process and criteria will be followed. Policy 4.1. Intensity Allocation and Calculation. As a general planning policy, a rpecific development should only make use of a proportionate share of the trip generation Intensity allocated for the Intensity area In which the development Is proposed. When making a land use decision that affects a low or Policy 4.1 (continuedj moderate Intensity planning area, the trip generation A proposed development's Intensity, as determined Llandard for the planning area must be defined. If the using the following chart, Should be compared to the area is 640 acres and it is a low intensity area, then the intensity erea's intensity standard. Low intensity areas' maximum trips would be 60 t/d/ac X 640 ac or 38,400 standard is 60 Intensity trips per acre; moderate area, t/d/ac. The trip generation Intensity used by existing 350 intensity trips per acre. development and zoning in the planning ar,a should then be calculat^d. The unzdocated capacity of an area can TABLE h then be determined. T7IP GENERATION RATES BY LAND USE CATEGORY Trip Average Lend Qenera ion Level Avg. Use factor pl NO V category rper unit! Development Acre Singe Family SF-16 1o 'hips 2.0 unite/se 20 Single Family SF-13 10 Trips 2.5 unlts/sc 25 Single Family SF-10 70 Trips 3.0 units/ac 30 Single Family SF-7 10 Trips 4.20 unitslac 42 MDbgs Homes 10 Trips 8 unite/ac so Duplex 10 Trips a units/ac 80 multi-bm7y MF-A 8 Tripe 12.5 units/ac 100 Multifamily MF•1 a Tripe 25 unitslac 200 Institutional 35 Tripe-1,000 sq' 2.439 sq'/ac 65 tidustrisl 6 Tripe/1,000 sq' 17,424 sgYec 105 Offfae/Governmeot 15 Trips/1000 sq' 23,334 sq'Isc 350 • eummercievRetail 60 Trips/1,000 sq' 10,834 sq'/ac 650 Parks 30 i • • ~ . II AAA05252 22 - _ Z r~ 0 0 1988 Denton Development Plan 1997 Draft Denton Development Plan If the intensity gene-ated in the area by the existing Policy 4.1 (continued) development and zoning does not exceed the standard, For instance, a proposed retail development, generating then trip generation intensity Is allocated to the 650 Intensity t ips per acre, In a tow Intensity area with proposed development under the general policy of a 60 intensity trip per acre standard would be proportionate share. An example Is, a 160 acre specific inconsistent with this policy. development in a 640 acre low intensity planning area would be allocated 9,600 trips per day, which is 114 o'. Proposed development may be evaluated on an acreage the allotment for the entire area. To compare the bases, or, if known, on a square foot of building or general policy with the proposal, the trip generation number of building units per acre basis. intensity to be used by the proposed development must be calculated. If the proposed development does not Policy 4,2. violate the general policy of intensity allocation, the All proposed development, whether it is consistent with request would be evaluated In reference to other policies the general policy of Intensity allocation, or not, should of the Plan, be evaluated in reference to other policies of the Plan. If a specific request violates the general policy of Policy 4.3 proportionate allocation a determination should then be If a specific request violates the general policy of made whether there we planning considerations that proportionate allocation, a determination should then be would warrant approval of a disproportionate allocation made whether there are planning considerations that of intensity. The Planning and Zoning Commission and warrant approval of a disproportionate allocation of City Council should consider the following items, but are intensity. The Plsnning and Zoning Commission and not kmited to these items: City Council should consider the following items, but are not limited to these items: a. The location of the proposed development in Policy 4.3.a. Has a disproportionate share of Intensity reference to existing or proposed public facilities, such been previously allocated according to existing use or as streets, water or sewer lines, and drainage facilities. existing zoning? Should this existing zoning be In this regard, the City's Master Plan for public facilities evaluated? should be considered. It may be found to be more desirable, for e.rampla, to allocate more trip generation Policy 4.3.1b. The location of the proposed development intensity to a proposed development that is adjacent to, in reference to existing or proposed public facilities, or wovtd hava convenient access to, existing or such as streets, water or sewer lines, and drainage proposed ajor thoroughfares, major water and sewer facilities. In this regard, the City's Master Plan for lines and drainage facilities. public facilities should be considered. It may be found to be more desirable, for example, to allocate more trip generation Intensity to a proposed development that is adjacent to, or would have convenient access to. existing or proposed major thoroughfares, major water and sewer lines and drainage facilities. b. The topography of the land in the planning area and Policy 4.3.c. The environmental Impact of the proposed the proposed development. There may be reason to development. There may be reason to allocate less allocate less trip generation Intensity for a specific Intensity for a specific property that would damage or property that would otherwise requiro major modification otherwise require major modification of natural drainage of natural drainage areas, the removal of large masses of areas the removal of large masses of trees, the leveling trees, the leveling of hills, and other major topographical of hills, and other major topographical modifications to 0 modifications to develop. develop. r,. The land use In the planning area and surrounding Policy 4.3.d. The proposal should to reviewed to meas. The proposal should be reviewed to determine determine its compatibility with existing and potential the compatibility with existing and potential land uses In land uses in the surrounding area. ( the area and surrounding area. AAA05252 -23- r • f 1988 Denton Development Plan 1997 Draft Denton Development Plan d. The allocation of trip generation Intensity in reference Policy 4.3.e. The allocation of trip generation intensity to other policies of the Plan, such as, tte protection of in reference to other policies of the Plan, such as, the older neighborhoods and single family housing; diversity protection of older neighborhoods and single family of housing; and the concentration of apartments and housing; diversity of housing; and the concentration of office/retail sites, apartments and office/retail sites. Policy 4.3.f. Negativa impacts have been mh;gatod. If the City Council or the Planning and Zoning Policy 4.4. Intensity Amendments. The Ci:y Council or Commission wants to raise the intensity standard for a the Planning and Zoning Commission may consider tow or moderate area, the Planning and Zoning raising the intensity standard or Intensity boundaries. Commission and City Council should conduct a special However, if the standard is increased, this action does study session, focusing on the intensity question and the not mean automatic approval of an Individual proposal. impact of changing the intensity standard. The specific study process shall be determined by the Commission or Policy 4.5. Intensity amendments are considered Council, but the study must examine the intensity amendments to this master plan, and will follow the allocation for :F,a city as a whole and how that level will following process: be maintained. However, if the standard is increased, this action does not mean automatic approval of an The review process consists of a study session by the individual proposal, Planning and Zoning Commission, a recommendation by the Commission to the City Council, and Council determination of the amendment for a change In the intensity. Notice will be provided to the public. A petitioner, or ) land owner, or staff may be required to prepare a study containing any information established by the Planning and Zoning Commission. The study should be submitted to or prepared by the staff for review. After the staff has reviewed or prepared Vie study, it will be submitted to the Planning and Zoning Commission, who would make a recommendation to the City Council. The focus of the Planning and Zoning Commission study will be on the intensity question and the Impact of changing an area's Intensity standard. Policy 4.6. • ZONING CASE DIAGRAM In specific areas of left-out lots or whare a Policy 4.7, disproportionate allocation of intensity has already been The level of scrutiny for development proposals that are granted, the proposed development will be evelu- ad in inconsistent with the development policies of this plan reference to the least Intense, most logical land use for may Increase, More analysis, mitigation measures, property In the area. In addition, the effect on the review of site plans and!or architectural and landscape surrounding planning areas and compatibility with other design may be required. f policies of the Plan should be reviewed. Other options { f 8 that may be considered are changing zoning of varant higher Intensity property, expanding the intensity area by reducing the size of an adjacent area, or increasing the 1 standard. However, this should not be interpreted as increasing the maximum intensity allocation. AAA05, 52 24- 0 s • 1988 Denton Development Plan 1997 Draft Denton Development Plan Tire Intent of the allocation policy is to maintain an intensity balance in each area so that the intensity in the City is equally distributed. The general policy is to not allow a disproportionate share of intensity; however, DELETED depending on the area and planning reasons, certain parcels may receive more than a proportionate share. The specific formula for calculating intensity is located in Appendix A. 5. Boundary Definition Objective 6. Intensity Area Boundaries. The boundaries of the Intensity areas are shown on the Intensity area boundaries should be defined using logical concept map In general locations within the planning and traditional planning techniques In such a way as to area. Detailed boundaries are defined in Appendix A achieve the Plan's goals and objectives. (available from the Planning and Development Department) and on the Intensity Area Map, as approved Policy 5.1. by the Planning and Zoning Commission and adopted by The following should be considered when defining City Council, The linos for the areas are established by Intensity area boundaries: using the following criteria: a. Low Intensity Areas 1) The Denton Development Plan provides the general location. C 2) The model size is 640 acres which represents a traditional large neighborhood. DELETED 3) The area should be defined by logical and traditional planning boundaries, including major arterials, railroads, natural barriers such as creeks, zoning boundaries, property lines (large ownership), and similar boundaries. O i ' O j ~ 0 O i AAA05252 - - 26 - r. • • 1988 Denton Development Plan 1997 Draft Denton Development Plan Some areas of town, however, may not follow Policy 5.1.a. Draw boundaries along easily Idsntifi3blr traditional planning boundaries. The neighborhoods may physical features such as creeks, thorouq!ifares and use common facilities and service areas and may have a railroads. history of mutual concerns. Therefore, these areas have a socio-economic and physical land use interdependenre Policy 5.1.b. Environmental features: In ordir to which is classified by non-traditional boundaries, protect natural resources special conside ation should be given to floodplain areas and sites with !dopes and trees being placed in low intensity areas. Policy 5.1.c. Land use and zoning: As far as it is practical, intensity area boundaries should be drawn so as to Include existing land uses Ibuittl and current zoning In the corresponding intensity areas based on the guidelines given in the Denton Development Plan. Policy 5.1.d. Location and shape of tract: Certain tracts of land, because of their shape and location in relation to railroads and thoroughfares end/.r existing non-residential development, should best be used for commercial/retail or light Industrial type developments. Whenever these sites abut a major activity or moderate Intensity area, the boundaries should be drawn to include these tracts as far as it Is practical to do so considering all the other variables. Policy 5.1.e. Lend usi compatibility: In reviewing existing land use and current zoning for future development, an attempt should be made to integrate land uses that are compatible and to separate those uses that are Incompatible. Policy 5.2. In some areas of town, however, boundaries may not follow traditional planning boundaries. Neighbors may use common facilities and service areas and may have a history of mutual concerns. Therefore, these areas have a socio-economic and physical land use Interdependence whose boundaries may not be so easily seen. • 41 The intensity areas are a network; therefore, adjacent areas should be reviewed to insure that DELETED boundaries are following the criteria and not conflicting with the adjacent area meeting the criteria. 5) Unique areas which might distort the Intensity calculation in an area should be evaluated. Generally, ® areas must be able to absorb urban growth, and some DELETED areas should be excluded that would distort the Intensity • of an area. Examples Include major freeways and bodies of water. \ J AAA05252 - 26- t • • 1988 Denton Development Plan 1997 Drait Denton Development Plan b. Moderate Activity Centers and Major Activity Centers The same criteria used for determining the low Intensity area boundaries should be followed except the model size is 60 acres. The location of these areas are outlined in the Plan. Logical planning boundaries shoutd be DELETED evaluated to ensure a network exists with the adjacent areas. 6. Inten-,ay Amendments As stated in tf:e Introduction to this chapter, "A change in an intensity standard is considered a major decision of the City." Incremental planning activities andlor decisions such as zoning and planning for utilities, DELETED drainage, transportation, and parks which can directly or indirectly ci17n£e intensity should be reviewed to determine the impact on the Intensity of the City. The review process consists of a study session by the Planning and Zoning Commission, a recommendation by DELETED the Commission to the City Council, and Council determination of the need for a change in the intensity. The Commission wili review requests by petitioners, land owners and staff at study sessions set quarterly. Notice will be provided to the public. If a petitioner or land owner, does not wish to wait until a scheduled study DELETED session, the petitioner or land owner must prepare a study containing the information below plus any information established as part of the procedures of the Planning and Zoning Commission. a. intensity analysis of all adjacent intensity areas. o. Impact of proposal on boundaries of adjacent areas. c. Effect of this proposal on the overall Intensity balance of the City. Inter sfty areas should be identified where intensity may be reduced (floodplain, parks, highways, etc.) to offset the increase. A study may be necessary to justify the reduction using the same criteria • for the original proposal, Lent use areas where intensity DELETED may be used to offset other land use areas are restricted i to land uses in the specific planning area under review and cannot be land uses already accounted for in the intensity formula as outlined in the Technical Appendix to the Denton Development Plan {a separate dott~:,.entl. 0 An increase that would change the overall intensity of • • the City should not be approved. it C AAA05252 - 27 - C... • 0 1988 Denton Development Plan 1997 Draft Denton Development Plan The study should us submitted to the staff for review. After the staff has reviewed the study, it will be submitted to the Commission. The Planning and Zoning DELETED Commission will then determine if a special study session is in order. The focus of the Planning and Zoning Commission study will be on the intensity question and the impact of changing an area's Intensity standard. Other planning DELETED decisions will be considered separately from the intensity question. i l r AAA05262 - 28 - • r • • I 1988 Denton Development Plan 1997 Draft Denton Development Plan C. Housing Objective 6, Housing. i The purpose of the housing policies is to encourage Alternative types of housing that respond to the alternative types of housing that respond to the differing differing economic and individual life-styles of Denton's economic and individual life-styles of Denton's citizens, citizens and that protect existing and future protect existing and future neighborhood integrity and neighborhood Integrity should be developed in all areas insure that the overall city-wide intensity policy is of the city to promote better utilization of Infrastructure, maintained. The following specific policies provide the more energy efficiency, reduced traffic congestion and guidelines for neighborhood protection and housing a sense of community. diversity within the context of the plan's intensity policies. 1. Housing Diversity Policy 6. 1. Housing Diversity. It is the policy of this plan that it is the policy of this plan that housing diversity be housing diversity be strongly encouraged in Denton as strongly encouraged in Denton as a whole. The policy a whole. The policy of housing diversity is closely of housing diversity is closely related to housing size, related to housing size, density and cost. Housing density and cost. Housing density is defined ;n units per density is defined in units per acre as low (0-lass than acre as low {0-51, medium (6-less than 12) and high (12 6), medium (6-less than 12) and high (12 and over). and aver). In striving for the goal of housing diversity, consideration should be given to the following: a. Provide a wide range of housing types in such Policy 6.2. quantities city-wide and sector-wide that correspond to The plan encourages the provision of a wide range of Denton citizens' financial capabilities and desires for housing types in such quantities city-wide and differing fife-styles. sector-wide that correspond to Denton citizens' financial capabilities and desires for differing life-styles. b, Emphasis should be given to the development of Policy 6.3. diversified housing in all sectors of the city, which also Emphasis should be given to the development of suggests that one housing type should not be diversified housing In a!I sectors of the city, which also concentrated in any one sector of the city. This policy suggests that one housing type should not be will tend to promote balanced growth which provides concentrated in any one sector of the city, benefits of balanced land values, better utilization of infrastructure, more energy efficiency, reduces traffic Policy 6.4. congestion and provides a sense of community in all There should be good site design transition between areas of the city. different housing types and density u ~ as, greenbelts, housing density gradation, and buf,~,.tg. c. Diversified housing patterns should be well planned • to insure that all neighborhood integrity is maintained. DELETED Examples of planning policies are: i 1} No type of housing overly concenbated in one area. Policy 6.5. 21 Good site design transition between housing types Roads should be designed so that higher density housing and density, greenbelts, housing density gradation and can be served without flowing through lower density architectural design. areas. 0 3) Transportation design so that higher density housing can be served without flowing through lower density Policy 6.8. O O J areas. Different modes of transportation should be Integrated 41 Pruvide for different modes of transportation to be within and bet teen neighborhoods and activity centers. integrated within and between neighborhoods and activity centers. Policy 6.7. 51 Create codes and ordinances to promote and Ordinances should maintain the quality of smaller sized encourage the quality of smaller size housing. housing. ! AAA05284 - 29- • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 1 2. Housing Cost and City Regulations Policy 6.10. Housing Cost and City Regulations. If it is important to Current trends In development standards have reduce the cost of housing by encouraging growth In the increasingly added requirements to encourage higher low to moderate housing market, according to, but not quality housing but In so doing have raised the cost of limited to, the following: housing by filtering these costs to the developer and then to the new homeowner. The policy of this plan is to reduce the cost of housing by encouraging growth in the low to moderate housing market. For example: a. Allow greater flexibility in the sitting of a house on a Policy 6.10.1. Mew greater flexibility in the siting of e tot, requiring only a ma).imum building coverage, front house on a lot, requiring only a maximum building yard requirement and fire separation. coverage, front yard requirement and fire separation. b. Provide more flexible tot width and depth requirements as long as the minimum lot size is Policy 6.10.2. Provide more flexible lot width and depth maintained. requirements as long as the minimum lot size is c. Explore and implement housing development maintained. concepts such as town houses or seml•detached houses sharing a larger recreationa: and green space. Policy 6.10.3. Explore and implement housing development concepts such as town houses or seml-detached houses sharing a larger recreational and green space. 3. High Density Housing Policy 6.8. High density housing should be dispersed throughout the 1 High density housing includes apartments and other city with limited concentration In any planning area. ! forms of housing with a density of twelve (121 units and over per acre. It is the policy of this plan that high density housing be dispersed throughout the city with limited concentration in any planning area. a. Moderate Activity Centers The plan encourages high density housing )h the moderate actlviry centers but limits the size of DELETED concentration to 760 'units' 1th die half, mite';1112} separation, (See policies In Section 81 ' b. Low Intensity Areas • Individualized sites or small areas throughout the City would be permitted only if it meets as a minimum the DELETED ` following conditions: • • • i AAA052e4 -30- 0 • • 1988 Denton Development Flan 1997 Draft Denton "velopment Plan II Direct access to a' collector street" or larger, thoroughfare. 21 Access to pedestrian, blko and public transportation (whenrvadahle)" 31 Strict site design review for Qtl prcjects within 1,fi00; DELETED feet of existing single family dwellings. The intent is to; protect exlsUng'ihousing' as a priority pollgy.by,ggoE, transition, screening, open space, landscaped i' 'nt yarns in character with nelghborhood.'.Th1s, poffcy",does;tSoE; prohibit rnulti-farnily within 1,600 feet of existing single; family housing, but does emphasize proper site plinnir}g.F 4) Not to exceed the overall intensity standard. 6) Existing street and other public facifitles are'adequaf6' Including capacity for alt modes of tum o' atlon 61 The size of apartment concantration° shall very between 100 and 200 units In on?'location,' depending' on access to a specific category of thoroughfare. (Refer to policies in Section 8). C 4, Apartments, Recreation Facilities and Site Planning Policy 6.9. Apartment,, Recreation Facilities and Site Planning. It It is recognized that multi-family developments place is rcco;.,l:ed that multi-family developments place greater strain on community recreational facilities. The greir.,r str do on community recreational facilities. The intent of this policy therefore is to encourage apartment int,.nt 0 this policy, therefore, is to encourage complexes to provide adequate open space and other e,,artmr,tt complexes to provide open space and other recreation facilities to meet the reeds of residents. ec ea on facilities to meet the needs of residents. Apartment complexes of forty-five units and over should ' Apar, nent complexes of forty-five units and over should proviOe facilities including, but not limited to swimming pro:,do recreation facilities Including, but not limited to, pool and exercise equipment. P rimming pool and exercise equipment. 5. Housing and Neighborhood Preservation Objective 7. Housing and Neighborhood Preservation. The intent of these policies as well as numerous o: ,er This Plan encourages the preser, ition and enhancement policies throughout this plan are Intended to preserve our of neighborhoods and the existing housing sio.;k of our • neighborhoods, the backbone of our community. This community, Including in the following ways: goal is reinforced by current unstabl3 economic conditions, dwindling resources, rising housing and energy costs and environmental concerns at the federal state and local levels. Therefore, the preservation of our existing housing stock becomes a priority. The foll,)wing are examples of specific policies: AAA052a4 - 31 - • r r i 0 a 1988 Denton Development Plan 1997 Draft Denton Development Plan a. Modify codes to encourage remodeling of housing Policy 7.1. and redevelopment of neighborhoods by providing Modify codes to encourage remodeling of housing and incentives in taxes and public facilities. This is not redevelopment of neighbonccods. This policy is not intended to provide incentives to indlvidvalr or to modify intended to modify health and safety codes. health and safety codes. Policy 7.2. Provide tax incentives for historic preservation. Policy 7.3. Provide or upgrade public infrastructure, such as streets and parks in older neighborhoods. b. The following genei.' policies are suggested for all neighborhoods, but particularly older neighborhoods: t) Cc-"e enforcement will have a priority in older DELETED neighborhoods. 2) Neighborhoods wll: be encouraged to interact with Policy 7.4. the Planning rind Zoning Commission, City Cwncil, other Encouragd neighborhoods to interact with the Planning pertinent boards, and City staff, and Zoning Commission, City Council, other pertinent boards, and City staff. t Policy 7.5. Encourage city and neighborhood forums and town meetings. Policy 7.6. Assist in the formation of neighbxhood associations. c. Special consideration shall be given for the protection Policy 7.7. of older residential neighborhoods which have been Give special cunsideratlon for the protection of older unproved or have benefited from Community residential neighborhoods that have been improved or Development Block Grant and similar federal or state ha 3 benefited from Community Development Block expenditures, These areas are specifically defined as Grant funded programs and projects and similar federal follows and shown on map on page 48, or state expend;cures. 1) Carroll Boulevard/University Drive: DELETED An area bounded on the south by University Drive, on A the east by Bell Avenue, on the north by Coronado Drive, Locust Street, O,r Street and Highv,ay 77, end on the west by Carroll Boulevard. 2i Carroll Boulevard/West Hickory: An area bounded on the south by West Hickory, Welch at d Sycamore Stree' on the cast by Carroll Boulevard, 0 on the north by th south property line of retail and 0 d office uses abutting University Drive, and on the west by Malone, Scripture and Bonnie Brae. AAA05284 - 32 - • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 3) South Cerioll/Eagie Drivo 0 An area bounded on the 'so6th oy, 135) , ° serf end Greenlee Street s,pro)ectad along'a ~tralght Erie",to Fort worth Drive, on the east by Foft WorthDr)ve and 5664 Carroll,"on the north by Eagle Drive on on. It westt by Collier Street, 4) Morse Street/Woodrow and Audio An araa.bounded on the southtby Dallas DrtVer utlcar ,F and Kerley Street °end, the' north pr,4atty line e7ong ! Shady Oaks Drive, on the'cesttiy WQOdicv{ d4' Audrd'? DELETED Lanes, qtr the north by Wayne and Mo tnno Stieeis arid` on the west by the iailr'oed;'Prerne Strsat, A''enug fi end the railroad to Deiias Drive, 5) South CerrolllParkway: An area bounded on the south by {'arkvuay Street, ot~' the east by Oaklacd and Loeust Streetp, pn tNe riarth lily'; DELET'EO Unlversjty and on'tha west by south Carroll,, ' C 6) Oak=Hickory Historic District An area comprlstng blctka number 8, 329'336, 338; 476 and 488 and part of black 475.:7ha boundaries oTg DELETED the Historic District may be 'amended frorn tima`to t(ifl9 over tho plan period, 7) Additional Aroast Other areas may be added to this list from tintet0 As)18 DELETED over the plan period. 1 d. In reviewing zoning, subdivision, capital Policy 7,3. improvements and other proposals, exLtting In reviev.ing zoning, subdivision, capital Improvements neighborhoods will be given specific consideration to and other proposals, give existing neighborhoods • ensure stability. Compctible redevelopment Is specific consideration to ensure stability. encouraged, including the priority expenditure of public funds over newly expanding areas. Policy 7.9. Support compatible redevelopment through a variety of ' means, Including where appropriate, the expendituro of public funds. Specific review criteria will include: Policy 7. 10. Encourage upgrading or eliminating deteriorating, t • ` 1} Upgrading or eliminating older deteriorating unsafe, and flood prone structures to the extent that it ../14 structures will be encouraged to the extent that it Is Is judged positive for the overall nelghborhood and C judged positively for the overall nelghborhm-ad. consistent with historic preservation and flood plain policies, plans, end ordinances. l~ AAA05284 -33- ~ nl • • I ~ 1988 Denton Development Plan 1997 Draft Denton Development Plan 2) Review criteria will consider the impact of proposed Policy 7.111. development in areas adjacent to or nearby existing When considering development in older adjacent or i older neighborhoods. Proposed development In nearby nearby neighborhoods, the development should be neighborhoods should be judged by the same design and judged by the same design and development standards development standards that would be applied if the that would be appled if the development was proposed development was proposed In the existing neighborhood. In the existing neighborhood. 6. Spot Apartments in Older Neighborhoods Some older neighborhoods have been opened up to apartment development and there are some unique parcels that are not suitable for further single family development. If higher density housing Is to be allowed, DELETED then, it Is the policy of this plan that existing single family will have a priority for preservation. For example,. a. Apartments in the older neighborhoods in addition to Policy 7.12. complying with the concentration and separation policies Apartments in Older Neighborhoods. Apartments In the of this plan should also have strict site design standards older neighborhoods in addition to complying with tho such as: concentration and separation policies of this plan ahould also follow strict design standards such as: 1) Landscaped front yard, setbacks equivalent in site u) Landscaped front yard, setbacks equivalent in site and character to the adjacent single family, and character to the adjecont single family. 2) No parking in front yard of the complex. b) No parking In front yard of the complex. 3) Limited concentration on any one block (two per cl Limited concentration on any one block (two per block as maximum guideline), block as maximum guideline). 4) Side and rear yard solid screening fences. d) Side and rear yard solid screening fences and landscaped buffer yards. INSERT MAP HERE: "Neighborhood Preservation Map' -14 • ■ AAAOc294 -34- q . n1 • k f • • i I - 1988 Denton Development Plan 1997 Draft Denton Development Plan D. Transportation Objective 8. Transportation. 1. Purpose and Intent The objective of the long-range thoroughfare plan Is to avoid congestion, protect low Intensity areas and The transportation system is the binding force that ties existing neighborhoods, and facilitate mutti-modal the land use pattern together. Land use intensity and transportation opportunities by providing larger distribution must be served by a planned transportation thoroughfare capacities (freeway, primary and secondary system. The major purpose of a long-range thoroughfare artertals) to serve the major and moderate activity areas plan is to insure that today's incremental decisions not and collector and residential streets to servo the low only respond to today's needs, but also contribute intensity areas with predominantly residential land uses, towards the long-range Land Use/Transportation balance with a network of sidewalks, bikeways, recreational for the City. The designation of a center to trails, and transit routes, accommodate high Intensity type developments in the future will require a commitment now with respect to Policy B.1. major thoroughfares to serve that center. Thoroughfare and Collector Street Classification and Policy: in designing the thoroughfare system adequate Policy 8.3. consideration must also be given to ensure that In designing the thoroughfare system adequate commercial and Industrial traffic are routed through consideration must also be given to ensure that major thoroughfares and not allowed to flow through commercial and Industrial traffic are routed through single family residential neighborhoods. It is the Intent major thoroughfares and not allowed to flow through of this plan that Denton's transportation system should single family residential neighborhoods. Further, traffic react to the cummun;ty's plan and not have planning should ensure that no local residential streets r transportation be reactive to unplanned growth. are utilized for general circulation to the high or moderate Intensity developments. 2. Long Range Thoroughfare Plan The long range thoroughfare plan is based on a modified corridor concept with major intensity land uses in three urban centers generally following the Interstate 35 corridor and including the downtown center. The overall basic transportation policy is to provide adequate DELETED facilities to meet city wide mobility needs In the future. This includes auto, bike, scooter, pedestrian, and local end regional mass transit. The long-range thoroughfare plan is shown on the map on page 53. • The long-range thoroughfare plan is based on the rationale that larger thoroughfares with improved levels of service stimulate Increased business activities which in turn generate more traffic. The major objective of the long-range thoroughfare plan therefore is to provide larger thoroughfare capacities (freeway, primary and DELETED secondary arterials) to serve the major and moderate • activity centers and collector and residential streets to serve the low intensity areas with predominantly • • residential land uses. There are also cases In which a major thoroughfare is needed to connect major sections of the City. I I AAA05253 - 35- r I . • 1988 Denton Development Plan 1997 Draft Denton Development Plan 3. Thoroughfare Classification Policy 8.1.1. Freeway. The freeway classification includes the Interstate Highways and Loop 288. Keep a. Freeway Loop 288 as close as possible to a freeway even though portions of the existing Loop are not In conformance The freeway classification Includes the Interstate with freeway specifications. Highways and the Loop 288. It is the intent of this plan to keep the Loop 288 as close as possible to a freeway even though portions of the existing Loop are not in conformance with freeway specifications. b. Primary Arterial Policy 8.1.2. Primary Arterial. These streets transverse the City usually with a minimum of 120 feet These streets transverse the City usually with a right-of-way. minimum of 120 feet right-of-ways. Landscaped boulevards and parkways rre preferred, if economically feasible to construct and maintain, c. Secondary Arterial Policy 8.1.3. Secondary Arterial. These streets connect major sections of the city and usually have a minimum These streets connect major sections of the city and right-of-way of 80 feet. usually have a minimum right-of-way of 80 feet. d. Collector Streets Policy 8.1.4. Collector Streets. Collector streets carry traffic from local streets to thoroughfares. Collector These are specified in a separate map that is updated streets should usually have a minimum of 60 feet yearly by the Planning and Zoning Commission and right-of-way. modified as needed by subdivision review of detailed site plans. Collector street design includes consideration for all modes of individual transportation. The location and development of collector streets are subject to the following considerations: 1) Collector streets usually have a minimum of 60 feet Policy 8.1.8. Collectors may be offset at half-mile right-of-way. Intervals. 2) At least one collector street per area between arterlals to carry neighborhood traffic to the primary and secondary arterials. • 3) Collector street (or larger) required for higher intensity land uses such as apartments, Lldustrial areas, and commercial areas. 4) As Intensity Increases, the number of collectors streets increases. AAAO5263 - 30- { y` • nom.-.rte r~-+ • Lit-~.-r......-........, a+w~r , • M 1988 Denton Development Plan 1997 Draft Denton Development Plan Collector streets should not be designed to incrementally policy 8.1.5. Collector streets should not be designed link-up to serve as a primary or secondary arterial, to link-up incrementally so as to serve as a primary or Collectors may be offset at half-mile intervals. This secondary arterial. procedure is the same as setting policy to change land use intensity. If such a land use Intensity change Is desirable, this plan should first be changed to so Indicate the activity center prior to designating a new arterial on the thoroughfare plan. 4. Curb Cuts Policy 8.4.1. Loop 288. The long range plan Is to have controlled access to the Loop. Therefore, all new a. Loop 288 developments will not be allowed direct ac^.ess to the Loop and will be required to have alternative aLC45a to The long range plan is to have controlled access to the Include the provision of parallel access roads. Existing Loop. Therefore all new developments will not be developments located between US Hwy 380 and 1-35E, allowed direct access to the Loop and will be required to that have direct access will be reviewed with the have alternative access. Existing developments which objective of removing or realigning curb cuts. This have direct access will be reviewed with the objective policy shall not be used so as to result in a landlock of removing or realigning curb cuts. This policy shall not situation when there Is no other feasible alternative. be used so as to result in a land lock situation when there is no other feasible alternative. INSERT MAP HERE: "Long Range Thoroughfare Plan" Policy 8.2. The thoroughfare and collector street map Is shown on C the Concept Map. b. Primary and Secondary Arterials Policy 8.4.2. Primary and Secondary Arterials. The primary aed secondary arterials are Intended to serve as The primary and secondary arterials are ntended to major routes to carry high volume traffic. It is the policy serve as major routes to carry high volume 'raffic. It Is of this plan therefore to strictly limit the number of the policy of this plan therefore to strictly limit the driveway accesses to arterial streets. Greater emphasis number of driveway access to arterial streets. Greater should be given to on site circulation of tra'fic In ell emphasis should be given to on site circulation of traffic developments abutting primary and secondary urterials. in all developments abutting primary and secondary New developments shall be required to provide access arterials. through a parallel access road. 5. Thoroughfare Plan Notes Policy 8.6. All existing county roads that are not shown as primary a. General and secondary arterials are to be designated as collector streets. In the process of development, these are to be • 11 All existing aunty roads which are not shown as redesigned so that they do cot incrementally link up to primary and secr ndary arterials are to be designated as serve as arterials. However, future functional status of collector streets. In the process of development, these these roads may chd:rge; ;herefore, 80 feet of are to be redesigned so that they do not Incrementally right-of-way may ba required of all development link up to serve as arterials. However, future functional adjacent to ImproveJ county roads. status of these roads may change therefore, 80 feet of right-of-way would be required of all development j • adjacent to improved county roads. I • 2) If land use changes occur that will significantly Policy 8.7. Increase the planned Intensity, then the thoroughfare If land use or concept map changes occur that will plan will be modified to reflect the need for more aignificbntfy Increase the planned Intensity, then the thoroughfares. thoroughfare plan should be modified to reflect the need for more thoroughfares. AAA05253 - 37 - • i r • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 3) The thoroughfare plan is based on the long range concept plan. Any significant variations of the concept plan will necessitate the updating if the thoroughfare plan. b. Specific IRefer to map on page 53) DELETED 11 Tedingua Street will only access onto the east bound Policy 8.9. lane of Loop 288. If the northern Texas Instruments' Nicoscia Street and Windsor Drive will not cross tract develops with the same Intensity as the s,)uthern Loop 288, tract then an interchange may be required. 1 4 Trinity Road will not connect to Lakeview Boulevard. DELETED 3) Corbin Road will not provide an access or exit to or DELETED from 1-35W. 4) Tom Cole Road will be re-routed because of the flood DELETED plain. 5) Windsor Drive will only access onto the southbound DELETED lone on Loop 288 6) Nottingham Road Is not to be continued to DELETED Loop 288. c, North Carroll Boulevard Extension f The vital functions of the downtown center demands that it has direct access and arterial linkage to the north west urban center. Cerrofl Boulevard as a primary northlsouth arterial, offers a potentially strong arterial linkage to Highway 77. It is the policy of this plan that Carroll Boulevard should be maintained and Improved as DELETED a major north/south thoroughfare across the city. It is further recommended that a dotatled traffic management study be conducted to identify and evaluate all possible alternatives and impacts prior to the imptb-. ntadon of this project. d. Bell Avenue • it Is recognized that there is a need for a major, north/south thoroughfare In the east section of the City. However the Increased flow of traffic thrCUgh Bell Avenue is not in the best interest of the University; DELETED coirr,unlty. It is recommended that a` traffic` management study be conducted to Identify a new, north/south arteriat in that part of the City. © 6. Miss Transit Policy 8.10. O 8 Macs Transit. The Plan will give a high priority to a It is recognized that mass transit plays an important role localized mass transit system that provides easy access in meeting the overall transportation needs of the City in to and from ell activity areas In the City. the future, The mass transit policies of the plan are set out as DELETED follows. AAA05253 - 38- • 0 all • r v l 1988 Denton Development Plan 1997 Draft Denton Development Plan f I ~ a. Give a high priority to a localized mass transit system which provides easy access to and from all activity areas in the City. The local system shall be designed and laid DELETED out so that it complements a regional mass transit system. An internal system showing possible local routes and stops Is incorporated In the map on page 59. b. Lay the foundation for a regional mass transit system Policy 8.11. which will connect the City of Denton with Downtown The local system shall be designed and laid out so that Dallas, the Galleria area of Dallas, Dallas/Fort Worth it complements a regional mass transit system which Airport, Las Colinas, and the Fort Worth corridor will connect the City of Denton with Downtown Dallas, Q-35W). the Galleria area of Dallas, Dallas?Fort Worth Airport, Las Colinas, and the 1-35W corridor. c. The City shall consider preparing a layout plan which Policy 8.12. will Identify specific sites to be acquired for the The City shall consider preparing a layout plan which implementation of a mass transit system. will identify specific sites to be acquired for the Implementation of a mass transit system. d. The mass transit system should be integrated with Policy 8.13. the layout for walking, biking and jogging. The mass transit system should be integrated with the layout for walking, biking and jogging. 7. Pedestrian and Bicycle The plan recognizes the need to provide greater opportunities to promote and encourage walking and DELETED cycling as Individual modes of transport. A policy recommendation of the plan is that priority be Policy 8.14. given to the preparation of a master plan for walking, Pedestrian access and bikeways. A comprehensive biking and jogging paths. The master plan shall Include system of sidewalks, trails, and bikeways should be built the following guidelines; according to a master trails plan, such as the Comprehensive Trails Plan of 1997. e. Sidewalks on both sides of most streets except: DELETED 1) If it will not tie into the 20 year pedestrian plan. DELETED 2) In cases of unique subdivision design which provides DELETED for acreage lots, near pedestrian access. • b. Pedestrian access to all public and community facilities Including commercial sites and perks, DELETED particularly neighborhood parks. c. Inter-connected system of biking and Jogginp trails to DELETED link up with facilities in the parks. „ w 2 r , t~ i _y F'pllcy 8 4 3 r rYraftic; l9Vali ¢f Ur vice `G' acid beget- - • sh¢UIdy~B 4~Itr~0u('$ged ` ~ n y ~ ~t~ w `qtr ~ • • i J L`andstepa yboulvti~de ertd !parkways s~toukl ndt.n~ce~rfs:>7.; I er~ped. (evAM l trY~r~ht IN AT ent~nE AAA05253 39- , . 44 • • 1988 Denton Development Plan 1997 Draft Denton Development Plan rfgtiC~r~gs"* uti~ iwyAw,""~~~ca•~"u'4'`~.w^"~ At~~ de'cr> °sing of tbop 288 aftnutC Le apt Wart .~ibsAl`u~s it`.~nlinum ~'~'~a'~'i`~x~F'^~:~.~~,~~~,`<~~~'•', COMPREHENSIVE TRAILS PLAN MAP INSERT MAP HERE: 'Local Mass Transit System" INSERT MAP HERE: "Regional Mass Transit System" i r . • • 1 AAA05253 _ -40- r, I ~ 1988 Denton Development Plan 1997 Draft Denton Development Plan E. Economic Development Objective 9. Economic Development. 1. Purpose and Intent This Plan calls for strengthening and diversifying a self sustaining economic base, creating a wide range of The overall policy of the Denton Development Plan is to employment opportunities, and expanding the tax base strengthen and diversify the urban economic base to of the city. create a wide range of employment opportunities and expand the tax base of the city. This policy is intended to attract basic Industries and to Policy 9.1. encourage existing basic industries to expand locally. The City may consider development Incentives as an All business establishments which produce goods or appropriate means to attract new Industries and cost services at least 51 % of which Is directed to serve beneficial business and offices to locate in the city, and people outside the City of Denton are considered basic to encourage existing Industries to expand locally. industries. The City may consider development Incentives to attract new basic industries to locate in the city and to encourage existing basic Industries to expand locally. The guidelines for determining the type of incentives and the specific businesses which may qualify are given in Section E.3 below. 2. incentive Policies Policy 9.2. Development Incentives may vary by size and type of Development incentives may vary by size and type of establishment and its initial and potential capacity as e C establishment and its initial and potential capacity as s generator of employment and other economic gains. generator of employment and other economic gains. Priority may be given to basic industries that are Priority may be given to basic industries which are generally clean and that will make a significant generally clean and which will make a significant contribution to employment and city tax base. contribution to employment and city tax base. Incentives may include but not limited to: a. The City may give assistance with the extension of Policy b0. utility services and streets to the proposed site. This Incentives may Include but not limited to: assistance may Include the waiving or postponement of Infrastructure development where this is possible. a. City-assisted extension of utility services and streets to a proposed site, and may also Include the waiving or b. The City may waive the application of Intensity postponement of Infrastructure development where this policies so as to accommodate the proposed is possible. development on a specific site. This waiver should not e be Interpreted to mean that site planning, urban design b. Waiver of the application of intensity policies so as or neighborhood protection policies are to be to accommodate the proposed development on a compromised. specific site. This waiver should not be Interpreted to mean that transportation planning, urban design or neighborhood protection policies are to be compromised. II 1, I e ~ • o f AAA05254 -41 - • r . ,r dS .....w Ar+..-W.+.+~,: • is 1'\ rat , 1 i-I • • 1988 Denton Development Plan 1997 Draft Denton Development Plan 3. Guidelines for Considering locaritives Policy 9.4. Guidelines for Considering Incentives. The consideration The consideration of incentives shat[ inctuda but not be' of incentives shall include but not be limited to the limited to the following guldefrnes. Tvpos of buslnessas, following guidelines: that may be considered for special assistance must first, meet all of the following criterla. a. The City of Donlon shall ir.-tigate a cost/benefit analysis study before granting economic Incentives. e. All business listed In the Standatd> Industrial Through grants, abatements and Improvements the City Classification (SIC) of the Department of Comma too; of Denton can subsidize growth. In many cases, there except for groups 52-59 under retail tredo may bb' are benefits to the community associated with this considered forlncentlves. growth. b. In order to be considered basic,ell businesses or, b. This cosilbenefit analysis shall include the costs of industries must be eSle'to Show,that at fBast`'5[% Of"' public services and infrastructures associated with their goods or services are' directed to serve poop 6, growth-including water, sewer, and electrical services; outside the City of Denton. storm drainage; roads; parks and recreation; and, fire and police services. C, Corporate, office headquarters of a fetaller',,' manufacturer or distributor Including, a regional DELETED distribution center may be considered for lncent(vei.' Speculative offices or warehouses will 6ualifV,, d. When a business or industry meats the criteria iistod In a, b, or c In thls sectfori then the City may,rnstfgaie`a' public investment study to determine if the Cfty,"'y, DELETED grant Incentives.` This public Study Wili be based on,trta following: 1. A pre-set, written methodology. DELETED 2. A pre-set public investment study group comprised Policy 9.5. of appropriate C;ty staff members and the Director or The Planning and Zoning Commission may make Economic Development for the Denton Chamber or recommendations to the City Council on the specific Commerce. nature and type of Incentives to be given in a pre-set written methodology. It the result of the public investment study shows a positive cost/benefit ratio, then the public Investment study group will forward the report to the Planning and DELETED • Zoning Commission with a recommendation that the business or industry be considered for Incentives if said incentives are requested by the business or industry. The Planning and Zoning Commission will act on the report only if the business or industry requests incentives. Planning and Zoning's recommendation will DELETED be forwarded to the City Council for its review and O decislon. O • e. The Plannl -,g and Zoning Commission may make recommendations to the City Council on the specific ` nature and type of incentives to be given and the DELETED } definition businesses to be Included or excluded from the Incentive program. • AAA05254 -42- • • t II E 1988 Denton Development Plan 1997 Draft Denton Development Plan f. The economic development policies of this plan Policy 9.6, should not be used in any way to allow certain land use The economic development policies of this plan should developments in the city simply because these are not be used in any way to allow certain land use perceived to have positive economic benefits. development in the city simply because these are perceived to have positive economic benefits. F. Parks and Rec1 ae tion Objective 10. Parks and Recreation. 1. Purpose and Intent An objective of this Plan is to provide high quality parks, recreational opportunities and open spaces for leisure The plan recognizes the need to provide adequate parks activities and to enhance Denton's quality of life. and open spaces for the citizens of Denton for leisure activities and to enhance the quality of life. The general concepts and policies are intended to provide guidelines for related land use planning and preparation of a more detailed master plan for parks and recreation. 2. Park Planning Policies and Guidelines Policy 10.1. Neighborhood Parks and Open Spaces. Neighborhood a. Neighborhood Parks and Open Spaces parks and open spaces are typically 5 to 20 acres in size and are Intended primarily to serve a neighborhood Neighborhood parks and open spaces may vary in size within one half-mile radius of the park site. from 5 to 10 acres and are Intended primarily to serve a neighborhood within one half-mile radius of the park site. Policy 10.2. The general features, location and design criteria for The general features, location and design criteria for neighborhood parks and open spaces should Include but neighborhood parks and open spaces should Include but not be limited to the following examples, not be limited to the following: 1) The park should be in a central location within the Policy 10.2.a. The park should be In a central location neighborhood. within the neighborhood. 2) Emphasis Is given to pedestrian access, including an Policy 10.2.b. Emphasis shou'd be given to pedestrian interconnected system of sidewalks for the entire and bicycle access, Including an Interconnected system neighborhood. of sidewalks for the entire neighborhood and access to the master plan for walking, hiking, and jogging, 3) On-site parking Is prohibit<i and parking along Policy 10.2.c. Parking should be provided along adjacent streets is to be contra ilea, adjacent streets andlor constructed on-site. i 4) Recreation and leisure activities should be provided Policy 10.2.4. Recreation and leisure activities should to meet the needs of the neighborhood. League type be provided to meet the needs of the neighborhood, • t activities ae discouraged. Landscaped open spaces, Landscaped open spaces, facilities for picnics, facilities for picnics, walkways, jogging paths, park walkways, logging paths, park benches, and playground benches, and playground equipment including slides and equipment are to be made available. Sports fields swing sets are to be made available. Facilities for should to designed for open play only as opposed to neighborhood gatherings, Including "book mobile" visits organized league play. Sports fields will not be lighted are encouraged. for play. Facilities for neighborhood gatherings should be considered In design, Security lighting shall be p provided. • @ AAA05254 -43- • I 1988 Denton Development Plan 1997 Draft Denton Development Plan 5) The neighborhood parks should play an important Policy 10.2.e. The neighborhood parks should play en role in setting standards for community aesthetics. important role in setting standards for community Their location, design and layout should enhance the aesthetics. Their location, design and layout should quality and visual amenity of residential neighborhoods, enhance the quality and visual amenity of residential Plantings, sculptured forms, ponds and fountains may be neighborhoods. Plantings, sculptured forms, ponds and used for ornamentation. Contouring surfaces, masonry fountains may be used for ornamentation. Contouring and other techniques may be used to provide both eye surfaces, masonry and other techniques may be used to appeal and utility. provide both eye appeal and utility. 