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HomeMy WebLinkAboutSmart Growth Draft Recommendations Memo GROWTH MANAGEMENT DEPARTMENT PLANNING DIVISION M E M O R A N D U M TO: Smart Growth Committee Members FROM: Peter W. Jones, AIA, Planning Manager DATE: February 6, 2009 SUBJECT: SMART GROWTH DRAFT RECOMMENDATIONS Per the Resolution establishing the Smart Growth Committee and the Committee’s charge to make recommendations to the Board of County Commissioners (BOCC) the following (draft) recommendations are for your review, discussion and approval for presentation to the BOCC. These recommendations come from the American Planning Association’s Planning Advisory Service Report No. 512, Smart Growth Audits. Further, the recommendations have been fashioned from the Report’s Audit Checklist. As such, the recommendations are as follows: 1. Efficient Land Consumption a. Develop methodology to substantiate population and employment projections and their derivation from state and/or regional projections. Population projections provide basis for numerous planning efforts such as households, number of housing units, required acreage for such land uses, as well as requisite infrastructural requirements. b. Develop methodology for projection of housing units needs on housing needs assessment. c. Develop methodology for reasonable projections of housing units by type (single- family, multi-family) and related densities and then only modify Future Land Use Map (FLUM) in concert with projections. d. Determine “efficiency” of FLUM in terms of amount of land use devoted to residential land use compared to projections of residential land use needed. “Efficiency” is defined to mean that the amount of vacant acreage devoted to residential uses should be approximately equal to the projections of land use needed for residential use based upon the housing needs assessment. Smart Growth notes that exceeding the projected residential acreage needs by more than 15 percent in the FLUM (may be shown by calculating difference between existing residential land-use acreage and future residential land-use acreage shown on FLUM). 2. Direction of Growth (Inward, Not Outward) a. Confirm and strengthen (if necessary) land-use policies favoring “inward direction of growth” (infill development) and modify Land Use Code (LDC) accordingly. As opposed to promoting or favoring new development on the fringe of developed areas. SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 2 of 10 b. Develop land-use analysis that identifies, in quantitative terms, the potential for residential infill development (in numbers of acres and preferably build out potential in numbers of units). c. Develop land-use analysis of redevelopment potential identifying potential housing units and/or square footage of non-residential development. d. Confirm and/or strengthen any land-use policies recognizing the need to reclaim and reuse any temporarily obsolete sites (TOADs) and to clean up and reclaim for future use any “brownfields”. 3. Density a. Develop analysis of developed residential densities and how they relate to planned densities and densities permitted by zoning districts. Counties and Cities should calculate the built residential densities (i.e., number of units per acre) of recent developments to determine the average or prevailing densities being constructed. Smart plans bring actual (developed) densities in line with densities recommended in plans and allowed by zoning ordinances. That is, should the number of residential acres consumed vastly exceed the number of acres projected to be used during a given time period, residential growth has occurred inefficiently, counter to accepted principles of smart growth? b. Determine whether land-use policies encourage the establishment of minimum (not just maximum) densities to promote the efficient use of lands designated for higher densities. Alternatively, determine that the plan does address any findings that density allowances in the land-use plan and zoning district have been underutilized. c. Establish land-use regulations with minimum zoning densities to promote efficient use of lands designated for higher densities. Underuse of residential lands, due to building at lower densities than planned and zoned, results in the land consumption for residential use that is faster than planned. Therefore more land is needed for residential uses, which probably means that land needs will be satisfied by removing more land from productive agricultural use at the urban fringe. One way to achieve more efficient land use for residential development is to establish minimum densities in areas where it is very important that planned densities be achieved (e.g., around transit stations or in areas master planned for sewer service). d. Create minimum lot sizes that allow for zoning urban-sized lots. Zoning ordinances should provide a significant portion of single-family zoning devoted to single-family development on lots of 5,000-6,000 square feet. e. Plan for and zone at least a portion of the residential land in for densities between 8 and 15 dwelling units per acre, with even higher densities provided for in urban centers. SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 3 of 10 4. Urban Form a. Confirm and/or strengthen the land-use plan so that a sequential, phased pattern of future development in areas contiguous to developed areas so that a compact urban (or suburban) form may be obtained. Smart growth means that urban areas are expanded efficiently (only as much land is used as is needed) and in a pattern where new growth is contiguous to existing developed areas. To develop in a contiguous and compact form means that scattered development and sprawl can be avoided. Sequential development also provides for a better return on the public investment in public facilities, and it reduces the linear footage that facilities must be extended. b. Through the EAR Implementation process regarding the western lands study consider whether zoning regulations should zone much of the fringe land as exclusively agricultural (i.e., a holding category) or with a substantial minimum lot size that discourages single-family tract housing and preserves large sites for viable farm use. Smart growth means that land-use controls inhibit the scattering of low-density residential uses at the urban fringe—a condition that constitutes the epitome of sprawl. Many local governments in the metropolitan Atlanta region have “agricultural” districts, but they allow a minimum lot size of one acre. Minimum lot sizes need to be much higher (i.e., 10 acres is probably the smallest land area that can function effectively as a farm; preferably 25—40 acres) to discourage “exurban” development, “hobby” farms that are really residential tracts, ”ranchettes” and other forms of low-density suburban sprawl. In cases where large agricultural minimum lot sizes are not feasible, the smart growth auditor should look for other ways that the comprehensive plan and regulations discourage the consumption of agricultural lands on the urban fringe, such as a greenbelt or taxation policies. 5. Land Use a. Confirm and/or strengthen or create additional land-use plan designate areas, where appropriate, for mixed-use development. b. Confirm and/or strengthen or create plan policies opportunities for and encourage the mixing of land uses at the building, site, and neighborhood levels. c. Confirm and/or strengthen or create zoning ordinances that provide at least one or more zoning districts that allow mixes of residential and commercial uses. d. Confirm and/or strengthen or create future land-use plan and zoning ordinances allowing for compatible, small-scale neighborhood commercial uses (e.g., corner stores) adjacent to or within residential neighborhoods. e. Consider strengthening the local zoning ordinance to provide for traditional neighborhood development (TND). f. Consider occupation regulations flexible enough to allow a wide variety of telework activities while maintaining the peace and quiet of the neighborhoods in which they are located. Mixing of land uses is a major tenet of smart growth. Plan policies and land- SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 4 of 10 use regulations should provide for—and even encourage—mixed land uses, especially residential and commercial. Such mixtures allow people to work and reside in the same area, sometimes even in the same building. It is generally accepted that mixing land uses allows for walking more and reduces vehicle miles traveled, which can help to improve air quality and relieve traffic congestion. 6. Jobs-Housing Balance a. Confirm and strengthen (or create if necessary) comprehensive plan consideration of the appropriateness of balancing jobs and housing, both qualitatively and quantitatively. b. Confirm and strengthen (or create if necessary) small area plans or corridor plans for the community to consider and integrate the notion of jobs-