6) Neighborhood parks and open spaces may Include Policy 10,2.f. Neighborhood parks and open spaces natural areas sv:h as flood plains and lakes. may Include natural areas such as flood plains and lakes. 7) Civic organizations and neighborhood associations Policy 10.2.9. In cooperation with the Parks and are to be encouraged to accept the responsibility for Recreation Department civic organizations and developing equipping and enhancing of neighborhood neighborhood associations may develop, equip and parks and open spaces. enhance neighborhood parks and open spaces. b. Community Parks Policy 10.3. Community Parks. A community park Is typically 30 A community parK of 30 acres or more is intended to acres or more and is intended to serve several serve several neighborhoods of one to two miles radius, neighborhoods, ";G);n a one to two miles radius. The general features, location and design criteria for community parks should include but are not to be limited Policy 10.4. to the following examples. The general features, location and design criteria for comr.iunity parks should include but are not to be limited to the following: 1) A central I„catien within the service area. a) A central location within the service area. 2) Direct access to a colloetcr or secondary major b) Direct access to a collector street or an arterial arterial. street. 3) Adequate on site parking, c) AdeqL,ate on-site parking. 4) Designed to accommodate bikino and jogging trails d) A design •o accommodate multi-use trails as part of as part of a master plan for wnik'ng, biking ano ;egging. a master plan for walking, biking and jogging. 5) Provide leisure and recrea ton facilities to serve t q e) Provision of leisure and recreation faciAtles to serve community Including but not Iii tited to recreation center, the community Including but not limited to recreation swimming pool, athletic con plea, hard surfece play pad, center; swimming pool; athletic complex; hard surface • game fields for tennis, football soccer and base: all, open play pad; tennis; game fields for football, soccer and space and natural areas for passive recreation and baseball; open space; and natural areas for passive facilities for group events. recreation; and facilities for group events. Policy 10.6. Citywide Parks. This type of park Is typically 100 acres or more and Includes both passive and active 1- 0 recreational facilities, as well as a significant amount of • undeveloped land or nature area. Citywide parks J contain unique, 'one of a kind' developments, such as e botanic gar%en, festival site, athletics complex or aquatics centers. Such parks are Intended to serve the entire city and act as a destination for tourlsts and visitors. Examples of citywide parks ere North Lakes, Civic Center and South Lakes. AAA05254 - -44- • r' • _ I F1988 Denton Development Plan 1997 Draft Denton Development Plan i c. Greenbelt/Linear Parks Policy 10.6. Greenbelt/Linear Parks. Maximum utilization of flood The policy of the plan is that maximum utilization of plain areas for parks and open spaces should be flood plain areas for parks and open spaces should be encouraged. The general concept is that there should encouraged. The general concept Is that there should be be a continuous belt of open spaces and park land with a continuous belt of open spaces and park land with adequate landscaping so as to provide facilities for adequate landscaping so as to provide facilities for picnics, unorganized sports play and multi-use trails. organized games, picnics, ball fields, bike ways, hiking, logging, and pedestrian trails. Their general purpose and uses should include but not be limited to the following: 1) Provide natural corridors to connect major sections of Policy 10.7. the city with continuous belts of park land, The general purpose and uses of greenbelts and linear parks should include but not be limited to the following: 2) Preserve natural vegetation and the topography. 1) Provide natural corridors to connect major sections 3) Provide a wide range of recreation and leisure of the city with continuous belts of park land. facilities, including, open space for games and picnics, and biking, hiking and logging trails as part of the Parks 2) Preserve natural vegetation and the topography. and Recreation master plan. 3) Provir's a wide range of recreation and leisure facilities, Including, open space for games and picnics, and biking, hiking and logging trails as part of the Parks and Recreation master plan. 4) The following locations are recommended: Policy 10.8. The following are examples of greenbelt park locations: a) Areas along Pecan Creek east of Woodrow Lane to Lake Lewisville. a) Areas along Pecan Creek east of Woodrow Lane to Lake Lewisville. b) Areas along Hickory Creek from the Municipal Airport to Lake Lewisville. b) Areas along Hickory Creel. from the Municipal Airport to Lake Lewisville. c) Areas In the north and northeast along Milem Creek and Clear Creek ircluding adjacent areas to the Elm Fork c) Areas in the north and northeast along Milam Creek Trinity River, and Clear Creek, and the Elm Fork of the Trinity River. d) Linear parks outside the flood plains interconnecting d) Linear parks outside the flood plains Interconnecting activity areas with park and open spaces along Carroll activity areas with park and open spaces along Carroll • Boulevard. Boulevard. e) Areas along Fletcher Creek from Long Ridge to e) Areas along Fletcher Creek from Longridge Street to Hickory Creek. Hickory Creak. j f) Cooper Creek from Old North Road to Lake Lewisville. • d. School/Park Sites Policy 10.9. • • School/Park Sites. Neighborhood parks, community ;I Neighborhood parks and greenbelt parks are to be parks and greenbelt parks are to be Integrated whenever C integrated whenever possible with a school site, possible with a school site, enabling the sharing of enabling the sharing of public facilities such as public facilities such as buildings playground equipment, playground equipment, play areas, parking area, and play areas, sports facilities, pathways, parking area, and open spaces. open spaces. i AAA05254 -45- 0 _ w r -L • • - I i I 1988 Denton Development Plan 1997 Draft Denton Development Plan L ~ e, Acquisition of Land for Parks and Public Open Spaces Policy 10.10. Acquisition of Lend for Parks and Public Open Spaces. Developers may be required to participate In the Developers will be encouraged to provide park land to provision of park land to meet needs irr, accordance with meet needs, in accordance with the City of Denton the City of Denton Parks and Recreation Master Plan, in Parks and Recreation Master Plan. In some cases, this some cases this participation may require the payment participation may permit the payment of fees in lieu of of fees in lieu of land. land. The Parks and Recreation Master Plan should clearly identify potential sites for park land, assisting a DELETED developer In determining the location and size of the site. G. Urban Desian Objective 11, Urban Design, 1. Purpose and Intent Design of the urban area should Improve and enhance the general image and character of the built The plan recognizes the need to encourage and pr( mote environment, including through the following steps: a high standard of urban design to Improve and enhance the general image and character of the built environment. The overall policies are intended to provide a framework for preparing detail plans and ordinances for implementation in the short to medium term. 2. General policies Policy 11.1. \ Protect and Improve the design, Image and character of ) a. Protect and improve the design, image and character residential neighborhoods. of residential neighborhoods. b. Develop and maintain a system of pedestrian Policy 11.2. movement which is convenient, safe and pleasant. Develop and maintain a system of pedestriai movement that is convenient, safe and pleasant. c. Encourage the retention of existing vegetation and Policy 11.3. discourage the removal of significant trees. Encourage the retention of existing vegetation and discourage the removal of significant trees, as defined by the Denton Landscape Code. d. Preserve the varied historical, architectural and Policy 11.4. cultural Inheritance of the City of Denton. Preserve the varied hlst-irical, architectural and cultural e heritage of the City of Denton. e. Encourage and promote development along the entrance ways that will enhance the City's Image. Refer DELETED r to specific policies in Section D, Chapter 4. 3. Specific policies Policy 11.7. Require landscaping for all developments except one and e a. All developments except single family shall be two family residences. required to provide appropriate landscaping. • J b. Trees shall be preserved whenever possible. DELETED } f AAA05254 -46- • • i 1988 Denton Development Plan 1997 Draft Denton Development Plan I c, Developments along entrance ways to the City shall Policy 11.8 conform to the following: Develop Gateway/Entranceway Marketing Concept: The Fantus report alluded to Denton's brand image for 1} Strict compliance with die sign'0'dirtance., attracting business investments and the need to beautify the gateways to enhance long term "curb app:al", The 2) Provide attractive tands6eiped lronteges ; , , strategic planning efforts of the Visions program made specific recommendations with regard to defining and 3) Require minimal curb cuts with errtph`asis on the developing Denton's entranceways. The Plan internal circulation of traffic on site.x recognizes the need to promote public-private partnerships in developing and funding specific q entranceway projects including but not limited to is entranceway markers, public art and customized landscaping. H. Balanced Growth Objertive 12. Geographically Balanced Growth. 1. Purpose and Intent Development should take place in all areas of the city to promote efficient use of utilitiss and Infrastructure as Under current poticivs the financing of utility services, well as provision of city services. roads and otter public facilities tend to follow real or perceived growth instead of responding to planned growth, The Land Use Committee recognizes that this j policy contributes to continued growth towards the scutheast. This could ultimately result in Denton being b fart of the northern suburbs of Dallas. The Committee L felt strongly the current trend policy should be changed to a policy that promotes balanced growth, Therefore, the balanced growth policy of this plan is: "When public funds or efforts are expended they are to Policy 12.2. be directed towards supporting planned growth. Public funds or efforts should be expended only toward Planned growth is defined as growth that responds to supporting growth that responds to the development the development policies and land use pattern In this policies and land use pattern In this plan. document." The intent of this policy is to promote an equitable distribution of development throughout the City. The promotion of balanced growth includes all public support fur development, both monetary and nonmonetary. Specifically, with respect to public funds, this policy encompasses the total amount of development funds • from all sources, which is budgeted, bonded and DELETED expended. Equitable distribution of development In all i the planning areas should be Interpreted as equal support for development and not dollar for dollar expenditures. As some planning areas develop to capacity, then emphasis should be given to budgeting • for maintenance. The five planning areas are defined in j the map on page S. O O I AAA05254 -47- • • 1988 Denton Development Alan 1997 Draft Denton Development Plan The major determinates of where growth locates are as follows. I a. Utility Facility b. Roads DELETED c. Public Community Facilities d. Social Po! tical Factors • It is noted that Cris includes a wide range of activities from personal attitudes to Chamber of Commerce type activities, economic development, special promotions of development in a specific area, etc. It is recognized that in order to promote planned growth, Policy 12.1. 1 it may be necessary in some cases to divert public The development of the northwest major activity area funding for utilities, roads and other infrastructure to comparable to that of the southern major activity area ' lead development in the slow growth areas such as the will be promoted and supported. northwest. However, the intent of the balanced growth policy is that such activity be only part of a total Policy 12.3. program. Therefore, the following guidelines are It is recognized that in order to promote planned inflll provided to clarify this total program intent: growth, it may be necessary in some cases to direct public funding for utilities, roads and other infrastructure to lead development and promote the effic •,n: use of I public resources. - Implementation should be a coordinated program that Policy 12.4. includes all of the above growth determinates. This Implementation should be a coordinated program that suggests that implementation of the four growth deter- includes all growth determinants such as utility minates should not be independently or arbitrarily extensions, road construction, public community facility applied. development, marketing, and economic development incentives. For example, just applying it only to roads, without consideration of the other three, would not be following DELETED the intent of this policy. In summary, the Land Use Planning Committee agreed ! that the city should "dare to try" the balanced growth i concept and that emphasis should be given to creative DELETED • implementation techniques based on what can be done as opposed to what cannot be done. 2. Tmplementation Examples Policy 12.5. Emphasis should be given to work out creative The following examples are given to further clarify the implementation techniques to achieve the goal within intent of the balanced growth policy: The implementa• what is practical under specific circumstances. N tion guidelines should not be limited to the examples given, in some circumstances, a particular example may E O 0 not be applicable. Emphasis should be given to Work out creative Implementation techniques to achieve the Intent of the policy based on what Is practical under` specific circumstances. AAA05254 - 48 - r - - • • 1988 Denton Development Plan 1997 Draft Denton Development Plan a. Roads and Utilities Implementation Alternatives 1) Bonding capacity should be reserved so as to DELETED promote balanced growth in all the planning areas. 2) It any one planning area has utilized more than its planned share ! ofpublic funds in the future, then DELETED emphasis should be given to the other areas where development is lagging. 31 Incremental financing through revenue bonds may be used to install water and sewer lines in accordance with the city master utility plan at the time when a project is DELETED proposed. to this case, the actual cost of the facilities is paid through revenue bonds and all transfer and service charges are paid by the developer. 4) Another alternative. is to set up reserve contingency DELETED funds for each planning area. 5) The city could actually install major roads and trunk lines for water and sewer in all areas of the city according to applicable master plan. This policy can be DELETED used to stimulate development to achieve city wide bo:anced growth. This policy could also be used selectively; le., the airport area a^dlor northwest Denton. b. Social-Political Program Examples The social-political roles which influence the location of growth within the city include the activities of the State Department of Highways and Public Transportation, the school district, the Chamber of Commerce, the County DELETED and the City Council, The following are only examples of alternative strategies which may be used to implement the balanced growth policy; 1) The Planning and Zoning Commission and the City Council may promote spatial balance in land use DELETED developments through the zoning end subdivision process. e 2) The school district and tho Chamber of Commerce may promote development at the city-wide level so as to DELETED realize an equitable distribution of development in all areas of the city, 3) Neighborhood associations and citizen groups may, © serve to shape the political influences by increasing DELETED public awareness and support for public facilities and O d growth In certain areas, 4) Economic development staff may promote growth in DELETED certain areas such as the northwest k AAA05254 - 49- r 0 • r 1936 Denton Development Plan 1997 Draft Denton Development ?Ian 1 Related Policies The balanced growth policy is one of the major policies of the Denton Development Plan. The policy sets up a framework for encouraging an equitable distribution of development in all five planning areas of the City. The DELETED balanced growth poli,y does not discourage devarlop- merit in growth areas , the City. This policy is intended for all public infrastructures, both fiscal as well as non-fiscal activities such as citywide community involvement programs. The following are some of the related policies of this document which are dependent on the successful DELETED implementation of the balanced growth concept. a. Compact growth policies are intended to reduce public cost by fully utilizing public infrastructures as DELETED planned. [See Section I, Chapter III,} b. Economic development policies are geared towards establishing a sell sustained economic base. (See DELETED Section E, Chapter 111.1 i c, Housing policies are intended to encourage diversified housing in all areas of the city. (See Section C, Chapter DELETED IILI d, Transportation policies are intended to reduce traffic congestion by encouraging a land use pattern whi,,,h is DELETED related to the thoroughfare network. (See Secton D, Chapter III,) e. The goal for a major urban center in the northwest and the original downtown is dependent on achieving DELETED balanced growth. (See Section B, Chapter 11.) f. The Achievement of the intensity policies is dependent on balanced growth in city wide land use DELETED pattern. (See Section B, Chapter 111.1 I. S.2r3gact Growth Objective 13. Compact Growth. N Develorments occurring more than half a mile away Policy 13.1. from existing roads, water and sewer mains tend to The city may develop an infill policy that would detail incur higher public costs. The compact growth, under what circumstances and by how much the city policy has been designed to incorporate future growth would improve roads and/or utilities at the city's cost for and development within close proximity to existinfl areas within the built up area of Denton that are not public infrastructures and community facilities including developed, or underdeveloped compared to what is police, fire and recreation. In this way the compact planned on the Concept Map. growth policy will serve to complement the balanced r 0 growth policy of this plan. . AAA05254 _50- • • 1988 Denton Development Plan 1997 Draft Denton Development Plan The overall policy of the Denton Development Plan' therefore is to encourage physical development within a half mile limit from the existing and proposed Loop 286 as shown on the Thoroughfare Plan. The half mile limit DELETED is defined by a line which is located generally half a mile outside Loop 288.- The intent of the compact growth policy is to eliminate all publ'c cost for development outside the half mile limit. The following policy examples have been designed to give an incentive to developers for development within DELETED the half mile limit 1. Roads a. Within the half mile limit the developer may not be required to pay for off-site roads. The road is to be left as is until developed by the City or adjacent land DELETED owners, The implementation p,ocedures for this policy will be set out in the Subdivision and Land Development Regulations, b. Outside the half mile emit the developer will be Policy 13.2. required to pay the actual cost In accordance with city A!I new development should bear its roughly specifications for providing or improving off-site roads to proportionate share of the cost of new public facilities serve the capacity generated by the development The needed to adequately serve the new development, developer may be further required to post appropriate except for development that qualifies for economic signs to be determined by the City on roads which are development or is infill development as defined by a not scheduled for construction or improvement in ten to policy to be developed from policy 13.1. twenty years. 2. Utilities a. The City will provide basic trunk lines for water and sewer to serve all areas of the City as determined by the DELETED Crty Utility Master Plan. b. The developer shelf pay the actual cost of extending water and sewer lines from existing trunk lines to serve DELETED their development In accordance with the City's Utility Master Plan. 9 c. For areas within the half mile limit, the City will participate in oversize costs depending on the availability DELETED of funds. The developer may also benefit from pro rata reimbursement for ; off-site lines when adjacent developments tie-on. d. For areas outside the half mile limit, the developer is encouraged to install utility lines in accordance with the City Utility Master Plan. In this case the developer will DELETED be reimbursed for the oversize costs on off-s+te lines as and when developments tie-on. AAA05254 - 51 - i 71111111111111110 i • F1 988 Denton Development Plan 1997 Draft Denton Development Plan 3 Exemptions it Is the Intent of this policy "ma~amap scale tow density single familyderveioptniq'U, on acteag8 iota be eltetnp eSi DELETED from tl~e above rer unto on bit t ieae rjay as esse~i- i4pr6Jeirie7t costs fr,'i future J. Conservation Objective 14. Conservation. It Is the policy of this Plan to emphasize the Conserving energy and natural resources in land use conservation of energy and natural resources in land use decision making Is an objective. decision making. Detailed policies are to be developed to encourage the conservation of water, electricity and Policy 14.1. natural gas. It is also important to promote the Detailed policies are to be developed to encourage the conservation of good agricultural land, green belts and conservation of water, electricity and natural gas. open spaces. Policy 14.2. Development should promote the conservation of good agricultural land, green belts and open spaces. -1 1 e J AAA05254 -52- i • 0 oil 17 1 • • 1988 Denton Development Plan 1987 Draft Denton Development Plan CHAPTER IV: SPECIFIC AREA POLICIES Part III: Specific Area Objectives and Policies A. V sicnatipn of a Specific Area Objective 15. Designation of a Specific Area. Specific area policies are intended to provide a Specific area policies are intended to provide a framework to promote development In a designated area framework to promote development in a designated area II which requires special treatment in view of its current that req-rires special treatment In view of its current f problems or its unique location and character. Specific problems or its unique location and character. areas may be designated by the City Council on the recommendation of the Planning and Zoning Commission Policy 15.1. at any time over the plan period. In designating a Specific areas may be designated at any time by the specific area consideration shall be given to any of the City Council on the recommendation of the Planning and following. Zoning Commission. Policy 15.2. In designating a specific area, consideration should be given to the following: 1. An area which has a demonstrated need for special Policy 15.2.a. An area that has a demonstrated need protection, preservation or conservation: includes but for special protection, preservation or conservation: not limited to residential neighborhoods, historic Inciuding but not limited to residential neighborhoods, landmarks, sites of valuable architectural heritage, sites historic landmarks, sites of valuable architectural related to the conservation of natural resources. heritage, sites related to the conservation of natural resources, 2. An area with a prominent location in the City which Policy 15.2.b. An area with a prominent location in the needs special treatment for urban design and City that needs special treatment for urban design and beautification such as entrance ways and the downtown beautification such as entrance ways and the downtown area. area. 3. An area which has a special problem relating but not Policy 15.2.c. An area that has a special problem limited to traffic, noise, pollution, utilities. relating but not limited to traffic, noise, pollution, utilWes. 4. An area which require special policies in order to Policy 15.2.d. An area that requires special policirs In accelerate its development in accordance with this plan. order to accelerate its development In accordance with this plan. Specific area designation shall not be applied In the Policy 15.3. • following circumstances. Specific area designation shall not be applied in the following circumstances: a. To cover an individual property or group of properties Policy 15.1e. To cover an individual property or group so as to confer special benefits to the owners without of properties so as to confer special benefits to the substantial benefits to the City as a whole, owners without substantial benefits to the City as a whole. • b. To violate the intensity area policies. Policy 15.3.b. To violate the Intensity area policies. • • c. To conflict with any of the long or ahort term Policy 15.3.c. To conflict with any of the long or short objectives and policies of the Denton Development Plan term objectives and policies of the Denton Development or other master plans of the City. Plan or other master plans of the City. L • AAA05255- - 53- • • 1988 Denton Development Plan 1L 997 Draft Denton Development Plan I B. T.tiglvl rnicioal Airport Area Objective 16. The Municipal Airport Major Activity Area 1. Location The Municipal Airport Major Activity Area is shown on the Concept Map and is intended primarily to emphasize The Municipal Airport Area is strategically located west the establishment of an industrial economic base. Mixed of Interstate 35N and Interstate 35W and south of Jim use commercial and high density housing are Christal Road. The area is more clearly defined for the encouraged in suitable areas in conformity with the land purposes of this plan by Jim Christal Road on the north, use compatibility guidelines set out in the Airport Master the 1-35N and 1-35W on the east, FM 2449 on the south Plan. and the proposed Loop 268 on the west side. The Federal Aviation Administration classifies the Denton Municipal A rport as a Transport Airport Ilarger than the Utility categoryl. The airport is strategically located at the apex of the Interstate 35E and the 35W corridors. DELETED Activity forecasts show that the total aircraft operations are anticipated to increase from 96,300 in 1985 to 318,198 by the year 2005'. 'See Airport Master Plan and Environmental Assessment, May 1986, Charles, Willis and Associates. 2. Purpose and Intent The Denton Development Plan identifies the Municipal Airport area as a special purpose major activity center. The major activity centers in the Plan are intended to serve as nodes for major commercial activities, with no limit given to land use intensity standards. As a special purpose major activity center the Municipal Airport area DELETED is intended primaWy to emphasize the establishment of an industrial economic base. Mixed use commercial and high density housing are encouraged in suitable areas In conformity with the land use compatibility guidelines set out in the Airport Master Plan 1986. 3. Specif c Policies a. Thoroughfares s The Plan considered the transportation needs of the Municipa' Airport Area and identified the primary and seconder/ arter'als for future development (see long r range thoroughfare map). The Plan assigned the highest priority t) the extension of Masch Branch Road on the cast side of the runway to connect University Drive with DELETED the 1-35W. The other north/south primary major arterial ® on the nest side of the runway to connect University Drive to FM 2449 may be considered for Implementation 0 0 after 19)5 to coincide with the construction of the new 4,000 foot runway (see Airport Master Plan). l Tom Cole Road may be rerouted as shown on the long 1 range thoroughfare map because of the flood plain west DELETED of the airport. The precise location and engineering details are to be established at the time of construction, AAA052te -64- r 0 • A 1988 Denton Development Plan 1997 Draft Denton Development Plan f b. Land Use Development Around The Runway Policy 16.1. Land Use Development Around The Runway. The policy of the plan Is that )ndostrial/commercial type Industrial/commercial type land uses may be located to land uses may be located to have frontages on the have frontages on the primary arterials and rear access primary arterials and rear access to the runway through to the runway through separate taxiways. The details separate taxiways. The details relating, but not limited relating, but not limited to site planning, outdoor to site planning, outdoor lighting, building height, etc., lighting, building height, etc., shall be in conformity with shall be in conformity with the Denton Municipal Airport the Denton Municipal Airport Zoning Regulations. 4 Zoning regulations. c. Compatible Land Use Development Policy 16.2. Compatible Land Use Development. Residential Single family residential developments shall not be developments and Institutional land uses such as allowed in the Immediate vicinity of the runway, In an schools and hospitals shall not be allowed in the wea bounded by Jim Christal on the north, Masch Immediate vleinity of the planned runways and not In 3ranch Road extension on the east, FM 2449 on the areas where forecast noise levels based on the long s,)uth, and Tom Cole Road on the west, Mixed land range airport plan will exceed 65 Ldn (day/night uses including, but not limited to multifamily, retail, average). offices, business and professional services, restaurcnts, hotels, etc. may be developed outside the 65 Ldn (day-night sound level) contour providing that they are in conformity with the Denton Municipal Airport Zoning Regulations. / d. Acquisition of Lands l The City shall pursue the acquisition of lands required for the future expansion of the runway and related uses, DELETED e.g., clear zones. e. Greenbelt Park The flood plain areas along Hickory Creek are to be developed into a linear greenbelt park. The location and DELETED layout of the park will be determined by the Master Plan for Parks and Recreation. INSERT MAP HERE: "Municipal Airport Area Land Use Policy 16.3. Concept Pian" The adopted Airport Layout Plan (ALP) follows: • C. Tho Downtown Area Objective 17. The Downtown Area, i The Downtown area has been identified as the central This Plan supports the redevelopment and revitalization urban center and one of four major activity centers. the historic downtown area. (Described in Section C, Chapter 4 of this Plan.) The area is delineated and shown on the City of Denton Policy 17.1. zoning district map as the Central Business District (CB). The Downtown area has been Identified as the central ® major activity center and Is shown on the Concept Map. L • 0 l I . f I, AAA05255 55- - - - - c _ • 0 • r • 1988 Denton Development Plan 1997 Draft Denton Development Plan I The Downtown center could lose its vibrancy and Policy 17.2. relative attractiveness as new commercial/retail centers The City should continue to support public expenditures deve!op In other locations. The policy of this Plan In an effort to upgrade and preserve the downto'.vn therefore is to promote redevelopment and revitalization center. The following policies are Intended to guide of the downtown center to retain and expand the tax land use decision making and serve as guidelines for the base. As part of this policy the City should continue to performance of a Downtown Master Plan. support public expenditures in an effort to upgrade and preserve the downtown center. It is recommended that a detailed study be done to explore furthcr planning efforts and possible DELETED davolopment Incentives to encourage and promote the growth of a vibrant mixed use center downtown. The following policies are intended to guide land use decision making and serve as guidelines for the DELETED performance of a Downtown Master Plan. 1. The City will be responsible depending on the Policy 17.3. availability of funds, for the upgrading of public Upgrade public infrastructures including streets, water infrastructures including streets, water and sewer lines and sewer lines to meet the needs of redevelopment and to meet the needs of redevelopment and expansion of expansion of existing uses through use of City funds existing uses. when available. 2. Promote the expansion and redevelopment of Policy 17.4. existing buildings for mixed uses including retail, offices Promote the expansion and redevelopment of existing and high density housing. buildings for mixed uses including retail, offices and high density housing, and existing single family housing. 3. Encourage and support the active participation of the Policy 17.5. Central Disiness District Association in land use decision Encourage and support the active participation of the making and plan formulation for the Downtown center. Central Business District Association in land use decision making and plan formulation for the Downtown area. 4. Promote and expand facilities for off-street parking. Policy 17.6. Promote and expand facilities for off-street parking. 5. Encourage and provide facilities to Increase Policy 17.7. pedestrianization in the Downtown center, Encourage and provide facilities to increase pedestrian access, to and In the Downtown area. 6. Preserve the historic character by retaining the Policy 17.8. existing buildin.3 facades. Preserve and enhance the historic character of the downtown area. a D. MaigLEntrance Wm Policy 11.6. Designate the following freeway.n and primary arterials The n.3jor entrance ways are those freeways and as the major entrance ways predominantiv us.d by primary arterials pre~:ominantly used by incoming traffic Incoming traffic Into the City of Denton. They Include A into the City of Denton, 1-35 North, 1-35 West, 1-35 East, I-35 North, 1.35 West, 1-35 East, US 380 (University • U.S. Highway 77 (Old Sanger Road), FM 2164 (Locust Dive), U.S. Highway 77 (Old Sanger Road), FM 2164 Drive), FM 428 (Sherman Drive), Loop 288, FM 2181 (Locust Drive), FM 428 (Sherman Drivel, Loop 288, ..J (Teasley Lane), DaIIas Drive (U.S. Highway 77), Bonnie FM 2181 (Teasley Lane), Dallas Drive (U.S. Highway Brae Street, U.S. Highway 377 (Fort Worth Ori.e), FM 77), U.S. Highway 377 (Fort Worth Drive), FM 1830. J 1830 (Country Club Road), Mayhill Road, Oak Street, and Hickory Street. AAA05255 - 56 - • 1 J r pill-III No A 1988 Denton Development Plan 1997 Draft Denton Development Plan Developments along major entrance ways present the Policy 11.5, first impressions of the City to the public eye, The Encourage and promote development along the entrance policy of this Plan therefore is to encourage and ways that will enhance the City's image. promote good urban design to enhance the aesthetic gt.ality and visual amenities along entranceways. The tol:owing specific guidelines are required. Development proposals should be reviewed to ensure adequate compliance with standards and requirements including but not limited to: a. Front yard setbacks b. Building coverage c. Landscaping DELETED d. Signage e. Curb cuts f. Off-street parking g. Design and construction of facade h. Pedestrian access 2. Promote integrated site design and layout which considers adjacent tracts of land with emphasis given to. DELETED intenia', circulation as opposed to continuous "strip. development. jgg5le+ L$1r~jv1 2101;LiIGan MideriHobson Latie/ E. LIU Given the prominence of the South East Planning A.ea and the thoroughfare network in that sector there are likely to be pressures to locate high to moderate intensity lard uses along Teasley Lane, FM 2181, Litlian tvli5er Parkway, Hobson Lane, 1-35E, and between Loop DELETED 288 and Litlian Miller. These pressures are likely to increase as FM 2181 is developed as a primary arterial and extended further south to ultimately connect with the DPN Airport (See County Transportation Planl, The policy of this Plan therefore is to restrict the further intrusion of high and moderate intensity land uses in this area. Limited reighborhood services and high density DELETED W housing consistent with the standards for a low inten<;ty area, are not prolhibited, The following specific guidelines are required. 1. The neighborhood densitylinte.i0y standards should DELETED be closeiy monitored and vigorously implemented. 2. Restrict curb cuts to Teasley Lane, FM 2181, Lillian DELETED Miller, and Hobson Lane. p 3. Residential subdivisions should La genets Iy designed so houses do iiotface onto major thoruughfares. These DELETED should access onto loctl and collector streets. L- i AAA05255 - 57- e • 1988 Denton Development Plan 1997 Draft Denton Development Plan 4. Through traffic to and from the DFW Airport along FM 2181 should be discouraged on that portion north of the proposed Loop 288. The intent is to protect the single family neighborhoods in the southeast area. For DELETED example, the creation of 8 moderate node at FM 2181 l and the Coop 288 without offsetting FM 2499 will be in direct conflict with this policy. F. Carroll Soule ird I Carroll Boulevard is a primary major arterial providing, j for the northlsouth movement of traffic through the. Downtown area. The policy of this Plan therefore Is to DELETED restrict further strip commercial,'retail developments along Carroll Boulevard. The following specific polity guidelines are DELETED recommended.' Duplexes and small scale multi-family and office developments shall be encouraged in selected nodes DELETED subject to the following conditions, 1. Site design to protect adjacent single family housing requiring screening fences, large setbacks, landscaping DELETED Y and sign control. j 2. Restrict further curb cuts to minimize the disruption of through traffic on Carroll. Site design and layout DELETED should ensure off-street parking and on-site circulation of traffic. 3. Participation from residents shall be encouraged in DELETED the platting and zoning process. G. land Use Bordering Univi,,=Y Q1_ QLLb Te:Kas Over the year there have been increased pressures from commercial and multi-family developments to locate in areas around the University of North Texas. Resulting in DELETED higher intensity type land uses located in traditional O single family neighborhoods. The specific policies of the Denton Development Plan are as follows: 1. In the future development of these areas I ' consideration may be given to the univers'ty's master DELETED plan, ineofar as these are consistent with the objectives and policies of the Denton Development Plan. C• 2. Strict site plan review shall be undertaken to ensure d d that land use changes take place in haintony with and DELETED offrir adequate protection to existing neighborhoods. - 3. Neighborhood participation shall be encouraged In DELETED the land use decision making process. AAA05255 - 58 - s F1988 Denton Development Plan 1997 Draft Denton Development Plan H. East Denton Objective 18. East Denton. This close-in older neighborhood offers many advantages Protect to enhance olkrar neighborhoods In this area is an for residential development, as evidenced by the recent objective. and continuing concentrated public expenditures in the area from Capital Improvements Program and Community Development Block Grant funds. The following specific policies are recommended for the area: 1. The policy to protect older nelghborhoods is given DELETED special emphasis in this area 2 rjd st~jaf $a~glo un~ aorj9C nt tb;Cfusx A,gf b4r Q6 Policy 18.1. to the' 6o61 and etisC 1s~ t~ 6a r r1)tftjr~oratj.:¢~o 3r91y o Industrial development adjacent to this neighborhood to spaclficell~r indtt3tg°covfal~prp~it w1 bti InFtei3 to shy the south and east is to be monitored closely. area east of YdodroyJ ta(te " r ar ks < Specifically, industrial development will be limited to the 15 f `;r- 'r .va t ''..a..r1 tgM warea east of Woodrow Lane. 1. Development Near the Pecan Creek Wastewater Objective 19. Development Near the Pecan Creek Treatment Plant Wastewater Treatment Plant. Additional residential development will riot be zoned Protect the site's long term viability Is an objective. within 2,500 feet of the Wastewater Treatment Plant. Residential development will be generally restricted Policy 19.1. between 2,500 feet and 4,000 feet from the Plant. The Additional residential development will not be zoned area within 2,500 feet of the Wastewater Treatment within 2,500 feet of the Wastewater Treatment Plant. Plant will be utilized for industrial purposes, preferably industries that could utilize the effluent from the Plant as Policy 19.2. cooling water or other processes requiring lower quality The area within 2,500 feet of the Wastewater water, Treatment Plant should be used for industrial purposes, preferably industries that could utilize the effluent from the Plant as cooling water or other processes requiring lower quality water. I J. North Locust/Elm Street Objective 20. North Locust/North Elm Street south of Orr Street. The area between north Locust and Elm Streets from Congress Street north to University Drive contains The Plan seeks to preserve this area's traditional single traditional single family housing worthy of preservation. family character. The policy of this Pen therefore is to promote the O preservation of the architectural character of this Policy 20.1. neighborhood. It is desirable to promote the preservation of the architectural character of this neighborhood. O O O I l i j AAA05255 I° A~d • • 1988 Denton Development Plan 1397 Draft Denton Development Film K. Qak-N_iLlkQry_H storic pis tri Objective 21. Oak Hickory Historic District. The Oak-Hickory Historic District includes all of the area Thr Plan seeks to preserve the distinctive architectural on the north side of Oak Street from 610 W. Oak, w-ist and cultural heritage existing in this area. to the in!~:rsec!ion of Oak and Fulton Streets; the south silo of Oak Stree; from 609 W. Oak to the intersection Policy 21.1. of West Oak and Welch Streets; north side of Hickory The architectural standards and policies regarding Street from the intersection of Hickory and Welch to the existing and proposed developments in the Historic intersection of Hickory and Williams Streets; the east Preservation Plan and the historic landmark ordinance of side of Denton Street from the intersection of Denton the City are to be strongly enforced. and Oak Streets to the intersection of Denton and Pearl k Streets; the south side of Pearl Street from 607 Pearl west to the intersection of Pearl and Denton Streets. The overall policy of this Plan is to support the preservation of the distinctive architectural and cultural heritage existing in this area. The architectural DELETED standards and policies regarding existing and proposed developments in the Historic Preservation Plan of the City e,e to be strongly enforced. L. Greenbelt Are . The 100 year Flood Plain. Q The 100 year flood plain is the area which will be inundated by a storm water event that has a 1 % chance of occurring in a year, In jurisdictinns that participate in the federally subsidized flood insurance program, of which Denton County and the City of Denton are numbered, strict regulntory controls of development DELETED within the 100 year flood plain are mandated by federal law to mitigate against loss from floods. Federal agencies provide participating jurisdictions maps of and data about the 100 year plain. An excerpt of such a map is Figure VIII. The scientific study explaining the environmental sensitivity of end appropriate regulatory framework for fl:od plaint is well ssiablished and long sanding. A few DELETED examples of this are included in the Greenbelt Resource ® Book available in the Planning and Development Department. The flood plain also holds the community's most important recreational opportunities. Most of the park DELETED and rerreational areas of the community could be located within or contiguous to the flood plain. Q More and more the real estate market Is taking into account the valuable amenities and resources within the DELETED a flood plain. Mainteranco and enhancement of natural processes in the flood plains is a least cost solution to mitigating DELETED storm water runoff pollution and protecting, the community from flood losses. / AAA05255 -60- r 0 0 1988 Denton Development Plan 1997 Draft Denton Development Plan GREENg€L~Qp~S. OBJEC1lVti~.$,gyp~QEI~J~ ' GOAL/OQJECTNE IV. L. Much of the 100 year flood plain ought to be used DELETED as glaomhelis because., 1 plains are the most hazardous place to DELETEC G ~r .ny natural features wit in flood plains, such as wetlands and hardwood forests, help purify storm water. DELETED runoff, and mitigate against sedimentation and soil erosion; i 3) Netural flood plains are Important wildlife habitats; DELETED i 4) Flood plains are our greatest recreational and open DELETFD space resource; 5), Most of our present and future water supplies will be transported within and captu+ed within the flood plain DELETED I and the water bodies inside the flood plain; r 0; rood plains in a natural state provide the most cost efractive method of discharging flood waters and DELETED mitigating against flood damage. Accomplishing this goal wilt require the use end balancing of regulatory prohibitions, public incentives, public acquisition and use of some of this resource, private evrnership of most of this resource, ` and DELETED continued recognition by real estate market forces of the amenity value and the dangers inherent in the flood plain resource. PQL(CIES 1V. L. 1. See Chapter II, Section F. Parks and DELETED Recreation, C. G'cenbelt,Unear Parks IV. L. 2. The city's regional, community and large neighborhood park syste o should tie into a greenbelt park and recreation system in and along flood plains: DELETED Emphasis should be placed on park land acquisition within and!or rontiguous to the flood plain. IV. L. 3. While ether uses will be permitted, e particularly appropriate use of the flood plain is as a greenbelt. Greenbelt uses include passive and active recreation; conservation, non•deveiopment of the most environmentally sensitive and flood hazardous areas; A d pedestrian, equestrian and bike ways; agricultural ones; DELETED wildlife habitat; drainage ways, and as buffers between different land uses. The most appropriate use should be determined based on detailed analysis of ; the environmental value of a particular flood plain and the. impact of a particular use. AAA05255 - 61 - ` ~ 1 e v 19i 88 Denton Development Plan 1997 Draft Denton Development Plan IV. L. 4. Building construction and fillinq of. unchanneli2ed floodways must be strictly regutawd and DELETED maybe prohibited by regulations. IV. L. 5. Building construction and Puling of the area between the floodway and the limits of flood plain Ithe flood plain fringel will be allowed where environmental DELETED degradation' is sight, the existing' character of that particular flood plain is maintained, or a natural character Ts enhanced. IV. L. 6. Use of the flood plain frirge as a greenbelt Is a community goal for which financial and regulatory, DELETED incentives are available, and for which other Incentives should be developed. IV. L. 7. Major channeli2ation of floodways should be prohibited except where no other reasonable means of floodwater conveyance is available or where it Is needed DELETED to provide mitigation for existing flooding and water quality improvement. IV. L. B. Retain in their natural state those wetlands havirq value for water retention, storm water pollution DELETED mitigation, wildlife habitat and open spacelrecreotional. opportunities. } IV. L. 9. Improvements or modifications to the floodway must be coordinated with master plans for storm water management, utilities and parks. Any variations from DELETED those master plans must be supported by appropriate analyses and submitted to the City for review and comment. IV. L. 10. As a means to reduce flooding by increasing times of concentration of flood waters, to mitigete water pOution, and to control erosion, the most desirable drainage design approach is to allow low velocity sheet DELETED flow of urban runoff across vegetated greenbelts prior to the runoff reaching the stream channel ® IV. L. 11. The greenbelt concepts and policies stated above should be part of considerations about developing "best management practices" required to meet storm DELETED water pollution abates ent only designed to implement the Clean Water Act, i Definitions: N Flood ofaip. The area designated as subject to flooding I® O O from the base flood (100-year floodl on the Flood DELETED Insurance Rate Map. The flood plain Includes the floodway. i a L- 62- + f 1988 Denton Development Plan 1997 Draft Denton Development Plan Ftoodwav A rrvr, chbnribt, or> Other wafe~c~rsa e; the adjacent and areal .;,aE (oust be reserved 4 atdary t~o ; dische?getr~etaar3~lo0d~tAOCj~ri~'iSrlapvetx~ncrebbin - DELETED thatwater surieca etevstwn fnO~Wthanya`dgb~gnat~A" ~ ,irk"~~~° SaewFf ue"8,^~Ytixamte pt Fbde~aE brie DELETED j 1lJSEkiThhl~PHEE;x`.Fr9t S{11A±+C,f3AS aP~l*>.. DELETED k I i AAA05255 -63- • i 1988 Denton Development Plan 1997 Draft Denton Development Plan D CHAPTER V: IMPLEMENTATION POLICIES AND Objective 22. Implementation Policies and Guidelines. GUIDELINES Promote the positive and consistent Implementation of A. Plan Imote-nentation the Denton Development Plan as the official development policies of the City of Denton. An official City plan is only as good as Its implementation processes. The following potictes are intended to promote the positive and consistent implementation of the Denton Development Plan as the official development policies of the City of Denton. 1. Citizen Participation Policy 22.1. Citizen Participation. Provide on-going neighborhood The plan recognizes the need for providing on-going and business Involvement as well as Input of all citizens neighborhood improvement as well as input of oil into land use decisions made by the various city citizens Into land use decisions made by the various city departments, boards, and the City Council. departments, boards, and the City Council. In addition to the formal city-wide study committees, it In addition to the formal city-wide study committees, it is also recognized that continuing local nelghborhood is also recognized that continuing local neighborhood Iresidential and commercial) self-help sssoclatic^e are self-help associations are important for the continued important for the continued maintenance of viable maintenance of viable neighborhoods. However, neighborhoods. However, individual neighborhood individual neighborhood problems are often Intertwined problems are often intertwined with adjacent with adjacent neighborhoods and the city as a whole. neighborhoods and the city as a whole. Diverse Diverse sections of the community need to shore In sections of the community need to :hare In common common facilities and mutual problems. To consider facilities and mutual problems. City-wide issues white addressing immediate local neighborhood --eds, the following process is Policy 22.2. recommended for organizing neighborhood associations: To consider City-wide issues while addressing immediate local neighborhood needs, the following process may be used: a. Neighborhoods define themselves and establish a. Neighborhoods define themselves and establish neighborhood associations; neighborhood associations; b. Neighborhoods cluster themselves into communities b. Neighborhoods cluster themselves into communities and establish associations made up of representatives of and establish associations made up of representatives of the neighborhood groups. the neighborhood groups. On a continuing basis, these associations could address On a continuing basis, these associations could address issues relating but not limited to the following: Issues of mutual concern. ` 11 Protection and maintenance of Individual and Policy 22.9. community property Adequate consideration shall be given to preserve a positive climate fo• investment and securing reel property values balanced with the public interest for the • City as a who!e. • • 2) Crime and fire prevention DELETED 3) Assess needs for and plan for basic life-support ` services within or edjacen' to each neighborhood or DELETED ) community unit (i.e. food, health, facilities schools, child care centers, housing diversity and density, etc.) AAA05256 - -64- 0 t . 1 • • I 1988 Denton Development Plan 1997 Draft Denton Development Plan t C 41 Assess needs for recreational, open space, DELETED agricultural, and park facilities I 51 Establish cooperative methods of conserving energy such as garden or food co-ops, car or van pooling, talent DELETED pools, etc. 61 Assess multi-mode transportation needs and facilities DELETED These reighborhood associations would provide a Policy 22.3. catalyst for neighborhood Improvements, a means for Neighborhood and b: siness associations would provide ensuring dialogue between neighborhoods and City a catalyst for nelghbor.'lood Improvements, a means for decision makers, and a source for selection of future ensuring dialogue betvteen neighborhoods and City City cross-sectional study commiftnes. decision makers, and a a?urce for selection of future City cross-sectional study committees. 2. Public Education The Policy of the Denton Development Plan is to encourage citizens Inputs into the land use decision making process. It is recommended therefore that future DELETED support for on-going studies and education of the public is reflected in budget and policy decisions of the City Council. Policy 22.4. Support for on-going land r sa studies and education of the public concerning land use Issues should be reflected In budget and policy decisions of the City Council. Policy 22.5. The city's capital Improvement plan should be consistent with and Implement the policies of this plan. • s AAAC5258 _ - 65 - - r ~rwru~•y,...,.... w., - i • • 1988 Denton Development Plan 1997 Draft Denton Development Plar I 3. Implementation a. 2010 General OP Schedule The 2010 general development program will be created i as the priority supporting policy guide to this plan. This program will Incorporate the using or land use. developments and scheduling of public infrastructures and community services and facilities in accordance with the goats, ob{ectives, and policies of this plan. The program is to be prepared on the basis of the land use plan end the need to promote an equitable distribution of development In all areas of the City. It will set out the needs for water, sewer, streets, sidewalks, curb;' drainage, transportation, parks, recreational open space, DELETED educational, fire, police, library, and other community services and facilities for which the City may ultimately assume responsibility for maintenance and `operation. The implementation schedule will serve to define and identify planned needs for the City es a whole. It will provide the basis for identifying community needs for the short term CIP program. In other words, the definition of needs for project implementation will be based on the plan as opposed to traffic congestion and utility overloads. The 2010 general development program is to be forwarded to the City Council for adoption and updated DELETED with the Denton tavelopment plan every five years. { I b.lntenslty i Appendix A to the Denton Development Plan will incorporate a standard methodology for intensity analysis and the boundaries of the intensity areas. This appendix Is to be devetoped by a committee comprised of representatives of the five planning areas, the Planning and Zoning Commission, and the Land Use Planning Committee. Appendix A will be approved and p updated by the Planning and Zoning Commission and tho DELETED City Council In accordance with the update procedures set out in the Dentorl Development Plan. The Executive Director for Planning and development shall be responsible for preparing and updating the intensity calculations for each of the moderate and low j intensity areas in accordance with the standard li O mothodology and boundaries contained in Appendix A. O a J i AAA05256 -66- 0 e e 7 7 i `1988 Denton Development Plan 1997 Draft Denton Development Plan c. Integrated Decision Making Policy 22.6. t Integrated Decision Making. It is intended that the City It is intended that the City Council, the Plann'ng and Council, Sc3rds, Commissions, City staff and the Zoning Commission, Advisory Boards, City staff and the citizens of Denton will incorporate the policies of this citizens of Denton will incorporate the policies of this plan in the decision making processes including the plan in the decision making processes including the capital improvement program, budget formulation, capital improvement program, budget formulation, zoning and land subdivision, and parks and utility zoning and land subdivision, and parks and utility planning. E planning. d. Consistent Administration Policy 22.7. It is also intended that decision makers, City staff, It is also intended that decision makers, City staff, private development interests, citizens and public private development interests, citizens and public interest groups will work towards the consistent, interest groups will work towards the consistent, equitable and coordinated application and administration equitable and coordinated application and administration of the policies of this plan. of the policies of this plan. e. Updating Codes policy 22.8. The City will continue to monitor, improve, and update The City will ccntinue to monitor, improve, and update the policies of this plan and the codes and ordinances the policies of this plan and the codes and ordinances which support its implementation. which support its implementation. Adequate consideration shall be given to preserve a positive climate for inves!ment and securing real property values r balanced with the public interest for the City as a whole. The following quldelines are recommended: if Major changes which effect the existing use rights of real property may be subject to a grandfather clause allowing property owners a reasonable time to carry out development in accordance with existing policies, Major chanycs in the context of this policy shall not include supportive codes and ordinances which may set new DELETED and additional requirements for a specific type of development or for a specific local area, e.g. tree preservation and landscaping requirements would not materially affect existing use rights. Therefore, these shalt not be considered major changes. e 21 Major policies, codes and ordinances in this plan should be allowed to gain experience before any attempt is made to change them substantially. The requirements for off-site infrastructure costs is an example of a major policy. Too many and too frequent changes in major DELETED policies may affect the confidence of , operly owners arrd investors. Less changes conversely could provide 0 for greater stability, confidence, and credibility which will serve as a booster to the local economic O d dp,~,elopment effort. Y i 1. Update Daily Along With Related Decisions (Zonirg, Subdivisions, etc.) _ J AAA05256 - 67- 0 • - - ii • 1988 Denton Development Plan 1997 Draft Denton Development Plan Staff Summary Reports Policy 22.10. Staff's report on applicable City Council and Planning The staff report on all City Council/Planning and Zoning and Zoning Commission decision items shall clearly Commission decision Items shall clearly relate alternative relate applicable policy associated with a land use decisions with Impact on appropriate policies in the plan. decision. If a decision Indicates a corresponding policy change Policy 22.11. is required in the plan, then: Update Procedures. 1) The staff is required to draft a modified policy 22.11.A. If a decision Indicates a corresponding policy change and present it to the quarterly study session of change is required in the plan, then the staff is required the scheduled Planning and Zoning Commission, to draft a modified policy change and present it to the Planning and Zoning Commission and the City Council 2) The City Council will make final review of a potential will make final review of a potential policy change and policy change and Incorporate said change in the plan. Incorporate said change in the plan. b. Any Planning and Zoning Commissioner or City 22.1 1,8. A Planning and Zoning Commissioner or City Council Member may present a proposed policy change Council Membe., any other person may present a whether or not a pending or recent Land Use decision proposed policy change whether a pending or recent has been made. The proposed change is forwarded to Land Use decision has been made. The proposed the Planning and Zoning Commission for its review and change is forwarded to the Planning and Zoning recommendation to the City Council. Commission for its review and recommendation to the City Council 2. Yearly Policy Re-Adoption 22.11.C. Yearly Folicy Re-Adoption. In July the entire plan is placed on the Planning and Zoning Commission a. In July the entire plan is placed on the Planning and Agenda for recommended minor modification or Zonir,d Commission Agenda for recommended minor re-adoption. After study, the Planning and Zoning modification or rc-adoption. After study, the Planning Commission Is required to forward a recommendation to and Zoning Commission is required to forward a the City Council at its second meeting in October. The recommendation to the City Council at its second City Council will accept the Planning and Zoning meeting in Cctober. Commission recommendation or modify the policies er,J adopt the plan as a policy document for the upcoming b. The City Council will accept the Planning and Zoning year. Commission recommendation or modify the policies and adopt the plan as a policy document for the upcoming year. 3. Ger. ral Policy for Major Update D. General Policy for Major Update, • i This plan is to be updated approximately every five to This plan is to be updated approximately every fiye to ten years. ten years. r a. Update dependent upon: a. The update is dependent upon: 1) Population Growth 11 Population growth p 2) Extent of amendments during preceding years {more 21 Extent of amendments during preceding years Imore • J amendments-more need for general updeiu) amendments-more need for general update) b. The process for updating the plan will be determined b. The process for updating the plan will be determined during its annual evaluation. during its annual evaluation. AAA05256 - - 68 - t AMMONS" o AAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAAA t ► , L ► , ► i , , , ► :I READING MATERIALS Handed Out at the ► CITY COUNCIL / P&Z COMMISSION JOINT WORK SESSION Wednesday, July 30th, 1997 C I . > . a ; . ~ o 0 A ~ti cL C ter- - LS , ~ r=~.7r-..'r~ •s MMO ~pr,41 Z t hl t ` s ~ , WWW"+'`"~~- ® may, • w T ~ f s r' 1996 Municipal Dexiciopment Plan, 510. J r• ~ i I~ i Ica • • 1996 Burlington Municipal Devetopment Plan Burlington, Vermont IIL`'BUILT ENVIRONMENT Vision Statement Burlington is a city that values its setting and traditions - it is human in scale, built for people and safe for walking. The City reflects Vermont traditions of scale, design and character. Unique design characteristics and sireeiscape qualities in each neighborhood are retained, New construction and public investnter, r reflect a respect for quality design. Buildings and facilities are accessille to people with disabilities. Streets are lined with shade trees. Street, transit. bicycle and pedestrian routes allow convenient access to all areas of the city. The Ciry protects view corridors and scenic vistas. Areas of higher density are offset by open spaces, parks and natural areas. Building heights are i-t keeping with a city designed for people. Burlington's built environment - it's buildings and structures, and how they relate to the city's landscapes, layout, and history - make Burlington the special place it is. The city has a rich architectural legacy that provides the foundation to its vital, human-scale environment. As Burlington continues to grow, we must conserve this legacy through careful planning. We must respect our scenic setting and serve our role as Veimont's largest city. Respecting Our Natural Setting With Lake Champlain and the Adirf,ndacks to the west, the Green Mountains to the east, and the embrace of the Winooski River alone our northern boundary, Burlington is blessed with an outstanding t.-tting. Throughout the city - at the end of streets, from parks, offices, and homes - significant views are provided of the lake, mountains, forested and natural areas, and prominent building landmarks. Burlington is in the fortunate position of being able to blend its urban amenities with a beautiful natural setting. The City must take full advantage of this setting by protecting view corridors and scenic views for all to enjoy - today and tomorrow. Individual buildings must be respectful of the city's natural setting. While city ordinances • allow for development at particular densities, design review regulations require that development consider the capacity and context of each individual site. Natural buffers and landscaping, including trees, shrubs and flower beds, should be used extensively to r ease the transition between the built and natural form of the city. Built Environment Page 111.1 • • C~A . - „ 77. • r • 1196 Burlington Municipal Development Plan Burlington, Vermont A City Built for People Burlington is a city built for people. Its buildings, streets, and layout are the right scale for people. To maintain this scale and character: • Most buildings should be no taller than six stories. • In higher density areas, buildings should be close to the street, with uses and entrances at the street level that invite pedestrian activity. • Adequate green space and amenities should be provided to encourage people to be outside enjoying the c;•v. • People should be able L move safely and conveniently throughout the city on a network of sidewalks and paths. • Streets should be easy for pedestrians to cross, with appropriate signs?s, signs, and crosswalks. • Benches, trash and recycling contain-rs, public phones, public rest rooms, information kiosks, public art and drinking fountains should be added to popular outdoor gathering spaces. • Buildings and public amenities should be designed with Burlington's northern climate in mind. • The massing and design of large development projects should be broken down so that buildings are visually compatible with the scale of their surroundings. ADDING UP THE DFTAI S C Public: Y'hc City's public investment in its infrastructure includes thousands of small details: street lighting, manhole covers, catch basins, curb and ramp details, sidewalk l paving textures, street trees, utility lines, benches, fire alarm boxes and hydrants, traffic e'.gns and signals, fencing, parking meters, and many more. The cumulative effect of these details, in conjunction with more substantial investments in public buildings, defines the standard of quality for Burlington's built environment. City officials need to recognize this rol- by requiring that public projects receive the same Icvel of review for possible impacts on the built and natural environment that private projects receive. Private: New construction and building renovation include numerous details that impact the design quality of the city. Gas, water and electric meters, electrical transformers, heating, ventilating and air conditioning equipment, refuse and recycling facilities and other service features can detract from a building's appearance if not properly located or screened. While the nature and purpose of such equipment imposes certain requirements on their location,, these details are often added to a building at the and of the process • - ~ leaving few creative options. Whenever possible, these service features should be integrated into building and site design from the beginning so as not to distract from the quality of a building or its site. 6 • l Built Environment Page 111.2 0 - - 0 • • 1996 Burlington Municipal Development Plan Burlington, Vermont GATEWAYS Injaie'rg I'd "You,never get a second chance to make a Id el' y I good first impression." Gateways create '2 senso of arrival for those entering the city J , or neighborhood within it, and set the tone for what's to come. This feeling can be created with appropriate signs and 1 landmarks, plantings, burying utility lines, ofehest r,_+1 protecting important views, and using distinctive pavement acid architectural Ferry St=\ elements at intersections. Each gateway to S ~ty° file city or its neighborhoods should reflect i Air~ the particular characteristics of its setting " ;one and provide a welcoming introduction. K, ~yq 1u+~[11.Y1i Shelburne RP-:k PUBLIC ART Public art enhances the overall quality of Figure 19. Burlington's Gateways. the built environment. Examples of public art can be found throughout the city. Whether it is a mural on a downtown building wall, a sculpture in a park, o. unique architectural details on a building, public art personalizes the city and offers seeds for conversation and contemplation. Public art also includes performance art. Strect musicians, jugglers, dancers and magicians add vitality, activity, and a sense of community. Diverse offerings of public art should be encouraged and ( celebrated as distinctive elements of Burlir,yron's quality of life. CULTURAL FACILITIES Cultural facilities for the visual and performing ors are an important aspect of Burlington's life and economy. From major events like he Discover Jazz Festival and First Night Burlington, to poetry readings at small coffee houses and paintings di%.7'iyed in stor.fronts, the arts provide cultural vitality to the city as sell as fulfill a growing economic niche. The Flynn Theater, with a seating capacity of 1,410), cortributes over $7 million to Burlington's economy each year. Memorial Auditorium, opetv(ed by the City, provides seating for 2,500 for concerts and sporting events. Several other arn.ll facilities are dispersed throughout the city and help make the arts a part of everyday life. In addition to upgrading and maintaining existing facilities, additional perfoimanre and exhibition space will be needed to provide opportunities and affordable venues for artists. Needs include not only additional physical space, but also associated equipment and infrastructure necessary for existing facilities to ensure their viability. i C 0 J Built Environment Page 111-3 a; • • 1996 Burlington MunScipal Development Plan 8urington, Vermont Recent studies have identified the following needs: • Continued'improvements to Memorial Auditorium and the Flynn Theater. • A small or mid-sized theater (less than 300 seats), • Dance space for rehearsal and small performances. • A medium to large multi-exhibit art gallery and exhibition space. • Small gallery and exhibition spaces in the downtown and on the waterfront The City should also investigate the best methods for linking important cultural facilities such as Memorial Auditorium, City Hall's Contois Auditorium, and the Flynn Theater along with related land uses such as restaurants and galleries. Improved linkages, whether in the form of a downtown cultural/arts district or simply a centrally-located arts information kiosk, would help bolster this important segment of the downtown economy. BURLINGTON AS AN ACCESSIBLE CITY To have equal opportunity, people with disabilities must have equal access to th.. built environment. Many people think accessibility refers only to wheelchair access. But it also includes access for people with sensory and other mobility impairments. Equal opportunity for people with disabilities means: • doors that open easily • ramps that are not too steep. signs at appropriate heights that are large enough to read. • accessible parking spaces. • accessible telephones. \ • accessible transportation. • corfvinient and accessible public rest rooms • accessibility to the arts and cultural opportunities • accessibility to the public decision-making process. Burlington is committed to removing barriers within the built environment that hamper pcop'e with disabilities. This Plan proposes that the City establish a "disabilit,-iriendly" approach whereby new developments and building renovations, both public and private, are encouraged to go beyond the minimums established by regulation and pursue innovative ways to enhance convenience and accessibility for all residents with disabilities. A NORTHEIMN CLIMATE Burlington is a northern city, with frequent cold spells and large amounts of snow. While this is easy to remember in December or January, it can be lost sight of during warm and sunny summer days. It is important that buildings, court yards and public amenities (such as bus shelters) be designed to provide refuge from the elements and remain inviting year- * round. Protection from wind, cold, rain, snow and ice should be important design considerations. Mixed use districts, and the location of convenience stores and other local services close to residential neighborhoods, can also make life easier during the winter, especially for BvIlt Enviror ment Page III.4 s • • • 1996 Burlington Municipal Development Plan Burlington, Vermont residents without an automobile. Priority must also be given to ensuring that snow and ice accumulation on sidewalks is cleared promptly. r Streetscape Design One of the most important factors affecting the quality of urban life is the character of city streets. Crucial to a street's character are such things as building heights and setbacks, the planting of street trees, and the design quality of the "street fumiture." It is important to establish appropriate setback requirements for buildings. A uniform front and sideyard setback along a street creates a consistent building edge and a well- defined public space. For many years, the City through its zoning ordinance tried to create a more suburban street environment by requiring that buildings be set back up to 50 feet from the sidewalk even when this was not in keeping with the existing streetscape. These regulations were modified in the 1980's with the recognition that Burlington is an urban area and suburban regulations are not appropriate for the more densely developed sections of the city. This urban pattern should be reinforced by encouraging new buildings in commercial and higher density residential areas to be built closer to the sidewalk. Moreover, in industrial and commercial areas, off-street parking should not be allowed in front of buildings. In residential areas, the design of new developments should also consider the impact of garages and driveways on the streetscape. The following approaches will improve the quality of the streetscape: • New buildings or additions on any given street should be consistent with the predominant setback pattern for that street. • Especially in downtown and commercial areas, setback requirements should reinforce an urban and pedestrian streetscape. by being close to the sidewalk. • Street-level store trouts and building entrances should be oNn and inviting to pedestrians, and service entrances, Sriveways and garages should be located on side streets or in service alleys. • The scale and massing of buildings on any given street should be harmonious. • Street width should be appropriate to the type and character of land uses found along the street. • Where streets have more pavement than necessary, excess pavement should be replaced by green areas, sidewalks, or other appropriate public amenities. STRF,ETS AS PUBLIC PLACES While not all streets can be as inviting and accessible to the public as the Church Stree? Marketplace, the pattern of streets, paths and pedestrian amenities should make walking safe and easy in all areas of the city. Residential and commercial areas should be active • public places where social interactions are encouraged. People should be able to stroll, sit, pass through, look around, walk around, and enjoy neighborhoods, shopping areas, and • natural areas. Increasing pedestrian activity improves business by increasing traffic passing by storefronts, improves public safety by placing more eyes on the street, and Built Environment Page III-5 • • 1996 Burlington Municipal Development Plan Burlington, Vermont benefits our sense of community by facilitating communication and interactions between r neighbors, business owners and visitors. it LOCATING UTILITIES Overhead utilities - including electric, telephone and cable - present a dominant visual element throughout niany parts of the city. This is especially conceming where street tree.; and other streetscape improvements are desired to make parts of the city more inviting for development and pedestrians or to preserve or enhance important viewsheds. Many large trees have been radically pruned to accommodate power lines. Indeed, the vistas along many of our city streets are more strongly characterized by the march of utility lines than the promenade of trees. This is particularly unfortunate along streets such as Pearl and College that have important views of Lake Champlain. While too expensive to accomplish everywhere, there are parts of the city where placing overhead utilities underground, or relocating them behind buildings, must be an important design consideration. In addition to all new development, priority should be given to the Downtown Waterfront, along streets that offer important view corridors to Lake Champlain, and the main approaches into the city. STREET TREES An essential feature of a healthy and attractive urban environment is the presence of trees - along the streets and in public parks and private yards. More than simply an aesthetic amenity, trees in the urban environment stabilize soils, provide a filter for surface runoff and air pollutants, shade summer sun, block winter winds, muffle sounds and provide habitat and refuge to birds and other small animals. The main objectives of Burlington's urban forestry program include maintaining existing public trees (numbering approximately 8,000) and planning for the creation of a sustainable urban forest throug , the City's tree planting program. Sustaining Burlington's urban forest into the future will require a consensus regarding the goals and design objectives for the urban forest, and an understanding of the conditions necessary for a tr%e to survive in an urban environment. The Department of Parks and Recreation has begun the city's third street tree inventory. This effort should be an initial component to the development of an Urban Forest Master Plan. In addition to A inventorying existing trees and assessing their condition, an Urban Fores! Master Plan would articulate city-wide and neighborhood objectives for public trees, identify future planting sites, list appropriate species for re-planting, establish site planning guidelines, and explore opportunities and mechanisms for planting on private property to expand possible planting sites within the streetscape. To this end, a Third Century Tree Planting Fund should be established which would make a substantial commitment to Burlington's e urban forest. This fund would protect and enhance the city's investment in its "green infrastructure"- currently valued at over $4.5 mill`.on - and leave an important legacy well O into the next century. f Built Environment Page 111.6 NNNNM~ 1 1 1996 Burlington Municipal Development Plan Burlington, Vermont STREET AND SITE LIGHTING Receni'expansions in the use of exterior lighting has resulted in a marked increase in overall lighting levels within the city. While originally intended to reduce energy use and improve security, the use of high pressure sodium lighting - in combination with new styles of fixtures - has had several unintended results. These include a distortion of natural colors, excess brightness, glare spilling onto adjacent properties, and an obscuring _ of the night sky known as "sky glow" which affects not only Burlington, but neighboring communities as well. Recognizing these issues are common in other areas, and pose impacts regionally, the City participated in a site lighting study in cooperation with the Chittenden County Regional Planning Commission. The purposes of the study were to develop information on lighting issues and technology, and to establish a set of lighting guidelines that will help Burlington and other communities in the review of new lighting installations. Issues of particular importance in Burlington include: • Overall illumination levels are too high. • Concern about the visual quality and color distorting properties of high- pressure sodium lights. • Glare from unshielded or misdirected fixtures. • Unnecessary illumination of building facades, • Design quality of fixtures and poles. • Desire for complementary fixture designs in different types of settings and C neighborhoods. Recommendations resulting from this study - including the use of cut-off or shielded fixtures; lower wattage bulbs; color corrected or other acceptable light sources; and fixtures and pole heights which are appropriate for the site and neighborhood - will be evaluated for inclusion in the city's zoning guidelines and utilized by all city departments in the review of lighting installations. l E , J Built Environment Page I1I-7 - . ~~3~ ~ „mow. • ,1Y. k~; • y ' ~ Ir • 1996 Budinglon Municipal Development Plan Burlington, Vermont Built Environment Policy and Action Plan CITY POLICIES THE CITY OF BURLINGTON WILL... • Retain its human scale and urban form • Protect its scenic views and view corridors, and encourage development that compliments its natural setting. • Conserve the existing elements and design characteristics of it's neighborhoods. e Encourage new land uses and housing designs that reflect changing demographics and new technologies where appropriate. • Enhance the City's gateways and streetscapes. • Protect, maintain and enhance the City's urban forest. C • Improve opportunities for pedestrian access and interaction throughout the city. • Strengthen the City's role as a cultural and arts center, and support public art. • Ensure people with disabilities have equal access to the built environment. + Ensure building design and public amenities take into account durlington's northern climal:. i Built Envlronment Page III.8 { row • • 1996 Burlirgton Municipal Development Plan Burlington, Vermont ACTION PLAN Short Term Evaluate the Burlington subdivision Planning & Zoning regulations and street design standards to Public Works ensure that the width and design of each Parks & Recreation street fit its function and location. Modify the Zoning Ordinance's Design Planning & Zoning I Review criteria to ensure building development take into account Burlington's northern climate Re-examine building height bonuses to Planning & Zoning ensure better consistency with the Municipal Development Plan vision and policies. Develop a comprehensive street lighting Planning & inning plan and s;:e design standards. BED Develop an Urban Forest Master Plan to Parks & Recreation articulate city-wide and neighborhood Planning & Zoning objectives for public trees, establish comprehensive tree planting guidelines, and fundin mechanisms. C, Reexamine the Zoning Ordirnnceto ensure Planning & Zoning existing views of I ake Champlain are protected to the maximum extent, especially from public arks. _ Inventory public art and cultural facilities Planning & Zoning in the downtown and on the waterfront. City Arts bltdium Term Develol conceptual guidelines to define Planning & Zoning gateways through 6,e use of signs, Public Works plantings, architectural landmarks and other Parks & Recreation design features. • Define north'south and east/west mid-block Planning & Zoning pedestrian pathways connecting the Centeal Public Works Tlusiness District and the surrounding Parks & Recreation nci hborhoods. Evaluate the feasibility of linking cultural Planning & Zoning facilities through the use of a downtown City Arts • cultural /arts district or through a centrally- • • located arts Information kiosk Built Envlronment Page 111.9 • • 1996 Budington Municipal Development Plan Burlington, Vermcnt i Lon -Term l Establish a Third-Ceatary Tree Planting Parks & Recreation Fund. Develop a Percent-For-Arts Ordinance for City Arts 71 ublic buildines. _ . Evaluate the feasibility of using floor area Planning & Zoning ratio (FAR) as a measure of density beyond the CBD and Transitional Zones. C ! III F f D } 'gi I a•Ij• - i r b Built Environment Page 111.10 r • • 91u1r • - - .-''WlYs~+d of aW.~ r , Y . ' 0 0 u r~ -0 S .4 - 1 4 tt ~ ~ , riX G iv y . into c xLYr ~t ~•d .cg's 1~ L" ~ i 4: . ✓ ~ ~ r 3v Js k { 15A F11 r rv: I Y ~l ..t 3j + r t .7r I t".! ...ei, `P'}3'`y rt~ ✓~.}A •'9rFr 4 kkk i 4. MAN 'F • i 'i • ..r l , is . C '•j~ ;~c 4• ,~Y t r~~ ~ J v e • • at C.H.A► P' DER 1 r URBAN DESIGI t s s I J- - ~ I A loom, like a flower, .'?.'should at each''stage of its growth, possess unity; symmetry, completeness, and th'e,affect of growth should never be to destroy , , • , tot unity but to give it greater purpose... ° ° ,r - EBENEZER HOWARD i r t•: R-: `f- .i ? f Sirs; ~'iJ 'jam x ~I j xi1, I. I :r Sunuttary INTRODUCTION Of Tit r,l and suburban areas, as 11 el! T h,sehiptera!dre•aesthan~}icof nsurbanareas. 4 c t is th, urban dcs~"n, l rI u, desii,n Lin he F~,rrcas~_`nso(s~cial,cuhurnl,and of ;srut l a rid f,h~r i . ncrall dchne I a, the many rn,rnt ec(rnonuc function, the count is [Trial r..,t~irCiflh2l`uI[C y , Of the `61S111' a.nd }~h~sienl do n`!o}`- composed of a number of diffe17 rent ar o.. •n,~r [S,f r. i o,.-c„t uhu,a rhr 75 gttler l mcnt of the hurls cn+ironment. areas,indudingresidentke:nelShbo•- , '..i ,I Iii i ,rrdy rig, Primary emphaa,s rs placed on the hoods„ho}'pingarrtrs,and ernploy- ycr;u,:carfatscl'f1' ci,unt'schir,i,tararlnahillty Both mentconccntratrons.Facharea u} s, „ i htz,hii,ty [hha❑ , arc termsuliihnfertothcorgani:a - ports different acuities and has a I, It n. i, t * the lt;J; flit' o,f. Min Of 'the encinmrncnt+ehLhgices disrinatchnractenvhichcorresponds 14: h .+f li r 'i tI c5ra4 torrocs, I 1 rr f ,r r a of rd ,Ir(ariun to the county its unninc and drstmcticc to fun ti~nnol rryuircmcnts. r + r Ir, t ulun cn,nrni`r t idcntny. The ItAntrun is to res,,,lId The visual and phr,siea! quolit}' of r l"' r-' h to gro:+'rng p Ibha cr,l7cetn ,or the in area depends upon the activirics LN II,,l t, rlrla'ilt clIIn,ltl' PI h~rr,;h f •.n changin};phi>:calandcis.rLIlih:valtcr supportcd, the arrmgemcnt of 'l, of Forsyth Count} , Mary of the dividual clcnunts, and the d+ ree to 1~ [ I•, ..;t~:nbandrsignfrJme- 4 I ncd are nnr "hichthe clcntcntsfitr+ ether.Fur. 6.r,~ lf~rth~~Ilid,rnccnfusurtf nr,r; in Lot, urban Irsign played an exam},e, tHe eh.vacter If a rc rdenda! !C, rrir,r in FUrs .rh t irnl`urcu,t n,,c u, the phq~lcal torn, ncighhurh,Iod can he analy cd by apfnraJ, is l r,i lIf rh l'nunty's c,rhest settle- evaluating the influence. ct s:ccra! 11~iI [i I, ir';rrthlntu141It I,I rne nt+ I{, r:, e , e r , u I 'A .t41 ro.,c' It to clcntent.: ! P ) attern and style Cf u r. 11 1! 1 I I! e too rh at,,rr , r' ;:rmr4lr Pi;nl 'Irhun do>iLu is uistid t+hiih stnl<urccs,l2)Strucrural yualotyar•d n,.rmk,les T, Itfd k>.LICS +lhieh h tae ul`keap; Streets, cud`s, anal 11 I~•1t~,. r, J"l I lldl`le rJ I'lll l,l ka,'ns,ll'Jl',IG,1re,11"IItC:lrlC.ltn,( 't4[ ~!dClv'al4'Y! ~lS1 ra'altrcCa;l5 )llln,{. , 1%'ir6l•I ea,h ,+•r,:• n.! ar„irlr,,,lom r 1r,n I+eanlte sc.t in 0 pcny Ii r'frunspaic, I , , .,r,. it„l,tain4 InII1I- i { } 1,'( 1 ! ' uP to r;uide I„aal rmprueclnent (7)l'u!I-tunt<nmar(5)Ilxf,tinp. n,4r, wrier croiIa ti„ n. ] hr n: r ln " u rk,n a!r. ,'n I he LI rr.In„cnj+nt of physical cle- , 14f,nrnly r,e„rr,l l .,n hr mi~1LIiJin~ f,~r llrl In alc.,gn menu arld their In.{ividual yuallutI, f 1r,,(rttrIt lull r r r ronaiitn ;Ire III It llnutcd s„•rF; In sttonglq inRucnca one's Perrr4`ti,, Ii s p u5 rhr urLu,,r- I1 I'll, 111 ,n t„ a!I [ It 1 ,Iccala,l`L'J of an lreo's clil%mtr anal one's I 1 rer.. 144dr,:atrnn r, it i4n,p`ri.vti oi6vity4`rrfrrrn.r+ kte,stpao,, e,n 'll. :w•,•IL Ill vc t1r,I,- hun,In ha;urtI ue I,,rir uhcther nn area is 1"'k diIi, a. i rl,r exnr .tn,!.,lran rhir {1,+'t.,11 ,n., "tit, c, IT "bra~.rlful." h,,, + r. , +i.u:IllrujcrICI It MC tit iIli P,rr}urya,lisotthis 4•lan,practical n1,ly`,II;I sI:'.nlflr.,ntlti I:Ifl It cI e tLc AL It ter and rca~in ah:, cx4 ritttl„os r:quire that ur1 an Jcsi;'n efforts }`c conacn tnetcd on the }hysical and visual aspects of the public em ir„nment, The public Ln%ronrncnt refers to G' those uun{oor areas +chich arc either },hcsiia!Isarcess'.b'eunisuallypronr incnr for the general public and includes public and }`rivate property l his cl,nce1, t is based on the recrKni- + tiort that the county's character depends upon thousands of indi- I ; ~ cidualinccstrtlcntdccisionsmadcon a daily basis by hnmco':. Hers, decel- t opcrs, R`usincss firms tban l,ti s , and public agencies. l'r design n ~ eflor:s seek, to maximi:c public benefits even limited tesonces by L ` guiding deeelo}tment as}refs which arc used and seen I`y significant numbers of people. A strtmscape is a good example of 14 i s • URBAN DESIGN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . a public environment. The elements examples of architectural design still A noticeable shift from rural life appropriate foturban design manage- exist from this era, attention to urban has occurred in the past forty years. ment include building facades,street design yielded to economic considera- However, approximately one half of trees, street furniture, and utilities tions. the State's population is rural. By (Figure 14.1). interior areas of The Forsyth County industrial base contrast, Forsyth County's popula- buildings represent inward oriented strongly influenced the form of tion grew in more concentrated areas with separate identities, are physical and visual development of patterns, and thedominanceof urban entered by choice on the part of the area and created a distinctive life is distinctive. individual users, and are, therefore, urban character in contrast to most The sheer growth of Forsyth not considered part of the public of its neighboring counties. Until County, combined with the contin- environment. recently, North Carolina has been a uPd preference for urban lifestyles, Urban design guidance, or the lack rural state (fable 14.1). has produced significant physical and thereof, significantly affects the character of Forsyth County in ? A several differentways:(1)Realestate values; (2) Civic pride; (3) Sense of obligation and commitment to private r, property; (4) Personal enjoyment and satisfaction; (5) Overall invest- 'F ment climate. 1 EXISTING SITUATION a ` Historical Perspective _ 7heurban designhistory ofForsyth County can be traced back to its er- " earliest settlements more than 225 of years ago. The Moravians demon- - ' atrated great care in managing the physical formofnewtowns.Efficient a development plans were designed in yixtl'S?v support of overall community needs. Designs for Bethania (1759) and , , , , , , , , , , , , , , , , , , , , , , , , , , , , Salem (1766) were prepared and exhibited similar characteristics. FIGURE 14.1 Building lots and side streets were PUBLIC ENVIRONMENT created around a main street and central square, thereby creating a focal point forcommunity activities, The 1766 plan of Saler- illustrates i this pattern of organhAtton (Figure 14.2). The Moravians also demonstrated concern for the visual development • of Salem. The Church's business - board, knownas the Collegium, acted 0 • as a board of architectural review. • r Recent Conditions With the establi5:.ment c f Winston as the county seat in 1849, industry and manufacturing activities fol- lowed; Forsyth County's population grew rapidly. Although many fine . . . . . . . . . . . . . . . . . . . . . . . . . • • URBAN DESIGN _ . w . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . visual changes in Forsyth County's environment. More people live, FIGURE 14.2 work, and shop in urban areas now 1766 SALEM PLAN than ever before. Densely developed areas support several different activi- ties for a more concentrated popula. P. Gk? l !'ry:l . 0 d/, tion. The visual and physical qualities • " f of the coup have been threatened / • : x~ ° t` l{~ by rapid change and growth. 4 Public awareness of the negative -i - J effects associated with sprawling r / growth has increased in many areas of th; county. Urban design related t_ _E't y problems were identified by residents in almost every area plan prepared by {i ' thi City-County Planning Board staff. J / For example, the US grr Area Plan, adopted in 1984, said in part: "...This road [U.S. 311) is a major gateway to Winston-Salem, [and] its attractive appearance needs to be c protected. First impressions are important to visitors." I r I f The Ardmore Area Plan, adopted in ` 1985, observes: "The potential poor visual impact of comt.;:rcial and office areas due to the lack of compatibility of architectural scale and character, signage, cluttered . appearance, and a lack of landscaping _ :s viewed as 2 problem by Ardmore residents." • = Urban design improvement actions thus far have taken place on a /1 narrowly defined ur issue-specific ! ~M basis, such as historic pr, ervation Q- s efforts, downtown and Winston- . Salem center city programs, and the recently adopted sign and bufferyard ordinances. A comprehensive ap. !1 preach is needed to anticipate poten- tial visual and physical problems rather than respond to existing dif- ficulties on an incremental basis. • ' % URBAN DESIGN • • APPROACH A comprehensive urban design framework is needed for the guldance 6lmwbn MaFivn, wM,ron 4lem,NC. of visual and physics! development llud.[,A rwmluiun. in Forsyth Countr. Such a framework L serves several functions. Distinct character areas or districts can be . • • . • • • . . . . . . . . . . . . . viewed in a countywide context. A e • URBAN DESIGN uniform approach to the guidance of will enable efficient and ecoromic recently adopted sign ordinance, take visual and physical development, decision-making. place in reaction to existing prob- regardless of the specific district, lems, rather than in anticipation of maintains the effectiveness and credi- ISSUES potentially harmful effects, bility of urban design efforts. In- Suburban sprawl threatens Forsyth dividual issues, such as signage, can Although State enabling legislation County's distinctive character and be addressed on an incremental basis was passed in 197I, Forsyth County identity as or, urban center ringed by and still relate to overall urbandesign has not taken advantage of its ability rural areas a;Asatellite communities. goals and policies for each district to form a local appearance commis, Wooded and agricultural lands are Improvement strategies can rank sion to assess visual and aesthetic yielding to suburban development, actions that will yield the greatest issues on a comprehensive basis, resulting in a trend toward a homo- relative benefits. Urban design actions, such as the geneous visual pattern. Initiation of a countywide urban design program includes the fol- lowing tasks: (1) Countywide visual inventory; Visual quality assess- URBAN POPULATION - NORTH CAROLINA AND TABLE 14.1 RRanent;king g of Issue issues; identification; (5) Improvemeent nt FORSYTH COUNTY of _ strategy; (6) Action program. PERCENT URBAN PE RCENT UR BAN The Urban Design Matrix (Figure NORtHCAROLIN,A FORSYTH COUNTY 143) graphically illustrates a sug- 1940 27 63 gested conceptual approach and 1930 43 75 organ izationalscheme for addressing J urban design issues. Urban design S"m Census :of Porvlsr.um - 1940 and 1950 areas are the six areas on the Growth . . . . . . . . . . . . . ` Management Plan, activity centers, _ and other special areas amenable to FIGURE 14.3 r urban design treatment. The matrix URBAN DESIGN MATRIX is not intended to represent in exhaustive list of potential areas, districts, or elements. The structure is based on the assumption that Urban Design Elements character or livability can beanalyzed and improved by describing a district t as a sum of smaller parts or urban { design elements. The district serves c ~ 'i. I as a generic urban design unit. Each ;6 1! t3 s 2 element may vary to importance or T a • meaning for any given district. For rr1,? h ` d example, the influence of building ~r~;i facade elements on the character of rY i yr downtown Winston-Salem might be Growth Concep(Are" s; Area t, Centnl Rwtnen District 4 considered much more important a than in less densely developed rural Area 2i Centnl Area ii areas. Elements may a!so possess Area 3: Urban Arcs • different meanings in different areas. Area 4: Gro. rh A Pea f~ Transportation corridor signs could Area L Rural Area A a f f~ Aso 6, Conr<rvad<n Arco focus on the impact of advertising ,1 sr billboards, while commercial district ffiSpeeialDistactsY I AM signs analysis might be mot . con. "Gate o`°"" cerned with business Identification "`"'r, ivt.'aa signs. If the relative impact of each 3 Major Tnrnpomd, Co tdon urban design element on each dis. Strip C<tnn,er<talDrtrtera trict's character can be evaluated visitor Attrudont objectively and ranked, a powerful IAsSF>`R ti"&►yFa and valuable tool is created which . . . . . . . . . . . . . . . . . . . . . • . . . . . . 0 r won +r _ ~T IiRI;AN DISK}1 .'r r, 1, 1! ticlelhItr Irr ;c:ts, Iit)nI recently, loin income such as :oning, subdivision tegula- ~~:I r 1 . ~I,.,n,i,us scr,ltivity ti. h~us;r Irojccls have hecn incre- bons,hlst„ricF~re~cn'ation,econornic LII n. I:I,„t pri ate ,Iccclul - mu:clll; d~.ip ned tvithour regard to developrnrnt, and environmental E.rn un,Icrtaken v:ithout urbandcsignquality,foruntultting protection. r- :Tn. n t,r III}>iial nlld visual rcas,rns. Lack of sensitivity to visual • I he distinct identity andcharacter rI.'I,aI The arrnmunity as n on,l p,hy,ical form still pingaei the of d1fferent9 reaaofForsy't1rCounty Pr, 11c m, stem from oecr. iii, irdlhorh)kid character of many should be maiutaiaad. Visual and If ; I r ~ttt ul nvation on,l uec of inim-cit}Hick communities today, physical variety provide choices of ..zl,,t.lr i ,r~nstruction hracticcs Iorsyth County's major form of ifest}'le prrfercnce, sulportauider arc rut tit I10 ri o%(int rlth f trarlc _I rrnltiltn is the pxiva;e auto- range of tcticities, and F~rescne the 11 lI'ddcaipnte,hrlyuc,, in,r!~;Ic A, aresuR,manyareas dell hlSKrticcharaeterOf theCLumV. Un 91ti' r< raT:l I, v 4 I lrij) aannnnnl district shop- • l'rban deign concepts should be n,rlti c, r6, ur.u valof 911 tree, ping ccnT(IS, and ofACC eomp4u's, ncorponitcd Inro private dcsrlop - ? ~1 rrlt nnrcoaLc 1x,f„r arc r,cirnklwlmin 1' dontin:rtCd by g} nltntphlns lndi:idullproicctor,cnt,t- Il lLift rr". rant, ii).l struc- cd,tstrcriIII 'sofsurfacehark nglots. nonshoul lbetemlcredbyct,nr?era- I r i t ~•I ihi, Ir,,,,,, Ic- titn'I,iirdi il'Iglotdcsignnorniilly turn for overall o~mmunity impau. rr it I1~it,~d rm l .I,In n, , rc-.r ,rllrtii in apart, I'c a(',triIll in c1scs, SL nnItlCif}' I,r , r 11"'[I LItl 'r 'it' ,.I k I"Id ,tl1Ill , otl,l u.cr Iomfort. :MJ I F.;sual cffrcti, JOCs nirt in.rcasc .rr,..,.I1, 1•~Il~. it d rrnvl.,trd %';,It',r I'crcri ticros of Forsyth constrnllti,m cost. v,lll,nt,nn'd~el~l~lr, t,nllg\ ehnr,rter and 1111.10,- ore •Thevisuliandtuncur~nllbenrflti i t Ifc,,1„I nl,:l'II [if T1ll ,I r. n~jty tllflUrncCc I El}' the visual o(rrce+ nnl o;hur ccgctatinn sh„ul,{ E~AI .I,Irkr~i rn,rrIrJ ,'si,,'tit n,,.cno,unterrdalnncma',rr c rccuh nl:cJ tllrULl,1;h peal 'ill, ~r cllli,.tr.InIf,ifIrit r,utr, `rmraltran,l•orn,Iiun I'rograrns.InstcadOf vic+cin vcr',trv one ,d u orlfll! an' ur,rcmnrk;iWc at best tion as a nmstrucri ,n obst,~clr the r., „n:, rl, q, 11:1 d:I,l ull,::',!nly at corst. ~~I i I•J:,' '.,ITh .unOlln,lill•, true r,llu~ o trees, shn,6s, and rundcuvcr should F C ma,ie c.cFdlcit, iii l;lcr,', 11 r,, n'r Iart icu l a r ly m tarn is of eCOnl'rr]IC !•L,. k Ii,r I,Ini u,lsanta',rs for private dcvclupcrs. t nl,,illtI _ 111, 01or,',III Cr,rrnt}' should tnk'c adi- •Infill,levcl,rpn',cntshuuldlrcc,alu- ;ri rndi ,I.~ntr,it % r„ftitotrenablingle ls!atl;dn ated carefully for comlTatlbilitynith urh.ln ter, u, zq i r,,.,ih i,~lnlnnnity appc~r,ulcc csi>til'I,,strccturv's, ihcdcsigncharac- ~l.cl~ ,Enril:hl'„rtlIf, I crl[Ili aCE,in,fvc manner. Illis tcn,tles of ncu' dcrelopment can rl ,,rl,i : ua,~lr ll n . nic..ln hL,rrtunity to inter r,Ite I nwlde contrast and }'cteomp!rnunt ccnrrnanlty ippe;irarice concerns older buildings G.:a,st11,~tnln;' v.,th I,rhtr planning mechnnisln<. •Urbindesign principless}houldbe emphasised in improvcrtient plans r for inner-city black eommuuities. ' t Kci,ehbarhi)"d visual and physical s ..•r,. r yUality should reflect social and cultural strengths and residents should participate in the dcvc!op- meat of }dins to improve in area's dtatacter. •-1 hedesign and loeation. ofparking r lots should reflect better Sensitivity ® ) to visual yuolity and functions! needs. Large, uninterruptedparking i its are e wore., are unbearably hot due to solar absorption, and uldom is ^ ruvidc p pedestrian routes to and from parking spaces, ~ • Major transportation corridors, entry points, a Id vistas should be given special urban design attention. Forsyth County needs to "put its heafootforward" to create inima_e • • URBAN DESIGN - that impresses visitors. This goal is 6. Promotion of public education covers should be comprehensively important to tourist attraction and and citizen participation programs addressed by this sec of regulations. overall investment climate objectives. for the enhancement of Forsyth •Guidelines for infill development County's appearance. should heestablished by local regula- 1.Issuance ofdesign awards forout. tion. Design flexibility should be RECOMMENDATIONS standing development tohelghten maintained through an Appearance public awareness of urban design. Commission design review process. A countywide appearance com- IN An urban design district approach 0 Urban design plans for innercity mission should be established, the should be used to maintain distinctive black neighborhoods should bedevel- powers and responsibilities of which character areas in the county. The oped with a strong emphasis on equal those specified by State en- Grov,h Management Plan provides resident participation, guidelines for abling legislation. The Appearance P. district framework with which to infill development, and guidance of Commission would serve as an work. Additional special districts, public improvement programs. advisory board to governing bodies such a3 majorgateways, entrypoints/ • Design standards should be estab- In Forsyth County. The powers and vistas, or historic districts and other lished for surface parking lots, duties of the Appearance Commis- visitor attractions, can be identified Primary emphasis upon the required sion should include those specified that support speciali:edactivities. plantingof trees and other vegetation in the State enabling legislation: • An urban design guidelines hand- Mould soften the harshness of paved L Preparation of studies, plans, and brook should be developed for use by areas and provide shading for user programs for the improvement of private developers. The handbook comfort. Forsyth County's appearance, can serve as an education tool and 0 A visual inventory and analysis of major 2. Recommendation of design poll- would explain urban design regula- mould be condos at I c corridors Gies and goals for all or parts of tions such as the sign or bufferyard Strategies according Forsyth County. ordinances. 3. Recommendation of appearance • A landscaping ordinance should to the traffic volume and relative oriented standards. be established which integrates en- visual qualityofeachroadwayorhlsh-way. 4. Review and evaluation of condi. vironmental quality and urban design should be for the nde for40 project aesthetic tionalusedevelopment pruposals goals. Minimum open space require- and visual impact, end local for the determination of aesthetic ments, protection of existing trees, an made Impact. tree replacement in lieu of removal, recommenavailabled d theations shNorouthld d Carolina 5. Review and evaluation of plans bufferyard and screening standards, Depabl e t ofTrat~Nort Carolina for public buildings, facilities, and parking lot planting requirements, highway construction begins, projects for aesthetic purposes, and the us_ shrubs and grouud- • i J • O C • r . • • IMPLEMENTATION PLAN CHAPTER 14: URBAN DESIGN Pro Primary, ' Recommendations Actions q "r! . Res ponsib tq f.'... { . Schedule Establish a Joint Ciry-County Obtain local legislation; conduct public Ory-County Planning Board; FY SM9 Appearance Commission, participatlon program. Governing Boards Develop a comprehensive local urbm Conduct citizen survey; prepare City-County Appearance F'ucal Years design/communiry, appearance action inventory of physical and visual features; Commission; City-County 90-91 plan. prioritlre issues; undertake public Planning Board; Governing through education programs; develop Urban Boards 92.93 Design Guidelines Handbook. Develop standards for appears. cc Prepare recommendations for City-County Appearance. Long-Term related Issues. Landscape/Open Space Ordinance, Commission; City'Counry Infill Development Guidelines, Inner. Planning Board; Governing City Black Neighborhood Boards Improvements, Tranaportation Corridor/Gateway Programs. V . ~ e o J , t, k NI- GAvL H_E L E 4_ 4 { .:LANDSCAPE iy Fi T' -l t lp GUIDELINES FOR REGULATING n- ENVIRO`NMENTAL` AND AESTHETIC QUALITY. _ } ref: rd s p' '1.~ ~yt e,) " 7 I. e, ,y' I f. N [yam [f ! I' ; i Y ri 417 - ' ref +}yi A' f t.Y<~ yr f . t~t~ PPS.' , t ,t it- 4 lad CIAO RICHARD C -SMARDON JAMES P. KARP k ~r k j !mow 4 A f" r M~ V 0 Chapter 6 Architectural Regulation, Preservation.,. and Design Review INTRODUCTION ings in the 1800s, enacted similar legislation that pre- scrib scribed a la !er height for buildings constructed in This chapter addresses issues related :o architectural pre- regulation, preservation, and design review. Architec- So communini nmutiees started searly earlly y wit with commercial architectural regumercctural regu- tural control, as opposed to traditional zoning and land So communities and preservation. ise control, has to do with the preservation a _henges preservation of historic values is very much bound relafedtoindividual structures orgroups e.btructures up with aesthetics values. In a dissent by Judge Jason in in terms of the structures' height, mass, design, mate- a New York Court of Appeals case Lutheran Church in rials, color, and other physical architectural attributes America v. City of New York, he states: (Figure 61). As America became more urban, and as new archi- iWJhile economics is perhaps inextricably intertwined tectural and building techniques allowed the construe- with such legislation, In the main the purposes sought to tion of ever more massive structures, cities and towns be achieved are aesthetic. Historic preservation promotes increasingly showed concern about retaining their aesthetic values by adding to the variety, the beauty and character. Drawing on European precedents, particu. the quality of life.' larly from Germany, local governments began experi- menting with zoning and architectural controls. Some To preserve the aesthetic character of "quaint" and of the pioneer cases involved height restrictions. As delightful villages in the face of urban growth, the fed- early as 1888, a New York court approved an 80-foot eral government,' all states, and over 2,000 municipal- height limitation on residential structures. In 1904, the ities' have enacted historic preservation laws. Federal o city of Baltimore adopted a 70-foot maximum-height preservation activities include the Historic American regulation to maintain the character of its neighbor- Buildings and Sites Surveys of the 1930s,4 the consoli- hoods and commercial areas. The same year, the city of dation of control over historic property In the National Boston, which had grown sensitive to the need for pres- Park Service in 1933,' and the Historic Sites Act cf ervation due to the destruction of many historic build- 1935,ewhich declared thepreservationofhistoricprop- 'Lutheran Church in America v. City of N.Y. $16 NX 2d 306. 311 a. 14 (1974). o 'Historic Sites Act, 19 U.S.C. u. 461-67 (1968). 'See DueAson, 1933, A handbook of Historic Preservation Law, The Conservation Foundation, ar'mh., D.C. _ 'R Lee, United States: Historical end Archeological Monuments. National Historic Trust Team Memo 11 (1951) at 14. Old. at 18. eta U.S.C. u. 461-67 (1988). 63 • • 64 The Legal Landscape 110 11 r rr /rr`r / , / rl _ l- ILI . `t •i.1~~ ICI Height contols -Focode treatmenh, textures colon • L &iWing Set-bock FIGURE 6.1 Generic landscape with axhitectural control messures. Credit' Scott Shannon erlya national policy of the United States.7 State pres• Policy Act,rl has created problems for urban develop- ervation activities (Wilson and Winkler 1971) have ment and especially federally funded highway projects centered on the creation of historicparks and museums proposed for historically "rich" urban areas. Section and the encouragement of quasi-official state historical 106 requires a detailed analysis of impacts on historic societies. The National Trust for Historic Preservation structures and properties as part cf the environmental was created to succeed the National Council for His. analysisofsuch projects, thus causing delays andsome• brit Sites and Buildings in 19491It is a nationwide or. times tven stopping a project. ganirationthat coordinates the activities of the diverse The National Register of Historic Places lists dis• state and local preservation organizations. tricts, sites, buildings, structures, or objects that are A key piece of federal legislation r:garding the pro- significant to the history, architecture, archeology, and tection of historical aesthetic valu-r is the National culture of the United States. Published procedures" set Historic Preservation Act of 1956! Section 10610 of the forth the policy of the Advisory Council on Historic act requires the consideration, prior to the expenditure Preservation regarding compliance with Section 106 of of federal funds, of the effect of any federal, federally the National Historic Preservation Act of 1966.13 • assisted, or federally licensed undertaking on any dis• Other Metal acts affecting historical resources in- trict, site, building, structure, or object that is listed on clude Public Law 92 6362, which allows donation of f the National Register of Historic Places. T!i s provi• federally owned historical properties to state or local sion, in conjunction with the National Environmental governments, and the Open Space Act," which pro- 'Id. • '16113, C. is. 466-68e (ins). • h6 U.S.C. 170 it say. (1968). 'Old. "42 U.S.C. 4321 et seq. (1968). "Sea FR 37, Volume 220 (Nov. 14, 1972). Advisory Council on Historic Preservation, "Nations! Register of Historic Plates - Protection of Properties, Procedures for Compliant 1316 U.S.C. 470 et seq. (1988). 3142 US C. a. 1500 r:. - r »y r~o~w~w~W~-:.c.~.~Al.~• ,.-r+n..._._.._rrr.aw~w,.M-.vr:,,...~~_~. ~._~._.___-___..._-rr...~~.r • r • Architectural Regulation, Preservation, and Design Review 65 vides grants for historic preservation administered by THEMES FOR PRESERVATION the Secretary of HQt&g and Urban Development. Much of the action though, in terms of litigatio.-1ts Rose (1981) suggests three themes, or rationales, for and developmentof useful tools's for historical preser- community building preservation: (1) preservation as vation, has been at the local level and in a predomi- inspiration, (2) preservation for architectural merit, nantly urban context (see Rose 1981; Crumpler 1974; and (3) preservation for community. McMillan 1971; Costonis 198.5; Poole 1987; Anderson 1960; Loftin 1971; Rankin 1971; and Goldstone 1971). Preservation as "Inspiration" (see figure 6.2) By looking at some of the early roots of legislation for historic preservation one can see basic rationales or The inspirational view of preservation was developed themes for preservation. in the nineteenth century vie inspiration and the no- "See City of New Orleans v, levy, 223 G. 14,64 So. 2d. 796 (1953) (upholding 0 a New Orleans ordi• nonce to preserve the Vieux Carri section); Reynolds Metals Co. v. Martin, 269 Ky.378,107 S. W.2& 251 ,1937) 1 Use of property tax exemption to encourage pr)vote exper itures for restorstionpurpous); V.S. v. Gettysburg Exec. R. Co., 160 U.S. 668 (1696) (enineat domain power upheld In acquiring historic property); and Vieux Carri Property Owners v. City of New Orleans, 240 LL 788,167 So.2d. 367 (1964) (ordinance which exempts part of the Vieux Corrl section of the preservation regulations is unconstitutional). "See Jacob Morrison, 1965. Histo tic Preurvstion Law, National Trust for Historic Preun stion, Wash, D.C. (2d. edition); Supplement, April 5,1972, self-published, 815 Corondelet Building, Nov Or. leans, Louisiana; National Trust for Historic Preurvation, 1972, Legal Techniques in Historic Prea..r vation, National Trust for Historic Presens6on, Wssh., D.C. ~ y Ia kt a3 ' 4. I FIGURE 6,9 a, b, c Preservation ninsppiration-Gettysburg National Battlefield and Sachetts Harbor, N.Y. Photo credit James P. Polmer • 14 • • 66 The Legal Landscape tion that civic education was intended to have impor- tant political ratn~ifications (Rose 19a1). This was true of both public and private preservation efforts. Embod- ied in private activities was the idea that reminders of the past can link us together in a national community. r One of the inspirational view preservation cases of that era, United States v. Gettysburg Electric Railway Com- pany," is illustrative (see Figure 6.2)• The United States condemned property for the creation of a na- tional battlefield memorial at Gettysburg, and the question arose wh ether condemnation was for a"public use." Justice Peck's opinion in this decision states two key elements of continuing and critical importance: ' i_ 1. the idea that preservation can in fact have apolitical purpose of fostering a sense of community; 2. the understanding that a place can convey this sense rJ of community, or more generally, that visual eur- roundings work a political effect on our conscious- y' ness (Rose 1981). t= Preservation for Architectural Merit According to Rose (1981), with the shift in interest to architectural merit, public involvement took the forth._. ofarchitecturatcontrols designed toprotect afewwell- known old districts, such as Charleston, South Caro- C lina, and New Orleans (see Figure 6.3). Challenges to 1. these architectural controls gave courts an opportunity for reasoned articulation of the purpose of preserva• tion. According to some legal commentators, although judicial opinions have generally upheld architectural I controls in such application contexts, analysis (1) has FIGURE 8.9 Preservation for architectural merit-hiatorie not included anything more then the validity (or inva- building in San Antonio. Photo credit, R C. Smardon lidity) of aesthetics regulation, and (2) has not distin- guished historic preservation from aesthetics. Para- mount to some legal critics (see Rose 1981; Costonis 1985; Poole 1987; Crumpler 1974;and McMillan 1971) tysburg, but the smaller community of the city or is the need to build considerations of how and when neighborhood (Figure 6.4). communities may participate in the basic rationale for, If community building is the central direction of re- and decisions effecting, historic preservation forarchi- cent preservation activity, then several consequences tectural merit. Thus, who sets the standards and who must flow according to Rose (1981). First, the age and • are the tastemakers? fame of a structure are only two among several ele- ments, including scale, distinctiveness of design, and j i Preservation for Community Ircation,thetshouldbeconsidered inassessing abuild. ing's importance to the community. Second, because a The third phase of historic preservation builds on ele- community exists over time, the present community ments of the past by expanding the substantive consid• members' perception of building value should be con• erations implicit in Gettysburg. It increases the atten- sidered. However important it may be to conserve the ® tion paid to procedure and focuses on the contribution indicators of the past, some latitude must remain for of the physical environment to the maintenance of the contribution of the present Third, a community- • • community-not the national community as In Get- building rationale should place preservation, and the "ISO U.S. 668 (1896). A COMMON • • Architectural Regulation, Preservation, and Design Review 67 I y i t FIGURE 6.4 Pre senation for community character-in Brooklyn Heights streetsnpe Photo credit. Ceorge W. Curry physical surroundings generally, ina larger perspective of community needs. Finally, it should be recognized that physical surroundings play a critical role in the community. Those surroundings cannot be viewed as the preserve of the aesthetics buffs but must become an issue for a broader constituency. Thus the motivation for architectural preservation and control has evolved from national historic inspire- f eional preservation, to preservation for architectural merit, to community-motivated preservation. FIGURE 6.6 Architectural 'Alien" in Louisville, Kentucky. APPLICATION CONTEXTS FOR Photo credit: R. C. Srwdon ARCHITECTURAL CONTROL It is instructive to look at how architectural review or- plosive growth of tracthousing(suchasLevittowns) dinances have begin created and at their intended ap. to the 1. The ordinance of aimed principally at p!ication. Poole (1987), in a review of architectural ap• home preventing xng design ithen large sumonotonybdi vtheisionssame o am e, pearance regulations, provides a very useful list of . An example, cpplication contexts: again, wouldbr the LakeForest, lllinois, ordinance. 1. Topreventtheconstructionofbuildings that areex- cessively different from nearby buildings (Figure 6.5). This is what Costonis (1989) terms protection j • from "Aliens," It isprobably the mrst common form of appearance review ordinance.As revealedby case law And by the nature ofcommunities adoptingsuch ordinances, this form is principally suburban. It is frequently used to protect existing mid- andupper• level income, single-family neighborhoods from the intrusion of radically different architectural de- 0 signs. However, many communities exclude single- O O family homes from their review. An example would - be the Lake Forest, Illinois, ordinance. 2, Topreventtheconstruction ofbuiIding., that are ex- cessively similar, or an anti•Iookalike ordinance (Figure 6.6), This form of architectural control is FIGURE 6.6 Esv.sslvety siculal architecture In WuhIngtom also a suburban concern, originating from the ex- D.C. Photo credit: George W Curry - e i. s J a,~n ter. l 1li.l LI rl r 11 ~ 17•••. , r. .r H'. 1[r.I'L'F. ri .Ix¢E'..".. 1", ~i, Fr,r; .:..r'. rh •n l.r• t ril:t~1 1'ri I:Cr rnr; of L'r r;r 1 ~'~Ilr h>.vlth.r'. ICc-r. t:In~31"rvy•11•r; Ir. ! 11`1,71 ref il."I Fi 1F„ IN;i Iif 1,r,ti t11 rt r I ln '(i:I r', 111 iir. n51nn t.1 tl,c rIl>. 1:1.1 n I r nc thr i r 1 1 (i..inr r in Iri, o, , i, , r.rr.lap ru: urhnn op t l:~• r. It r. per 11:I1,:q t1, i Th r t ] III .1, i:fla n. h t1; d,,-rr'.I t: 1111-dI, :I r,,:.?rntra- IAin 1 i','r~hVhl CO h..•l:lit" r', ':I ni.!rhIIT U. 1t- 1'CI 1- ti ;l%% t 1, rl4 n1 ) i 1, pr, lr, llltl' l t'lrld 1r lit, .I ]U rt lcl:l.IT Ana'tdn:alall Ill, ul:11l~;ur:('.~L"If.l i P +1.', / t ] :c, nt IN n, t 1 i, f rill Ill cci, l'i' Il rn'.If itrI! iIr it, in y~'~yr~t~ r< rr.iatlnli.. r dl~rri;l ll,e]a1 ~hyy r 111 r In u h L I ,''Irl11rl r r Iral L r , •'.I~ th t 1 r :cr• II 1 i3 ri, ]r ,,,'1,..;1,.'1,l'hs ~'rh•l•lr, ~'I~.'rn Nn7 r. tk.• ~.rl ~r,l f.. -rrI r l,ll rr. ]~r -'r l.,rl r,I rli~ II ,t11J q,-1 5''' E In l ]u c. ,:I Ir11 n , di<trict. IL~.lhruenfnr- R l11'L r:i rc 1L r I.Ir Ill nir.oc 01 t r f ll n .r.t} d• .r'r~rl.rCrt. II h1, I..?h a s~iboIrl, In :Itr li rite r s!rIc'ntII n G SII ~Ir.,l a centrll I,11-;;,, dl -trier c1,ncr],r t ,,!I,Iti r. l)ne o1 the tlri[ ur1 tang, ~1e11 I~rr, I, thr (gdl Geld Irrll, pnrhrain . ~e I' urfla❑ u,,ni parks and 1•'..n.1, I. tttrait (c!rs1r,ij I usr.r, IF'iIire t; Iri = }i.,11 IP - Ia:csll ,la trttc;ilhpr,pcrii rchi- r ri~,y r,lllr'r. In.urhin113nli:lipjkmeon}lr ~ ~:L~, ti-.~~ rlrr Iu,,nlr:It~ n t~~ lrtnrh ,anr'n~re•tti. 11, 1 Ii III 'l n', iin I,'rlllr'rca I:q intercti r• •,d : 1 L lr'.,n t;„ n : ; r,.,I Irrt in \'e .v l . r ( r l.l.h a rl i, h ,nt In rl ti3 n~:.ith rt,i+ an EX an'.]Je n' F'.leh a 1'ro rlnl. Ai a F ro-rarn are urLin xr..' ' f.~ cmah, e:Itranco dis(r,at~ el,ng 1r~nsportation • 0 C Architectural Regulation, Preservation, and Design Review 69 The U.S. Supreme Court decided" that New York City djd not violate the Penn CentralTransportglion Com- pany's FiflhAmendmentpropertyrightswhenitdesig- noted Grand Central Terminal as a historic landmark, thus blocking the company's proposal for an office tower above the facility. In a major decision that has sparked preservation efforts in other cities, the Court recognized that regula- tions for historic preservation, like zoning and other conventional land use controls, are valid exercises of the police power. During the last 50 years, the Court t i noted, over 600 cities and states have adopted land- r' mark protection la,vs "to encourage or require the pres- ervation of buildings and areas with historic or aes- thetic importance:'so FIGURE 9.10 Create urban spaces-Paley Park, New York. As stated in Justice William Brennan 's opinion, the Photo ered& Mathew Potterer Court rejected Penn Central's argument that the land- mark designation constituted a "taking" of property corridors. This type of appearance review program for which "jus' compensation" is required under the recognizes that people share familiar visualexperi• Fifth Amendment, Therestrictions posed onthetermi- ences in approaching cities and seeks to create a fa- nal site, Brennan said, "are substantially related to the vorable impression. In a 1917 ordinance's Philadel- promotion of the general welfare" and "permit reason- phia provided for an art jury review of all works of able beneficial use of the landmark site,'" namely, the art and all buildings within 200 feet of the Benjamin terminal itself. Franklin Parkway, a 1,25-mile drive into the city Ina detailed review of the Penn Centralcase,Marcus center. This last application will be treated in the 11979) suggests that the Supreme Court used three cri- following chapter, which focuses on outdoor adver, feria for assessing whether there was an unconstitu- tising and visual corridor management. tionaI taking; Two applications, historic districts and historic 1) A government restriction on real property "not landmarks, are of a historic preservation nature, but reasonably necessary to the effectusi:_,c of e the rest of the architectural control programs are not substantial public purpose" may constitute a "taking' and address different values or purposes, As we might e., arbitrariness). expect, there have been court challenges to the legal 2) A A government restriction may have such' unduly harsh impact on the owneia use of the prop perty" or defensibility of such architectural control ordinances, may to frustrate distinct Investment-backed both historic preservation -basedandothers. expectations as to smounttoa"taking'(1.e.,harshness). 3) Government actions that may be characterized as LEGAL ISSUES AND acquisitions of resources to permit or facilitate uniquely CONTROL public functions have often been held to constitute ARCHITECTURAL ISSUES "taking" (i. e., appropriation). There have been two major constitutional issues re- lated to implementation of architectural review pro- This case provided a blanket of protection for com- grams and ordinances. These are the conflicts with the concerned about the taking issue and about Fifth Amendment in terms of the due process and tak- wdividua: landmark regulation because of the poten- ings clauses, and with the First Amendment guarantee tially expenb;ve inverse condemnation consequences, of freedom of expression, specifically, whether archi- Inverse condemtation in this context happens when a tecture is to be protected as a First Amendment right, historic preservatloaordinance prevents all alternative One of the most sensitive issues is the use of the po• uses/reuses of a property and the property owner then • lice power regulation to restrict uses of a historic sues the city for a condemnation award. In finding New property or building without providing compensation. York City's legislaUvejudgment contained initszoning 0 0 "Architectural Control, Am. Soc. of Pisnnin j Officials Information Report no. $ (1949) at pap a. "Penn Central Tramp. Co. v. New York City, 198 U.S. 104,149 (1976). mid °Id. • r • • i0 The Legal Landscape and landmark laws consistent with Fifth and Four the due process rights of property owners through teenth Amendment requirements, the Supreme Court development of appropriate notice, hearings, and signaled to communities across the nation that they standards. may consider awarding transferable development Muchof the case law related to architectural control right: to property owners. These land owners are sin- ordinances focuseson FirstAmendment issues,includ- gled out tobearspecial burdens forpublic purpose land ing the often cited cases of Schad," Young," Stoyan- use reasons, as a valid means to cushion otherwise off,'sMetromedia,'sand Vincent,"Oneof the keyissues harsh regulatory impacts and restore an additional throughout these cases is the regulation of protected measure of real estate investment expectations. expression (architecture) based on content (whatever Some interesting possibilities are suggested by the is expressed by the architecture or signage). According decision. While it emphasizes "historic" preservation, to Poole (1987), government regulation of protected Justice William B.ennan's opinion also stresses the expression based on content isprohibited when the role need to protect areas of "aesthetic importance." That purpose of the regulation is to take a non-neutral (fa- phrase is sufficiently vague to protect communities vorable or unfavorable) position. The example given is seeking to block development proposals on specific that Detroit's anti-skid row ordinance that regulates sites that have no real "historic" significance. Several adult theaters was upheld not because of the city'sdis. legal commentators have taken up this issue since they approval of content but because centralization of such feet thispart of the Penn Central case opened the door theaters in one location causesblight or further deteri- to communities misusing historic or aesthetics ratio. oration of neighborhoods. This is celled the sole pur- nales to stop development proposals (see Costonis 1985 pose/viewpoint neutral threshold inquiry and can be and 1989). For further commentary addressing the applied to all ordinances that propose to control Fifth Amendment and this case, please see Loflin architecture. (1971), Rankin (1971), and Costonis (19&t). A four-part test used by the courts evolved from the There is also the issue of due process. In 1980 a fed- O'Brien" case. It states that government regulation is eral district court" invalidated the federal National sufficiently justified: Historic Landmarks program because the program failed to provide due process protections to property I. If it is within the constitutional power of gov- owners when it declared a 14,000-acre site as the Green ernment. Springs National Historic District and enrolled the 2. If it furthers an important or substantial govern- district in the National Registerof Historic Places. The ment interest. court held that the designation violated the due process 3. If the government interest is unrelated to the sup- rights of landowners within the district. The court also pression of free expression. found that the two government actions, National His- 4. If the incidental restriction on alleged First Amatd. toric Landmark designation and National Register of ment freedoms is no greater than is essential to the Historic Places enrollment, constituted separate and furtherance of that interest. concurrent int-rferences with property interests of area landow,._ a. Such interests included targeting property for acquisition via eminent domain, federal Costonis,onth-other hand, rejects theO'Brien test restrictions through Section 106 of the National His. and advocates the two-part test from Schad: toric Preservation Act, delay or denial of federal assist- ance because of Section 106 ties, and the tax status of (wjhen a toning law infringes upon a protected liberty it property owners. F.dmundson (1982) outlines these (1) must be narrowlydrawn, and ® procedural concerns and suggests ways of protecting (2) must further a sufficiently substantial government In to rest " ! J I ~ "Historic Green Springs, Inc. v. Bergland, 497 P. Supp. 839 (ED. Va. 1980). "Schad v. Borough of Mt. Ephraim, 482 US.601(1981) (invalidated ordinar cepmvenl.ing live nude dancing). "Youngv. American hlini Theatenlne.424US.'S,rchk. dented429VS.873(1976).(Detro(tordi• nonce requiring dispet"I of adult theaters -upheld). e "State e s rel. Stoyano8v. Beri 'ley 458 S. W.2d 308 (Mo. 3270) (re)ection or @ pyramid shaped home by citizens of Ledue, Missouri-local ordinance upbeW). "hfelromedia Inc. Y. City of San Diego 453 US. 490 (1961) (Ir ieLted ordinance that curtailed - billboards). "City Council of La Angeles Y. Tupayers for Vincent 468 US. 189.601(19&1) (land uw regulation Impacting on protected esprewlon-pcohlbiting signs on public property). !'United States V. O Brien, 391 U.S. 367 (1968). "Schad v. Borough of Mt. Ephraim, 482 US. Sol (1981). 1 • • Architectural Regulation, Preservation, and Design Review 71 Poole (1987) doesn't like either the four-part or the substantive interest by communities throughout the two-part test and propbsed a set of four questions that United States in the New York City landmarks pro- 1 can be used to look at First Amendment issues and ar- gram.Thus, landmarkpreservation programs do rather chitectural control ordinances; well under Poole's tests. A First Amendment challenge of "no excessivesimi-IfE 1. What is the purpose of the government regulation? larity" regulations making structures look the same is This includes balancing the'state's interest in regu. likely to fail, according to Poole (1987), because archi- cation against individual liberty; in other words, tectural repetition is not protected expression. Exclud- there should be a good reason for such regulation. ing unacceptable architecture from historic districts is 2. What is the impact of regula+ion on protected ex. likely tobe upheld. The question of reasonable alterna- pression? How much does tfa regulation limit po- tive locations is difficult, but there is widespread ac- tentialexpression? Arelher,reasonablealternative ceptance of historic preservation districts by the locations, means, and levees of scrutiny? courts. 3. What is the nature of t're protected expression? In the example of the Coral Gables, Florida, ordi- There can be a hierarchy of expression from ob- nance that creates a "certain community style," there scenity to political or religious freedom, or possibly is a clear relationship between regulation andpurpose. noncomn. r6al speech could be considered more There is discrimination based on the content of the ar. important ti: in commercial speech. chitecture similar to the Cleveland Heights, Ohio, and 4. Balancing of public and private interests may in- Lake Forest, Illinois, ordinances. However, overall elude(a)thestrength ofthecommunity reason and contentofthe comprehensive-style plan minimizes the clarityof the relationship, and (b) the impact of the likelihood of problems. The balancing of public and regulation on protected expression. private interests is very difficult and rests on the defin i- tion of community and whether these are values shared If we were to apply Poole's questions to "no exces- by the whole community. sive difference" architectural control ordinances, we In summary, with regard to First Amendment and might find, first, that "no excessive difference" regula- architectural control: (1) architecture is a form of pro- tions curtail diversity, which is a fundamental content tected expression; (2) architectural appearance ordi. Iistinction, meaning they would fail Poole's non-neu- nances for most program p;irposes are burdensome reg- tral inquiry test mentioned earlier. Second, in terms of ulations on protected expression; but (3) only "no ex- interest balancing we have the validity of the review cessive difference" and "no excessive similarity" regu. criteria or the standing of the review board or commis- lations are unconstitutional intrusions on protected sion versus the architect/owner; this often results in a expression, making the latter type of appearance re- draw. Third, in terms of the impact on protected ex- view dif wilt to defend from a legal perspective. For pression, there are often no alternatives for an archi- further discussion of First Amendment issues, see sect/owner to express a particular architectural mes- McMillan (1971), Rose (1981), Poole (1987), and sage, andan alternative location maybe problematic or Crumpler (1974). impractical. Fourth, in terms ofthe nature of protected expression, architecture is valued as such under the DESIGN REVIEW First Amendment. Fifth, balancing public versuspri' Some 2,000communitiesintheUnited States haveen- vote interests may yield the finding that we don't like acted local preservation ordinances, many of which the appearance of that structure in this neighborhood; place strong controls on new construction in historic this may notconstitute a community-wide appearance • issue. As we can see, there are multiple problems with areas. Increasing numbers of cities and towns are also "excessive difference" regulations unless these legal in heir environs inanonhist neaend suburbanbaettines, issues can be re=nlved. not just landmark and historic district protection. Landmarks preservation ordinances, on the other Thus, there isaneed forcarefulcrafting ofreviewstan- hand,first, promote or enhance community diversity, dards and administration of these architectural control passing the non-neutral inquiry test. Second, historic/ programs if we are to avoid some of the legal challenges • heritage/economic and identity reasons for landmark that were previously reviewed. Duerksen (1986) lies preservation do well on the interest-balancing teat. done anexcellentjobofoutliningdesignreview consid. • Third, in terms of protected expression with land- erations for both historic and nonhistoric areas, and marks, there is the issue of who the historic architect much of the following material follows his work closely. was. Fourth, in terms of protected expression, land. marks are often highly visible and well used, although Design Review in Historic Areas some are not accessible to the public. Fifth, with regard to the balancing ofpublicandprivate interests, theSu- Preservation controls raise many legal issues, u we preme Court Lad no problem in Penn Central with the have just seen, but one of the most Important involves • -r. • • l r • :.d 72 The Legal Landscape the standards an agency uses to review an application i for new const,~uction in a histo:ic district. Generally, (J the failure of an agency to establish in advance coher-' ent written standards and regulations to be applied in all cases amounts to a denial of due process. Costonis (1989) discusses in detail the complexities and subjec• tive nature of such standards; they must be articulated to pass legal muster and give permit applicants advance notice of what is required. Courts have shown great def- erence to local review bodies, as witnessed by the lan- guage of the US. Supreme Coun in Penn Centrol.w Demolition, Alteration, and New Construction The most controversial power exercised by preserva- tion commissions is reviewing applications for demoli• tion or alteration of a landmark or new construction In a historic area, often referred to collectively as applica ti on s for "certificates of appropriateness." The key, ac- cording to Duerksen (1986), in addressing demolition or alteration proposals (Figure 6.11) is to encourage upgrading and continued maintenance of existing landmarks, and to guide tb t process of change so it is sympathetic to the existing character of the historic area. Thus, the process of setting standards that reflect this character as well as providing sound administrs- live procedures is critical, Selling Review Standards FIGURE 6.11 Demolition of historic structure in Boston. Preservationists, traditionally, have been concerned Phoia credit George W Curry that a demolition "not have an adverse effect on the fabric of the district," or that new construction not be "incongruous," but that it shout d be "in harmony" with the "character," "significant features," or "atmo- sphere" of the area. (See Williams 1975; Weming Lu • The existence of trees and other landscaping, and 1960; and Duerksen 1986.) These criteria we very sub- the extent of paving jectiveif not defined oraugmented with guidance docu- • The nature of the openings in the facade, primarily ments (see Figure 6.12). Some legal professionals have doors and windows-their Iocedon, size, and provided physically based review standards, such as proportion, those provided by Professor Williams: • The type et roof-Bat, tabled, hip, gambrel, mansard, etc. • The nature of projections from the buildings, 40 • buss-the height of a building, its bulk, and the particularly porches, nature of its roof)ine; • The nature of the architectural details-and In a • The proportions between the height of a building broader sense, the predominant architectural style; and its width; • The nature of the maierials; • The nature of the open space around buildings, • Color; including the extent of setbacks, the existence of • Texture; any yards and their size, and the continuity of • The details of ornamentation; such spaces along the street; . sggna,u • ! O / s'Penn Central Tranep. Co. Y. New York City, 119 U.S. 104.129 (1976). ( •'N. Williams, 1975, American Planning Law 6.61 Sec. A. 07; also see Warning 1.ts "Preservation Criteria: Defining and Protection Design Relationships," In Ofdatd NetoAnrlu'ucrtue Dcslgn Rebtion- slu'ps (Wash., D.C, Preservation Press 1990), p. 190. ~ ai • v. _ e y, y MI!IP F2 T T.! • • Architectural Regulation, Preservation, and Design Review 73 Helot, burn, location d character controls on new constructlon f VIT-Ui~-TU UT . El EM I i-....-..I i-... i Exam L Groff's Pharmacy c.... ...r.,. IM III I r I 1 10 LW I H C Control over exto6or changes to exleinp structures and sties FIGURE 8.12 Design Review Standards-generic urban scene with overlay. Graphic credit; Scott Shannon These physically based criteria can be used to nar- expertise to a commission helps limit what might row and provide definitions for more broadly based re- otherwise have been excessive discretion. view standards. As noted by Duerksen (1986), promul- gating adequate review standards is much less difficult in historic areas because they have distinctive style and Narrowing Broad Review Standards character. Thus, in a number ofchallenges topreserva- Atypical preservation ordinance sets forth broad re• tion restrictions, judges have had little trouble uphold- view standards for demolition or development permits, i ing the action of the local review body because of the but relates these broad standards to specific criteria. `E • district's distinctive style. Courts have uniformly approved the broad review The application of permit reviewstandards to Iand• standards in such cases, A case from the historic small marks or districts that do not exhibit a single, distinc- town of Georgetown, Colorado, is a good example. Live style has been more troublesome to many legal In this case, the p!aintiff developer alleged that the scholars (Costonis 1985; Poole 1987; Rose 1981) and standard the local commission was to apply in review. has been fodder for whole books on the subject (Cos- ing an application to construct new townhouses was tonic 1986). In instances in which the ordinance con- unconstitutionally vague. The six criteria Included in tainsrelatively vague review standards,thecourts have this ordinance were: ' • attachod great importance to other criteria in the local O • J law or regulations that narrow commission discretion. 1. The effect of the proposed change on the general In other cases, the courts have looked to background historic and/or architectural cha1 of the structures C tudies and surveys that were incorporated by refer- In the area; nce. Courts also have relied on procedural protections 2. The architectural style, arrangement, texture, and to uphold broad standards. In still other instances, materials used on existing and proposed structures, courts have held that appointing people with special and their relation to other structures in the area; • • . r..~ YY1rw~.Y~rwwf • • I 74 The Legal Landscape 3. The effects of the proposed work in creating, changing, 1. Preparation Of a succinct summary sheet of destroying,~s1 affecting othcmise the exterior local preservation requirements. This can be , architectural features of the structure upon which the distributed to applicants by building officials. work is to be done; 2. Vo'.ding preapplication meetings. Misunder• 4. The effects of the proposed work upon the prol"ction, standings chnbe avoided if the project proponent is enhancement, perpetuation, and use of the structure or given a chance to meet informally with staff and area; commission members prior to submitting a formal 5. The use to which the'atructure or area will be put; 6. The condition of existing improvements and whether application. I or not they are a hazard to public health or safety 3. Imposition of time limits. An increasing n ember (Duerksen, 1986). of local governments are placing limits on thet'mea local commission has to consider a project o; ce a The Colorado Supreme Court noted that the phrase completed application is submitted. These time "historical and/or architectural significance" was de- limits usually range from 30 to 60 days. finedintheordinance, andmore importantly, theordi• 4. Keepingrecords.Nowthat localc:dinanceshave nance set forth "six specific criteria that focus the at. real "teeth," local commissions must improve their tention of the commission and of potential applicants record-keeping, particularly minutes and tran. for certificates ofappropriatenessonobjective anddis- scripts from hearings dealing w;th projects that are cernible factors,"" consequently, it rejected the plain- controversial and may end up in litigation. tiffs contention of vagueness. If alocalordinancedoesnotcontain such narrowing Other steps also suggested by Duerksen(1986)thatean criteria, the preservation commission would do well to improve the substance of design review include: adopt them by way of regulation or informal review guidelines. b. Generic approvals of preapproved sign de. signs. Some commissions have published booklets that contain five or six preapproved sign designs for Standards Found in Background Documents a historic area. If the applicant adopts a preap- Background documents such as old city plans, histori- proved design, the normal review process can be cal documents, photographs, and contemporary writ- waived. \ ings or studies may provide enough substance for ap- 6. Using visual design guides. More and more com• proval of a local action, even though these criteria munities are goingbeyond relying on written design appear in documents outside the preservation ordi- review standards and are adopting visual design nance. Such was the case with Mahr v. City of New Or- guides that graphically depict, for example, what leans." In this case, the court upheld the New Orleans constitutes a compatible design. preservation ordinance, even though the city admitted 7. Avoiding nit-picking. Commissions and preser• it had not articulated any review standard. vationists are slowly learning the importance of concentrating their efforts an ' 'ention on major cases and avoiding extended, < <e.4 of other items, Procedural Safeguards such as spacing of pickets a fence, design of The application of standards by a uniquely qualified wrought-iron gates, and similar considerations. body to avoid the possibility of arbitrary action or abuse is also an important consideration for architectural re- view boards. Such prucedural considerations combined Design Review Beyond Historic Areas • with the existence of comprehensive background stud- Increasing dissatisfaction with the appearance of new ies and the obvious character of most historic areas buildings and their relationship to surrounding struc- helps to explein why courts look so favorably on his- tures and neighborhoods has been manifested in the topic preservation controls but are somewhat suspi• growing number of design review ordinances applied ! c;ous of other design -,ontrols. beyond historic districts. No ionizer content to regulate traditional zoning aspects of development such as bulk • Administering Design Review and setbacks, communities throughout the United Statesarespecifyingheight,architecturalstyles,build-10 • J There are a number of important steps that can be Ing orientation, and other aesthetic aspects of new taken to improve the efficiency of the design process. projects. The following steps are suggested by Duerksen (1986): Initially, this concern over design was most preva- ^680 P.2d. 807, 810 (Colo. 1978). '0618 Fad 1051, 1067 (6th Cir. 1976). i • 4y~ l • t.- , - • s Architectural Regulation, Presenation, and Design Review 75 tent in exclusive suburban communities like Santa Barbara, California,@nd Fox Point, Wisconsin, which capture a distinctive architectural style or atmosphere. one of the earliest ordinances was passed by West Palm Beach, Florida, in the mid-1940s, followed by e similar ordinance in Santa Barbara in 1949. By the 1970s inany communities that had a variety of architectural styles and character adopted appear- ance codes. Recently, design review went downtown in e places like San Francisco, Seattle, end Boston, where architectural height, style, and view preservation are major issues (see Figures 6.13 and 6.14). Design review outsir!a historic areas poses many of the same legal and practical challenges that protecting historic structures do. Experience has demonstrated FIGURE 6.14 Boston skyline. Photo credit bfothew Patteyer that careful planning and legal draftsmanship, coupled with strong commitment to common-sense implemen- tation and consistent administration, help make design review wock• Special Legal Issues for Nonhhloric Design Review The troublesome aspects of First and Fifth Amend- a r ment conflicts mentioned earlier in this chapter held g ' It for these ordinances, especially anti-lookalike and no ' excessive difference ordinances. In addition, vagueness of review standards is the other major issue that is the focus of court casess' in which similarity or anti-Icoka- like ordinances were challenged. >_dc~ t ~ gip: 7~ "r,i ° rt1 r- < v+ _ „ Developments r VIn response to growing citizen concern plus favorable court review, more communities are enacting design review ordinances. Some of the most far-reaching ordi- nances can be found in major cities. San Francisco and Seattle offer a sample of recent developments: San Francisco is still attempting to address impacts from a building boom that has altered its downtown skyline, bivcking views of the bay. Stiff public opposi- tion in the 19309 ind 1970s led the city to reduce height and bulk limits and to issue an urban design plan (see O'Hern i973 and Vettel 1985). Results were disap- pointing, and in 1979 a citizens' initiative almost suc- ceeded in placing a growth cap on downtown, which spurred further action. After much debate and poli- ticking, the city council enacted a series of design-re- lated ordinances. Among other things, the new ordi- nances require that: a. The upper portion of any tall building be tapered FIGURE 6.13 San Francisco skyline. Photo credit* and treated in a manner to create a visually distinc- R. C.Sm -don tive rooforother termination of the buildingfecade, "See Old Farm Road, Int, v, Town of New Cs%tle, 259 N.E. 020 (N.Y. 19%); Gates ex, ral. Saveland Park Holding (.!o. v. R'iela ae,69 N. W.2d 217 (Wise.) « r: den 850 C.S.641(1955 Villsp of Hudso a v. Albrecht, Inc. 458 N.E.2d 852 (Ohio,1984); Nei v. City of Patiflcs,Cst Rpt. 499 (Gel. App. 19M Reid Architectural Re,. B1, 192 N.E.2d. 74 (Ohio 1963); State ex. reL Stayanoff v. Berlieley 4588.W.2d 305 (Mo. 1970). r • • i • s r, 76 The Legal Landscape thereby avoiding boxy high-rise buildings and a implementing Design Review "benching" effect structures the skyline; b. N Past experience withdesign reviewprocedures ended. avoid ew or ppenetrnetretion of a a sun sun a sun-access plane lane so so that t ministration in historic areas offers some general penetration shadows are notcast at certain timesof dayonside- guidelines that communities should keep inmindwhen walks and city parks and plazas; drafting and implementing design review regulations. c. Buildings be designed so the development will not It should also be notedthat HamidShirvani (1981) has cause excessive ground-level wind currents in areas written a useful book, Urban Design Review: A Guide of substantial pedestrian use or public seating, for Planners. The following gridelines from Duerksen d, The city consider the historical and aesthetic char- (1986) can also improve the design review process: acteristic of the area along with the impact on tour- ism when issuing a building permit; 1. Successful design review efforts are products of e. Building heights downtown be reduced from 700 to community-based efforts to identify what is special, 550 feet (from about 56 to 44 stories) (Duerksen, unique, or worthy of conserving in an area. 1986, Id.), 2. If detailed design review in an area is to takeplace, it should be administered by a well-qualified board Seattle has enacted a range of similar, altbough less supported by adequete staff and resources. detailed restrictions on high-rise construction in its 3. Written design standards should be supplemented downtown. The requirements limit building heights, with visual aids and guidelines to make clear what establish setbacks to maintain light and air, and ensure the community desires, thus reducing uncertainty designs that reduce wind tunneling and retain views of for prospective developers. Elliot Bay. The new laws eliminate densitybonuses for 4. Design guidelines should not concentrate solely or projects that displace landmarks; they also provide for even primarily on detailed design review. glare protection for pedestrians and motorists through 5. Design rev iew should be carefully integrated with restricting use of glare-producing materials and fin- other planning goals for the area. ishes on the lower stories of structures (Erickson 1980). C Case Study: Visual Architectural Review in Fan Francisco First, let's review some history of SanFranciscoa earlyplan- sonant with the city's topography. A seven block area at the ping efforts. Jr. 196E the Department orcity Planning com- center of the financial district was zoned at 700 feet, with a pleteda^omprehensivesetofzoningstudies that setoutsea. gradual lowering of heights at the office district's edge. thetic , n t urban design goals. These studies ultimately Height limits in the retail district va,ied from 140 feet, sur- became r',e 5m!s !or the toning ordinances enacted in 1968, rounding Union Square, to 400feet along cone-block stretch Beyon! ll,c density restrictions and the retail district's of Market Street. Buildings alongthe weterfrontwere limtted ground-leve' retail-frontage requirement, however, the zon- to 84 feet. Existing public space was zoned as open space to ing urdinancec did not require compliance with any of the preclude future development on those sites. urban design r,als, and as a result, have had limited autcess in promoting transferable development rights. The I.-.)R Bulk Control provision of the 1968 z un in g ordi nance was to restrictive th:' inmanycasest?,-. •ntivefordeveloperstouseit. In each height district, a set of bulk controls was also im- I Since a develr,,er could transfer e, ty half of the unused de- posed. The bulk controls were measured across three dimen- velopment rights of a small bu;ldins to an adjacent lot, it BID= (1) the height above which maximum dimensions ap- { A often made conomic sense to simply i •molish the small plied, (2) the marimum facade width, and (3) the maximum building. Me ,yarchitecturally significant L.uildingsthat did diagonal dimension (corner tooppositediagonal corner),The i,ot fully ot the allowable density are now gone for this bulk ordinance provided for some flexibility in administra- re ason. t ion. ?he planning commission was authorized to grant con. ditional ptrmits for buildings exceeding the bulk limits, Height and Bulk Controls Although height controls had been imposed on a few scat. Critical Analysis tered areas tf San Francisco since the 1920s, before 1972 • there was no citywirte height control systernAn thatyear,fol- The height and bulk control have had their greatest urban • lowing adoptionofanurbandesignplan,thaboardorsuper• design impact in residential neighMrboods. New develop- visors approved a citywide height and bulk ordinance. ment, although not necessarily compatible stylistically, has a t least respected the generally small scale of San Francisco's Height Controls residential pattern. The height and bulk control, according to Vettel (1985), have been fairly effective in channeling the The ordinances forcontrolling height limits ondowntown de- construction of major commercial projects to the central velopment contemplated an artificial hill form, though con- downtown area, thus minimizing the disruptive Impact such i • Architectural Regulation, Preservation, and Design Review 77 buildings would have if they were adjacent to residential designation requires legislative actionandis accordinglysub. neighborhoods or along the waterfront. jest to the traditional political pitfalls of comprotgjse, fiscal The height and bulk brilte have not adequately protected pressure, and minimaI judieial review. Third, the ordinance the central office district environment. Although no building also has failed to protect adequately the character of many as completely out of scale as the federal building has been downtown areas containing groups of early-twentieth-cen- ronstructed since 1972, structures too large to be integrated tury buildings that give a distinctive flavor but are not indi- successfully into the city's fiber have been approved under vidual landmarks. Only Jackson Square was designated as ■ the ordinance. In addition, while channeling developmentto historic district. Despite the apparent weakness of the land. the downtown area, the height controls inevitably have con- marks ordinance, many buildings have survived because pri- tributed to the demolition of many structures of historic vate owners, hotels, and corporations have voluntarily pre. value. served their buildings and have constructed towers on The height limits in the retail district e!so invited disaster adjoining lots. because the heights were much greater than those of existing buildings. The many box-shaped buildings that rise to about Environmental Review forty floors, uninterrupted by setbacks or other architectural embellishments that miglit lessen their apparent size, detract California Environments' lualityAct severely from the skyline's diversity, human scale, and Son Francisco gained a significant means of Influencing de- interest. sign of private development when the California legislature Landmarks Ordinance enacted theCalifornisEnvironmental Quality Act(CEQA)s' in 1970. Although the act was initially designed to augment In 1967 the city enacted a cautious landmarks ordinance. It existing planning and review procedures, its effect has been set up it Landmarks Preservation Advisory Board, which, to- totum environmental review into a critical stepin San Fran• gether with the planning commission, is empowered to rec- cisco's project approval process. Developers must refer their ommend the designation of historic districts and landmarks. proposals to the Department of City Planning's Office of En. Designations must receive the approval of the board of vironmental Rtview (OER) for initial assessment. Following supervisors. the initial review, OER determines whether any of the proj. Once a landmark hasbeendesignated, itsdemolitionoral• ect'senvironmental effects may be "significant"CEQAde. teration requires it certificate of appropriateness from the fines a significant effect as a "substantial, or potentially sub- planning commission. While the planning commission may stantial adverse change in the environmen:" C fuse to approve alteration of a landmark, it may not pro- bit its demolition. Instead, the commission may only delay Critical Analysis approval of the certificate of appropriateness for up to 360 days while seeking voluntary public or private means to pre. By requiring a standardized inquiry into potential environ- scrve the landmark. mental effects, CEQA provides an objective means of evalu- The alteration or demolition of structures within a his. ating proposed development. However, CEQA does not ad. toric district also requires a certificate of appropriateness dress manyvtbandeeignisaues.Firrt,its"significant"effects from theplanning commission. Aswith landmarks,thecom- cause changes in physical conditions, but in practice,subjec• mission is authorized to deny petitions to make alterations to tivedesign decisions rarely change physicalconditions.Sec- such structures, but it is powerless to prevent demolition, ond, OER requires an assessment of visual impacts onlyif a Again, where demolition is sought, the commission may only proposal will have a"substantial,demonstrable negative sea- delaytheissuanceofecertificateofappropriateneaa, thetic effect," using itsastandardtheprincip!esofSanFran- The ordinance also authorizes the planning commission Cisco's master plan, including its urban design element. To to "recognize" structures of historical, architectural, or aes- date, only clearly discernible impacts such as destruction of thetic "merit" which are not officially designated landmarks. significant historic structures and the casting of shadows on Followinc surveys by the Department of City Planning and & public parks have been certified as significant effects. private group, the Foundation for San Francisco's Architec• Another shortcoming of the CEQA-mandated environ• • turalHeritage (Heritage Foundation),the planningcommis- mental review process has been the Department of City sion in 1980 designated 23e downtown buildings as having Planning failure to sdeauately stress the need to evaluate ,.merit." the cumulative impact of the proposed development when combined with other development in the area. An all-down. Critical Analysis town EIR (environmental impact report) published in 1971/ analyzed the Impacts of continued growth in San Ftenctsco The 1967Imtdrnarksordinance, fora number ofreasons, has and provided some guidance for assessing cumulative Im- provedtobetooweaktoguaranteethatSanFrancisco'svalu- pacts. Despite CEQA's weaknesses, the environmental te- - A able historic resources will remain intact. First, because the viewprocess basperceptibly increased the planringcommfs- I • plannfngcommission has no power to prevent thedemolition sion i power to require improvements In the design of new of historic or meritorious structures, the authority that it development (Vettel 1985). floes have to regulate extensive alterations Is markedly air. Inscribed. A second difficulty with the 1967 ordinance has Discretionary Review .,een the politicizing of the designation process. Landmark Son Francisco's downtown use, density, height, a.td bulk controls fail to address the more subtle Impacta of urban de- OU, Pub. Res. Code u. 21,000.21,176 (Went 1917 E 8upp. 1964). velopment, such as the effects a building design might have • r 78 The Legal Landscape on streetscape character, the harmony of adjoining facades, Perhaps, surprisingly, no challenge to the commission's and the city's skyline. These subtle aspects, however, may exercise of discretionary review has reached an appellate well determine a city's character. Rather than leave urban court in recent years. Rather, most developN have accepted design decisions to private developers and their architects, the cenditionsimposedby the commission during discretion- city planners in San Francisco have tried to Ell the regulatory sryt•rview. Even outright disapproval of a proposal will not gap by creatinga discretionary permitting system, which has necessarily prevent the ultimate development of the project. three urban design components: (1) an urban design plan. (2) Thecommission typically informs thedeveloper ofthecondi- informal Department of City Planning design consultation, tions it will require before grenting approval. To date, such and (3) the planning commission's discretionary review conditions, particularly those involving project design, have power. been economically feasible, and it has been advantageous for developers to redesign projects rather than suffer the delay of Urban Design Plan a court challenge to discretionary review, San Francisco's urban design plan adopted by the planning Summary: 1967 -1972 Plans and Processes commission in 1971 was the first of its kind in the nation. Rather than project ing an image of whatthe city shouldlook Downtown regulation has been piecemeal, often inconsis• like intwentyorthirtyyears,theplandefines essential needs tent, and generally insdequate according to authorities inthe in an urban environment, proposespublic andprivate objet- know (Vettel 1985). In the later years, environmental and lives to attain those needs, articulates fundamental urban discretionary review wereused aggressively topromote more design principles, andcatsforth aseriesofgeneral design pol. sensitive building designs andto exact measures to mitigate icies to guide the discretionary approval process. The four de% ent impacts. Butoften the changes and mitigation sections o: the plan address: (1) preservation and creation of meVefforts the city required were only marginally effective. city patterns, (2) conservation of historic and other re- to reshape individual projects failed to ad. sources, (3) moderation of new development, and (4) protec- dress cumulative growth effects in a realistic or meaningful tion of neighborhood environment, way. The urban design plan established a set of general policy objectivcs to guide not only future planning and zoning regu- The Role of the U.C.-Berkeley Envi.•onmental Simulation la:iou, but also individual project review. It has worked well Laboratory for the former, but as a concrete set of polities to guide indi- The Environmental Simulation Laboratory at the University vidual downtown project review, it has been demonstrably of California at Berkeley has pioneeredenvironmentalsimu- inadequate. lationtechniquesandappliedthemtourban designproblems lnforma! Design Consultation and architectural control analysis, (Bosselman 1963a and 1983b). The laboratory has also been used extensively as a In 1967 the Department of City Planning instituted a volun- testing and communication tool. For the last fifteen years it tary design review procedure toencourage developers to con- has illustrated alternatives for downtown growth in San sult with city planners at each stage in the planning of new Francisco. Realistic skyline and street-level views of future development. Developers and their architects are advised to development have been created that have enriched the dis- inform thedeparimentat the outset of theirplans anddevel- cussionon thepolieiesshaping zoningregulationaand urban opmentgoals ratherthan wait until designplansare finalized design guidelines (see Figure 6,15). to seek approval. For its part, the department informsdevel- opersofspecificpublic goals,such as the designcr;teriapecu-~~• / \ ~sl, ` - liarto the proposed site, that should be considered inaddition to theobjective zoning requirements, Ideally, as designplans Fr progress, developers and plaarers meet often, review plans, J negotiate conditions, and eventually agree upon a mutually acceptable design, a The success of informal design consultation, like the suc- r cessofmostnegotiationprocesses,dependsultimatelyonthe ;f 1+, political strengths of the negotiating parties. At times, de- I partmental review has been exacting, and the threat of a neg- ative staff recommendation is a powerful inducement for de- velopers to achieve a project design acceptable to the - department. 's - ® Discretionary Review Power The planning commission possesses a broad power to review. - all permits, variances, and conditicnal-use authorizations, even if the applicant has satisfied every zoning restriction. When used aggressively this "discretionary review" power FIGURE 6.16 Use of an envtronme vital simulator to test gives teeth to the urban design plan and the department's in- alternatives and conditions. Psoto Cradle Peter BosseL7ar4 U.C. formal design review process. Berkeley Envfrv menraf Simulation Lborotory - -rr-=--_...-'essamrarawaeaaoaaao~ssss~ • Architectural Regulation, Preservation, and Design Review 79 Skyline Views The model stage at the environmental simulation labors- 972 Donald Appley'ard ii~ed a scale model of the city of tory was again used to simulate the visual impacts of future Francisco housed in the laboratory to make a film that high-TIse buildings. Modell and photography are'usej to showed from en eye-le-,el perspective how the skyline of San measure the openness of downtown streets to light and gun. Francisco had changed in the last forty years. In 1979, during At it result, guideliaesbased on sun-access criteria, which are the Ugh-rise controversy, the laboratory produced a second closely related to street scale and bulk considerations, have film that chowed the effects of a general height limit of 260 been developed and tested A more detailed presentation of feet. This limit proposed by an alliance of groups under the this work can be seen in Bosselman (1987). leaderahipofSanFranciscans forReasonable Growth, repre. The Downtown Plan of 1984-1985 sented an actual reduction of existing heights. The film was shown prior to the city election of 1979 on public television In May 1981 and again in July 1982 the Department of City and was followedby a debate between the opponents andpro- Planning piblished preliminary rezoning proposals. Then in portents of the measure. The referendum failed, as had the May 1983, the downtown EIR consultant's report was re- two previous ones. Forty-five percent of the votes were in leased Finally in August 1983 the Department published its favor -a narrow margin, but the signal was clear. San Fran- proposed downtown plan for citizen and commission review. ciscara were concerned about the appearance and quality of The board of supervisors imposed it moratorium on all down- their downtown. town development proposals while public hearings and anvi- The Environmental Simulation Laboratory at U.C.- ronmental assessment of the plan proceeded A draft down- Berkeleyhas been askedfrequently to testthevisual impacts town EIR analyzing the plan was published by the of proposedchanges to San Francisco's downtown toningor. department in March 1984,ondtbefinal EIRwas certified on dinance. An urban design plan in 1971 envisioned a down- October 18, 1984. On November 29, 1984, after additional town well contained within a small aree without spreading hearings, the downtown plan as amended was adopted by the into the neighborhoods. This basic and widelyacclaimedpol- city planning commission. The key features were incorpo. icy was complemented by height zones that give downtown rated into proposed amendments tothe planning code, which theshapeofahill,compatiblewith surrounding natural hills. had tobeapprovedby theboardof supervisors forthe plan to In 1972 the"downtown hill"policy was developedinresponse become law in 1985. to the construction of two high-rise office buildings, built in Underthe downtown plan, building designs are subjectto the late 1960s on the periphery of the financial district-the demanding objective requirements as described previously. BankofAmerica building, with its 792-foot-high darktower, Principal features of the plan affecting urban design include: f ' the 845-foot-high pyramid building housing the Trans. areduction in allowable density, redirectionofofTicedeveiop- rice Corporation. However, even with the hill policy in mentsouthofMarketStreet,lower height limits, "post-mod. place, existing developmental controls have failed to produce ern"bulkeontrols(requiring slender, sculpted towers), pres. the designed hill shape. The highest buildings continued to ervation of architecturally significant buildings, mandatory flank the edges of the financial district, giving the city the incorporation of open space and public art, retail or public shape ofanabrupllyrisingplateau, Thesweepingviews from service ground-level uses, and preserv ation of direct sunlight a 30-to-40 story office building at the edge of downtown over to sidewalks and open spaces. The downtown plan of 1984 hills, bay, and bridges are economically valuable. However, leaves far less room for discretionary decision. making and the view of downtown from neighborhoods and surrounding provides detailed standards for any discretion remaining. De- communities across the bay, though experienced by more tailed preliminary evaluation and description of the plan'sef- people, cannot compete with this economic incentive, fects are offered by Vettel (1985) but it has not been com- Years after the urban design plan, it appears thatthe no- pletely evaluated since 1985. tion of the downtown hill form is likely to remain a concept. The images produced at the U.C: Berkeley Environmen- Only a few vanishing points allow an insideview of the down- tal Simulation Laboratory over the last fifteen years have town hill. Changes to the height zones have tried to force fu. enriched the public discussion over the existing es well as N. ture development to fill in at least the south slope of the hill. ture visual resources of San Francisco. So far, however, the ® economic forces that have given downtown its shape have Street-Level Views proven to be strongerthan the rationale developed r. visual I n the 1986s discussion o f urban assessment studies. However, there is reason to be optimistic design issues focused not on that the ideas and information generated in the laboratory the skyline but on street-level concerns. Like midtown Man- have helped to establish aconstituencyin San Franciscothat hattan, with its new zoning c-dinance, San Francisco will continue to speak out for quality-of-life Issues such as adopted a downtown plan that includes, among other items, preservation of views, sunlight, and the openness of down. an ordinance that vill produce tiered high-rise towers it. town streets to the sky. to those built in the 1920s and 1930s, Future building may _ 0 once again bring more light and air into streets. p I r'erences Anderson, R. M, 1960. Architectural controls. Syracuse Lew Bosselman, P. 1983a. Visual impact at Berkeley. Urban De. Review, 12: 26-49. sign International, 4(3); 34-37. r ;s pis It:01114IJ • 80 The Legal Landscape 1983b. Simulating the visual impacts of urban devel- Loftin, J. J. 1971. Historic preservation In the American city: opment.Garton&Landscha/4August: 636-640. Anewcasestudy, LowandContemporary Problems, u(3): --.1987. Experiencing downtown atreeta in San Fran- 362-367. 1 Cisco. In AnneVernetMoudon,ed,Publicstreets/orpublic Lu,W.1980. Preservation criteria: Defining and protecting use. Van Nostrand Reinhold, New York: 203-220. design relationships. In Ofd and new architecture: design Bross, J. L. 1979. Taking design review beyond the beauty relationships. Preservation Press. part Aesthetics in perspective, Environmental Law, 9: Marcus, N. 1978. The grand slam Grand Central Terminal 211-240. decision: A Euclid for landmarks, favorable notice for Costonis, J. J.1974. Space adrift: Landmarkpres•ruation and TDR and a resolution of regulatory/taking impasse. Ecol. the marketplace. University of Illinois Press. ogy Low Quarterly, 7: 731-752. -.1982. Law and aesthetics: A critique and a reformu. McMillan, R. R. 1971. Community-wide architectural con- lation of the dilemmas. Michigan Law Rerfew, 80: trols In Missouri. Missouri Law Review, 38(3): 423- 355-461. 430. 1985. The Chicago plan: Incentive toning and the Morrison, J.1965. His toriepreservation law. National Trust preservation of urban landmarks. Harvard Law Ren w, for Historic Preservation. 85: 574-634. O'Hern, P. J. 1973. Reclaiming the urban environment: The 1989. Irons ar d alie= low, aesthetics and environ• San Francisco urban design plan. Ecology Law Quarterly, mental change. University of Minois Press. 3: 635-545. Crumplar, T. 1974. Architectural controls: Aesthetic regula• Poole, S. E, Ill. 1987. Architectural appearance review regu. tion of the urban environment. The Urban Lawyer 6(3): lations and the First Amendment: The good, the bad, and 622-644. the consensus ugly. The Urban Lawyer, 19(2):287- Duerkeen, C. J. 1983. A handbook of historicpreservation lnw. 344. Conservation Foundation. Ra nkin, J. L. 1971.OpersLion end interpretation of the New - .1986. Aesthetics and lend use controls: Beyond ecol. York City landmarks preservation law. Law and Contem- ogy and economics, PAS Report 399. American Planning porary Problems, 36(3): 366-372. Associaticn. Rathkopf, A. 1975. The IOU' of zoning and planning, 4th ed. Edmundson, P. W. 1981. Historic preservation regulation Clark Boardman. and procedural due process. Ecology Law Quarterly, 9: Roddewig, R. 1993. Preparing a historic preservation ordi. 743-775. nonce. PAS Report 374,American PlanningAssociation. Erickson, D. K. 1980. Seattle-coping with visual impact: Rose, C. M. 1981. Preservacron and community: New ditec. evaluation of light and glare. Environmental Comment, tionsin the lawof histork ,tit ervation.StanfordLawRe- July 1980: 8-15. view, 33(4/3): 473-504. Glasrord,1993. Appearance codes forsmallcommunities, PAS Shirvani, H.1981. UrF,an design review: A guide forplanners. Report 379, American Planning Association. American Planning Association. Goldstone, H. H. 1971. Aesthetics in historic districts. Law Vettel, S. L.1985. San Francisco's downtown plan: Environ• and Contemporary Problems, 36(3): 379-431. mental and urban design values in central business dis. Cray, 0. S. 1971. The response of federal legislation to his- trict regulation. Ecology Law Quarterly, 12: 511-566. toric preservation. Law and Contemporary Problems, Williams, N.,Jr.I975.American planning law:Land useand 38(3):314-326. the police power, vol. 5, Callaghan. 3.315 AM. Ise, R. 1951. United States: Historical and archeological Wilson, P. E., and Winkler, J., M 1971. The response of state monuments ll. Office of History and Historic Architec- legislation to historic preservation. Law and contemporary ture, National Park ServiceU.S. Dept. of Interior, Wash., problems, 36(3): 329-399. D. C. • 1 J f • - ter... _ . . V• }'.i. T H. E' LEGAL 'LANDSCAPE r4T ~ i3~. r;~ " it SwUlAl 1"i 1-T rm aT GUIDELINES FOR REGULATING =per ENVIRONMENTAL AND AESTHETIC QUALITY ti,►=;f. tie. 41 its L ~ 9J} r I -'^5l a f{j f A RICHARD C;,SMARDON • JAMES P.,KARP 4w aw r • ® ~ o 0 0 • 54 The Legal Landscape The environmental or community planner can uti- tures that serve as major points to idcntify a commu- lizehisorherknowledgeoftheeestheticcontextualsit- nity and should be preserved because of their cultural uatiun, flexitlj` ty of means, and planning sophistica- and sorial significance (Lynch 196,01. tionto preserveneighborhood character and minimize ' Agood waytointroduce theissueofvisual quality in exclusionary practices of zoning. To illustrate this a community is to show photographs (both scenic and planning approach, we will describe how a scenic re- less so) to residents and ask them to discuss their im- source inventory was incorporated into the land use pressions of the views, their opinions on what consti- planning of Dennis, Massachusetts. However, before tutes good design, and their feelings about what presenting this case study, let us review some key con- resources are important to protect (see Wilmott, Smar- cepts from Chapter 2. don, and McNeil 1983). AESTHETIC OR SCENIC INVENTORIES CITIZEN PREFERENCE SURVEYS AND ANALYSIS Appraisals using the opinions of citizens have the obvi- An inventory of scenic resources can be an important ous advantage of reflecting a community's values and component of an overall environmental inventory. The attitudes. However, professional assistance is advis• results of a scenic inventory can be used in developing able, particularly if results of the survey will be used as comprehensive plans, land use ordinances, and design the basis for an ordinance. Community volunteers can guidelines; determining the potential visual impact ofa undertake much of the work. Discussion of the scenic proposed development; educating community resi- qualities they a; ore, late in their community's land- dents; deciding what properties to acquire or protect scapegives citizens r ol portunity to increase their en- through easements; and determining locations of new vironmental awarene 13. developments, roads, trails, or utility lines. Inthiscase, There are many ways to solicit citizens' opinions we are particularly interested in the application of the (see Smardon, Palmer, and Felleman 1986; Palmer scenic inventory to the development of comprehensive 1983b). One method is for surveyors to take photo- plans and local land use control ordinances. graphs of typical scenes throughout the community The scenic analysis approach chosen should depend and ask citizens to rate thebeautyof each scene on, say, largely on how the information will be used. Ifa zoning a five-point scale of to rank thephotegraphs inorderci ordinance is going to be based in part on a survey ofciti- scenic preference. The results can be mapped. To en- zens' preferences, for example, a statistically sound sure optimum objectivity, those conducting the survey system of sampling public opinion is necessary. An in- should attempt to obtain photographs as uniform in ventory of scenic features should not be limited to what quality and lighting conditions as possible. Obviously, is "beautiful." Scraggly hedgerows and a dilapidated howa picture is taken can have a major bearing on how store, while not scenic, may be prominent visual fea- a viewer ranks the quality of the scene it depicts. Case Study: Dennis, Massachusetts, Visual Survey for Comprehensive Planningu Introduction how a group of citizens fro m the town of Dennis on Cape Cod Local citizens are left feeling helpless in the wake of un- sought to inventory and evaluate their local visual resources. checked growth. This sense of helplessness is particularly This effort was part ofa larger resource analysis conducted by acute when they are trying to protect the visual resources to citizens of Dennis with technical assistance from the Masse- which they have intense emotional associationayetfind diffi. chusetts Natural Resource Planning Program administered cult to describe systematically. This case study illustrates by the Soil Conservation Service (Chandler 1976).u "This cas a study was p re vicusly publish ad as J. F. Palmer, 1981, Aurument of Comtal Wetlands k Dennis, Massochwelh in R. C. Smardon, ed., The Fu ture61 Werlarh*; As asini Visua6Culturol Values, _ B Allenheld•Osmun, Totowa, NJ. Reproduced with the permission of the author. • • ''The data used in this case study were collected by members of the tennis Comprehensive Planning Committee with technical usistance from Geoffrey Chandler as part of the Massachusetts Natural Re- source Plan ning Program. Thu plann ing progra m of the Sod Conservation Service offersthe methods and technical assistance for communities witematieally to collect, evaluate, and Wlize information concerninj their natural resources. • • a Zoning and Land Use Control 55 The objectives of the visual resource survey were: the remaining 50 landscapes place the 7 with the highest scenic value in pile /2, and 7 with the lowest scenic value in pile 16. 1. Involve a large number of people in the planning process From the remaining 36 landscapes, plan the 11 wi[klths highest and increase their awareness of the community's visual scenic value in pile f3, and II with the lowest scenic value in resources. pile f5. Piece the "main ing 14 Isndacapea In pile 2. Find the community's special image of its land and pre- serve this image for future residents. 3. Determine which local landscapes are preferred by local Each respondent was then randomly selected to answer one citizens, or two additional sets of questions investigating the different 4. Provide communities with useful information on land- factors that contributeto the scenic valueof the landscape. In 6capequalityforpracticalplanning purposes (USDA SCS one case they were instructed to: 1977). To meet these objectives, two types of information concern- describe In either a few words or phrases thou rectors which add the most to the scenic value of pile /1.... Identify those factors ing local perceptions of the Dennis landscape r. ere collected. which detract the most from the scenic value of pile 07... . The first type is used to classify landscape views based on Describe these factors which make the scenic value of pile 11 their perceived similarity-, the second provides aratingufthe medixre. scenic value of these same landscape views. In the other case respondents were provided with a checklist Procedure of 66 factors that were thought to influence scenic value. The respondents were asked to Preparation for the visual resource inventory began in the spring of 1976 with a committee of concerned citizens. In order to develop a sample of landscape views, each member of identify three landscape factors that add to the scenic value of the committee indicaied,on a local street map, views that he each of the three photographs In pile /l.... Nea t identify th.ee or she considered representative of the range of views in landscape factors that detract from the scenic value of each of Dennis. Each of these views was photographed in color using the three landscapes you placed in pile 17.... Now take the first a 35-millimeter wide-angle lent The 5-by-7-inch prints of six photographs from pple 14 and for each of these landscapes C these scenes were borderless with a matte finish and were identify three factors which add and detract from the scenic mounted on thin cardboard. The committee then selected the value of these tondecapea. 56 photographs that it felt most accurately portrayed the range of landscapes in Dennis. The cooperation of a random sample of registered voters The participants'recorded responses werelater analyzedbys was then sought to evaluate the visual quality of these 56 local citizens committee and a technical assistant. landscape views. A total of 96 citizens contributed judgments of landscape quality by sorting the photographs according to one of the different sets of instructions. In the first set the participants were told Results While the citizens who participated in the visual resource Each of these photographs represents a landscape view found in survey were selected randomly from the current list of regis- Dennis. For the purposes of this study, the "landscape" may be teredvoters, it is not possible to test their representativeness thought of as all the various elements that you we in the photograph. of the total population of Dennis The town has grown so fast Please sort these phototraphs into piles containing other in the last decade that local censusdataareoutdated andcur- landscapes which you feel are similar. w'e request that each pile rent population characteristics are unknown. However. the • you form has three or more landscapes each. You may make as participants do represent a full range of ages, occupations, many piles as you like. sex, residential neighborhoods, and lengths of residence. In addition, there are no significant differences among the groups of participants who performed the three sorting tasks. In addition, for each pile theperticipantawereaskedto"de' Possiblythemost important test ofrepresentativenessis that scribe in a few words or phrases those characteristics that the townfolk seem to acceptthe validityofthe resultsandare best represent the similarities of the landscapes in the group., comfortable with its representation of their point of view. • The second set of instructions asked the participants to sort the 56 photographs into 7 piles according to the scenic value Conceptual Clusifieation of Landscapes • • of the landscape in the photos In pile 01, place 3 landscapes which you think base the highest scenic value. In pile g7, place a A total of 27 citizens sorted the landscape views accordingto landscapes wbich yw think have the lowest scenic value. From their similarity. Using a clustering proceQt re developed by • e • 56 The Legal Landscape Palmer and Zube (1976), the judgments of landscape similar- r C ity made by these citizens see aggregated into a conceptual classification of fhb different landscape types in Dennis. Six r {~i 4~ S► distinct t ypes are identified: (l) marsh and wooded lend. is .h. ~ r~ti~•,sr~ , ; scapes; (2) beach and water landscapes; (3) suburban devel- opmenl;(1)developedopen land, (5)commercialsndmuniei- £ +r1r v 'ty pal landscspea; and (6) high. density residential landscapes. A + diagrammatic summary of perceived similarity among these r'a types is shown In Figure 5.4. A description of the essential characteristics of each landscape type is obtained through a systematic content analysis of the words and phrases that the participants used to characterize their piles of similar landscapes. Marsh and Wooded Landscapes These are perceived to be the most "natural" scenes In Dennis. "They are the open spaces we want to protect and keep for birds and men alike." Evoking a sense of "peaceful. nese" and "beauty," this type is closely identified with the "Cape Cod landscape." As illuatra ted in Figure B.S. a wide va • riety of wetland types is represented, ranging from coastal marshes to shrub swamp. The identifying characteristic as perceived by the pertidpants is the comparatively lush vege- tation pattern, which varies from low-lying"marshland" to higher "woodlands." Those wooded areas in the landscape sample are included in this type. It is interesting to speculate that the more wooded scenes ? might have been placed in a class of their own if suitable pho- tographic representations had been available. However, given the Cape's gently undulating topography, it is nearly impossible to photograph the woods becau3e of the trees in the way. Beach and Water Landscapes FIGURE 6.5 a, b dfarth and %ooded landscapes of high and low scenic value The interface between "beaches and sand dunes" at,d "salt. water is the dominant conceptual char6cteristicof this type, as exemplified by Figure 5.6. Therefore, a tidal malt marsh is perceived as part of this class when the tide Is in and as a marsh landscape when the tide is out. human habitation": A These scenes are generally "uns,oiled" and "void of felted th DPe aional human presence is mars!. rough such recreational attractions as "swimming and fishing." The partielpants in this survey are sensitive to the else of certain sreas in this landscape type by "tourists," • while others are "for the year-round resident who wants to a,rss and Wooded r- get away from the tourists."These scenes an"attractive"in Peaali and racer their more natural state but ere beset by the pressures of "capitalistic endeavor," which invariably creates a sense sueurTan Development "that it is not very appealing to the eye.' This degradation Developed Open cane through private exploitation becomes more significant be- c'.e eresar and sunle tpal cause of the Important role this landscape type plays in the atsh•uensity Residential local perception of the Cape's regional Identity. Cr • • o to.. tsP so •as Suburban Development units or ecrcetved similarity In describing suburban develnpment,the roles played by the 3 FIGURE 8.4 Perceived similarity among the landscape types natural elements, the presence of water, or aspects of lend. In Dennis, Masdachusetts form are rarely mentioned These are "low-density residen• 7 J. - • r • Zoning and Land Use Control 57 X TO F, M +t trFT yam' "e"° rf i A;cr} ,q Y 'i1%7ir r F. ~ 1 1 rx t r N4 lam` 'rI- ~~V.ry ~-1. ~i vF ' .e .,J . it FIGURE 5.6 n, b Beach and water landscapes of high and FIGURE 5.7 a, b Suburban developments of high and low low scenic value Scenic value tial areas" and "quiet country lanes" that pass "through the power-line right-of-w' y, a golf course, and a churchyard. 0 countryside without houses directly on the roads."Thisisthe Their distinguishing characteristic is thattheyareperceived "hometown Cape" in which the "locals" live. Participants as "developcdareas that exhibit compatibility with theenvi- frequentiy distinguish the morn traditional, older develop- rcnment." Participants commonly as3ociate them with one ments from the newer, more modern forms within this type. of the ether developed landscape types-sometimes with ' For instance, in grouping photos one participant separates suburban development because they are "historic" and con, "single-family dwellings inde%elopments'from "quietcoun- ceptually part ofthe"hometown Cape," and other times with try toads with vintage houses." Figure 5.7 illustrates a resi- the commercial and municipal Iandscepes because of their dence and a highway that are both from this landscape type. "public service" character. ~ Q d Developed Open Land Commercial and Municipal Landscapes Developed open land is illustrated in a smell groupof scenes depicting open land associated with some form of develap- Different types of nonresidential developed areas are gat'-r l meet (Figure 5.6). Included with this group are a cemetery, a ered together in this conceptual class, which Is ilustreA in • • 58 The Legal Lan ]acepe xtt f a - M f~ ^ la' ~y'r 4~ t r I 5: FIG UR F. 6.9 a, b Developed ope n to nd of high and tow FIGURE 5.9 a, b Commercial and municipal landscaper of scenic value high and low scenic value Figure 5,9. Among the areas mentioned are a shopping blight in the eyesofthelocal residents. There is sornereal gna- center, school, industrial axes, ^.ommercial establishment, tion that they are "necessary," but there is also substantial police station, church, and various other service structures, concern that they are rapidly encroaching upon the most As a class, descriptions of landform, vegetation, cover types, valuable areas of the Cape.One reapon dent observes acutely. or water are totally absent. This is Dennis at its worst in the "Here's some near epitome of the fzoss overpopulation ofan eyes of the local residents. One resident exclaims, "Horrid! area. Everyone wants a piece of beauty and bit by bit the They should be forced to restore and start over." However, beauty is removed." In this case, the beauty comes from the • most respondents seem less belligerent, and many are even beach andwBlot landscapes, which have special qualities that resignedtothe inevitability and probable growth of this kind are conspicuously absent from the suburban landscapes oflandscape. Asonerespondent notes, "Thesearetheneces. where the respondents live. sary evits of civilization." This congested and objectionable landscape is definitely not considered part of the regional Judgments of Scenic Value image of Cape Cod and could be found in Anywhere USA. Two groups of citizens, which were part of 95 local citizens, High-Density Residential Landscapes were asked to sort the landscape views according to scenic • value: 37 were asked to use lbeir own words or phrases to der- + O 0 High-density residential landscapes, exemplified in Figure scribe the qualities that added or detracted from the scenes; 5.10, are perceived as the places where the "of-Cape" popula• 32 went given a landscape. factor checklist as a means of pro- tion stay's. Interestingly, they are not celled "homes" but viding similar information. The eerie resource value for a 1 "rental units," a type of commercial venture. Termed "clap- particular landscape view is the mean rating it received from traps" and "schlock residential" areas, they are a scenic the respondents. The scenic resource values for all landscape i MOMMO • Zoning and Lend Use Control 59 C views as judged by both groups are compared using f-tests. In ~Ily 1 only two instances are the judgments significinn different (p <,05). Therefore, the scenic resource values used below are calculated from the ratings by all 69 respondents. A clear pattern emerges from the content analysis of the words and phrases respondents used to describe the factor that contebute to the landscape's scenic value. The most see- 9 nic landscapes are overwhelmingly perceived as "natural" and even "wild" by some. The presence of water and the dom- inance of "green" vegetation are mentioned only in connec- t tion with these highly valued scenes. Respondents seem to favor s pastoral notion of what is scenic, characterizing it as "well kept" and "specious" with "distant prospects," the way Cape Cod "should look." There are no "gross manmade addi. tions, " and where buildings appear in the scene they are "dim- tans" and "fit in on the Cape," There also seems to be a com- positional value seen in the "interplay of land and water, colors and shapes." The least scenic landscapes are perceived as "cluttered" and "unimaginative" views dominated by features that do not fit, such as "signs; "'overhead wires; "'broken asphalt," 7 "supermarkets," "concrete mixing plant." These are "life. less" and "artificial" scenes "without trees and bushes." sr ae Those scenes that are given moderate ratings are primar- ily characterized as being "ordinary" and "anywhere"-not .w - - unique to Cape Cod. "Misfit" features also characterize this - s as Vii)t group, but they are less dominant than in ttie least scenic 6. landscapes. The Scenic Value of Landscape Types The usefulness of the visual resource survey in Dennis be. r c{ •.t, comes more apparent when the scenic value for eac; land- { t"f). 71~•,h,^•,~ scope type is compared with the other types. An analysis of 4 ?~r e" t ft y{~'t variance (F Q 642 4, d/- 5, 3789, 3791, p <.001) indicates e'. more significant ditTerencea in scenic value among rather than within landscape types. The differences in scenic value FIGURE 5.10 a, Is High-density reitdentiml landscapes of between landscape types are investigated further using high and low scenic value t-tests, shown in Table 5.1. In most cases, significant differ. • TABLE 5.1 T•testo Comparing Mean Scenic Value for Each Landscape Type i T-value Landscape Type ne z Beach Mash Suburban Open Land Commercial Beach and Water 759 2.99 t' e Marsh and Wooded 652 2.91 11011.1. • • Suburban Development 759 3,47 -8.04, -8180, Developed Open Land 2.6 3.52 -6.ts, -6.60' -.54n.a Com,OercialandMunicipal 628 612 -39.78' -36.92, -313011 -20.620 High. Density Residential 621 5.27 -37.78' -37.09' -3136, -19.744 980.6 Sores. The t-vahuee reported hers are for Independent povpa with unequal variamm therefore, the values arm as vi'his salw L the total number of rating weds by ea rerpondsnb of all the scenes within • lasdaeape type. 8ienifimKa' aa. p a 46' p <.Doi t: • • 60 The Legal Landscape enceswerefound.However, nosignificanceisfoundbety-een Con of the landscape as a visual resource. Thepublic ~Aenre- thosepainofi"dscapetypes that are shown in Figure fi.4as spondswith skepticism. Itisameasurfofsuccer :natthe t being conceptually most similar. For instance, the marsh and' results of this visual survey seem so obvious. Yet few critics Ft wooded landscapes and the beach and water landscapes are would ever give prior support to the possibility that there is perceived as being very similar and thus do not have signifi- substantial agreement regarding the landscape typts per- cantly diH:rent scenic values. However, they are both per- ceived in an area as well as what contributes to heir scenic ceived quite dissimilar from the bigh-density residential valor landscapes, which have Cgn ific antly poorer scenic value. In Dennis there seems to be a reasonable acceptance of the The results of the landscape-factor checklist, which are results of the visual resource survey, probably because of the summariz;d in Tables 6.2 and 6.3 according to landscape large degree of local control and participation throughout type, give some indication of what factors influence scenic the entire process. This survey Is one of the reasons %by value for each type. The pattern that emerges from these Dennis was named All-American City for 1978. When be- tables corroborates the prior content analysis of what con- stowing the award, the National Municipal League of Cities tributes to Scenic value, A romantic notion of the most scenic and Towns stated that it was particularly impressed by the prevails, while misfit characteristics dominate the least sce- example Dennis provided other towns for (1) citizen partici- nic landscapes. This pattern can also be seen by comparing pation, (2) comprehensive planning, and (3) conservation ac- the examples in Figures 5.6 through 5.10 of high and low sce- quisition and h?storic preservation. The visual resource sur- nic value for each landscape type, vey contributed to each of thtse areas. Amore careful examination ofTables 5.2and5.3provides fine imp-rtantramification ofthevisual resource survey several additional insights. For instance, both beach and is its utility as a powerful tool for education. It has brought water and marsh and wooded landscapes are valued for their "visual quality" out of the closet and made it a respectable "naturalness." However, the marshes are primarily valued topic in local planning. It is now clearer to the local decision- for their emoticnal association-their serenity, vastness, makers that there are ways to describe landscape appear- and uniqueness. In contrast, those aspects of a beach that antes systematically. Even more important, there is much contribute to its quality are physical-the water, sand, and more substantial agreement among town residents thanany- shorelin e. one had a xpected. In addition to being used in town meetings, Another interesting implication ofthesetablesisthat veg- photographs are being shown to students in the public etation and natural materials play an important role in the schools to make them more aware of Their local visual menicvelueoftheless densely developed areas. Whereroads, resource. overhead lines, and the like are not effectively screened, sce. The second ramification of the survey is its influence on ( nic value drops. In contrast, building characteristics such as the new zoning bylaws for the town of Dennis. While all the materials, design, color, and setback become important in changes are founded on some aspect of the Comprehensive more densely developed landscape types. In these situations Natural Resource Planning Program survey, they also haves the buildings are soconcentratedor massivethattneyeannot visual basis that u recogniz^d by the local citizens. For ro- be completely screened. All one expects is the mitigation ere stance, thestudy s results suggest that if the presence of any barren appearance through appropriate landscaping. structure in the foregroundof a beach and waterormarsh and wooded landscape becomes to dominant, then the pastoral Summary and Implementation image is destroyed. The possibility of this visual incompati- bility is given some credence by one landscape view that did Sometimes it is awkward to be a landscaW planner commit- not belong to any landscape type -a scene viewed across a tedto the development ofsystematicmethods 'orconsidera- salt marehtoward adensely developed residential area. Other TABLE 6.2 Landscape Factors That Add to the Sceale Value of Each Landscape Type • Landscape Types Beach and Marsh and Suburban Developed Com menial and High-Density Rank' Water Wooded Development Open Load bfunicipal Residential Hig?'.est: 1, Naturalness Serenity Serenity Serenity 2. Water Vastness Local character 3. Shoreline Naturalness • bfoderate: • 1. Water Naturalness Vegetation Serenity Building color Building design 2. Depth of view Natural color Natural color Natmalneu Building design Walls and to ne" 3. Natunlcolor Naturalneu Natural color 4. Depth or view Notes. The landerope factor checklist wu eomp!sled by 26 twepoodenta. 'LO.-otscepn with the hfxhnt scenic value wen In pia It, and thaw ►ith modereta atonic ra;w nn In pale /s. oil .4 OPP I I" ml 0-10, ON mp~ At - Zoning and Lsnd Use Control 61 TABLE 5.3 Landscape Factors that Detract from the Scenic Value of Ear.h Landscape Type Landscape Types Beach and Marsh and Suburban Developed Commercial and High-Density Rank' Water Wooded Development Opel Land Municipal Residential Lowevt 1. Overhead win Bare earth 2. Barrenness Barrennese 3. Can and trucks Building design 4. Overhead win 5. Building material 6. Building setback Moderate: I. Horizon line Horizon line Roads Overhead wire Overhead win Building color 2. Building design Barrenness Pavement Roads Con and tucks Building material 3. Overhead wire Natural color Can and trucks Straight line 4. Flatness .Voter The land,cape factor checklist sacs completed by 24 reopandente. -landscapes with the lownt scenic value wen In pile 17, and O vu with moderate acenk valve wen In pile /4. areas where beach cottages composed the foreground were Brace, P. 1980. Urban aesthetics and the courts. Enuiron• ubviouslyjudged high-density residential landscapes. There- mental Comment July (1980) 16-19. fore, future commercial and bigh•densityresidential develop• Carlin, P. N. 1960. The aesthetic as a factor considered in ments will be concentrated in those areas already identified zoning. Wyoming Law Journal 15(1): 77-85. with these landscape types. Through zoning, a serious at- Chandler, G. B. 1976. Natural and visual resources, Dennis, tempt is being made to halt the sprawl of these landscapes Massachusetts. Dennis Conservation Commission and and encourage infilling.Anattempt isaisobeingmadttopro• Planning Board, Dennis, MA. C tect the integrity of undeveloped natural areas. Those areas Dukerminier, J. J., Jr. 1955. Zoning for aesthetic objectives: near coastal beaches and marshes are rezoned from a mini- A reappraisal. Law and Contemporary Froblerns, 20: mum lot size of 20,000 squa-e feet to a minimum of 60,000 218-237. square feet. These areas have the highest scenic value and are Gibson, F., J. Karp, and E. Klyman.1992. Beat estate law. least able to absorb development. The remaining natural Dearborn. landscapes ore rezoned to aminimum lotsizeor40,000square Guberman, T. 1976. Aesthetic zoning. Urban 14wAnnuo4 2; feet. All areas that are already considered suburban develop. 295-307. ment remain at the previous minimum lot size of 20,000 King, J. B., Jr. 1970. Zoning for aesthetics substantialty re- square feet. duci ng property values. Washington and Lee Law Review, The third ramification of t%e survey is the town's commit- 27:303-311. ment to make a public acquisition of those areas that are vi. Leighty, L. L. 1971. Aesthetics as a legal basis for environ- sually most valuable. In 1979 the citizens of Dennis pur- mental control. Waync Law Review, 17: 1347-1396, chased 25 acres of prime marohland and 200 acres of Lorensen, W. D. 1957. Municipal corporations: Aesthetic 1 beachfront. More has been acquired since. These areas are zoning under the police power. Nebraska Low Review, 35: added to the town's already extensive public conservation 143-146. and recreation areas. Lyt ct, K. 1960. Image of a city. MIT Press. The key phrase here 'a "shared perceptions"A well-done Masotti, L. H., and Selfon, B. D. 1969. Aesthetic zon- sun'eyof visual perceptions of a community could beu~id,as ing under the police power. Journal of Urban Law, 46: in Dennis, to legislate local ordinances for protecting ses- 773-787. thetic resources. By doing their homework, communities will Meshenberg, N1. J. The Lan;aage of toning. Planning Advi• i find that such ordinances will be very defensible from both sory Report No. 322, American Planning Association. legal and scientific perspectivro. Miller, D. J. 1967. Aesthetic zoning An answer to billbard blight. Syracuse Law Review. 19(1: 87-94. References Minano, D. R. 1971. Aesthetic zoning: The creation ofa new Agee, J. 1966. Aesthetic zoning; A current evaluation of the standard Journal of Urban Law, 48: 740-754. % ® law. University of Florida Law Review, 18: 430-439. Newsom, M. D. 1969. Zoning fat beauty. New England Law At.derson, R. M. 1934. New York zoning law and practice. Review, 6(1): 1-16. Iawyers Cooperative Publishing. Nc-t , T. M. 1967. Police power, planning and aesthetics. Arnold, D. S.,ed. 1979. Thepractice of loco I government plan- b,.:aoClara Lauver,7(2):171-187. ning. International City Management Associcion, We h• Nota 1964, Zoning, aesthetics and the First Amendment.Co- ington, D.C.hmbia Law Review, 64: 81-108. to I • • 62 The Legal Landscape O'N ii(, V. R 1967. Aesthetic zoning: The chameleon of zon• Sager, L G. 1969. Tight little Islands: Exclusionary zoning, in,t. Tulra law Journal, 4(1): 48-68. equal protection, and the Indigent„ Stanford Low Revieu, Palmer, J. F. 1983a. Assessment of coastal wetlands In 21(4):767-800. D4 nnis, Massachusetts. In The future of wetknda•Assess- Smardon, P. C., Palmer, J. F., and Fellemen, J. P., eds.1986. i,.g visual-cultural values, R C. Smardon, ed., Allenheld- Foundations for visual project analysis. John Wiley. Osmun, pp. 65-80. Stokes, S., and Watson, E. 1989. Saving the countryside. 19836. Visual quality and visual assessment. In So- Johns Hopkins University Press, Baltimore. cial impact assessment methods, K. Finaterbusch, L G. Swletlik, J. 1965. Aesthetics under the zoning power. Mar. Llewellyn, and C. P. Wolf, a, Sage. pp. 263-283. quette Law Review, 39(1l: 135-145. Palmer, J. F and E. H. Zube.1976. Numerical end perceptual Univ, of Southern Maine. 1990. The hidden design in land use landscape classification. In E. H. Zube, ed., Studies In ardinanees. University of Southern Maine Design Arta Landscape Perception Institute for Man and Environ- Project, Portland ment. University of Massachusetts, Amherst. USDA Soil Conservation Service. 1977. A natural resources Pearlatein, R S. 1972. The aesthetic factor In zoning. Liu- planning program handbook (draft). quesne law Review, 11: 204 - 241. Wiko z, C. J. 1970. Aesthetic considerations In land use plan Rodda, G. 1954. The accomplishment of aesthetic purposes ning. Albany Law Review, 35(1): 126-147. under the police power. Southern CaIlfornia Law Review, Wilmott, 0., Smardon, R C., and McNeil, R 1983. Water- 27: 149-179. front revitalization in Clayton, New York. Smah Town, Rose, M., and 0.Yim,1962. Aesthetics as*toningeonsidere 14(3):12-19. tion. The Hastings Law Journal, 13(3): 374-381. C • i • ~ O 47 I t • ✓ c-.' O • ' !%t I:1 fir. ~ t r T H LEGALli j 1 rf f, NDSCAPE • '4 '~`.rt ~7 LA h 1 . =t *i~ 7=.; GUIDELINES FOR REGULATING ENVIRONMENTAL AND AESTHETIC QUALITY r ~ 'kr S r r `R 1 -4 r l ,.~~r•` ~ IS ^ ','r ~ 1 ~ ~rI_ 1. Fi,, 10 RICHARD C -SMARDf)N JAMES P,.KARP s a • 0 Chapter 2 Managing the Community Landscape' The importance of scenic resources is deeply ingrained whete we are to the evolution of community landscape in cultural values. In fact, the basic argument in legal analysis. circles about definition and standards for regulating scenic resources revolves around this issue of deter- REGULATORY STANDARDS mining cultural landscape values. In traditional socie• / ties, the visual harmony between development and If no legal procedural problems are found during a court l ontext was made possible through widely shared tra. challenge to a local aesthetic zoning ordinance or other ditions,and the resulting similar;ty of project types and mechanism, then the court may examine issues of rea- forms extended over longperiods of time (Figures 2.1 a, sonableness. These may include the extent and accu- b, c, d). This is commonly known as vernacular design. racy of the data utilized, the adequacy of analytical Such internal cohesiveness is not possible in modern methods, and the incorporation cfatudy findings in the society. Technological advances have created projects ultimate management or regulatory decision. Courts and materials never seen before. The rapid growth of overturn actions that are arbitrary and capricious, or communications and transportation has led to poten- unreasonable. tial development pressures on even the most ramotelo- Obviously, the resolution of these questions is par- cations, while escalating real estate markets make fea- tially determined by the specificity of the administra- sible the development within urban areas of previously tiveprocedureorregulation.ingeneral,threegroupsof impractical sites. controls can be identified (Smardon, Palmer, and Fel- These forces have placed many of ourculturally val- leman 1985, p. 25): consideration, specification, and ued scenic resources in jeopardy. Why else would there performance. Someprocedures and regulations merely O still be such an outcry about outdoor advertising, his- list oestheticsasoneofmany factors tobeconsidered in toric community preservation, agricultural land pres- a decision process. This would he the consideration sit- ervation, highway strip landscapes, park preservation, uation. Professionals or others operating in this situa- and other scenic resource issues? What legal tools do tion are provided with little guidance in developing an we have available to protect and manage these scenic analytical approach. resources? How do we link these tools with analyses of Specifications, on the other hand, can include data our scenic resources? Chapter 1 presented basic legal and results. For example, the New York Public Service structure as it related to land use regulation. The focus Commission requires power line applications to include 6 of this chapter is to presant an overview of landscape views from selected viewpoints. But note that there is 0 'u analysis that is applicable at the community scale and no specification of view shed delineation method. The ' Portia n s of this chapter ire adapted from a C. Sma rdon, J. P. Fdlemaa, and J. P. Palmer, Chapter 2, "Decision-Makin` Model for Visual Resource Management and Project Rsvter." In SFOardon, Palmer, and Fetlemen (1996). 7 • • 8 The Ltgal Landscape lip y ' y [P F ~.1. Q a. b. dA~ ~ r K, t. , •~Y ! S r.~l . F ~ y y ~;r f a , i FIGURE 21 a, b, c, d Landscape scenes from typical communiliei. Photo Credit: R. C. SmoPdon d. Adirondack Park Agency protects scsnic shorelines by CONTEXT FOR COMMUNITY prohibiting development closer than a specified dis- LANDSCAPE ANALYSIS tance. In this form of regulation, one or more of the project's form parameters are given, even though a Before a specific community landscape analysis pro- i projectsomanyfeetawaymaybehighlyvisibleandan- cess is presented, the reader should be familiarwiththe other the same number of feet away may be hidden. different scales and appli:stions for which landscape The most sophisticated control approach istoestab- analysis is used. lash performance standards std let the project propo- Visual resource inventories and analyses have been nent substantiate conformance. The U.S. Forest Ser- done for large landscape areas. In Table 2.1 the reader vice's (USDA, 1974) visual management classification can see examples of national, subnotional/regional, f~ A p system yields localized performance objectives (see statewide, regional, and site scale analyses. We would Smardon, Palmer, and Felleman 1986 for a detailed re- like to focus our attention on those analyses done spe- view). There is also an example of a sign ordinance per- cifically for town, regional/town, linear corridor, and formanee-based system presented by Ewald and Man- site/project scales (see Figure 2,2). delker (1977) in their famous book Street Graphics. At the town or citywide scale, a number of studies • • Managing the Community Landscape 9 TA13LE 2.1 Gonerle and Project ImpactAssesament proposed changes in the landscape that maybe caused swdte5-~". by.new development. Scale Decision Needs/Processes The remaining analyses cited in Table 2.1 are exam- Nafionat Scale • national landscape a ples of Leneric and project-specific visual impact as- inventory/priority sessment studies. These analyses attempt to predict change in landscape quality due to proposed develop- Subustional/Regional Scale • multi;ie river basin water ment activities. Existing community landscape inven- resouneplanaingstudies - tories, classifications, analyses, snd designation of Statewide Scale • statewide landscape Inventory locally significant landscapes make visual impact as- far land une planning sessments more meaningful and accurate. Regional Scale • inventories and assessments Chapter 11 describes the types of treatments of aes- forland useplanning thetic impacts within environmental impact state- • multiple resource planning meets. As stated elsewhere (Smardon, Palmer, and studies for national forests Fe • shoreline and coastal cone lleman 1986; Andrews and Waits 1978), visual can- - river basin planning siderations as treated in E1S's have rarely met the re- planning quirements stated in NEPA. Also, the treatment ofv3- Town Scale/Areawids • visual inventory and analyses sual and aesthetic considerations has not advanced, for land use planning; urban with a few notable exceptions. The most notable excep- renewal; urban design and tions often utilize forms of visual simulation in order to Image assessment better portray visual impacts for professional analysis, Regional/Town Seale • transportation and river and to better communicate them to affected publics. (Linear Corridor) planning Many design and plannin,l firms now have computer- ized image-processing capabilities for doing accurate Regional to Site Seale • generic impact assessment for and realistic visual simulations of proposed landscape linear and point phenomena, changes. location and general project planning for forestry activity • national recreation wesa COMMUNITY PLANNING CONTEXT • cool development • power plants The previously described visual analyses are in re- - pc.vertransmiasionlines sponse to three regulatory situations: (1) public lend • LNG off-loading terminals management and planning, (2) public projects involy- • scenic river management policies inB Private lands and (3) public regulation of pri- vate projects (Smardon and Felleman 1982). Parts Site/Project scale • detailed eiauat impact of this book will consider all three regulatory situa- enverament of a tivea in environmental "sass aesamenta or lions,buttheemphasis will be placed on public regula- EIS's tion of private lands because that is where the legal ac- ' tion is. Also, as pointed out by Palmer (1983) in an overview have includcd visual inventory and analysis for land of visual quality and visual impact assessment, we will use planning, urban renewal, urban design, and image be proposing methods of integrating landscape analy- sssessment. 7,1, st of these studies were done in the six- ses with legal tools at four stages of environmental de- ties and stventies in the United States under the De- cision-making: (1) environmental inventory, (2) policy partment of Housing and Urban Development plan- formation, (3)program planning or project design, and ning assistance program and were highly varied in (4) post impact evaluetion.Theoverall emphasis intHs quality and approach, book will be on the first two stages. A particular kind of study that merges regional and To facilitate our discussion of "appropriate fit" of ei- site scales is the linear or scenic corridor etudy. These ther landscape analyses or legal tools we need some studies are usually for highway visual quality or scenic basic framework, In our focus on the community • rivers, All of the previously mentioned studies were landscape -amidscale landscape contaxtwith empha- ( O 0 performedbyprivate firms andgovernment agenciesto sis on preparation of landscape inventory and analyses inventory, classify, analyze, and identify existinglevels suitable for building defensible legal lancLscape-control of landscape quality. These are the first steps that a measures-we need a framework for community land- community should undertake if it wants to develop de scope decision-making, A general community decision- fensible sestl etic control mechanisms and standards. making framework is thus described in the following This creates the baseline for aesthetic evaluation of section. t 1 7 -71-7 0 10 The Legal Landscape so m 8 SITE } CORRIDOR C J HUED CONTINUUM 111• w f r' ,J N• p J rrr eaPR r/r~ • Irr No ENVELOPE FIGURE 2.2 Scales or aesthetic analysis. Solace: Jowl Wiley Er Sore i h • COMMUNITY LANDSCAPE DECISION- fining landscape resources that are significant and • • MAKING FRAMEWORK likely to beafectedbylandscape change, anddevelop- ing an evaluation framework; (2) inventorying sea- In previous works (Smardon, Palmer, and Felleman tbetic resources, which includes surveying existing l 1986; Smardon et al. 1988) we have developed a four- conditions and forecasting with and without aesthetic phase framework for landscape assessment and evRlua• regulations/controls; (3) assessing effects on the land- Von. The general phases and structure are useful for scape of (a) development alternatives or (b) the imple- the community context as well. The phases are: (1) de- mentction of aesthetic controls/regulations; and (4) • • Managing the Community landscape 11 appraising effects via public evaluation in terms of the ate attributes to be assessed should be-arranged significance (of impact) and/or mitigation of visual in the evaluation framework. Note that such at- impact. tributes are primarily visual but roily include Eachof the phases is described in more detailbelow other senses. Although such attributes may be utilizing Table 2.2 as a guide: partially embodied in physical landscape attri- butes, the most appropriate aesthetic indicators A. Define Resources: This phase is performed to relate to levels of enjoyment or pleasure experi- identifyaesthet'c orvisual resources thatshould be encedbypeople exposed to the resource. For in- evaluated. dicators of the presence of aesthetic resources, 1. Identify Aesthetic Resotzces: This is accom- onecanre)yonsubjectivejudgmentsoflocalpeo- plished by reviewing existing information (by pie in the community, professionals, or both. local groups or professionals) to identify aes- B. Inventory Resources: An inventory process col- thetic resources that are: (a) significant because lects or develops information that is useful for as- of institutional, public, or technical recognition; sessing the effects of alternative plans orpolicies; it and/or (b) likely to be affected by landscape im- employs the evaluation framework to determine the pacts or policies. data useful for specific indicators as well as units of Institutional, public, and technically signifi- analysis. cant aesthetic resources can be defined as 1. Survey Existing Conditions: This activity in- follows: volves an inventory of existing landscape condi- Institutionafrecognition•The aesthetic attribute tions utilizing inventory and classification sys- is acknowledged in the laws, adopted plans, and tems for such phenomena as landform, land otherpolicy statements ofpublic agencies or pri- cover, and cultural lard use patterns. There are vate groups. many different landscape inventory and classifi- Public recognition: Some segment of the public cation systems (see Smardon, Palmer, and Felle- recognizes the importance of an aesthetic ettri- man 7386). bate or resource. 2. Forecast of Conditions without Plans/Policies/ Technical recognition: The importance ofthere- Regulations/Controls:Aforecestalouldpropose source is based on scientific or technical knowl- the most probable conditions of the future land- edge or judgment of critical resource char- scapeat the projected timeline. 0eparticularim- acteristics. portance, for example, would h, the possible cre- Interrelated aesthetic resources having more ation or loss of significant vistas, change in than one aesthetic attribute should be ccnsid- lands-cape quality due to vegetative growth or ered; for example, r salt marsh yielding sound, succession, or change in land use patterns and smell, slid sight sensations. As such, many aes- historic architecture. thetic resources will be deemed significant by 3. Forecast with Alternative Plans/Policies/Reg- more than one criterion. ulations/Controts: Alternative plans/policies 2. Develop Evaluation Framework: The appropri- should be described in a manner consistent with the. chosen landscape classification systems and scales used in steps B.1 and 8.2. The condition of TABLE2.2 Common!lyLaadKWDecisioo-making thelandscapeunder each alternative plan orpol- Framework. Source: John Wiley! Sorts icy should be described. Secondary effects of proposed Planning Process: Aesthetic ResouM.e Stud r. projects such as generation of newlend • development, or of policies such aseliminationof 1. Specify Problems and Fled Flag Criteria ugly rignage, should be included. Opportani6es C. Assess Effects: The purpose of this phase is to 2. Inventory and Forecast Phases of identify and describe effects of alternative plans/ ' Resource Conditions 1. Define resources policies/regulations or controls on aesthetic re- 2. Inventory resources 1 Formulate Alt_rnative Placs Design Prototypes and Impact sources. Mitigation Through Design! 1. Identify Effects: The affected area from which 4. Evaluate Effect, Phases of the project/plan is visible should be determined - - • 3. Assesseffects usingvisibilityanalysis.Significant places inthe Q 4. Apprise effects affected area should then be identified based on 6. Compare Alternatives Weigh Aesthetic Criteri, Against Other Approptinb exposure, use s or other indications of culturally Criteria significant aesthetic values. Simultaneously, the 6. Select Plan Implement Recommendations potential impact of the activity should be ana- In Final Design, ConstnKtion, lyzed by identifying project characteristics that and Management Activities effect specific parts of the landscape, such as fills 4 - C../~ As 11 wagm, -a e • 12 The Legal Lardcape effecting Icndform, vegetation cuts, or new PLAN OF THE BOOK structures or activities. Identifying effects of proposed ~Iandscape regulations or policies is At this point it may help the reader to outline the con- l more difficult if effects are areawide or in iso- tent and organization of the book. These first twochap- Istedpockets. How•ever, viewpoints could still be ters review very basic concepts of legal land use princi- selected, exposure estimated, and type of effect plcs and the planning processes. They constitute the characterized. basic building blocks of the book. The third chapter is a 2. Describe Effects:'Significent visual effects can brief history of how aesthetics has been treated in re- be described with respect to critical viewpoints in gard to land use law and explores a few principles for the affected area. Critical viewpoints can be aesthetic standards that coulebe used asabasisforuse based on such considerations as highly fre- of aesthetic land use control. The fourth chapter is a quentedvieapoints, culturally significant views, state-by-state review of key cou,t cases that indicate and representative views of landscapes. Foreach whether aesthetics can stand alonr as a rationale for vista or vie•.ving mode, a representation orsimu- use of the police power for local lani use control. lation of the scene is needed both with and with- The second part of the book contains four chapters out the projector proposedpolicy to describepo- that are applicable to local community aesthetic land tential effects. The potential effects also need to use control and regulation. Each chapter contains a be traced back to ~.he causal attributes of the synthesis of relevant legal history, key testa for sus- project, activity, or policy. taining ordinances, current developments, and a case 3. Determine Significant Effects: This step in- study that illustrates how aesthetic analysis tin be cludes the assessment of professional findings or used to develop or teat the local aesthetic control. public preferences concerning the aesthetic im- These chapters include: Chapter 5, Zoning and La ?d pacts of project or policy alternatives. Public Use Control; Chapter 6, Architectural Regulation, preferences and evaluative appraisals are needed Preservation, and Design Review; Chapter 7, Outdoor to determine the degree of significance of poten- Advertising and Sign Control; and Chapter 8, Scenic tial effects on the landscape. View Protection. These four chapters are the basic tool D. Appraise Effects: This phase is performed to kit that local government needstobegina.stheticcom- identify the appropriate weight of significant ef- munity planning. fects on eeithetic resources, individually or collec- The first two parts of the book provide the founds- tively, for each alternative plan/policy/regulation tion of key legal concepts and of aesthetic conlrolfom or control, This is the phase in which aesthetic re- a community perspective. Part III has a wider, federal sources are comparedto other resources in termsof and state perspective but includes issues of interest to the in:-rortance of effects, and decisions are made local government as well, The six chapters include: concerning the proposed project or policy. Chapter 8, Wilderness and Natural Area Preservation; 1. Appraise Significant Effects: The significant ef- Chapter 10, Regulation of Environmentally Sensitive fects of each alternative should be appraised. Areas and Resources; Chapter 11, Aesthetic Project Such an analysis may lead to modifications or Review; Chapter 12, Surface Mining; Chapter 13, mitigation of effects ifcausal linkages are known Timber Harvesting and Vegetation Protection; and through steps CA and C2 Chapter 14, Facility Siting. Each chapter includes a 2. Judge Overall Effects: Judgment of the overall summary of relevant federal and state laws and proce- effect on environmental quality of each project dures, a summaryof aesthetic impact issues,and a case alternative or policy is the final step. The study that illustrates the application of analyses that visual analyst represents the visual resource address the aesthetic impact within a legal context. in this process and advises the final deci- The last part of the book contains two chapters: sign-maker. Chapter 15, Litigation and Aesthetic Analysis; and Chapter 16, The Legal Landscape: Issues and Trends. A community may not want to follow this whole pro- Both are syntheses in different ways. The chapter on cess but utilize pieces of it dependingon local aesthetic litigation isapracticaltactical guidetohowtoprepare, management needs. To review: The basic steps in com- conduct, and use aesthetic analyses in courtroom and munity landscape aesthetic decision-making include: hearing contexts. Chapter 16 is a philosophical look et A defining aesthetic landscape resources locally, inver.to- major trends in aesthetic analysis and regulation a3th rying such resources in systematic fashion, assessing some observations on the roles of different players and I~ 0 f? effects of alternative plans or policies in comparative their respective contributions. fashion, and appraising trade-offs of such plans and Each of Chapters b through 14 has a landscape poiicies on aesthetic and other resources. graphic that relates each legal landscape control mech- _ c s 12 r u h YYnYYYYYIYY,Y~tiYM-.--..r. • Managing the Community Landscape 13 „ /7~// ~ J / J~r~ ~ / r Sri JGi / FIGURE 2.3 Generic landscape. Credit Scott Shannon anismtoanidealized prototypical landscape andcerves K. Fuuterbusch, L. G. Llewellyn, and C. P. Wolf, pp. as contest and orientation (Figure 21), This 6gum is a 263-283. computer graphic which will be altered to display the Sm'rdcn, R. C., and Felleman, J. P. 19b.. The quiet revolu- v is sal theme of each chapter, Lion In visual resource management, a Ater from the coast. In Visual resource rnanogement in the coaseaf zone the References moue from procedure to out-Lance, special i+eue, ed. R. C. Andrews, R. N. L„ and Wails, M. J. 1978. Environmental Smardon and J. P. Felleman. Coastal Zone M-Aagement values in public decisions: A research agenda School of Journal 9 (3/s): 211-214. Natural Resources, University of Michigan. Smardon, R. C., Palmer, J. F, and Felleman, J. P. eds. 1198. Ewald, W. R. Jr., and Mandelker, D. R. 1977. Street graphics. Foundations for visual project analysis, John Wiley & The Landscape Architecture Foundation, McLean, Vir• Sons. gi nia. S mardon, R. C. at aL 1988. Vimalresourm a sessmentproce- Palmer, J. F. 1983. Approaches for assessing visual quality dure for US Army Corps of Engineers. Instruction Y.eport and visual impacts. Social impact esseasment methods. ed. EL-88-1, USCGE, Waterways Esp. Stn., Vicksburg, MS. • • ?r :~~M§'oe'.wrl , . ;e,;rT k.~t C,li~-♦m~-F t ,_fr :p ~ ~ J f. ' 0 tall, i~ ,b ~ to `V . a ..f 1 e l Q • • • Transportation a-na urowtb., MYTH AND FACT ebatcs over development quickly become debates about transporta- tion. While the three most important factors in real estate maybe "location, location, and location, " development conflicts in these lo- cations often are "traffic, traffic, and traffic." Traffic impacts are felt most intensely at the local level, but they have regional impacts and also add to regional travel in the vicinity, compounding inadequacies in the existing trans- portation network. Traffic does not respect government boundaries, Most deci sions on major transportation facilities are the responsibility of regional agencies, state transportation departments, or regional transit agencies. This conflict be- tween local approval of development and regional responsibilities for transporta- tion improvements becomes most immediate when a major development project is proposed, even one that would account for only a small share of traffic on the abutting street. Resolving such complex disputes is further e.acerbated by the terms of the de- bate, Transportatic;, providers typically argue in technical, quantitative terms, while local citizens are more likely to think in nontechnical and emotional con- tents and local officials are caught somewhere in behvccn. Evidence frequently is based not on sound technical rcasoni :p, but on unsupported myth many of which have taken on considerable standing. Many of these perceptions-though based little on re,dity-have become entrenched, emerging as popular myths that even professionals find difficult to discredit. This booklet examines some of the -v most popular of these myths and offers facts in their stead in the hope that public debate can then be more sharply focused on the true problems and the most ef- fective approaches available for communities to addtess those problems. No solu- tions arc recommended. Rather, it is hoped the factual information presented will lead to better decisions. In the end, each community must determine the amount • of traffic growth it will accommodate and whether it will do so by better manag- ing roads and transit, b,, expanding facilities, by accepting sonic increase in con- gestion, or by using all of these methods. Resolutions must be made on whether to charge users enough to maintain facilities, to make improvements, or even to reduce demand. Perhaps the most important message is that there are no easy an- twers, but there are realistic solutions. Many of the myths are based on outdated ® notions of urban patterns in America. As author Withold Rybcznshy writes in his O 0 book City Life: Urban Expectations in a New World, "Once Nye accept that our cities will not be like cities of the past, it will become possible to see what they might become."The ideas here are offered in that spirit-to understand today's reality as a foundation for a better tomorrow. 1 { Ow - 77 • • freeway plan developed by consul- "The incredible shrinking r rants accurately forecast the regions plan" is how the Washington, Tbdays traf eproblew are growth for the next 20 years and D.C., regions planning efforts caused by a failure to plan called for the construction of 215 have been describe. The boom .niles of freeway by 1980. Jack years of the 1960s produced a adequately. Desolske, director ofthe Markopa plan that anticipated that the Association of Governments, says, population and employment _ "We should have built it freeway would double by the year 2000, a FACT' 7 system then.' However, the plan projection reached in the 1990s. was never adequately funded, An ambitious 1966 transportation Today's traffic problems growth in Phoenix boomed, and plan to serve this growth included not caused b traffic congestion grew until it be- a system of nine radial freeways generally are by came a aisis. As described in Myth leading into the city; connected by a failure to plan, b 7, Phoenix was fortunate to have three beltways (one of which was P s by a another chance in the 1980s- almost built), and an extensive rail failure to carry out plans. with a new plan and source of transit system finking the suburbs funding, to the downtown core. Much of Los Angeles is widely recog- the rail transit proposed in the nixed as the freeway capital of the plan was eventually incorporated United States--despite the fact in the METRO rail transit sys- that 27 other urbanized areas con- tern now nearing completion, but tained more miles of freeway lanes successive plan updates removed per capita in 1990. Traffic conges- or downgraded the two outer t may come as a surprise to tion in the Los Angeles region is bcl ways and many of the free- many people frustrated by in- legendary, ranking at the top of ways in the original plant In the adequate transportation and the list of most congested large northern Virginia portion alone, a excruciating traffic congestion to cities since different regions were 1969 state plan called for nine discover that the problem is not first compared in the 1980s. WhSc major new fadlitie' to meet traffic lack of planning. Since the 1960s, regional development was origi- needs, while a 1975 plan claiming ( all large urban areas have been re- nally shaped by an extensive ret. to reinforce the needs abandoned to as ure to develop that regional work of Red Car trolleys, the first plans for all but o Changing Porta- freeways on the West Coot were transportation policies cmpha- tion investments are consistent sized transit investment t and d land with regional goals. All have built in Los Angeles, In 1958, use policies promoting more eom- planned and many have planned planners esUed for about 2,100 pact development patterns, along well. As three examples-Phoe- miles of freeways and expressways with better management of facili- nix, Los Angeles, and Washing- to serve the needs of future resi- ties, as it way to reduce the need ton, D.C.-illustrate, the problem dents in Los Angeles, Orange, and for new highways. Unfortunately, has been in delivering results, Ventura counties by 1985. Less those goals were not met, and rather than planning. than hatfofthis planned system was patterns of dispersed, Sow-density In Phoenix, public opinion polls in operation by 1985-825 mile' development combined with a in the 1980s consistently identified of freeways in the three-county shrinking road construction pro- transportation as the area's num- area. The growth and traffic ter- gram have made the Washington • ber one problem. It was not a sur- tainly came, even though the sup- region second only to Los Ange- prise to the early planners. A 1960 porting freeway system did not. les in the ecverity of eongesticn. 1 2 . ek • • Phoenix Freeway System Planned for 1980s 1 vv.l to J. M y ~ 1.1 C.t J 1f i~ A I Glmdala Fir I NN i I J s i con.a.1. Fn- I Tr a \ Pi_ / Source A Major Street and KgKh ay P an for Phcem■ Urban Area. W bur Smith 8 Associates, 1950. 1\ Completed by 1987 I „j .J "r ss r 1 t I N. ~ r~ rn 1 f 'f i? r: t+J 1 GI ndala 1 ""\A &otbdala ~ Z7 Temp. Mau ` ~ A 0 Y xlA,,,r,}v 3 Pill • • -e that, development Between 1969 Demographic factors include and 1990, total highway travel the underlying growth in popula- Stopping dev.~lopment will stop doubled-more than four times lion and the disproportionate t raft C growth. the gr0i thin overall population, growth of people Ii their prime and three times the increase in travel years; baby boomers coming the number of persons of driving of age; women entering the work- F A'6 T 2 age? Over this period, the asrr- force; and a suburbanizing life- age annual miles driven increased style that requires more travel than Even with no new deVelop- 46 percent among male drivers, that of its city counterpart. Com- and 76 percent among fernale dri- bined, more people with greater nle nt, traffic would increase vers.° It is eirimued that during per-capita travel needs accounted the 1970s and early 1980s, growth for about one-third of the increase because of the populations in population, housing, and em- in driving, similar to the previous growing mobility. ployment accounted for about period. Crowing dependency on one-third of the increase in high- the automobile-because of less way travel, while two-thirds was use of transit and carpooling- attributed to increased per capita accounted for another third. 1ne travels From 1983 to 1990, the last factor, growing travel dis- U.S, populat;on increased only 4 tances, especially for commuting, he common tendency is to percent, while household travel on accounted for about one-third of associate all traffic growth the nations highways increasc.l40 the increase in travel. Census data with new development, percent 6 How could this huge show that even in areas of the without realizing the contribution disparity be explained? By roughly United States where the popula- of increasing automobility. Even equal parts of demob,aphics, de- tion has declined, employment during periods of rapid growth, pendency on the automobile, and levels and travel have increased, however, traffic has grown faster longer distances. for similar reasons. Percenl Change: 1980-1990 for King County, Washington, and the United States; 1985-1990 for Fairfax County, Virg°,iia, except for vehicle miles 1985-111 Po lation Longer Trips 3% FalrfaK County King County National 36% More Trips due to: gOn; IB% 6090 Trips per 50'. Capita 40'/a - 30% - 209/0 10% 1 0°r0 - Population Licensed Vehicles Vehicle Less Transit Less Carpooling • Drivers Miles 17% 17% Source: Va. Stat. Ab. 1992-93. Center for Public Service, WA Char. Source: Federal highway Administration, 19W Nationwide Personal • IcMesville, VA, 1992. U S. Dept, of Commerce. Bureau of the Census, Transportation Survey: Trawl SeAa.ior Issuer it the Ws. 1990 Census of Populmion. PL94-171 data extract Washington. D.C. 1991; (computer printout). Martin, Jura H. Estimate of Population of Vrginia Counties and Cites; 1987 and 1988. Center for Public Service, UVA. Cha iollesvllle, VA, annual. 4 j • any attitudet toward share of new, housing and c Nice ' . growth are shaped by space is purchased or leased by L ` the notion tbwhe existing members of the cornmu- Growth in a Commuty l houses and office buildings built nity. A 1993 national surveyof intarily serves newcomers. to serve it arc oc: upied primarily new homebuyers found that ap- by new residents. Charging n"- proximately half of them-rang- comers for the facilities needed ing from 42 percent in the North- FACT 3'j for growth appeals to elected offi- cast to 65 percent in the Wcst- - - ' vials as a means to gain revenue already lived in the counties where Much of the development in without alienating vot,s,.It can they purchased their new homed also placate community attitudes U.S. Census Bureau statistics show growing areas is needed to by assuring existing residents that similar trends for population shifts. newcomers are paying their fair According to th-1990 Census, serve existing residents, not share. But what is a newcomer? over one-half of all persons mov- Contrary to the usual assumption ing between 1955 and 1990 moved people moving in. that anyone who moves to a new to a different hou3e in the same home or works in a new office county.9 building is a newcomer, a large ounty Different Same County 0 Same State El Different State C Count' C 100Ya - Same 5% Couny, 54% 90% Different State 20% 80% 70°e 60% 50% Same State 40% 211/. S Source: L a C *artment of Commerce. Bureau of the Census. 1990 30% Census of 1- pule con end Housing Data Paper Listing. CPN-L-121 as puoli shed in Statistical Abstract of the United Staics: 1993. 20% r 10 °/a • 0°/a I~ Northeast North South 'Nest • ~ Central Region ' Source: NAHB 1993 Survey of New Homebvyers. 5 0 MUM he search for transpor- ing the 1980s, over 70 percent of r tatlon solutions is deter 211 newjobs created were located Urban transportations major mined largely by the prob- in the suburbs, and the total office challenge is to improve lcm. hlanypeople think the inventory in the suburbs Actually solution is to provide access to excxded downtown office inven- commuting to downtown jobs. central areas forjobs problem tore during the decade,u long since eclipsed in most urban In addition, work trips are be- areas. The central area no longer coming a diminishing share of is the main growth location, and travel. By 1990, the number of In most work trips no longer are the growth weekly person trips fir family/ growing areas, market, even during peak hours. personal business-excluding getting people to downtown According to the 1990 U.S. Cen- shopping-exceeded the average sus, there were more than twice as persons daily trips to and from jobs no longer is the major many suburbanites commuting to work.ta Moreover, traffic is dis- wburbanjobs in metropolitan ar- tributed more evenly throughout transportation problem. eas as there were to jobs in the the day, rather than concentrated central cities-nearly 39 million in the peak hours, with over half The problem is much more compared with nearly 1S million.9 of all weekday vchlcle trips uccur- Intrasuburban commuter, which rind during nonpeak hours. By diverse, involving commutes have dominated growth in total 1990, only 38 percent of trips made entirely within the commuting fxdecade, accounted made during the evening peak y w for 57 percent of the in xcast in hours were for commuting.13 For suburbs, shopping, personal metropolitan comuttrg between a large metropolitan area with persona 1960 and 198010 and f r 58 per- travel patterns similar in terms of business trips, and off-hours ten, of the increase between 1980 purpose and time of day to the and 1990. Although the down- U.S. averages, commutes to the traffic as well, towns of our major cities gener- central business district during ally are the most important single peak periods probably represent destination, they no longer me the less than 3 percent of all daily trips dominant location forjobs. Dur- Shares of Total Increase in Commuters by Market: I' RO-4990 Suburbs to Central 20% Central City o to Suburbs 12% Centres City to q Central City o Suburbs to Suburbs 509E 58N, Source: Alan E. Nereid, Corrvnutlrp In Amedca tWsshinp;on, O.C.: Fro Foundation for Trensportetion, forlM,ominpl. • • Relative Sizes of Main Flow Markets for Commuting: 1960-1990 1960 1970 A+ 1980 1990 40 35 30 e E 25 E 6 20 0 C 15 Sir- f to 5 0 Central City to Central City to Suburbs to Suburbs to Central City Suburbs Central City Suburbs Source: Alan E. PisarsW, Comrrmutmg In America Washington, D.C.: Eno Foundation for Transportation, forthcomlrig). Weekday Vehicle Trips: 1990 6 00 a. m to 9.00 a m. Norwork Trips 6°/r Nonpeak Hours 6,00 a.m. to 9:00 a.m. 56% Work Trips 12% NOmCBD 4- CBD (pert of work trips) Y 4:00 p.m. to 7:00 p.m, Work Trips 10% 4:00 P.M. to 7:00 P.M. t • Nor work Trips ~ O • Note: Central business dirtrict (CBD) tips estimated to be less than 10 percent of daffy commuting for most urban areas. Sourcc: U.S. Capartment of Transportation. Federal tsghwayAdmin)stratbn Sur w. Tabre 5.$5. 7 • r how • • } 1 whelming gains elsewhere. A gains in transit commuting were study designed to identify recent much less dramatic, although the Suburbanites will not ride success stories found 40 transit top three markets-where the buses. systems with ridership gains of 3 number of transit commuters in- to 5 percent between 1991 and creased by at least 50 percent- 1993. The top five, with ridership were all low-density regions with F A C T - 5 gains of at least 30 percent over a suburban development patterns: two- to three-year period by 1993 Phoenix maintained its position Suburbanites will -ride buses included Flint, Afichigan; River- in the top ranks,joined by Hous- side, California; Alexandria, Vir- ton and Orlando. Admittedly, when the service is reason- ginia; San Alamo, California; and these three regions were starting Orlando, Florida--2 group of from a tiny base, and by 1990 ably fast and convenient. generally low-scale, suburban cit- transit carried a minuscule 2 to 4 ies, Central to the success 0f 2H of percent ofwork tr;ps. ne Houston these cities teas significant expan- region especially offers a model sion and integration of service, for serving low-scale development which generally is relatively easy with bus service, through an in- any local officials believe for a bus system.14 novative system of exclusive tran- that suburbanites will What about high-growth cities? sirways in the center of freeways. not ride buses because During the 1970s, the highest- By offering the opportunity to they consider them slow, unreb- growth regions for transit com- drive to a park-and-ride lot near able, and designed primarily for muting were all in the West- the freeway and ride an express poor central city residents. This Portland, Denver, Sacramento, bus to downtown, these IIOV fa- myth is used frequently tojustify San Diego, Phoenix, Seattle, and cilities have attracted young, edu- new rail systems, which are thought Los Angalcs. Each of these re- cared, white-collar professionals to cater to a higher-income, more gions with heavily sub- rban-ori- to transit 11 The director of the mobile suburban market. While ented growth patterns served by Port Authority of Allsghony there has been a generally de- buses experienced at least a 50 County, which operates two ex- / clining trend in transit ridership percent increase in the number of elusive busways in Pittsburgh, in the United States, aggregate transit commuters, the result of points out, 'Out customers aren't national statistics can mask signif- substantial transit investment coin- dumb. If you save them some- icant positive trends, with losses bined with fast-growing eommu- thing valuable called time, they'll at a few large urban systems over- ter markets. During the 1980s, use it."16 kr~l'151,; - iit:,h-Gro,vth frallaii G:" -'I. r, •.I, tirla `i~J'0't' - 01970 Q 1980 Q 1990 10% 9% 84'0 • 7% N 6% C J~/G t. I k e 4°/ - - 5 IL 3 % Yrf s O 0 • 1" l•_ r ? ::HIT a Portland Seattla Denver Los Angeles Sacramento San Diego Phoenix Houston Orlando Source. RossPth, M., and 6. Evensole. Joumeyto Work Trends to the UnfrodSwes end dts MejaMermpedtsnAreas: t960.19W. U.S. Depart. ment of Transportat,r^ 1993. 8 c -01 • t is believed that in high- bus system added almost half sgain growth a teas with low !.vets as many transit trips between 1960 of transit ridership, major and 1994. Three light-rail systems Overall) new rail transit capital investments in new rail opened in the mid-1980s on the systems are needed to reduce systems will reduce driving sub- West Coast and helped boost re- stantially. Emerging cities in the gional transit significantly between traC congestion. South and West believe they can 1935 and 1994-Sacramento (+40 build rail systems that tvil' serve percent), Portland (+34 percent), their downtowns and focus dcvcl- and Santa Clara County (+23 per- PACT t$J-_ _ T opment in the same way that cent). Although rhea were healthy those of New York, Boston, Chi- gains, they constinited only a small No evidence exists that rail cago, and Philadelphia have done. share of regional travel.Transit transit reduces congestion. The facts indicate otherwise. Even ridership actually declined after in San Francisco and Washington, rail lines opened in Buffalo and which seemed to be logical candi- Baltimore. Baltimore's decline oc- dates for subways, the systems Burred despite two new projects, a that opened in the i970s have had heavy-nil subway One in the 19805 mixed success. Both systems have and a light-rail line in the 19905. played important roles in serving Data on the severity of regional their downtowns, although most congestion for rail systems opened job growth has occurred in the in the 19805 clearly illustrate that suburbs, where a rail system can- in all cases, congestion was worse not compete with the car. There- in 1991 than when the rail lines fore, neither cystemhasbeenable opened.lnfact, grow5ngeonges- s3'(ic;t Index: to increase she overall percentage tion makes transit more effective, of commuters using public trans- by reducing the attractiveness of portation, and the traffic problems driving. In all of the regions stud- Average in the suburbs of each city have be- ied, the growth in auto travel for New Rail City come Icgendary. Although not all commuting purposes completely (pre-1986) new rail cities have seen significant overwhelmed the increase to tran- expansion of transit patronage, sit trips. As described in the next Average there are two dear standouts. Open- section, mo areas that were able Nonrail City ing in 1981, t),e light-rail San to make a significant dent in ra- j Diego Trc!ley more than doubled glonal congestion d:J so not with 0% 5% 1045 1545 20% bus or rail trips. Washington, D.C., rail but with expanded bus transit Percent Change is the Nader in heavy-rail subway as well as highway improvements systems. Its METRO subway and Source: Texas Transportation Institute, 1991. New Rail Cities Chorea in Congestion Index: Washington _ 1 ~}87~~ JtJ I ar M amt 6 San Fmndsco • _ _ Atlanta [ New Rail City Ban D eyo (post-1986) Sacramento Average _ New Pal Gry a San Jose (pre.I966) • J Baltimore Average t Buffeb Norval City • -40% -20% 0% 20% e0% 60% 60% I J Percent Chengs 0% 2% 4% 6% 8% Percent Change Soure. Amerban Public Transit Association transit ridership reports supplemented by Iccal data in v:amt. San Francisco, and Atlanta. Source: Texas Transportation institute, 1991. 9 r. r 4 9 16 s • any highway critic as creasing costs of land and eon- jj ( svcll as some transporta- struction, and growing sensitivity Hlgbways no jonge)" can be I>> a tion professionals be- to envirunmentai and community S j11(Ijt in IIYjIl7)1 R1 'e115. litre that the problems involved effects will continue to rule out in building metropolitan high- highway improveincnts in many f stays are insurmountable. In addi- areas. Wary transportation agen- ~ FACT 7 tior to the normal difficuhies en- cics confronted with all these - coantered in building highways in problems c-tn easily turn this par New roads can, and are, established areas, today's engi- titular myth into a self-full-filing ncets often must cope with re- prophesy. being built in urban areas sentment over put projects that But the facts demonstrate that were insensitive to the s--, round- highways still are being built, al- r throughout the United States. ing community. This myth has beit with substantially more cf- spre,d to the suburbs as well, fort, greater design sensitivity, and even affecting areas where roads stronger communication with the j have been planned and rights-of- public than in the past. Recent t way nave long been set aside. A experience shows cases in which general decline in funding, in- highw v improvements have over- 1 ~~i'~ 1 1 1 ti 1 \ ~ \ ,1 a ti~' / 1 1 ~yt t l '~1 N t t J ~ f ~1 ' 1 i 1`~ i 1i \ - L, 4 , l ei~ t~rtt 1 y 1 r-~ T- (1 ..4 t~. ~ 1{f E f , O r) l 10 • • come considerable opposition, as Once renowned for its free- Many other examples of major well as cases in which they have ways, California had seen new improvements in individual corn- had significant support,, projects stalled because of finan- don include the North-South Houston and Phoenix demon- cial, environmental, and citizeti Toll-Ay in suburban Chicago, strate that it is still possible to oppo,ition. However, two signifi- opened in MCI,; the North Cen- implement significant regional cant projects opened in 1993.The tral Expressway in Dallas,which programs. As Houston enjoyed Century Freeway, planned for 30 until the start of reconstruction the economic boom of the 1970s. years, finally opened between Los was known as "the country's long- traff c problems became a critical Angeles International Airport and est running freeway controversy"; concern. Under the leadership of suburban Norwalk, a 17- mile 1-476 in the Philadelphia region, the Houston chamber of com- route at a cost of $2.2 billion, about the so-called `blue route,' 21 miles merce, a multifaceted regional half of which involved it new ofwhich were finally opened to mobility plan was developed to transit line, significant redevelop- traffic in 1992 after a 30-year restore the level of mobility en- ment, and housing construction. struggle; the Central Artery/ Tunnel joycd by lioustonians in the 1960s. In Orange County, the second Project in Boston, one of the An aggressive 15-year program of section of the Foothill Tollway world's largest construction pro- highway and transit improvements opened in 1995, part of a 70-mile jeers, which is scheduled to open began, paid for with a $1 billion system of toll roads, which has its fast section to commercial traf- annual funding package. Support significant financing from devel- fic in 1995; and the completion in for the improvements continued opment fees. Toll financing, 'the the 1990s of 1-90 across Lake teen during the dark times of purest form of user financing," Washington into Seattle, after Houston's economy, and by 1989 also was the foundation for an ex- two decades of conflict. New fed- freeway capacity had been in- prntway program in Orlando, dc- eral air quality and transportation creased by 43 percent with the scribed as 'the largest single road- regulat;ons implemen::d in the addition of two new toll roads, building program in Florida.' By 1990s make highway improve- and arterial street capacity had ex- 1995, a total of 55 additional miles ments even more difficult, but panded by 27 percent. In addi- were opened with support from these examples der..onttrate that, tion, more than half of a 93-mile two bond issues in the 1990s given sufficient p6tie2l support C exclusive transitvvay program had without a single dollar of tax- and money, they still can be built. been completed, boosting the re- payer's monc"f special appeal gion to the front ranks of transit in Florida. Another creative pub- ridership gains.17 lidprivate partnership-between In Phronix, the Arizona De- a group of major landowners and partment of Transportation devel- development interests that in- oped a plan based on additional eluded the Disney Development revenue from a new half cent Company and local and state sales tar. The blaricepa Count/ agencies in Florida-paved the voters approved the sales tax by a way for two other major routes, at 3 to 1 margin, a remarkable en- a cost of $500 million, which are dorsement in fiscally conservative exp:rted to be completed in 1996.19 Arizona, and the new revenues That will create a regional net- were expected to raise $5.7 billion work of tollways operated by over a 20-year period. Rapid im- three authorities with a combined plementation of a planned 233- total of 85 miles, not counting 30 mile freeway system began, and a miles of Florida's turnpike, which Regional Public Transit Authority zervesprimarily intercity travelers. was established to develop transit plans. Subsequent revisions re- duced the scale of the system to 155 cte mpbecausecostin- 6 creases and revenue s shortfalls, but - • ~ significant progress already has been made. As of 1995, 30 miles are open, with partial service on another seven, and 11 r ills are j slateo to open soon.ls 1 I it a y~ 1 • r prevailing belief is that a congestion became such a press- new road that attracts a ing regional concern in Photuix New roads shquld not be built. large Volume of traffic and Houston-two high-growth because they will only ft11 up has not been a good investment communities-that"major improve- because it generates increased ment programs were implemented, with iraT f e, travel without relieving existing These regions established aggres- facilities. The weakness of this at- sive regional programs to improve gument becomes clear if it is ap- highways and mass transportation. FACT 8 plied, say, to new schools (they The programs were so successful ju;t 611 up Aith snrdents) or U- that, as the graph shows, they were New roads that fill up with braries (they only fill up with actually able to reduce overall lev- traffic are an indication of bookx).The fact that it new high- els of congestion at the regional way is wcU used demonstrates its level by the end of the decade. By the need for them. Their use success in offering a shorter or 1991, Houston had dropped from cheaper rovte for users-or access second in the ranks of most con- makes it possible to improve to new markets for industry; or gested regions to 13th, and the better job, housing, or shopping Phoenix region had dropped from service to current travelers opportunities for travelers. A prop- third to 20th. Detroit was the erly planned road in a congested only other region in which con- and reduce congestion area will often attract traffic be- gestion declined, a cor;eSucnce of yond the initial forecasts, especially a de reriorating economy rather elsewhere. w-ner. them has been little new than improving investment. construction. The problem is that The most extensive experience rarely are there enoagh improve- with the cifects of highway ex- ments to accommodate traffic passion on eongestiot, can be ou- grcwth, so the new road becomes served from the U.S. interstate congested and it seems that not highway system-funded through much has been accomplished. The the Highway Trust Fund estab- improved conditions on ,nearby lished in 1956-which now car- roads are often ignored. ries over one-fifth of all highway During the :9809, gcneraUy a travel in the United States. It was time of low investment in new not until 1982 that one-half of highways, transportation and traffic the urban interstate travel had be- gun to occur on roads rated as congested during peak hours, about two decades after much of a r vr. j' sti Gn r.u S 3 b`82-1561 the comtruction had been com- pleted, which is standard as a de- sae okgo I sign period. Moreover, the latest statistics show that out of 12,940 tos Angeles miles of interstate roads in urban areas, only 69 percent of the vthi- oaees ele miles traveled and 45 percent of the actual mileage experienced Olkahama ay traffic volumes greater than 80 percent of capacity during peak 1 or7aneo hours in 1993. This actually rep- ' resents a slight falloff in both oe vo~t miles and travel experiencing con- gestion since the Carly 19909, dc- spite an increase in traffic-20 It is estimated that peak-hour conger- O • Ptt:nn~x tion primarily is a problem in the 33 largest urban areas, which ac- -vox ox vox 20% sox sox sox cox counted for 53 percent of ttavel Percent Change on major U.S. roads but sustained Swrce: Texas TransporUt~on Institute. ages. two-thi:ds of the congcstion.at 12 C , -1 Not q! 1 -0 • , dir., s s rcqucntly expressed is the haing to consider bus and train y opinion that much of the schedules; and an addicional7 per- problem in res?`ing traffic cent cited the closely related rra- People must change their congestion exists because ofAmrr- son of not having to wait.ar A Sur- attltut~es so that tTiu I ClCpen~ ices fixation with the cu. If it wire vey by the Metropolitan Atlanta Inssible to change this atritude, it Rapid Transit Authority (MARTA) less on the automobile. is argued, it would be possible to corroborates that convenience is change travel behavior, making key Indeed, 63 percent of the peop'e more willing to carpool, MARTA riders surveyed indi- FACT 8 ride buses, and walk to work cited that MARTA is located In fact, transportation analysts conveniently neat their homes, For people to depend less have recognized that consumer while only 38 percent of nonriden on the automobile, it 1S choices are made based on ratio- indicated this proximity to home. s nal comparisons of time, cost, and Fifty-four percent of riders indi to create economic convenience, rather than on ab- cited that MARTA is located necessary stract values or attitudes. A survey conveniently ncarworlq while 26 incentives and offer alter- of 4,000 residents throughout 17 percent of nonriden agreed with metropolitan areas with access to this statement. Transfers also are natives that serve their mass transit found that the conve- considered an inconvenience by nience of driving to work versus many riders and nonriders alike, travel needs. taking pabhc transportation ap- with 55 percent of riders and 38 pears to be the krv, Forty-two per- percent of nonriden indicating cent indicated that the major ad- that they would use MARTA vantage of driving to work is the trains more frequently if they did- ability to leave anytime, tither than rit have to take a bus first?a C BaseJ on Survey of 4,0011 Residents in 17 Metro Novdea R,ee,e Areas with Access to Mass Transit - Takes Less Can Leave e k. ARIA Co..•..emy II @124Y216 Laaied',ea~ Mme sts KWITA Comenurn,y Lasted Near Won, Eez~er to Te4r MARTA then to DrNe tc vlork L leexswtTAe,a 10, L4 rely on nma - No Other Waiting 9% ox 10% lox 70% 40% 5(1% sox 7% Parent of Atlanuns Aa raatna Sami Department of Tra e to'I. Urban Mass ~ Source. Metre pohLSn Atlanta Transit Authority. 'Report on Customer Servln Trans ns Administrator. 'Factors Related teted to TrensS Use.' yeti Q ~ E,pectatons and A.tmudes Toward Cuslomers Servke Issues Amory Metro pared by Center for Urban Trsnepatebon Research at the / Atlania Residentsdanuory 1995. Udversityor South Flonda, 1989. 1 13 i 11_772i_ 3. _L _i • p- he hope is that a techno- resource linitations at the state tb' { logical `fir" some day will and local level, an uncertain con- - J Re should not gnake capital offer a more convenient, sumer market, and possible liabil- less environmentally damaging al- ity problems?s Clearly, the new investments because they will tcrnatlve to urban travel than to- technology--which will not be be outmoded by new teebrtology. day's mix of can, buses, and implemented fully until 2000 or trains, But lo, now, no such fie bcyondwi!I not be a in. anon _ appears to be on the horizon. A based on new concept. sim- - F ABC 7 0 National Research Council study ply a more d :icm a> 'risting observed that the primary means technology. Transportation options for of transportation, at least until the What of the prospect year 2020, will continue to be the information highway will subsu the near future will be much pri••:te automobilaT Research is Lute communication for travel ana like those available toda underway to decclop advanced keep people off the asphalt high- Y• technology to make the vehicle, way? Although home offices and We should improve these highway, and operator more effi- telecommuting will allow more cient. New technologies show people to work at home and avoid options while seeking better great promise for improving mo- commuting, this option is not bility, reducing congestion, im- likely to affect more than a small technologies for the more proving air quality, cor serving en- percentage of travelers in the near crgy, and expanding highway term.Telccommuters, as a share distant future. capacity . For example, simulation of the total labor force, are esti- studles of advanced vehicle con- mated at around 3 percent in trol systems have demon5trlted 1995 and, according to one pro- the possibility of acrually doubling jection, will range from 5 to 10 freeway capacity under some traf- percent by 2002. The Us, Dc- fic conditions?s The barriers to partment of Transportation est'- implementation of the new tech- mates the potential reduction in nologies are man', including the %chicle miles traveled attributable cost burdens associated with the to telecommuting to be 4.5 per- anticipated federal involvement, cent within the next eight yea1s.27 t' "Smart ear' 4~~ra...r.: rk~. 1 ech nologles will make better use OF existing ~i - roads by select Ing the best route and guld. Ing travellers there with In. ~r► P vehl eie die pla yo. i 14 e - 0 I~ o a r i • Notes 'Adapted from U.S. Department or Is Harry A. Reed, 'The Metropolitan s"Growing Region, Shrinking Plan: Commerce, Bureau of the Census, Phoenix Freeway Plan; ITE Journal, Putting the New Long Rapge Plan '1990 Census of Population and January 1989, p. 21. And Arizona nto Perspective," Region, Merropoli- Housing Data Paper Luting; CPH- Department ofTnnsportation, Re- ran Washington COG, Vol 35, No. I, L-121 as published in Statistics] Ab- gional Freeway System Life Cycle Summer 1995, pp. 4.5. srract of the United States: 1993, Certif. cation, July 31. 2995. 2\,c them Virginia Table No. 30. The numbers in the tsJtwel Symmes, "Building an Ex- Alliance, Transportation table were rebased to that persons resnva System for Central Florida; , Opportunities in d Future ages five and older who moved be- ITE Journal, March 1990, p. 17. And porution: Past, Present , nd utvre Mrocn 1985 and 1990 represented 100 (Arlington, Virginia: author, 1987). Tom Lewis. 'Public/ Private Partner- percent, ships for Infrast:ucrure," Urban Land, ;U,S, DeparimentofTransportarion, 9Alan E. Pisanki, Commuting in October 1994, p. 87. Federal Highway Administratioo, America: A National Report on Hi hwa Starisiin: Summa to 1985 Commuting Patterns and d Trends 7eder. Department of Tnnepoft. on. and Highway St:•istics: 1990,Tab1es Federal F{ighwayAdministratinon and Hi 1 and Vrsi-1, respectively (Washington, D.C.: Eno Foundation Highway Statistlcs:1993,Table HAI- for Transportation, forthcomi rig new 61 and page V-58 (Washington, (Washington, D.C.: author, 1969 and edition). D.C.: author, 1993). 1992). U.S. Bureau of the Census, tn_ Commutin in America: A CuncntPopulatinReports,terles B nUS.Secretary of Transportation, P-25 as published in the Statistical National Report on Commuting Pat- The Status of the N'ationi Highways, Abstract of the United States: 1992 terns and Trends (Wostporr, Con- Bridges, and Transit. Conditions and and Statistical Abstract of the United necticut: Eno Foundation for Trans Performance (Washington, D.C.: Slater. 1991. U.S. Bureau of the Cen- portation, Inc., 1987). U.S. Government Printing Office, Sul, Historical Statistics of the United It Robert Lure, "Historical and Pro- 1993), p. 100. Srascc Colonial Times to 1910, jetted Office-Oriented Employment » U.S. Department of Transportation, Series A 7 and Series 39. Growth," Developments, Volume Urban Nfa s Transit Administration a U.S Department of Transportation, MV, No. 3, September 1993, pp. (UNITA), Factors Related to Transit Federal Highway Administration, 16-11' Use Suncy, prepared by the Center 1990 National Personal Transporta- 12U.S. Department o(Transportarion, for Urban Trtnsportatlon Research at tion Survey: Summary of Travel Federal Highway Administration, the University of South Florida, 1999. C Trends,Tsble 17, p. 36 (Washington, 1990 National Personal Tnmporta- DMetropolitan Atlanta Rapid Transit DC i author, Alarch 1992). tion Survey: Urban Travel Patterns, Authority, Report on Customer Set- s Trends in driver licensing and com- page 1-1' vice Expectations and AttituderTo- ponenrs of travel from a ULl analysis tl U.S. Department of Transportation, wyrd Customer Service Issues Among of data from U.S. Department of Federal Highway Administration, Metro Atlanta Residents, January Transportation, Federal Highway Ad- 1990 National Personal Transports 1995. ministration, Personal Travel in the tion Survey: 1990 NPTS Databook, 24 Transportation Research Board,A United States. A Report on Findings Volume II, pp. 5-86. Look Ahead: Year 2020 (Washing- from the 1983-199+ Nationwide Per, to Cambridge Systematics, Inc Tran- ton, D.C.: author, 1988). som. Transportation Study (1ltash art Flidershi Ira tiaivr.TCF1P 6 ingam, D.C.: U.S. Departmelt of Program (Washington, D.C i Nation- S2S U.S marr HGeneral Accounting Office, Transportation, 1996); and Alan E. al Academy of Sciences, 1994), p. 7. Smart ighways: Arl Assessment of Pisarski, Travel Behavior Issues in the Theft Poteutia. to Improve Tavel, 1990% VX35Mngton, D.C.: U.S. De- is Dennis L. Christiansen and Daniel May 1991, p. 4. psrtnoont ofTransporration, 1992). Morris, Evaluation of the Houston 21,Ibid.,pp.4-5. Oc.v an Vehicle Lane Sys- &U S. Department of Transportation, Hi h tern (Washings on, D.C.: US. Depart- avU.S. Department of Transportation, • Federal Highway Administration, mentor Transportation, Wl),p.24. Transportation Implications ofTele- 1990 National Personal Transporta- commuting, April 1993. tion Survey: Summary of Travel to Ruth Eckdish Knack, 'In Defense i Trends, page 6,T2bie I. of Buses; Planning, October 1904, ' rNatlonal Association of Home p. 16. Builders, unpublished data from the tr RobertT Dunphy, "Houston Takes Research Department based on a Businesalil,e Approach to Managing • NAHBS survey of new homebuyen Congestion," Urban Land, March - in 1993. 1993, pp. 31-34. ♦ 1 15 • t • ..r The original version of this book- l LI Urb i n let, Myths tndFacnoboutTrans- ULI Prc_iect Staff portation s..id Growth, wqs pre- pared under the auspices of ULI's ULI-the Urban Land Institute is a Rochelle L. Levitt Growth Problems Task Force nonprofit education and research Senior Me President, Education, institute that is supported and di- Research, Publicatiow This update was reviewed by : rected by in members. Its mission is to provide responsible leader- Frank ntP Jr. Frances T Banerjee VuePrei uidrnt/Publitbe Assistant Direaar ship in the use of land in order to Los Angeles DOT enhance the total environment, Robert T. Dunphy Los Angles, Celifornia ULI sponsors educational pro- Senior Research Director grams and forums to encourage Project Director James M. DeFrancia an open international "change of President idea and sharing of "perienee; May B. Schwartz Lowt Enterprise Mid-Atlantic initiates research that anticipates RertortltAsroriate Ster ing, Virginia emerging land use trends and issues Andrd A. Bald William R. Eager and proposes creative solutions Intern President based on this research; provides Nancy H. Stewart TDAInc. advisory service; and publishes Managing Editor Seattle, Malhingtan a wide variety of materials to dis- sem pate information on land use Betsy VanBuskirk and development. Art Director Established in 1936, the Insti- Diann Stanley-Austin Lute today his some 13,000 mem- Production Manage ben and associates from more then 50 countries representing the entire spectrum of the land use C and development disciplines. They ULI Catalog Number T15 include developers, builders, prop- ISBN 0-87420-788-6 erry owners, investors, architects, public officials, planners, real es- 01996 by ULI-the Urban Land rate broken, appraisers, attorneys, Institute, 1025 Thomas Jefferson engineers, financiers, academics, Street, NW., Suite 500 West, students, and librarians. ULI Washington, D.C., 20007-5201 members contribute to higher standards of land use by shar',ng their knowledge and "pzisence. The Institute has long been rec- ogn zed as one of Americas most respected and widely quoted sources of objective information on urban planning, growth, and • development. Richard M. Rosin ` f Executive Vice President • • Off 0 0 1-4 .r'~ ~;R ~ 'jar. . y> -til i r t eT .G r , tr ~ ty . S -.1• n + r• I ~ • 3 t f 0..A1'. . • ~.~1 T~ ft', Y f, l , 1 Y 0. Z'N J y« + P r,. Lei r ~i. a+r.• Yty ~,a''1'~~, ~ ' ~~n~l 1 ~.Iw Z,. y},S ' •r tl. 'J,~i , ~~~5 !j 'RY, ~~~1 r r 0 • .',nmmer 1)97 Beauty as well as Bread JOURNAL General Plan Evaluation Criteria '01- THE Citizen Participation-Lessons from a Local United AMERICAN Way Planning Process Where Do Tenants Come From? From Landmarks to Landscapes - ara"°sK < 5 J 0 N < 3 H - Y. rte - ~ 750 Ll~ X? 7 Y'0 fi Y t r to f x I i ii 'TERBEAjI r " ~Y '9 Y ~ iE $ 7 N # ll f L a r CORN V~FRl/b&~ecotuHS_ a F . VYORKS Pf AC -i wry c ~ CR185 i r~ ~ r r JJ i 0 I~ Q 8 • • FROM THE EDITORS Thect lgncreaitucau Beauty as well subject of increasing public focus, Mary communities recognize that pro- tection and/or enhancement of it. vii hmerot places have ping public nefits. Moreover, phinonning to revi- be as Bread ulhe neighborhoods often pays anen. ton rot only to housing and socio- economic needs, but also to a neigh. borhti historicatand visual value. Meg Maguire, Ray Foote, and Frank Vespe The significance of ieschem cor id- ` i r tions often ii in planning policy and practice, as can Le noted in recent ,lovmal arddes, The Point/Counter- K'e need berary as well n bread pcInconsprawl(Gatrdoet and Richard. Johnnea r son 19971 Ewing 1997) discuae landscape cl,aocter in the contra of market regulation Questions ofphpi- America the Beautiful is disappearing, bit by bitr day by day. We're , of design arise in discussions cirri converting farmland and ranchland to subdivisions, office parks, development (Danlds and Lapping malls, and roads at the rate of two million acres annually. More than 1996) or downccwn redrvv'apoi a half-million billboards line America's federal-aid highways, with thou- (Robertson 1995), as well as in analy- ses of programs and regulations that sands more going up every year Ever larger and more audacious on- shape mttropolion patterns, hit. premise signs add to visual clutter and increasingly commercialize the loric preservation (Baer 1995; Robins public realm. Scrip development is ubiquitous, even at the gateways to 1995); land use taw (KNKteberg many such desirable communities as Portland, Oregon, and Charlottes- 1995, Strong, Mandilli and [telly Virginia. 15 1 and transporration legislation villa A Startling new threat to our visual environment is the (oatmar1995) All theseperspecdef proliferation of cellular communication towers and monopoles, which can sharper owprofos'mny attention has planners scrambling to deal with the visual impact of these facilities to aesthetics in urban, suburban, and rural jurisdictions across the nation, live seek to sere squarely in view the hnkagts betaeen physical design, ev Since the 1950s, America's highways have become dominant fea- "day visual erpenence, and commu. tures in the landscape; all toc often, they have destroyed neighborhoods nity sustainabdity To that end, we and transformed scenic, historic, and natural resources.' The resulting commissioned ate Longer vow in this views from our highways have inspired colorful commentary and song; issue, an scenic quality and the tner- vating tReces of visual pollution. We a "tubes of the hideous" (Heat-Moon 1992) belit+e fervently that physical design a "interminable wastelands" (Blake 1964) and aesthetic character cannmte an important immense on community v "like television, violent and tawdry" (Kunsder 1993) development. To stimulate thif can. e "They paved paradise and put up a parking lot" (Mitchell 1970). S deranon, we Pmsenr'BeJUry as Well • as Bread' Although in some places the visual environment has improved ii matically-for instance, the waterfronts in Baltimore, San Francisco, and Meg Maguire is Prtsident or scenic San Antonio; and historic districts in Pittsburgh, Richmond, Denver, and America, a naeional nonpmfit organl- aaoondedlcete4roprtservingiii other cities-in many communi ties, newdevelopment has diminished the , hinting the scenic character of sense of place. In America, blight seems an inexorable byproduct of busi- Amencat communities and country- ness and a fast-moving economy, and it feeds on itself by making visual side. Ray Foote it a nr onY quality seem a lost cause or, worse, irrelevant. For each critic bemoaning Vice President Foote for Plan nning and d D rvel- - - • opmenr, and Franls Vespe o the Dime our "tubes of the hideous" there is a billboard operator, a big box retailer, O O wr of pahcyand communicatioi a subdivision developer, or a politician pointing to the bottom line. Even Jovmulo/ rA., t,nPla,n+ng the term "sprawl" suggests a pLenomenon so market-driven and perva- AsetacoiW 63, No. S, summer sive that meaningful solutions are impossible, Zoning codes illustrate the { 1997, sAmerkan Planning intractable nature of the bigger problem and the ways in which our poU- Assnnation, Chicago, IL. ties actually encourage ugly development, APA)OURNAL•SUMMER 1997 317 • M MEG MAGUIRE, RAT FOOTE, AND FRANK 1'ESPE Frustration in the face of this deterioration has - - w-. Fueled debate and raised many unanswered questions. After 25 years of unprecedented environmental a%are- mess and grassroots activism to clean up the nation's water and air and to restore health to our damaged 1 i lands, how can our efforts have produced such un- lovely results? When polls and surveys prove time after time that people of all income levels want to live and work in attractive places, why has the marketplace been so slow to offer new models of development? Even as tee come to understand that America's scenic heritage is one of our greatest economic assets, at- tracting visitors from around the world, why is it that we add the dollars spent on visual blight to the Gross Domestic Product (GDP), without subtracting the ILLUSTPATION 1. Billboards dominate the streetacape dollars lost by destroying or damaging environmental of this New Orleans neighbcrhood. outdoor advertising assets, including scenic beauty? companies often target lower•income neighborhoods, tak. Planners, researchers, and conservationists strug- ing advantage of any commercial use tojustify theirsigns. gle to understand the larger dilemma; meanwhile, use Photographer: RObtrt Steven Rutledge. ran afford no delty in acting on the ospeat of the dilemma that use do a ndersta nd. Rather than suffer paralysis while awaiting a big solution, we should understand the les. The Historical Precedent sons from the successes of earlier national conserva• Thirty-four years ago, in The Qsriet Crisis, Stuart tion and environmental undertakings and apply them Udall wrote, "America today stands on a pinnacle of to the conservation of scenic beauty today. One cau. wealth and power. Yet we live in a land of vanishing tion: defining an absolute standard of beauty is nei- beauty, of increasing .tgliness,ofshrinkingopen space, ther possible nor desirable. But, on the other hand, an overall environment diminished daily by noise, pol- experience shows us that broad agreement exists in lution and blight." He and many others determined communities about what development is attractive or to reshape federal policy to check the national rush desirable. We should concentrate on involving mil• toward ugliness. lions of people in dialogue and action to conserve not Legislation passed in the 1960s clearly acknowl- only national parks and wilderness, but also everyday edged the importance of beauty and visual quality. places in their own communities. Thus, this paper ar- The Wilderness Act of 1964 paid homage to the 'sce- gues that we should: nic" values of wilderness areas, Lady Bird Johnson's legacy, the Highway Beautification Act of 1965, en- set national, state, and local goals; couraged landscaping along federal highways and document the effects of beauty and ugliness on be- sought to clean up two components of visual pollu- havior, health, and the economy; and Lion, billboards and junkyards. The National Historic • involve community residents nationwide in local so- Preservation Act of 1966 established the Framework lutions to reclaim America's beauty. for the historic preservation movement to protect, in Such a comprehensive approach, which pursues addition to historic resources, America's ',vital legacy plicit goals supported by in-depth documentation of cultural, educational, (and) aesthetic" attributes. exand enlists is s residents at each step of the way, can The Land and Water Conservation Fund and the His- local preserve the visual quality of our daily surroundings. tonic Preservation Fund provided money from the sale The remaining sections of the paper consider these of off-shore oil to acquire federal, state, and local steps in detail, parks and recreation areas, restrre historic sites, and set up systems in every state ant. in many federal agen- cies to identify and protect fragile resources. Setting s an In the National Traits System Act and the Wild • Goals for Scenic Conservation and Scenic Rivers Act, both passed in 1968, Congress O 0 Americans know how to setgoals and how to orga- acknowledged the importance of scenic and aesthetic nine to achieve them. Just look at the conservation qualities. The first of these provides for extended trails movement of the 1960s. and "For the conservation and enjoyment of the na- 318 APAJOURNAL•SUMMER 1997 _ ..~.•"n.~nT+"•nt••~~"' I"F'~".p.~rM11~1111~M~l~ tA, . -"'-+s.n.....~• • • BEAUTY AS WELL AS BREAD tionally signific~t scenic, historic, natural, or cultural nation's heritage • of beauty, even among environ- qualities" of places through which they pass. The sec- mentalists and conservationists. As the environmental and preserves certain rivers and their environs that movement has come to be based more on science and have "sceric" (among ocher) values; the Act notes that more resource-specific, we have established a sound "primary emphasis shall be given to protecting ]the evidentiary basis for debate and policy decisions and rivers'] esthetic, scenic, historic, archaeologic, and sci- have improved our air and water quality substantially, entific features." Crowning this productive period of On the ocherhand, in unintended consequence of the legislation, the National Environmental Policy Act of quantitative approach may have been a diminishing 1969 sought to assure "for all Americans safe, health- ability to describe, in ways that people easily under. Ful, productive, and esthetically pleasing surround- stand, the look and feel of places worth conserving ings." Other, later legislation to preserve beauty and and why these considerations matter. protect our scenic heritage includes the Alaska Na- Recent manifestos on community livability and tional Interest Lands Conservation Act of 1980, which environmental sustainability rarely cite conservation set aside over 100 million acres for parks, refuges, and of scenic beauty, community appearance, or quality of wilderness; the Omnibus Parks Act of 1980, which life either as primary goals or as means to other goals. added substantially to the public estate; and the Urban The words "beauty," `scenic," or "aesthetics" are en- Park and Recreation Recovery Program of 1978 to tirely absent from recent seminal documents and dec- help cities revitalize existing parks. larations that include the vision statement and goals A major setback to the agenda for orderly and, it of the President's Council on Sustainable Develop. was hoped, more aesthetically pleasing growth was the men; the Hanover Principles (dubbed a"Bill of Rights defeat of national land use planning legislation in the for the Planet"); the Charter of the Congress for New mid-1970s. Proponents had hoped this legislation Urbanism; and the Declaration on Environment and would help the stares assure "that local jurisdictions Development of the American Society of Landscape would undertake adequate planning and in so doing Architects. Yet, without vigorous public attention to would observe ordinary precautions about dealing aesthetics and visual quality, the element of personal with sensitive land areas and sensitive land uses" experience of the environment, which is largely visual, / (Little 1992). Unfortunately, however, the measure was is at risk. l defeated, with a chilling effect on strategies for land use and growth management. Public debate then New Recognition of Visual Values as Criteria turned, in the 1980s, to issues of private property Outstanding recent exceptions to this trend come, ritihcs set against the public interest in the envi- rather surprisingly, from two highway bills. The Inter- ronment, modal Surface Transportation Efficiency Act of 1991 Despite this suing of the pendulum, conservation (ISTEA) addressed some of the environmental and so- statutes before the 1980s stand as encouraging tx- cial consequences of our auto-dependency, and its ef- amples of the value given visual quality a generation fects on the American landscape in particular. ISTEA ago.r Today we enjoy a vast-and profoundly beaut- included a number ofprovisions that have boosted cit- rul -public legacy of open space, wilderness, historic izen involvement in transportation and made trans- buildings, and historic districts, ofwhich this country portation facilities fit better with the communities can be immensely proud. And the efforts of conserva- they serve. ISTEA tailed for a system of state and na- tionisrs have continued, for example, in establishing a tional scenic byways, and allocated modest funds for network of greenways in many communities and con- corridor management planning, acquisition of sceric verting former rail lines and abandoned rights-of-way easements, and billboard removal. Thirty-seven states to trails, In 1996, Congress designated ten new na- now report that they art establishing or revitalizing tional heritage areas for special community planning statewide systems ofscenie byways. Scenic byways of- r assistance. It should be noted, however, that fo- the fer possibilities of tapping into "ecotourism; which most part -we've applied our ethic of scenic conserva- allows communities to gain economic strength with- Lion to relatively undisturbed places; we have not been out compromising their special sense of place. ISTEA so diligent about preserving the visual value in our fa- also provided money for transportation enhancement ® miliar, everyday scenes. activities like hiking and biking trails, historic preset- I 0 vation, and scenic conservation. The Shift from Aesthetic to Technical Criteria More recently, in response to widespread resis- In the 1980s and 1990s, neither public policy nor tance to new road projects on both functional and ats- public dialogue has given adequate attention to the thetic grounds, the National Highway System Act of 1 APA JOUMAL•SUMMER 1997 319 • r • • ME EG r.tAGU1 RE, RAY FOOTE, AND FRANK VESPE 1995 provided for what has come to be known as ! "Rexible highway design." The Act stares: - A design for new conscrUCrion, reconstruction, resurfacing (except formaintenance resurfacing), restoration, or rehabilitation ofa highway on the National Highway System may take into ac- r' count a) the constructed and natural environ- ment or the area; b) the environmental, scenic, aesthetic, historic, community, and preservation impacts of the activity; and c) access for other modes of transportation [including walking and biking]. As wve continue to clean up the environment, save endangered species from extinction, and control devel- ILLUSTRATION 2. visual pollution mars this gateway to opmenr in our own localities, let us not forget that Houston, giving a negative impression of the city. Americans can and will pay top dollar to live in and visit beautiful place . The conservation of beauty has a functional place alongside other national, state, cross Broadway and enter the bijou block. There, and local environmental goals. Establishing guidelines even small children intuit that a candy wrapper that explicitly aim at restoring ano enhancing the dropped an a sidewalk punctuated by blooming beauty of America's communities and countryside will planters is anathema. The setting's ambience allow us to be far more intentiona. about how policies, promotes observance of the proprieties where practices, and perrormance standards can achieve larger issues are concerned as well; the local cc- beautiful results. caine wars, for example, take place on nearby bad Documenting How Beauty and blocks, despite a stronger police presence. Al- though twinkling gas lamps, marble steps, and > > tidy, flower-decked curbs alone can't defend and the Economy againscmischieftnakersandcriminals, they raii- Forrunat.ly, researchers are beginning to examine ate an almost palpable aura of the residents' con- how beauty and ugliness affect our behavior and our tern with the social as well as the physical health. Their findings cou:d provide underpinnings standards of civility. (Gallagher 1993, 190) for a new public policy toward the visual environment. The dynamic between appearance and behavior Behavioral and Health Effects of Beauty suggests the importance of sending a message that dis- F'irst, we're coming to understand how people's at- order will not be tolerated. Our behavior toward a place tintdes and behavior toward a place arise from what is indeed shaped by its appearance, yec we've they perceive as appropnpse for that place. Probably been reluctant to give much weight t this practical the best known illustration is Philip Zimbardo's "bro- factor in policy debates, or to incorporate visual -icy . Be- ken window" experiment, in which he parked identical lie into hard measures ofsu communities. Bving that a large number of p peert tty violations creates • cars in similar neighborhoods in Palo Alto and the a sense of disorder that is the "tipping point" leading Btont, except that he removed the Bronx car's license plates and left the hood open. The Bronx car was to rampant crime, NewSbrkand man), other cities are cracking down on such behaviors as "squeegee men" stripped within a day; the Palo Alto car was untouched and on minor crimes that affect the quality of life? for a week. After Zimbardo broke one of the windows The interesting possibility arises here that a tipping on the PAlo Alto car, however, vandals soon stripped it. point exists for ugliness in our surroundings, a point Winifred Gallagher, in The Power of Place, elabo- at which public response to ugliness becomes com- races on how we take cues from what ve see around plete indifference or, worse, abuse. • us and modify our behavior accordingly. She has ob- Second, research is beginning to reveal tha funda- O O served in New York City that mental physiological effects of visual quality, and their teenagers on their way to Riverside Park who implications for the well-being of communities. For stride across Amsterdam Avenue blasting their example, Roger Ulrich, a professor of environmental tape players usually turn them down once they psychology at Texas A&M, has demonstrated that has- "A 1997 1 _ t ~ • • BEAUTI' AS WELL AS BREAD pica[ patients with views of trees may fare better than economic levels have similar ideas about what is those looking cia-on a brick wall-recovering morn desirable and attractive, and how they want their quickly, requiring fewer paink;llers, and expressingless neighborhoods to look. hostility roward hospital staff. Related research shows how different environments have far different calming The Economic Impact of Aesthetics effects on people under stress. Those exposed to na- Economic research is badly needed to help us tune, vegetation, and water recover more quickly than make good decisions about scenic conservation. John those shown scenes of traffic or a view along a pedes- Muir said, "We need beauty as well as bread"; but we man rr.a!I. Ulrich has also found that the impact of also need to understand the valu- in practical terms roadside blighr significantly raises stress levels and re- of different types of scenic beauty, their value as our duces peoples' ability to solve problems! "This is not "bread," Even though we malign many of the places mere ugliness any longer," Ulrich said in a 1995 inter- we've created, the seeming inevitability of blight and view with The Washington Port. "We're talking about the the demands of economic growth make it seem that welfare and perhaps health of the public conceivably creating places we do like is too difficult, All too often being affected over a long period of time ofexposure"s we accept ugliness as an inevitable consequence of (Ulrich 1934, 1990, 1991). `progress" oreconomic development. Even amidst our Such research findings resonate with our own ex• most hallowed ground--on the Civil War battlefields perience; at the most basic level, appearance Affects of Gettysburg and Manassas, for example-the argu- our sense of well-being. We feel most secure and con- ment that development, no matter how inappropriate, tent in pleasant surroundings, which is why we go to will provide jobs sounds compelling. Hence, fast food Such lengths to make our homes attractive, comfort- joints now define the landscape where Lee and Meade ir,g places and why we find ourselves so eager to revisit fought' lovely places. Ugliness, too, affects our sense of well- We also need to illuminate how political and eco- being, and we feel very little connection with, or re- nomic decisions tend to concentrate ugliness-along sponsibilicy for places that have t o visual consistency with waste dumps and heavy industry-in low-income or harn-,ony.° neighborhoods, whose residents have historically been Third, public opinion polls show that people do least able to defend them from uses that ot:,ers don't ( care about beauty and want to adopt policies to pro- want to have nearby. Nearly all urban billboards ap• tect it. In a recent study investigating which reasons pear in poor neighborhoods; as areas decline, on- for wanting to protect the environment were "ex- premise signs tend to grow in size and brashness. You trcmely important" to Americans, 71 percent of re- won't find "brown field" sites that are so polluted no spondents cited family and stewardship values as one can afford to redevelop them, or huge monopole motivations, and 67 percent said their environmental structures with vice ads, or portable flashing message concern stemnted from religious beliefs; 63 percent boards on Washington's Pennsylvania Avenue or in cited "the beaux nature" (Communications Con- the posh suburbs of Los Angeles, sortiunt, Biodiversity Project 1996). In the long run, the transformation of our land- For forty years, polls have consistently revealed scape from one too often littered by development to that most people favor the elimination or strict con- one enhanced by development will require a signifc- trol of outdoor advertising. In 1957, the Maryland cant overhaul of our approach not only to the land, to State Auto Club mailed 25,000 questionnaires to me- our communities, And to economic development, but tcrists; 95 percent of the respondents favored a ban also to how we value beauty. A sign of hope is the on billboards within 1,000 feet of all controlled-access growing movement, spurred by issues of long-term • freeways in the state. Forty years later, a Jamrary 1997 suscainability, to develop indices that gauge the poll of800 Missouri citizens found high levels ofcon- livability of our communities-livability being a i tern about billboards in that state, with 60 percent of grand-scale term comprising economics, safety, envi- respondents even favoring a constitutional amend- ronmentalquality-and beauty.' merit to prohibit new outdoor advertising signs.' In From a similar perspective on the national scene, the same poll, 67 percent of respondents ranked "vis- rising skepticism abort the usefulness of the Gross ual pollution or cluttered scenery" as a moderately or Domestic Product as a measure of economic health is 0 very serious problem. Finally, Anton Nelessen's (1994) a heartening trend. As the organization Redefining { • research has given the lie to the notion that beauty is Progress points out, every healthy organism has effec- total!y subjective and is solely in the eye of the be- tier feedback mechanisms, or nerves. If an organism's holder. His visual preference surveys of thousands of nerves-and economic monitors such as the GDP people show that Americans of all races and socio- function as society's nerves-do not work, the organ- APA JOURNAL -SUMMER 1997 321 0 0 0 a MEG MACAARE, RAY FOOTE. AND FRANK V£SPE ism will pursue self-destructive activities. With the GDP measuring virtually all economic activ:cy as posi- l rive, regardless of its comprehensive influences on so. ciery, that measure serves almost to encourage certain destructive behaviors, while not even counting other, constn•ctive ones (Cobb, Halstead. Rowe 199S). When economic development is the dominant measurable community attribute, "principled" activity becomes virtually any that enhances the economy, As we create measures that monitor livability, "principled" activity will be recognized as what enhances quality of life, of which economic development will be one part. To create and conserve communities we cherish, we must find ways t~j make the conservation ofvisual beauty one or the measures of our communities and ILLUSTRATION 3. State and lotsl government should our practices. If we do not, beauty will surely vanish, strive T Protect critical agricultural lands and open spaces bit by bit. Gathering courage say the word beauty as part of a comprehensive scenic conservation plan. aloud and to include it in our criteria for communities could do wonders for our quality of life. Indeed, it could even energize planning in new and exciting their communities. We need a fundamental shift in ways. Pleasant communities and access to unspoiled how we approach land use; but these steps, described scenic and natural resources reaffirm people's affinity in the following sections, can be a beginning action for a healthy environment and can urdergird individ- that can yield tangible results. uals' commitment to maintain the quality of the vis. ual environment. Protect Places of Cherished Beauty. When we hear of a community rallying to protest Involving Community Residents some sort of development, most often the protest is t Nationwide in Local Solutions to not against the development per se, but against it in that place or at that time. Underlying these protests is Reclaim America's Beauty something larger: an urgent apprehension of loss, What is our immediate course? Are w•c to let the which often comes too lace in the process to affect ubiquitous dcrerioration of our visual environment matters. stymie us? Interestingly, when models of what is right Perhaps the saddest modern example is the de- about certain idealized places, like Vermont villages or struction of New York's Penn Station, which energized historic neighborhoods, are put forward, the response the modern preservation movement-but nonetheless elicited is often defeatist: "Our town (or state] could left New York without one of its grandest building.40 never be like that" Perhaps a more effective approach Similar examples, on smaller scales, occur day after is toerafuaietohathright anduronguAourowncommune- day across America. The DOT widens aroad, destroy- na as ue see them, and to identify special resources and ing thousands of trees in the process. A billboard is especially troubling problems. We should take a lesson thrown up across a scenic view. A strip mall chews up from the environmental movement: break down the farmland, Activists complain, the community rallies, problem into actionable pieces. On closer inspection, bur the damage is done. Vhe problem in these cues is ® the "tube of the hideous" is composed of separate, most )rten that ordinary citizens are not involved in manageable elements: billboards, gaudy on-premise the p,ucess until it is too late. Fiat, .,:ndmarks preset- ~ signs, ugly commercial buildings, poorly designed sub. vction law passed a few years earlier, it would have divisions. Like the old joke about how to eat an ele- saved Penn Station; the law that was pas•,ed later did phant--one bite at a time, creating a beautiful visual save Grand Central Station, environment is best approached not as a vast and com- The first step in averting community losses to the prehensive problem but as the result ofmanysmalI de- pressures of the marker is for planners to reach out to A cisions. the communities they serve, before controversy erupts, + O We believe there are at least five relatively simple, and learn what people want. Armed with carefully ycc effective, steps that planners and politicians, eiti- gathered knowledge, planners will be in a better posi- zens and businesses can take to improve visual quality tion to help preserve the community's visual re- and protect and enhance the distinctive character of sources, Visual preference surveys and scenic resource I 32 AAPAIOURNAL•SUMME0.1997 • r • BEAL T1' AS WELL AS BREAr) assessments can bring community residents together and aesthetic grounds. Nationwide, state departments to identify what they most like about their communi- of transportation have collided with Nfb1BYism with ties and to achieve consensus on what kinds of new increasing frequency. development are desirable (Constantine 1992). In Pit- Thus, the results of the lack of public parricipa• man Center, Tennessee, in the Great Smoky Mountain Lion are played out annually in dozens of commu- foothills, local residents pursued such a process in a niries, where frustrated citizens stop major road proj- very simple way by submitring photographs of their ects, protest design decisions, .nd vilify highway engi- favorite and least favorite spots in town, then listing neers. In Rhode island, residents along the rural those community attributes they most treasured. As a Ministerial Road have becomtveteran and effective ac• result, planners working for this small community tivists in fighting a state road-widening plan chat have developed plans to cluster village-style develop- would destroy mature trees and completely alter ment in certain key areas while retaining significant the road's character. California residents successfully open space and protecting environmental resources. fought a CalTrans plan to bypass a dangerous area Computer visual simulation allows citizens to see pic• along the Pacific Coast Highway with an unnecessarily tuns and models of how a proposed change will look massive bypass, which would have cut through stare before it occurs, and to try different design solutions park land.11 In Virginia, residents of the historic Pied- on screen. Vt5v21 simulation is helping people rrake mono, a region dotted with farms and quiet villages, better land use decisions more efficiently, as they can have written an impressive two-volume study to pro- see the consequences of proposed actions. mote rraf c calming along Route 50, a study dia- Similarly, the scenic byways program under ISTEA metrically oppos;re to the Virginia Department of has given communities a new tool with which to iden• Transportation plan that would increase capacity and tify, preserve, and promote significant roadways like speeds, irreversibly changing established communities the Natchez Trace Parkway or the lslontgomery to and ways of life and compromising the region's visual Selma March Scenic Byway, which commemorates quality.° that fabled civil rights march." "Corridor manage- The list goes on, but the point is clear: the days ment planning" for scenic byways brings those with a when road projects could be rammed down the stake in the community together to identify key sce- throats of a passive public are clearly past. Yet the at- C nic, environmental, historical, and ocher resources; to tempts to do so continue. For many years, the engi• develop a vision of how they want those resources neering standards by which roads were designed to look for future generations; to identify threats to considered only the criteria called for by federal law: those resources; and to develop ways to conserve the traffic service and safety. Now the new flexible high. resources while promoting them for tourism and way design standards discussed above may give citi- other economic development. lens and traffic engineers alike new approaches to Although these techniques are relatively simple, making decisions with which everyone can live." Citi- they could change the way development takes place. zen guides to tame the cir such as Take Back :bur Despite comprehensive plans and the like, few com- Streetfand AState Highway Project in Your Toun?are pro- munities have undertaken a serious grassroots-based viding new arguments for activists in local debates planning process to articulate their vision for their fu- over land use (Conservation Law Fou:-.dation 1995; cure. Such a vision can move the debate over land use Wick 1995). away from the traditional battles between "economic Still, changing the words on paper doesn't always growth" and "NIMBY," and towards collaboration that change practices. The next step is for departments of could yield more attractive, distinctive communities. transportation to take the new language to heart and • to involve local citizens and communities in their Give Citizens Power ir, the Decisions about Road planning process-before so much money has been i Building and Transportation that Affect their spent that any change in plans seems wasteful. And ' Daily Lives. unless colleges of engineering teach tfteir students Few federal investments or local decisions more that there is more than one way to think about high- directly affect the average American's daily life than way design, the battles will continue. dies transportation. Yet few governmental areas have • so little public input, despite the fact that all levels of Encourage Attractive New Development • • government spend well over $80 billion annually on and Beautify Unsightly Commercial and highway expenditures (Federal Highway Administra- industrial Strips. tion 1994). At the same time, new road projects often Few things are uglier or more depressing than fad face widespread opposition on economic, functional, ing old commercial strips-with the possible excep- AFA JOURNAL -SUMMER 1997 333 • t r • s MEG MAGUIRE, RAY FOOTE. AND FRANK VESPE rion of the many new ones that prove we've learned tives to the freestanding poles are available. Successful nothing from the past. It's not that commercial devel- efforts to minimize visual impact have included plac- oprlent itset is unattractive. Indeed, it can be quite ing the transmitting antennas (which themselves are attractive, and many of our most distinguished places only four to six feet call) on existing buildings, light are commercial in nature. But we can all point to a standards, steeples, or utility transmission poles. nearby trip that we hate for its gigantic, barren park- Such small steps do not pretend to deal with the ing lc ts, cars and crowds, and the stop lights that al- larger land use/sprawl issues that give rise to strip de- ways seem to be red. velopmenr. But if one accepts that strip development . Some of these problems require major systemic and road-related structures are facts of life in 1990s changes; others can be solved more simply. One step America and will continue to be so, then we can turn is to enact community tree ordinances that require to the challenge of making these places more attractive conservation of trees in new construction and plant- and more functional. ing and landscaping in parking lots. A K-Mart in Aus- tin, Texas has retained many large live oaks, in a very Fight Billboard Proliferation and Sign Blight. different kind of parking lot where people enjoy lunch Nothing can damage community appearance or on picnic tables under the trees. Germantown, Ten- destroy a sense of place faster than uncontrolled signs nessee has tough on-premise sign controls, requires and billboards. Yet in much of America neither signs businesses to landscape their premises, and prohibits nor billboards are effectively controlled. Billboards billboards. The result an attractive, inviting commer- have long aroused hot debate, with commer- cial strip full of malls, fast food restaurants, and so pity activists, environmentalists, and planners allied on. It's still nor a land use planner's dream, but it against this highly profitable, politically powerful in- looks 100 percent better than nearby strips without dustry.11 Communities seek to control billboards in or. landscaping, and these visual improvements have en- der to improve the community's appearance and thus couraged the business community to buy in. In Co- attract economic growth and foster traffic safety. Per- iumbia, Missouri the city council passed an ordinance haps the must insidious aspect of outdoor advertising requiring trees and landscaping in parking lots. Today, is its intrusiveness. In fact, the billboard industry itself according to council member Karl Kruse, even husi- proudly touts how "You can't ignore it.... Outdoor is C nesses not required to plant trees are doing so, because right up there. Day and night, Lurking. Waiting for the "look" of quality has become important inColum- another ambush," (Outdoor Advertising Association bia,11 Ocher steps include creating beautiful gateways of America 1995, prof, IS)." to communities through landscaping, sculpture, and Despite widespread antagonism, billboards are tasteful signage that reflect community pride; and proliferating at unparalleled rates. A 1991 study re- retrofitting strip businesses with sidewalks to encour- vealed the rate to be 15,000 new billboards going up age people to walk. annually (Congressional Research Service 1991). For The aesthetic design of franchise operations could example, along Interstate 70 between St. Louis and far to make roadside development more attractive. Columbia, Missouri, a stretch of approximately 130 S: tta Fe, New Mexico and Freeport, Maine have re- miles, only one three-mile segment now is free of bill- q,.Lred McDonald's restaurants to be compatible ar- boards. A major new report from Scenic America on chitecrurally with surrounding buildings. Citizens can the federal Highway Beautification Act (HBA) makes i demand that city officials adopt design guidelines that it clear that most state laws and the HBA itself fail to require new development or the reuse of existing protect rural areas from billboard blighr. In fact, the buildings to enhance, not detract from community HBA hinders community efforts to remove billboards, • character (Fleming 1994), allows trees on public property to be cut down to im. Protecting the appearance of everyday places lies prove billboard visibility, and costs the taxpayers mil- ac the core of the debates about, for example, burying lions of dollars annually-vith little or no visual utility wires and siting new cellular cowers and mono- benefit (Scenic America 1997). poles. Estimates of the number of new monopoles or Even so, hundreds of Arrsican communities do towers ultimately intended nationwide tango from have strict billboard controls that protect their ap- 115,000 to far higher figures J" These facilities attract pearance and boost their quality of life. Among the • residents' ire because of their incongruiry with their more prominent examples ate Houston, which in 1980 O O surrounding, often residential areas. Alrhoughthebt,r- enacted a van on new billboard construction and in geoning use of cellular telephones, mainly in automo- 1992 began amortizing its existing billboards; and biles, necessitates many new antennas, several alterna- Jacksonville, Florida, which in a 1987 citywide vote 324 APA JOURNAL-SLMMER 1997 • • BEAUTY AS WELL AS BREAD amended its charter to prohibit billboards, a vote that, information about the whole town when people actu- afterspending nnoie than $2 million in futile lawsuits, ally need it, in a %i-ay that is fair to small local busi- the industry has agreed to respect." nesses. In any case, anyone on the Internet can now On-premise signs are a necessary index to our Sur- get an astonishing amount of travel information with roundings, helping us differentiate between one busi. the click of a mouse. Still, for the foreseeable future, ness and another and find our way to our destination. communities concerned about their appearance will On-premise signs can be attractive, inviting, even dis- need to enact tough sign and billboard controls. tinctive. Uncontrolled, however, they can become ugly weapons in a business arms race, with each enterprise Empower Citizens to Make their Communities seeking the biggest, tallest, gaudiest sign-a race that Clean, Attractive, and Well Maintained. is ultimately counterproductive, since, like a roomful Planners should help citizens create beautiful of squalling children, the louder everyone shouts, the places to live and work. On a broad level, the American harder it is to hear any particular voice. On-premise Planning Association is making this much easier sign competition most often plays out in two situa- through its "Growing Smart" program, which is pro- tiOrLS: one, businesses along a strip each s:eking a com- riding planners and citizens with new model ordi- petitive edge; and two, businesses near an Interstate or nances for zoning, growth management, and design. other major highway seeking to lure travelers. In ei- Other organizations, such as the National Trust for ther case, communities may find themselves besieged Historic Preservation, help citizens analyze their town by requests for variances or weakened ordinances. and the way its growth and design decisions are made, But in neither case are big signs really the answer, through the "Your Town" program. In the case of businesses along a strip, tight controls Another promising tool is a community appear- actually benefit all businesses by preventing the sign ance commission. For example, in North Carolina, the race, which allows all of them to communicate their commissions may initiate, promote, and help to im- message more effectively and at lower cost. Many com- plement programs of the general community; coordi- rnunities have tough on-premise sign ordinances, con- nate public and private activities affecting appearance; straining businesses to make lower, smaller signs, provide leadership to public and private organiza- which in turn maintain a human scale to commercial tions; make studies of the visual characteristics and development. problems; recommend standards and policies of de. Businesses along an Interstate can pose a thornier sign for the entire area or any project within it; and problem, but this problem is easily eliminated by us• prepare both general and specific plans for the im- in.g lobo signs along the main highway, which give proved appearance of the municipality or county. travelers directional information without blighting North Carolina's legislation encourages the appoint- the landscape. Although such alternative methods are ment ofcommission members with special training or made available, many businesses, particularly fran- experience in a design field. chises, continue to push for larger signs, even when Many, older downtowns-for example, Philadel- logo signs seem to obviate the need for them. The phia, Baltimore, and Buffalo-are changing the pressure stems lees from a need to provide directional clothes they wear through "business improvement dis- information than from the urge to advertise-a small tricts," where businesses tax themselves and pay for but significant difference that raises the question of enhanced street cleaning, landscaping, and security. In the proper uses of our roads. Philadelphia, the program has helped reverse the dete- Though the sign industry claims that billboards rioration of the downtown, put homeless, people to • and huge on-premise signs provide important traveler work, and begun to make the central business district information, advancing technology will soon serve fully competitive in the regional real estate market. that purpose more effectively and without the baggage Other cities are adopting this approach, because they i of visual pollution. Advertisers who now use bill- find that looking good pays off. { boards will be able to customize and target their mes- There are many simpler steps that communities sages directly to those most inrertsted in them rather can take to become clean, attractive, and well- than to everyone who passes by; in the rapidly ap- maintained. For example, median strips along major proaching era of intelligent transportation, "smart roads offer another way to beautify communities. In 0 cars" will soon have complete sources of in-car infor. well-off neighborhoods in Washington, DC, for in- • O mation on the locations and prices of hotels, restau, stance, most medians are relatively well-groomed and rants, and local tourist attractions. Low-frequency attractive, and some vacant lots have become commu. radio and roadside solar-powered kiosks will provide nitygardens.In lower-income neighborhoods, the me- RDA JOUMAL•SUMMER t9% 325 • r • • MEG MAGUIRE, PAY FOOTE, AND FRANK VESPE than scrips are concrete and weed-speckled, and empty encourage a balance of regulatory and market ap- lots are strewn with garbage. Yet many individual proaches to protect scenic resources; houses in those neighborhoods are freshly painted and 4) Design intermodal transportation systems that re- well-kept. There, despite homeowners' efforts, the of- sped aesthetic, historic, and community values as ficial indifference toward public spaces contributes to well as economic and energy efficiency, social eq- an unsightly vista. In Houston, on the other hand, scc. uity, and environmental quality; and include mem- nic conservation advocates report that many low. bers of the public in all transportation decisions; income community groups havesought designation of S) prevent mass marketing and advertising from over- their major streets as "scenic corridors" as a means of whelming individual experience of the visual envi- protecting and beautifying them.70 ronment or obliterating the distinctive character of Sadt policy makers and planners alike often re- our landscapes; gard appearance issues as too vague or subjective to 6) Teach young people to value the visual environ- manage w,th quantifiable measures, thus squelching ment and to create and respect places of beauty; many local initiatives to wrestle with aesthetic issues, and The fact remains that we draw conclusions about a 7) Form partnerships with local business, industry, community in large part from its appearance, not an- professional, civic, and community groups to pro- like drawing conclusions about people from the mote both responsible corporate environmental cloches they wear. Too many communities today are policies and a broad-based scenic movement to re- characterized by the almost complete absence of claim the beauty of our communities and coun- beauty. As in the broken window theoryofcrime, ugli. tryside. ness is both a symptom and a cause of decay. Citizens have the power to influence government, Foundation for a Scenic Cenh2r particularly local and regional bodies, where most is. Century sues about appearance are decided; and to work with Our organization, Scenic America, is dedicated to the private sector to ensure that scenic conservation helping communities become places of uncommon boosts the local and national economies. We will suc- beauty by taking steps to make public spaces clean and teed to the degree that we anticipate growth and attractive and to empower community groups to pre- change and take control over the visual consequences ( serve their neighborhoods. But the long-term ques- ofehange. tion remains: How, can we begin to chanv- me Scenic beauty has been a powerful influence on fundamental attitudes that shape our daily decisions our history, culture, and philosophical and spiritual about our surroundings? While we are wor.'.ing on the traditions, as well as shaping public policies for our specific, immediate actions outlined above, we also natural resources and public lands. Our heritage of need to Ir.y the groundwork for scenic conservation scenic beauty belongs to all Americans; it is a heritage that will shape public and private actions into the 21st fundamental to individual and collective well-being, to century-what Sccnic America is calling the Founda- economic prosperity, to a healthy and sustainable en. tion for a Scenic Century. To reclaim our nation's vironmenr, and to the quality of everyday life. Only beauty and the distinctive character ofour communi. with substantial public and private commitment can ties over the long term will require broad citizen par. we ensure that America the Beautiful will endure. ticipation in a new ethic that explicitly values scenic conservation and the visual beauty in everyday Plata. NOTES We envision a future movement for scenic conserva- rion in which Americans: 1. "Scenic" is taken to mean affording or abounding in 0 natural scenery, possessing s;gni6cxnt aesthetic, natu. 1) Rebuild our older cities, towns, and suburbs as ral, or visual qualiries in a built or unbuilt setting. Ac- beautiful places to live and work; and in the coon- cording to Webster's Dictionary, 'scenic' refers to a ~ rryside, conserve farmland and open space; scase setting, to action that takes place on that stage, 2) roster new development that respects the charac- and to natural 'scenery,' a picruresque view or land- ter of places as defined by their distinctive geo- scape. The organization Scenic America adopts this graphical features, cultures, climate, and natural broad definition to include both the built and natural settings in which people conduct their lives; its missior. - • systems; is 'to preserve and enhance the scenic-erg., pictut- • • 3) Reward land stewardship by proper tyowners, local esque-characterof our communitlesand countryside.' governments, and corporations; create disincen- 2. National Environmental Policy Act of 1969, 42 U.S.C. tives for p,zctices that destroy scenic values; and § 4321, National Historic preservation Act of 1966, 326 APAI0VMAL•SUA1h1ER1997 J 17 ~M~MP W . • • BEAUTY AS WELL AS BREAD 16 U.S.C. § 470. Highway Beautification Act, 23 native indicesof community livability and societal prog- U.S.C.§13 1. National Trail System Act, 16 US.C. § 1241. - ress have formed TOES,The Other Econ6mic Summit, Wild and Scenic Rivers Act, 16 U.S.C. § 1271. Alaska Na- which meets every three years at the same time and tional interest Lands Conservation Act of 1980, 16 place as the G-7 Economic Summit. In 1997 the meec- U,S C. §3I01 et seq, Omnibus Parks Act of 1980 is Pub- ing will take place in Denver in late June. lic Law 96-205. 10. Penn Station was destroyed in 1963-64, and this de- 3. Malcolm Gladwell cites 7-imbardo'ssmashed windshield struction led to the passage of New York's landmarks as an example of "the tipping point" where cause and preservation law,larer upheld in a key case in which the effect cease to perform in a linear fashion, a phenome. proposed destruction of Grand Central Station was dis- non still not well understood but with potentially pro- allowed. found public polity consequences. 11. In September 1996, the Secretary of Transportation 4. Anna Borgman, reporting on Ulrich's study in MWasb- named six All American roads (the highest designation), ington Port, wrote that "researchers had 160 people drive including the two listed here, and named 14 others as simulated commutes. First,_ the subjects performed National Scenic Byways. For example, in Louisiana, the difficult mach problems or viewed workplace safety vid- Creole NarureTraiI is a 180-mile route linking four Na- tos that showed v ,orkers getting their hands chopped tional Wildlife Refuges with Civil War and other historic off Then, once they were stressed, the 160 people were sites and providing scenic vistas of marshlands. In assigned randomly to one of four rides in a simulator South Dakota, the Peter Norbeck Scenic Byway travers- at 35 mph.... [Djuring the simulated commute, stress ing the Black Hills is marked by massive rock out- levels were monitored bycheckingblood pressure, respi• aoppings, runnels, and impressive mountain views, ration, heart rate, skin conductance, facial muscle acriv. 12. In November, 1996, residents of San Matto County it), and eye movements. For those exposed to a rural voted ovemhelminglytoamend the councycoastal plan setting or a parkway, stress levels declined relatively tomakeashort andlessenvironmenrally damagfngtun- quickly, while stress levels for people exposed to strip nel, rather than the proposed bypass that was the offl- developments remained high.... After the commute, cial plan. Shortlyafrerwards, the California Department the study's subjects did math problems or were shown of Transportation agreed to pursue the tunnel option. videos to measure their work productivityand ability to 13. Among the key concrovtrsics are: the scenic Snick- deal wirh stress.... [P)eople exposed to the spra"Isape ersville Turnpike, Route 50, and Route 15, all of which C fared poorly. 'If our research is replicated, it would be have significant scenic and historic resources but are jusrified to raise the possibility of roadside blight and threatened by proposed widenings. strip sprawlscapes being in some respects a public 14. The specific amendment may be found at Section 304 health issue,' [Ulrich] said." of Public Law 104.59, the National Highway System 5. As reported in "Suburbia's Signs of Stressful Times," Designation Act. General language abourdesign criteria no 1Ctshingron Pon, June 18, 1995. along federal-aid highways may be found at 23 USC Sec- 6. Two places where a concentration ofgarish sigrage eon. tion 1D9. tributes to the character of the whole place are Las Ve- 15. Karl Kruse, who is also head of5cenic Missouri, an affil- gas with its neon signs, and Times Square with its giant iare of Scenic America, and a member of the Board of electronic signs. In fact, New York City codes actually Directors of Scenic America, was a driving force behind require a certain level of signage on buildings in Times the presage of this legislation. Square to maintain what is now that place's intrinsic 16. In Fairfax County, Virginia, for instance, officials esti- character. But in most places, such elements do not ere- mate that corporations may seek permits foe as many as ate a sense of the whole. 400 new sites for transmitters in the next several years, 1 7, The Missouri sample consisted of 800 interviews se- and many of the towers may be nearly 200 feet high. lotted through random-digit-dialing conducted be. 17. "[Federal Election Commission) records show that [wren January 12 and January 22, 1997 by Attitude billboard-company executives and lobbyists gave at least • Research Company in St. Louis. Margin of error is 5252,200 to House and Senate candidates during the t 2,5%, at 95% confidence level. first six months of 1991; according to the article "Bill- S. Preservationists have long pointed to Gettysburg as a boarding Clout," by Carol Matlack, in NahorWjowmal, site "lost" to development interests. In 1994, the Walt October 12, 1991. In the same article, a Senate source Disney Co. proposed to construct a gigantic theme park says, 'Of all the things I've ever worked on, this is the (Disney's America) and mixed use development near the most back room, old-style type of lobbying. It was all Manassas batdefields, a project enthusiastically wel- $100 bills in blank envelopes.' According to FEC rec- comed by Virginia Governor George Allen, but which lo- ords, billboard interests gave at least $425,000 to federal ti A cal activists succeeded in defeating. Although not the candidates and political parties during the 199S-1996 • • first major, incompatible development proposed in the election cycle. region, it represented the largest setback for a once. 18. William Buckley has written, 'Billboards, are acts of ag- `J indomitable developm gression-like skywriting-against which the public is 9. Many of those leading the movement to develop alter- entitled, as a matter of privacy, to be protected. If a APA JOUN AL"SUMMER M7 1327 L.~ II , d • i s MEG MAGUIRE, RAY FOOTE, AND FRANK VESPE homeowner desires to construct a huge Coca-Cola sign Constantine, James. 1992. Design by Democracy. LandDnrl• facing his own homestead rather than the public high- opment (Sprinoummer): 11-5. way, in order to remind him, e,,ery time he looks out his Federal Highway Administration. 1994. Highway Statishrl window, that the rime has come to pause and be re- 1994, Washington: Government Printing Office. freshed, he certainly should be left free to do so. But if Fleming, Ronald Lee. 1994. Saving Face: How Corporate Fran- he wants to face the sign toward us, that is something cbbeDesign Can RerprrtCommenity ldenrity. Chicago: Amer. else, and the big name libertarian theorists should go to ican Planning Association. work demolishing the billboarderi abuse of the argu- Gallagher, Winifred. 1993. M Power of Place. New York: menr of private property" (Buckley 1966, 271). Harper Perennial. 19. Jacksonville citizens voted 60%-40% for the charter Gladwell,Malcolm. 1996.The Tipping Point, neNew}onEer, amendment, despite a massive campaign by the bill- June 1 board industry to defeat the proposal. Heat-Moon, William Least. 1982. Blue Highways. Boston: 20. Houston's efforts extend beyond billboard controls to Houghton Mifflin. on-premise sign controls, scenic corridor designations, Kunstler,James Howard. 1993. nrGeogmphyofNowbere. New and treeplanting.One ofthecity's avowed goals for the fork: Simon & Schuster. next century is to become 'an uncommonly beautiful Little, Charles E. 1992, Hope fortheLand. New Brunsorick,NJ: city.' Rutgers University Press. Mitchell, Joni. 1970. Lyrics from 'Big Yellow Taxi" on the Lad ej of the Canyon album, Les Angeles: Warner Brothers REFERENCES Records. Nelesse n, Anton. 1994. VLiont fora New American Dream. Ann Blake, Peter. 1964. God'iOwnJunkyard. New York: Holt, Rine- Arbor: Edwards Brothers. hart & Winston. Outdoor Advertising Association ofAmerica. 1995. Outdoor. - Borgman, Anna. 1995. Suburbia's Signs of Stressful Times. it's Not a Medium, 16 a Large. Washington, DC: Outdoor The Washington Pont, Jun it 18: Bl, B4. Advertising Association of America. Buckley, William F., Jr. 1968. The feueleri Eye. New York: Scenic America. 1997. ThefHouwyBeautiifeationActABroken Putnam. Lao: Washington: Scenic America. Cobb, Clifford, Ted Halstead, and Jonathan Rowe. 1995. If Udall, Stuart. 1963. The Quiet Cr*it. New York: Holt, Rine- the GDP Is Up, Why 1s America Down? Atlantic Monthly hart & Winston. C (October): 59-78. Ulrich, Roger. 1984, View Through a Window May Influence Communications Consortium, Biodiversity Project. 1996. Recovery from Surgery. Science224: 420-1. Human Values and NaturejFuture: American's Attitudes Ulrich, Roger. i990. Effects of HealthcarelnteriorDesignan on Biological Diversity. Report by Belden & Russonello Wellness: Theory and Recent Scientific Research. fn lnno- (consultants), Washington, DC. rationilnlleaMxareDengn, edited by S. 0. Marberry. 1995. Congressional Research Service, 1991. Billboardt Along Inter. New York: Van Nostrand Reinhof& stare and Federal-did N''inary Highways: why No Reliable ERi• Ulrich, Roger, 1991. Stress Recovery During Exposure to Maier of 71?eir Number Fxbt. Report No. 91-1LSE. Janu- Natural and Urban Environments, Journal forEnrirormrn- ary 2& tal Ptyc ology Ili 201-30. Conservation Law Foundation. 1995. Take Back Your Streets. Wick, Jim. 1995. A State Highway Project in Yonr Touis? But. Boston: Conservation Law Foundation. lingtou, VT: Preservation Trust of Vermont. • l - 328 APAJ0U9N.q-SVMMER1997 • Beauty as well as Bread JOURNAL General Plan Evaluation Criteria OF THE Citizen Participation-Lessons from a Local United ANIERICAN Way Planning Process PLANNING Where Do Tenants Come From? From Landmarks to Landscapes r. rir, it 0%: j < Y rF Nf r} V C Ya O ti 7 V f N r n L x a x r o# rt c ;r V F+ G •S v+ :j Ali fJ • T b is s r Y TER 3 t•1 ~ 9t , . n Trit 1 { _ ~ V N• to :f 7 Y # 10 i.t TORN ro o„' fRIIITSR W 1. F VyORKS 0 r~ ' I A ~ b A 0 0 • General Plan Evaluation Criteria An Approach to Making Better Plans William C. Baer How would you know a good plan if you saw one? The planners' answer is dangerously near to the apocryphal answer to a similar question about good art: "1 don't know much about art [plans], but I know what 1 like." As a profession, we have developed few guides. Tit planning proft%on has devel. Plan quality is difficult to define. Planners can often differentiate oped relatively few criteria for eatu. high quality plans from low quality ones, but they arc hard pressed sting the quality or general plans. to explicitly define the key characteristics of plan quality, The plan- nporrtent mn wenters ith th ith the have become more in po ning literature is surprisingly narrow when it comes to what consti- ate le ing number or sates that mandate general plena cures a good plan. The planning profession has generally avoided Sevval kinds or pia., evaluation taht, this normative question and focused instead on the methods and and thew art distinguished and de• processes of plan making. (Perke and French 1994, 237-8) scnbed before a review of different concepts of ptam as a source of the A similar point about the appropriate criteria for determining "good ' appropriate cdmda to evaluate them. tans" was made recently by Dalton and Burby (1994, 447) and implicitly tut of suggested criteria for plan p' evaluation plan during plan prcpandon is echoed byStiftel and Boswell (1994). As Alexander and Faludi (1489, 227) thin prt _ntad,to be used so maw the noted in the context of planning theory: "If planning is to have any eredi- plan better, Appropriate cri•tria for bility as a discipline or a profession, evaluation criteria must enable a real a plan art nct trey to draw, and judgment of planning effectiveness: good planning must be distinguish- th. misn satin • matstshhiih task critimmore ue dif of lralt still, ing able from bad." A further instance of professional remiss is the problem Thew issuesareerp~oredaswen, ofterminology. Inthescant literature on"plan evaluation" the profession Baer is a prole ssor of urba n ola nning uses terms like "plan assessment," "plan appraisal," "plan testing; and .i and de4opmentaethekhoororur• plan evaluation virtually interchangeably, Making these distinctions ' ban Panning and Development, Unl. and formulating appropriate criteria can demonstrably inform our un• "Mr r or Southern Carronnia. He q derstanding of plan making--and of making plans better. currently engaged in reuarch of the Despite intellectual neglect, the plan remains one of the planner's continuum chat ,t to range from regulations, to , to t staa Lierons, to plans, m- primary tools to influence future growth and development (Dalton 1989). - • dards. Moreover, societal interest in the plan has intensified. At least fourteen 0 O states now have comprehensive growth programs, either staccwide or iomne l,oo, VOL O63, N aab. 7, Su , Su mmer aimed at particular subareas (Bollens 1992; Morgan 1993). State govern- 1997, OanM erion Pl ' ( 299?. elanning menu are increasingly mandating thorough, methodical, even exhaustive Ass"iation, Chicago, lt. requirements for local plan preparation (Gale 1992; Innes 1992; Busch• APA IOUMAL•SUMMER 1991 329 • 'f • • e WILLIAM C. BAER baum and Smith 1993). Local citizen groups and de- Is it possible for postmodern views to reside com- velopers alike, although often opposed over plan forrably in legislative mandates? How should planners substance, nevertheless participate in its formulation deal with this conflict? The article's conclusion, in and carefully monitor its implementation, looking at this dilemma, suggests the problems inher- This faith placed in the plan is grarifying. We must ent in operational izing postmodern views. Evaluation justify it by better evaluating plans to carry the weight criteria will remain useful to planners and help them of responsibility the public has given to them. The respond to state mandates, so long as planners do nor evaluation should be carried out with close attention become totally enamored with technique and ex- to its criteria. The first section of this article, there- percise. fore, examines the various meanings given to plan evaluation, and distinguishes the several stages during Plan Evaluation Criteria, the plan-making process where evaluation can appear. Different Stages for Plan Evaluation Next, this section briefly reviews past efforts at plan Appropriate criteria for plan evaluation depend conceptualization in order to articulate the criteria on distinguishing the different stages in plan-making they imply. Appropriate criteria for evaittaring plans when evaluation can be performed The rubric of eval- are imbedded in the view of the plan to begin with; station has included: (1) plan assessment, (2) plan test- explicitly stating them is a way of understanding the ing and evaluation, (3) plan critique, (4) comparative plan's initial conceptualization. research and professional evaluations, and (5) post hoc The second section here presents another form of evaluation of plan outcomes. The same word some- evaluation-wsesring the plan as embodied in the docu- times has been used for 211 those different phases. To ment. I argue that planners must devise criteria for distinguish them, is is helpful to identify who is under- this stage in order to fully understand what they are taking the evaluation, and their relation to the plan doing while preparing the plan. A composite table of authors; when the evaluation is undertaken, (i.e. at pertinent criteria is presented to illustrate the concept what stage during plan preparation or after its comple- of assessment. They are not, however, meant as an ap- tion); and, finally, the wbar of the evaluation. The proved recipe that, mechanically followed, will assure "what" takes several forms: j professional competence. Rather, they are intended to illustrate wby and how individual professional planners 1) the substance of plan alternatives; and/or must develop such criteria themselves each time they 2) the plan as a package--including the document work on a plan. that communicates: In this regard, the criteria reflect a concern about i) goals and objectives plan adequacy and competence similar to that shown ii) needs or problems in state mandates for plans. State mandates are ex- iii) assumptions and method of reasoning haustively--even mind-numbingly--"rational" in their iv) specific proposals detailed requirements for technical competence. They v) perhaps, implementation devices (ordinances, enhance this technical rationality by introducing crite- budgets, etc.) and/or ria for intergovernmental consistency, administrative 3) the outcome following plan implementation. responsibilities, and agency time schedules. In this Several types of plan evaluations can be per- '.administrative regulatory model" (Brooks 1979), the formed, and at several stages in the plan-making pro- plan becomes an interlocking directorate of state re- cess. Figure 1 illustrates the various types and stages. quirements and criteria that planners must contend {Figure 2 will show the different types ofposrboc plan with. evaluation) 0 Most of the profession, however, would agree with Krieger's (1981) elegant paean to planning and plans Plan Critique. Historically, the first type of plan ~ as being more than conventional norms of expertise, evaluation was a rntique, which is an evaluation similar or state lists of mandated planning tasks. Posrmodern to a book or movie review. The critique is by persons theorists go even farther, questioning the very prem- other than the plan's authors, but nevertheless typi- ises of the state mandates, or pointing out that a plan rally trained as professional planners. The critique is is as much symbol as instrument, as much rhetoric as undertaken after the plan's publication, but usually • • Y technical substance, and that the "public interest" before it has had time to be put into practice, and cer- amounts simply to irreconcilable discourses to multi- tainly before any measurable results have occurred. ple publics, It follows, in this view, that plans should The criteria being invoked by the critic are individual, ( not aspire to such traditional (modernist) evaluation implicit, and somewhat idiosyncratic, being based on criteria as are presented here or in the stare mandates. the critic's professional uirtuahr;er-his or her art of 330 APA JOURNAL Ist1MMER 1997 m • GENERAL PLAN EVALUATION CRiTEFUA >s , 1. PROBLEM DLAGSOSIS Plan assessment: P Application of L enteria for the plan 2, GOAL ARTICULATION' A as embodied in the N document. 3. PREDICTION AND PROI ECF IOON O 4. DES ION OF ALTERNATIVES C Plan testing and ht evaluation. E Choice of best al teinati vc for _ S. PLAN ALTMNATIVE N "the plan" by inside[ planning TESFINJ team (Lichfield, Kettle, and Whitebread 1975) 6. EVALUATION 7. AI PLIENEN'TAT ION 8. OUFCOME(eomctime in OvUveraall ll pl plancritique outside the future, but it is not clear O e wbeo) cri tic, alth assorted- It cscn idiosyncratic-crtcria (!AIP review's) FOR POST HOC EVALUATION SEE FIGURE 2 - Reseateh and professional evaluation: Concemed with professional improvenunts in plans, and performed by' irutders oroutslders trained as planners and rescarchers(Berke and French 1994,Dulton and Burby 1994; Kaiser, Godshalk, and Chapin 1995). FIGURE I. Various stages for evaluation in the planning process (Plannlna process model adapted from Ale.ander 1991) judgment and conceptive powers (Jamous and Peloille plan Testing andEvafuation. The term, plan evalu- 1970). The topics covered also depend upon the critic, ation, gained prominence in the early 1970s as a term bur include the three content areas listed above, and for the process of evaluating alternative ways to usually emphasize the second one-the plan as docu• achieve a plan's goal (Robinson 1972; Lichfield, Kettle, men' that communicates substance. Examples are and Whitebread 1975). Planners were to adopt the r found in the Plan Reviews presented periodically in best of the alternatives after analyzing and testing the old Journal of the American Inirinete of Planners.' A them. Lichfield, Kettle, and Whitebread's 11-part plan- careful reading of these reviews discovers the need for ning model suggested the following vocabulary and more explicit criteria; they are lively and substantively steps for evaluation in the plan-making process: «st- • informative, but rarely systematic, much less analytic. ing the alternative plans (Phase 7); evaluating tixse Still, the critic's approach has some virtues. Its very tests (Phase 6); choosing the best (phase 9) (in figure • individuality has the flexibility to form the critique to 1 these phases are condensed into steps 5 and 6 for fit the occasion, and to introduce new concerns, such simplicity); implementing the plan (Phase 10); and, in as those expressed by postmodernists (e.g., Healy's Phase 11, comparing the outcomes with the predicted (1993) postmodern criteria, discussed lacer). outcomes, and appraising the significance of any un- APAJOURNAL"SUMMER 1997 331 • • w1LLWI C. BAER anticipated consequences (Lich field, Kettle, andWhite. rule of thumb.... ET)he necessity for the partici. bread I975, 19-22). pation ofcitizens in decisions which would affect Note that several new aspects were introduced. their lives was almost ignored. (Gruff and Gut. The evaluation is performed by the team or group pre- stein 1972, 26-2-3) paring the plan, not by outside critics. The methods are explicit and reproducible by others, not idiosyn- The Gruft and Gutstein (1972) pioneer evaluation cratic. Analytic devices such as cost-benefit analysis or was comparative, but looked only at the plan docu. goals achievement analysis (Hill 1968) are used, not ment, not at plan outcomes. Recently there have been implicit criteria dependent upon the critic's individual a number of comparative evaluations,Connerly(1990) "virtualities." And the evaluation process has several for instance, examined the quality of housing ele- stages (e.g., phases 7, 8, and 11 in Lichfield, Kettle and ments in plans; Scifrel and Boswell (1994) compared Whitbread's 11-stage schema) where these analyses the treatment of uncertainty and the time horizons, can be used. In all instances, it is the substance of the public involvement, and intergenerational equity in alternatives, only, that is at issue-not the overall plan, eight general plains in Florida. In the most thorough Kaiser, Godschalk, and Chapin (1995) also stress and methodologically self-conscious research evalua. evaluation by the plan's preparers during its formula. tion yet, Berke and French (1994) and Dalton and tion (what they call "pre-adoption evaluation") so as Burby (1994) (see also Burby and Dalton 1994) exam. to understand the potential consequences of altema. ined natural hazard mitigation in 139 local eompre. tive proposed plans. The effects include both total hensive plans, in five states. Although using a limited effects and the more disaggregaced distributional ef- rlurnber of criteria for plan quality, their evaluations fects. Kaiser, Godshalk, and Chapin also speak of plan were substantially more systematic than earlier ef. monitoring, a continuing assessment of the conse• forts, and their methodology serves as an exemplar of quences stemming from the plan (not shown in figure research and professional evaluation. All the plans 1, for simplicity), were "double coded" (two different people coding the same plan) and on an ordinal scale (whereas most cri- Comparative Plant Researrb and Professional Eval- teria use only a nominal scale), so that statistical tests nation. Another type of evaluation occurs after plan could be performed in connection with the plans C adoption (either before outcomes can be evaluated, or quality as expressed in plan documents. with outcomes not intended to be part of the evalua- tion). Although in spirit it resembles the critic's effort, EvalnatingPost HocPlan Oarromet. Afrerplans are the methodology is quite different. Here the evaluator adopted and implemented, they can be further eval. is a researcher, either one ins;de the organization that uated, empirically, in terms of their outcomes. The prepares the plan, and who is trained in how to im- purpose is usually to discover if the plan was imple. prove subsequent plan effort, or an outside "pure" re- mented, and if so, how it performed (Alterman and searcher, perhaps trained in some discipline ocher Hill 1978) or what its effectiveness was (Faludi 1987, than planning. Usually several plans are compared sys- 127)• (A related history and literature is found in the tematically. One of the early research comparisons was field of policy implementation (Alexander and Faludi by Gruft and Gutstein (1972). To establish their 1989), which compares policy and program intention criteria, they assumed that; planning should be with actual result or outcome). Both literatures gloss 1 a rational process; (3) it should be a democratic over two fundamental criteria: when should the oat. i decision-making process; and (3) plans (and planning come be determined? and what termsshould its perfor. reports) should add to the bo'y of knowledge about mance or effectiveness be cut in, that is, what should • urban design. Under these three headings, sixteen the actual outcome be compared to? more specific criteria were included. Applying their Plans usually show the time needed for the plan criteria to eighteen "representative" reports, the au. to be fully implemented (e,g,, 10, 15, or 20 years). But thors found that most cf them they never show how much time should elapse before the full effects of the plan should be evaluated. Surely were filled with circular reasoning, precon- a 20-year plan should not have its outcomes fully evaI- ivied solutions and self-fulfilling prophesy, in uated after, say, only five years. Krohe Jr. (1993), for • which it was apparent that problems and objet- instance, provides a nice sketch of the various effects • • tines had been determined and data selected after from Burnham's plan for Chicago during the last 84 the solution was designed (and) many de- yearn. J cisions were based on popularfzations of social Even if we can decide when, after implementation, C science theory, superficial analogy and doubtful outcome evaluation becomes appropriate, what alter. i 332 APA JOURNAL•sVbfMER 1997 • • GENERAL PLAN EVALUATION CR[TMA natives should we compare, and what does any differ- Reality can be compared against the plan, but rather ence revealed actually mean? Typically, planners and than focusing on the difference bev,veen the two, the policy analysts have assumed a "blueprint" mindset, focus can be Licchfieldian, on what chff'erence any un- companng the pian's intended outcome against what anticipated consequences from the plan actually happened, There are two objections to this. First, if made. the profession no longer views plan-making as the • In a Faludian conception of the plan, reality can be planner's sole function, bui sees planning process as presumed to be only loosely, linked to it, since there more important than any plan, then a question arises are so many possible reasons besides the plan to ac- as to what it means to evaluate plans post hoc on the count for an ourcome.r premise that any difference between reality and the • In a postmodern conception of the plan: where does plan reflects poorly on the plan alone. If process is one look for an outcome if the plan itself is con- the profession's overriding concern, then plans should ceived as symbolic or expressive of merely a way sta- be viewed as simply an important and necessary device tion to the larger goal of achieving dialogue about for working out the future, but not a sufficient device. community? For instance, is it the physical outcome Faludi (1987) makes this point most forcefully: "Of that is examined, or the change in the sense of the course, plans are departed from! So what? Let's get rid community's alienation? More fundamentally, is of the odour that hangs over departures." Yer invoking the notion of "substantive outcome" misplaced? process to cover contingency and uncertainty makes it Is the appropriate outcome to be measured actually extraordinarily difficult to anchor any basis on which the change in the community agenda after plan dia. rojudge plan quality, which is afioar in a sea of relariv logue and discussion, as the appropriate focus of post ity (Alexander and Faludi 1989). We should be mindful hoc evaluation?' OF and calculate departures from the plan, but we shotdd not despair at the existence of departures. A Review of Plan Concapts and their There is a second issue: should the posthoc measure Associated Criteria be the difference between plan and reality, or the dif- The appropriate criteria to evaluate a plan are im- ference between what would have occurred in the ab- plicit in the concept that the plan embodies. More- C sence of any plan and what happened with a plan in over, in reciprocal fashion, the plan's concept is place? Discouragewent due to the plan not being fully clarified only by considering the criteria to judge it. implemented might be called the half-empty-glass For instance, a vision plan implies different criteria syndrome; elation that reality turned our to be more than for a blueprint plan, and a symbolic or expressive like the plan than it would have been with no plan plan,different criteria than for an instrumental one. might be the half-full-glass syndrome. Each time a plan is prepared, the preparers should The post hoc evaluator must be clear about the pur- specify the criteria by which theyexpect it to', a evalu- pose of the investigation and the cr'ceria for outcome aced; the effort inevitably sharpens their understand- evaluation, that is, what was expected tersus what hap- ing of what they are about, pened. But with that in mind, we can consider Several The following review of plan types emphasizes the variants in posthoc evaluation, which depend upon the appropriate criteria in light of the particu!ar concept underlying conception of the plan. These and the of plan. The purpose is to provide background for 1 points discussed above are rated in figure 2, a judging the evaluation criteria at the "plan assess- continuation Of figure 1. meet" stage presented later on, in figure 3. The various permutations of posthoc evaluation are • described below. The Plan as Vision. The plan as vision has once again garnered popularity in the profession (Klein et • Reality (the actual outcomes) can be compared to al. 1993). Simply put, the vision plan is an elegant it- the expected outcomes if there had been no plan (the tempt to publicly propose a "What if?"-to stimulate null cue). thought and elicit comment. Appropriate criteria per- Reality (the actual outcomes) can be compared tain to communicating the vision in an empatherie, against the intended outcomes from the plan. This visceral and stimulating way that touches not just the • approach assumes that the plan is a blueprint and mind, but the soul. The reader should b: attracted • any departure reveals its weaknesses. Moreover, it as- into the exercise, lifted to the prospect envisioned, J sumes that the plan is definite and precise. As Al- convinced as to its possibility (or that of one like it), terman and Hill (1978) point out, any flexibility and provided just enough 'realism to convince the built into the plan snakes a determination of the natural skeptic in us all to at least momentarily sus. "true" plan intent or outcome more problematical. pend disbelief. APA JOURNAL-SUMMER 1997 337 • r 'v low e • :e RTLL(A61 C. B.AER FROM FIGURE 1 I. RtOBLEV DIAGNOSIS 1 _ 200ALART1ClLATION S, PREDICTION AND PROIFCt70N 4 DESIONOFALTERNATIV" S P[.ANALTER.NATI1' ETESfI` G 6. EVALUATION 7.ISTFUM ENTATION 6 OUTODME (ewncti me in the future, Uut it is nor cleAr *hen), t Intendd Plan Reality (actual Reality (actual esultor RrsultIor Effect. result or effect) with effect if there ha been a plan in place no plan) I Post Hoc Pi.. ak Evaluationofrealityifn. Evaluation: plan had been pct in place. Uffeiences are to be expected; usuallyy me shouldn't wary (Fuludi 1987). E4uation as mcasuring the difference bctNccntheplan's [Ev alua tionasapprairingthe ntenl,pndsubseyucnircality gnificanceofan), unanticipated (normalvicAorplanevaluation) onsequences(Lichricld,Kettle nd Whitebread 1975) I The difference is not the point, because the plan's intended result was not its point. Instead, it a'as the plan-making process, or the change in community values as a result of that process, that is Bte point (or consequence) of the plan, and that is what me should measure (a possible postmodcm intcrprctationof evaluation), • FJGVRE2. Potthoc plan tvaluation (Flannlna procot madelsdepudfrom AJnenda(14421) ~ ` The PlanarBlaeprint. There was a tendency in the building sites, and the general districts for which pri- early days of planning to believe that a vision plan vate land should be zoned, could readily be converted to a blueprint plan. The if plans were to be like blueprints, then criteria early term `Muter Plan" nicely captures the undetly- had to expect that each and everyaspect ofthe plan as ing blueprint sentiment. The physical orientation f f a well as their interconnections would be described or Q Master Plan as blueprint was reflected in Bassett's mapped or diagrammed in considerable detail, to (1938) early call to limit the scope of the plan to what demonstrate mastery ofall the plan's aspects trd how can be shown on a municipal map: elements li:-e they joined. To ensure sedulous implementation (for { streets, sidewalks, street trees, parks, lakes, public that is the pointof the blueprint), criteria are required i 334 APA JOURNAL- SV6I6tER 1997 • • s GEM AL PLAN EVALUATION CRiTER1A for each control point in the system for implementa- and financial capacity to respond eEFectivejy by citing tion d la Ashby's Law of Requisite Variety (Ashby a Workable Program that called for a general plan, 1958). building codes, financial capacity-and, for the first Unfortunately, this approach produced few plan time-citizen participation in governance. successes in the "real world." Often it was the zoning The need to sell vacant redevelopment land intro- ordinance that was really the blueprint, while the gen- duced planners to the criteria of property valuation, eral plan, if there Nvas one, was strictly advisory. Many economic and financial feasibility, and market analy- in the profession vvho had hoped for more concrete sis. Short-run market and political objectives also in- results turned to alternative routes for plan success, traduced planners to the criteria of steep discount for example, urban renewal plans; others eschewed the rates, by which project-delimired urban renewal plans need for a plan altogether, preferring to emphasize or even rezoning requests outranked comprehensive planning processes. long-term planning goals (Fischman 1978, 372-3). The scope of remedial planning encompassed ever The Plan as Land Use Guide. The general plan as larger perspectives with the subsequent General land use guide appeared in the 1950s, Although there Neighborhood Renewal Plan (GNRP), which focused were variants, it took a middle of the road approach to on a sequence of renewal projects in a larger neighbor- what a plan might be; thus its criteria were as follows: hood, and still later the Community Renewal Plans The plan was a vision of the future, but not a (CRP), which scheduled revitalization for the entire blueprint; a policy statement, but not a program city. Several new kinds of criteria were thus implied, bur not program These might be called programming criteria, be. ofaction; a formulation a goals, sched- cause th ules, priorities, or cost estimates. It was to be un- inhibited by short-term practical considerations. stressed coordination between urban renewal (ex. (Kaiser, Godschalk, and Chapin 1995, 369) icing, scheduled, and proposed) and other local pub- lic expenditures within the city. Kaiser, Godschalk,and Chapin (1995) go on to distin- guish four modern branches stemming from this ear- TbePlan as Adminisrrari.,eRegniremenrforFederal licr general plan. Borrowing from concepts in other Funds. Other kinds of federally supported plans es- plans of the 1960s and 1970s, as discussed below, all chewed urban renewal's geographic focus for a sub- four types stress more action and implementation, as stantive or functional one. The prosptcr of federal ucll as more citizen participation, than chose earlier funds for what had traditionally been nonplanning models did. There are land use design plans (detailed areas quickly led in the 1960s to health facility plans, mapping of future land uses with some action strate- transportation plans, employment plans, housing gies); rand drssiiinthon plans (non-parcel-specific, and plans, educational plans, juvenile delinquency plans more frequently found at the county or metropolitan and community action plans. The Model Cities' so- level); terbal policy plans (verbal policy and action with vial/administrative "plans" were the culmination of no maps); and development ntausgernentplaw (maps and this relatively nonphysical, federally funded eompre- vety specific implementation tools and programs for hensiveness. The 'systems approach" to planning and action, including location, type, and pace of growth). its criteria for monitoring and controlling complex in- teraction were sometimes emphasized here (Robinson The Plan as Remedy. The alternative to the plan as 1972, 423-518), as was the administrative capacity to vision is the plan as remedy: the cure for an existing carry out such complex plans. HUD used such criteria • problem, Urban slums and the promise of federal as "city commitment," "administrative capability," moneys for their renewal in the 1950s provided such "understanding of problems," "clarity and reasonable- an alternate route to plan reconceptualization. Re&- ness of goals and program approaches," "degree of in- velopment plans were one result. Unlike general plans, novation," and "capacity building" to evaluate the redevelopment plans were short-range and specific, plans submitted for funding (Frieden and Kaplan aimed at remedying the problems of slum housing, 1975, 132-4). not at building new housing in the suburbs. The ap- The types of criteria added to planning in this era 0 propriate criteria here were largely federally deter. were many. The wide-ranging concet ns led to a greater • • mined, and were in the form of hurdles to surmount, appreciation of, and a longer list of criteria for what of tests ro pass, in order to receive a grant of funds: being comprehensive really meant. Each substantive Local governments had to demonstrate their need for or functional area plan embodied its own criteria renewal by producing a comprehensive description of based on social science findings and paradigms. Other slum problems, and demonstrate their administrative plan criteria were grounded in legal rules for intergov- APAJOWNAL•SUMMER 1997 33S r ~ i • • MILLIAM C. BAER ernmental loans and grants, requirements of the bond mistrusted by many practitioners and by much of the market, and political and administrative theories of public. What criteria can be invoked for the planning intergovernmental relations. process? he asked. HOW are planners to be held ac. The federal government encouraged regional countable for their recommendations, and how are plans, as well. The Office of Management and Budget politicians to be held accountable for their decisions, (OMB) issued its Circular A-95, areawide clearing. if all planning is continual process? house procedures for Councils of Governments (COGs). These councils were to coordinate on the re- Plans as Pragmatic Action. Discussion about plans gional level the various federally-assisted projects during the 1970s tended toward the pragmatic, The planned at the local level (Code of Federal Regula- American Law Institute's (1976) extensive Model Land tions). Projects were to be designed and located "in ac- Development Code, directed toward revising the en- cordance" with the regional plan, abling laws for planning, provided a streamlined framework for subdivision, zoning, and redevelop- Process, not Plans. Beginning in the 1960s, plan- meet. Its implicit criteria were procedural, focusingon ning as an ongoing process, rather than merely making how to mesh these assorted devices, but paying less particular plans, was widely ernbraced as the profes- heed to concern for the plan as overall direction-setter sion's true purpose. AsAltshuler (1965, 98, 130) noted, for development (Hagman and juergensmeyer 1986). a common planning principle held that "planning is Other planners also thought state plan-making more important than any plan." Moreover, the techni- legislation should be revised. Some argued chat states cal and factual underpinnings of physical plans were should mandate local plans, because the criteria for fair deemed insufTic;ent. The city was no longer thought land use decisions demanded it (Mandelker 1978); of as simply an artifact to be shaped by criteria for others argued that stares should not mandate local physical design; it was viewed as a mechanism of inter- plans, because any implied criteria for consistency are relate3 parts to be selectively transformed by applying unfeasible, their costs unfundable, and their local sup- criteria derived from systems theory. The social sci- port negligible (Susskind 1978). California legislation enres were introduced to equip planners with more embodied vet other practical criteria: the number of understandirig of urban cause-effect relationships, substantive elements to be either required or allourd in Modeling urban processes, not drawing up a blue- the general plan as governing its content (Governor's print, was the key component shaping the criteria for Office of Planning and Research 1990a).' this system (McLoughlin 1969). Policy plans were introduced in the 1970s, to meet Two ocher facets ofa process orientation were citi- the social and economic concerns that had been omit- zen participation and planner advocacy for the poor. ted in the so-called comprehensive plans for physical These concerns, too, introduced their own criteria, development of the 1950s. These plans, however, of- And in broadening the planner's perspective, social sci- ren deliberately omitted the land use element and the encealso cast doubt onrhevalidityoftraditionalplan- accompanying criteria for maps and diagrams, pre- ning criteria There was no unitary "public interest," ferring a verbal- set of policies organized according to the social sciences reported, nor any possibility of ra- functional systems (Macris 1994), Kaiser, Godschalk, tionalism and comprehensiveness 'Satisficing', and and Chapin (1995) noted that the lack of maps in pol- 'disjointed ircrementalism' were put forward as more icy plans embodies one of their prime criteria-geo• realistic views (Simoa 1957; Bra) ,rooke and Lind• graphic flexibility, and that they also reflect criteria of blom 1963), although it was not proposed that they appropriate scale that apply, especially at the state be criteria as well. Planning's legitimacy could be be- level, where land use maps may be inappropriate. stowed only by a participatory or advocacy process. Per- Cleveland's Policy Plan, on a different rack, empha- haps the only real use of a plan in this view was as sized economic redistribution; it became an exemplar a communirybased counter plan to one proposed by of a radical plan designed within, yet clearly stretch. city hall. ing, the criteria imposed by a conventional institu- With chip, emphasis on the process of plan making, tgonal context (Krumholz, Cogger, and Linner 1975), many professionals came to view plans as a side-show, the nain event being the larger processes that encom- Plans as Responses to State and Federal Planning passed plans along with other planning activities. Mandates. During the 1970s, state-wide plans came • • Hence, criteria for plans were deemed unimportant. into being, often triggered by environmental concerns Catanese (1974), however, questioned the wisdom of (Wilson, Tabas, and Henneman 1979; DeGrove 1993). emphasizing process over plans. Process, he said, The California Coastal Plan, drawing heavily on geol- might be the theoretician's chief concern, but it was ogy, biology, and other natural sciences, was an early r 336 APA JOURNAL. SUMM ER 1997 • - - _ • • • GENERAL PLAN EVALUATION CRJTERL4 example that revealid the potential authority of the by Litchfield, Kettle, And Whitebread (1975) or by Kai- natural sciences in a plan and demonstrated chat envi- set, Godschalk, and Chapin (1995), we can call this ronmental effects were powerful evaluation criteria, step plan assessment, an assay of the plan in process. Most recently, in this vein, habitat conservation plans Plan assessment evaluates professional expertise: the (HCPs) have introduced substantive criteria based on plan as a document communicating methodology, rea- biodiversicy and ecology (Beasley 1994), soning, and content, it operates At the moment of Oregon produced the first comprehensive state bringing a plan into being. (The stage for plan assess- plan, with explicit goals to direct state agencies and ment is shown in figure 1.) local governments in their land use decisions. In gen- Criteria are needed for what the plan as a docu- eral, the state mandate processwas top-down and hier- ment should include, and how its professional compc- archical, and invoked criteria relying on command and tence should be judged. At minimum, these criteria control (Buschbaum and Smith 1993), Each city's in- should guard against serious errors of omissions, in a dependent preparation of is plan, as assumed by the fail-safe approach' A minimalist way to do that is to early advocates of the general plan, gave way to criteria set down the criteria for a bad plan. Hansen (1968) of intergovernmental coordination. To the traditional argued chat one can have little respect for a plan chat. criteria of internal consistency were added state re- acterized by: unavailability, pedestrian style, obsoles. quirements for vertical consistency between plans of cence, incomprehensibility, unreality, or neglect. But these state agencies and those of local government a profession needs criteria beyond mere admonition. (Oregon, New Jersey, and Florida); for horizontal con- Positive criteria should be available that specify what sistency, or agreements between communities (called plans should have to meet professionally approved stan- "cross-acceptance" in Nety Jersey); and for temporal con. dards of practice analogous to the accounting profes- sistency (called "roncurrency" in Florida), ensuring that sion's "generally accepted accounting standards." One infrastructure developmenr nor lag behind new pri• example is California's PLATO (Governor's Office of vate development. Planning and Research, 1990b), a set of plan criteria, California enacted so man,? requirements for an- and the related 346-page guidelines for general plans cillary plans to fit within the general plan that it (Governor's Office of Planning and Research, 1990x), i implicitly created the general plan as switchboard Cri- from which still more criteria can be derived. l teria now invoked interplan compatibility, so that the Criteria for the plan as a document also would more narrowly designed technical plans co,Jtd "plug respond to the changed legal expectations about I, into" the General Plan, and so connect to each other planners competence and skills.TheUnited States Su- as well (Governor's Office of Planning and Research preme Court and many state courts are signaling plan- (1990a),° Compatibility ben,een different state. nersthatthere must be betterdocumentation ofwhat mandated technical plans suggtsts a new major trite- they propose and why (Nolan r. Calrfornia Coastal Com. rion for evaluation, that of transaction costs (Alexan- mission 483 US 825; Dolan n City of Tigard 129 L. Ed der 1992). 2d 304 at 320 and 323 [1994]). Increasingly, traceable At the federal level, other administrative man- "footprints" are required to show how planners got dates were introduced that reshaped the plan. Brooks from their description of the current situation towhat (1979) described the result as the "administrative reg- they recommend for the future (Governors Office of ulatory model," reflecting federal requirements to Planning and Research 1989). Mere assertion that the plan for clean air and water (State Implementation plan is in the public interest must be replaced with Plans [S1Ps]). Key criteria for these plans were that evidence that it is. they show how the plan would be implemented and who was responsible for implementation. Plan Assessment Over Time Another approach to plan assessment is, like post f Criteria for Evaluating the Platt as boc evaluations, comparative, but comparative over l Embodied by the Document time, asking: Has the state of the art of plan-making improved?' Ic would seem so.The four editions of the Plan Assessment While Preparing the Plan classic planning text, written by Chapin in 1957 and • The discussion in the previous section was-except revised by him in 1965, with Kaiser in 1979, and with • for plan testing-about evaluations after a plan has Kaiser and Godschalk in 1995, demonstrate how plan. been formulated. Another kind of "evaluation" to be making has changed, for the text has always been at examined here is carried on a-bde the plan is being for- the forefront of planning practice, nicely capturing mutated. To distinguish it from testing and evaluating a sophisticated view of he respective eras. Kaiser, the merits of substantive plan alternatives as discussed Godschalk, and Chapin's 1995 edition reflects a plan- , APA JOURNAL-SlAIMER 1997 337 • C . ' • • \t' UrA.U c, BAER Adequacy of Context. (Explain the rontcxr anJretting-. the Procedural Validity. (Explain the who and the how oftbe uhat and she, whyoftbedos-ument.7beyare not«jeridentto plan-making;info'mthe readerabontuhat urrtonin making tbe pubrtc,) the plan and w bit it going on by publishing it) I. Is the political/legal context of the plan explained 1. Who was involved in the plan formulation (e.g, staff (e.g, meeting srate mandates, public discussion and from different agencies or departments, citizen consideration, top priority issues)? groups, politicians)? 2, Is the administrative authority for preparation indi- 2. How were they chosen (e g., on the basis of expertise, cated (Council or Planning Commission resolution, interest, volunteering, or other selF-selecrion)? stare law, federal requirement, etc.)? 3, flow were they involved (e.g., discussion groups, inter- Is the role of the preparing agency or firm adequately nal staff memos or papers, public meetings)? explained (e g., a letter of transmittal)? 4. How were data, models, goals, and other pertinent in- 4 Is background information presented (e S, reasons formation used in recommending policy or action? for plan's presentation)? S. How were technical matters transformed into recom- 5. Is it clear who the plan is for (e g, citizens, agency mended policy (e g., through 'ordinary knowledge; head, city council, board)? experience, 'scientific" training, design training)? 6. is the purpose of the plan explained (e.g., study, infor. 6. Was an advisory group used? mation, decision, action, conveyance of advice)? 7. Were preliminary drafts circulated for public 7. Is the type of plan and its scope reported early on, to comment? alert the reader about what to expect? (E S,, the reader is alerted char [his plan is highly quantitative and ana. Adequacy of Scope. (Sbou, bou, the plan is connected to the I) tic; far ranging or narrow; specific, and technical.) largertrorld.) 8, Is an overview/summary, provided (e S., an "Executive Summary")? I. Have all possible or pertinent issues been considered 9. Is the source of funding for the plan shown (e.g., fed- (e g., physical, social, economic, political, psychologi- eral, state, local, private donor, agency)? cal, cultural, or design)? I0. Is the amount of time in preparation shown (total per. 2. Have issues of efficiencyand:quity and predictability son/hrs. weeks. etc.)? been considered? 3. Has the !iscribucion of costs and beneficr among dif- "Rational Model" Considerations. (Shou• hasirplanning ferent groups and interests been considered? ( rmuidcrariotu based on undeq)mg theory and its criteria Even 4. Have relocation/displacement implications been con- t. bn oad the lust b,-re, there are many tivor;er and rypn of planr. sidered? Thrplan authorimurtbe Heir themselvesabout what they An do- S. Have financial/fiscalimplicarions been considered? ing, to transmih-Lviry to tix read,7). 6. Have the legal implications been considered? L Given the type of plan to be prepared, are the plan 7. Has feasibiluy in the larger political context been con- rormularors clear about the criteria they will use to as. sidered. scss its progress while being formulated? 2 Have these criteria been made exphcir in the plan? Guidance r r Implementation. (Afore planrare intendedto 3, Are problems specifically identified (or only implied)? dosonsetbing Consider A, instrumentsltordinancer, regulations, 4. Are goals and objectives explicitly identified? budgets, schedules, etc.] and the agencies and permnr responsible 5. Is the cone of the plan commensurate with the plan- for making the plan work. Shotrfd they beinclrtded? fA ririon ning approach recommended (e.g., comprehensive, in. p'sn would not barvan implementation arpecr rather, ira ould cremenral, advocacy, etc.)? barK a tertion dealing u irh "the next iteps.'I) a) If the plan is intended to be comprehensive, does 1. Are implementation provisions appropriate in the it relate substantively to a larger whole (e g., hori. plan? zontal relation to other agercies and adjacent gov. 2. Are there priorities for implementation? ® erning bodies)? 3. Is cost of implementation vs. nonimplemen tation con- b) Does the plan consider the regional or next higher sidered? level of government or context (e.g, verticaI re- 4. Is there a time span for plan implementation? lation)? 5. Is there provision for scbeduling and coordinating of c) Is there planning for procedural coordination with implementation proposals? other plans and agencies? 6. Can proposals accomplish their intended purpose if 6. Is the capacity or adequacy ofexisting infrastructure implemented? and organizational systems described? 7. Is there a program or proposal for an impact analysis? e 7. Are alrmatives listed, or at least considered? S. Is the agency or person responsible for implemenra- • 8 8. Are the alternatives identified as "variations on a tion identified? theme," or as radically different? 9. Can the responsible agency realistically be expected to 9. Are tradeoffs permitted? implement the plan? , IGURE 3. Some suggested general criteria for plan assessment 338 APA JOURNAL SUMM Er. 1997 I • • r GENERAL PLAN EVALUATION CRITERIA Approach, Data, &RII Methodology. (Afakeclear the techni- S. Is the tone of the document consistent with he mes- ral baser, f any, of the plaq inhere the etara come from and hour sage conveyed (e g., not presented in the put tense as tote) are acted, to that others may check & plan's thinking by use an accomplished fact when the plan is for study and of the sat niemurcu.) review)? 1 . Is the plan based on a wide spectrum of data where 6. Are the criteria indicated by which the plan is in- easible? [ended to be judgeda f . 2. Is the plan sufficiently flexible to permit new data and Plan Format. (Other forms ofrommunication are found in the findings to be fed in? plan format itself, at u ell ar eridence on who takes professional re- 3 Arc the don sources cited? sponsiNlrty for theplan4 formulation, a ben it war adopted, and 4. Are the methodology sources cited? other seemingly incidentil concerns that neveribeletr communicau 5, Are the levels of data aggregation relevant or meaning- professional competence.) ful to the study? 1. Are the size and formar conducive to the use in- Quality of Communication. (Clear communication above retitled? (For example, an oversize plan is hard to file all else is mecevary fora fair hearing from others.) and copy, hence does not lend itself to constant refer- ence and day-to-day use.) 1. Is the client or reading public identified (e.g., public 2. Is the date of publication shown? at large, ocher professionals)? 3. Are the authors shown. to indicate professional re- l. Are the ideas convincingly presented, given the nature sponsibiliry (names of personnel who worked on the of the audience? plan, as well as agency or firm names)? 3. Are the rationales behind the decisions effectively pre- 4. Is there a table ofconctnts? sensed? S. Are pages numbered? 4. Are the proposals/recommendations/conclusions con- 6. Are graphics used to best advantage? sisrent with objectives? Z Is the plan attractively laid out? FIGURE 3 continued ning practice substantially better grounded than the Flecrion on what is being done in plan-making, while it practice viewed in the original 1957 edition. Presum- is being done. ably the profession's plans would fare better under Gruft and Gutstein's criteria today, some 20 years possible Objections to after their formulation. On the other hand, today we Using Criteria might expect the criteria to have improved as well. g Sriftel and Boswcli's (199.1) first three criteria: (I) time Modernist Objections horizon (e.g., discount rate); (2) risk analysis (c g., There are several possible objections to using cri- types of uncertainty considered); and (3) intergenera- teria, and/or these in particular. First, it might be ar- tional equity would not have been posed in earlier gued that cite criteria listed in figure 3 are for the most days. part restricted to internal professional reviews: either as self-testing criteria, or as criteria that one profes- Plan Criteria-a First Cut sional would use to judge the work of another.' In- It is time to present some specific criteria.. A list deed, other types of criteria are possible, based on, say, of plan criteria is bori tg in the same way a list of political accountabili-yor the self-interest ofdifferent • household tasks is. Criteria are most useful and inter- groups; these criteria, however, should be (and will be) esring when one is actually preparing or evaluating a developed by nonplanners. plan. Therefore, instead of presenring a series of sug- A second objection: clarity, explicitness, and a gen- gtsced lists, I have gathered lists of partial criteria erally well articulated and documented plan under the from the literature and formed them into a composite criteria found in figure 3 may nevertheless have little list (figure 3) of about 60 items, grouped into eight effect in the real world (Dror 1968). This critique re- basic classifications. Elects the view that "things are not as they seem," that , p The criteria are not definitive. They are advisory says "What is "ally happening is and that goes • • and suggestive. They are intended both as a check list on to invoke a conspiracy or cabal, or to deplore the s f possible ccnsiderations during plan preparation, obvious mystification employed by the plan to dis- :nd to stimulate plan authors to devise variations and guise what really transpired. Plans as conspiracies are additions they find more pertinent to their particular hard to disprove. Every subsequent event is said to re- plan. The aim is to generate formal, self-conscious re. inforee the charge. Even those bits of evidence that APA JOVR."4AL • SUMMER 1991 339 r a R7LLI.AM C. B.AER urould seem to refute the charge of a conspiracy are rems rather than technical pronouncements of cause used to demonstrate how insidious and subtle the plot and effect (e.g., Fischer and Forester 1987, 1993). really is. In this ligfir, plans increasingly came to be viewed Third: technical quality, the characteristic empha- as vehicles for reasoned argument rather than as de• sized here, is merely one approach to doing better. positories of scientific and rational findings (Fischer Other reckonings may find criteria and principles of and Forrester 1993), hlandelbaum (1990) suggested technique to be the planning problem, rather than the ways of considering a plan: as a policy claim (a system planning solution. There are two reasons, for command and corttrul with inputs and outputs); 1) Formal, legal criteria can become a litigious night- as a design opportunity (a response to a problem or cri• mate. Criteria become hooks upon which to drape sis); or as a story (a narrative that imposes structure, all kinds of cloaks for all kinds of reasons, many of with beginnings and endings, upon what is really an them having nothing to do with "good" plans, but endless fluts• of events). Throgmorron (1993) empha- rather with narrow goals of interest groups. The sized [heplan's inevitable rhetorical asp czsandactivi- Environmental Impact Review process in Califor- ties, constituting attention to its audien.e (and in the nia is a good example of checklists and criteria be- Process of writing for one audience, perhaps creating ing subverted for untoward ends, another). He also noted the plan's unpredictable play 2) Technical failings such as vagueness, ambiguity, or of meaning despite the expert's stance of solitary ob- even inconsistency and generality may foster a jectivity,andemphasized that this aspect, however dis- plan'ssuccess. Frequently these very qualities meet corrmfiting to some planners, is inevitable in all plans, others political necessities for a plan's survival (Alt. have echoed the notion of pans as 'texts to b, read': shuler 1969, 132-3). Unfortunately, an outsider evaluating a plan can- Are theyscien6fical [sic] reports, i.e, discussions of not discern whether its technical inadequacies were some related empirical evidence? Or code;, i.e. sys- deliberate, to satisfy political demands, or were the re- rems of norms and commands? or politicalperora• salt of professional incompetence. Worse, again for tions, i.e. rhetorical praises of some definition of political reasons, the plan cannot even refer to the po- the publicgood? Or dramar, i.e. sequences ofacci- litical criteria it follows. To politicians, "dumb" plan- dents and solutions, each having its turn? (Fer- ners are often a blessing, indeco, what the plan does raro 1994, 210; emphasis added) not say may be more important than its explicit criteria Specific criteria for plans from the postmodern (Milroy 1991). These kinds of concerns lie beyond pro- perspective are only beginning to emerge, for example, fessional criteria, responding to meta-criteria of pro- Healy's (1993) criteria ofdiscourse and discourse com- fessional norms, values, and ethics (Fischer and m Foreseer 1987). unities, communicative work, and power relations. Such postmodernists clearly invoke different dimen- Postmodernist Objections sions ofcriteria than the conventional ones discussed op above; indeed, at times they seem to conventional the feasibil- The postmodernist critique of plans seems to tcr;iuria. Con- Con- pose criteria like those outlined here, and is probably sider the following postmodernist criteria: even more opposed to those imposed by state man- dates. Both types assume the conventional expecta- The texts of the postmodernist planner, in fact, tions of all professions: a mastery of a technical body should be consciously fragmented and contin- • of knowledge and praxis to be used in furthering the gent, nonlinear, without aspiration to com- public interest. Krieger 's (1981) critique, for instance, prehensiveness, singularity, or even compelling attempts to peel away the scientistic veneer of plans authority. This clearly contrasts with the master by reminding us that plans are, after all, human cre- plan of modernist planning; it is meant to be co- ationa; for all their objective and putatively scientific hesive and visionary. (Beauregard 1991,192) trappings, they are really only "stories." Some post- modetr.ists would go further, questioning the very Plans, in the postmodern view, can't be compre- A presumption of technocratic expertise in figure 3, and hensive ar.d internally consistent, given the myriad O claiming that such expertise should be demystified; voices in the community, Plans cannot always be ex- that plans should be viewed onlyas parts of more basic petted to "do things"; their function often turns out discourses and arguments; that an orientation to rhe- rather to be expressing and legitimating beliefs tomake torical skills is at least as important as technique; that those in control feel meritorious. Plans should facili- plans are a means of expressing values and belief sys- cute doing the right thing, but the rightness, if there 340 APAfOUMAL•sUMMER 1997 WW e e GENERAL PLAN EVALUATION CRITERIA is one, may emerge'only in the course of the "argu- raised by the postmodernists.Ifpostmodecnviewsare ment" of which the plan is but a part. true even in part-and is would be hard to wholly deny Surprisingly, Jack Kent (1964), an early general them-they raise troubling issues for state mandates, plan theorist ignored for thirty- years by other plan- Are these stare mandates beside the point? Should ning theorists, had in the 1960s anticipated many of postmodern criteria be urged as substitutes or as com- these salient issues of the 1990s. For instance, he em- plemants? Can postmodern criteria be operationa- phasized such criteria as the need to decide who the lized? What would be the effect, for instance, if state client of the plan is (the issue of multiple voices), For mandates required something operationally poscmod. Kent, the client was the City Council rather than the ern like the following? Planning Commission or the City Manager. He then § xxx.l. The plan shall be both instrumental and ex- disrussed how the city council should use the plan (the an event policies es conflict should the b fatter is "argument' issue), claiming it should be for legislative ppararessive, In mount. the m• rather than advisory or administrative use. He said pars y ambiguous to obfuscate the inherent that the five legislative uses of the plan (meta-criteria, contradictions in society. perhaps?) were for (1) policy determination; (2) policy § xxx.2. The plan may be fragmented and nonlinear, effectuation; (3) communication of these policies to constituting one of many possible stories thecommunity; (4) exchange ofinformarion pertinent rather than a definite scientifically-based to planning concerns (conveyance of advice); (5) in- finding Oran account ofcause and effect. The creasing the community's knowledge about planning plan in its particulars should hold up a mir- problems and prospects (education). ror to the disjointed nature of society. This orientation led him to recommend (in antici- pation of the "rhetoric" norm) that the plan should be The examples are no doubt strained, but they in a form suitable for debate. Indeed, he argued that point up a weakness when postmodernism moves the alternatives considered and rejected in the plan from critique to recommendation. Postmodern values testing phase should nonetheless be kept in some fash- are easily abused in the name of discourse. Planners, ion, so that lacer citizens could learn and consider bewildered by postmodern "weighrlessness," could ( what the choices had been (Kent 1964, 89). Kent's readily develop criteria that areMachiavelhanapplica- modernist answers to his postmodern question may lions, similar to the modern techniques of "spin doc. not satisfy postmodernists, but the issues he raised tors." Planners who become skilled in rhetoric could suggest that even modernist planners, as well as craft- easily become like the rhetoricians of ancient history, ers of stare planning mandates, cannot escape post- sophists consrrucr;ng political perorations-or, worse, modern questions. If these questions cannot be political pirouettes. And what can citizens expect from esca},ed, do postmodern criteria belong in state man- a postmodern mandate after politicians learn to "in- dares? T'he issue .ill be discussed in the article's con. terpret" the mandate in postmodern ways, indeed elusion. learn to "deconstruct" their local plan;? Postmodern- ism's "multiple vocalities" can become a rationaliza- Conclusion tion for a wide variety of political postures and The emphasis here has been on the plan as a prod- duplicito..s actions. Such cynicism is not what post- uct, nor the plan as an incidental output of the modern values intend, but these consequences are planning process. Evaluation criteria for plans are it.- likely even if unintended. e porrant in both the several aspects ofplan-makingand The criteria presented in figure 3 are one answer in post hoc evaluation. I have paid special attention to to what is still a modernist world, i.' hemmed in by plan assessment, and the criteria to be used in the some postmodern cautions. Tlu critera are explicit; course of making and assessing the plan. Criteria the results of applying them will be relatively self- should noc be viewed merely as a checklist, nor re- evident, the necessary corrections to a plan to meet ceived unquestioningly from on high, whether as state the criteria are relatively easy to make. And the results mandates or some currently fashionable theory. In- are understandable to politician and citizen alike. In stead, planners should devise their own criteria in thecoerm these respects the modernist criteria reflect all 20th- O of making theplam A planner's skill should include the century professions belief that professional criteria e ability to formulate criteria a1 well as to prepare goals can be systematized, codified, professionally approved and objectives for a plan. (like accounting standards) and helpful to the public. Yet what kind of criteria should be used? The se. Moreover, present-day legislative mandates pose a ries of modernise objections discussed in the previous special dilemma chat chest criteria can help to resolve. section ineluctably lead to the type of arguments At the moment, state planning mandates are fro- i APA JOURNAL-SUMMER 1"7 341 e s • VILL1AM C. BAER quently a curious amalgam of incomplete views of the that citizens and community leaden can also accurately plan, joined with assorted criteria engendered by in. evaluate the entire work program and individual work teresr groups uninformed about the relationship be- elements (Thomas 197I), nveen plan concept and criteria. Planners attempting 7. Keene and Strong (1970) for instance, in describing the to meet stare mandates find themselves both devising making of the Brandywine Plan, presented a technical the plan concepts that the state-mandated criteria elegance matched by few others of that era. However, they but could not articulate, their authors not be- also said that the plan with its heavy baggage of legal, hydrological, financial and research goals was ing experienced in planning theory; and also inventing probably overloaded," andadd that these technical atrri• the plan evaluation criteria that the incomplete state- butts may have contributed to its defeat. Today, the mandated plan concept implies. Focusing on plan same baggage might not seem so heavy. City councils evaluation criteria and their relationship to the vari. and the public are now much more technically sophisti- ous stages in making plans, as suggested here, should cated, willing to follow planners and other experts in ellow planners to deal better with the naive enthusi. their technical labyrinths. asm that frequently gets incorporated into state man- B. I am graceful to one of the reviewers for pointing this dates. These evaluation criteria will remain helpful to out to me. planners so long as they do not become totally enam- ored with the technique and expertise that the trite- REFERENCES ria imply. Alexander, Ernest R. 1992. A Transaction Cost Theory of AUTHOR'S NOTE Planning. JaurmdoftheAmerican Planning Auoclation 58,2: 190-200. 1 am graceful for the indulgence of thrice anonymous review. Alexander, Ernest R., and Andreas Faludi. 1989. Planning ers who put up with considerable imperfections in an earlier and Plan Implementation. Environment and Planning 8: draft while ofrering enormously helpful comments. Niraj PlanningandDesign 16: 127-a0. Verma and Chris Williamson also made helpful comments Alterman. Rachelle, and Morris Hill. 1978. Implementation on an earlier draft. This article is a substantial revision of an of Urban Land Use Plans. Journal ofthe American Institute uncompleted draft, "Plan Appraisal: An Approach to Plan- ofPlannerf 44,3: 274-85. ning Practice and Education," written 20 years ago with my Altsbuler, Alan. 1965. The City Planning Process. Ithaca, NY: colleague, Ira Robinson. Tridib Banerjee made useful corn. Cornell Uoiversicy Press. n,ents on this earlier effort as well. 1 am, of course, rtspon- American Law Institute. 1976. A Model Land Development sible for any errors. Cafe. Chicago: American Law Institute. Ashby, W. Ross. 1958. Requisite Variety and its Implications NOTES for the Comrol of Complex Systems. Cybrrneric 1, 83. In Facen of5yseentl Science, edited by G.J. Wit. New York: Ple- 1. Sce, for instance: Berger (1967); Hill, 1967; Villamil num. 405-17. (1967); Review Forum (1970); Schneider (1972). Bassett, Edward. 1938. The Matter Plan. New York: Russell 2 Alexander and Faludi (1959) provide a richer discussion Sage Foundation. of the situation in the 2-4 instances. Beatley,Timothy. 1994, HabitatConfervation Planning Austin: 3. Tridib Banerjee made a number of perceptive observa. University of Texas Press. tions about the plan in a review of an earlier draft of Beauregard, RobertA, 1991. Without a Net. Modernist Plan- this paper, when he noted that when a plan-especially ring and the Postmodern Abyss.Joumil ofFlanning £duca. a gcneral plan-is prepared, it sometimes serves as a tion and Research 10,3: 189-94, source book for the community, a kind of 'yellow Berger, Wallace. 1967. The Lower Manhattan Plan. Journal of pages," or community manual of social information. Ac- the American Institute ofPlannerr33,4:284-6. cordingly, the plan in historical retrospect can serve as Berke, Philip, and Steven P. French. 1994. The Influence r,f the "minutes" of an era, recording both objective as- State Planning Mandates on Local Plan Quality.Journa; of pests of a community and in normative concerns as PlanningEducationandResearch 13,4:237-50. veil. Bollens, Scott A. 1992. State Growth Management:Inrtrgov- 4. Examples of these elements include: circulation, open ernmentaT Frameworks and Policy Objectives. Journal of space, housing, seismic safety, and noise. the American Planning Auoia,'ian $8,4: 454-66. 5. California has requirements for: a coastal zone plan, Braybrooke, David, and Charles E. Lindblom. 1963. A Srrat- specific plans, congestion management plans, noise egycfDerision. New York: Free Press of GltnCOe. 0 management plans and airport land use plans (all man- Brooks, Richard O. 1979. The Law of Plan Implememarion daced), among others. in the United States. Urban Lam Annual 16: 225-69. 6 Criteria provide some administrative benefits as well. Burby, Raymond J, and Linda C. 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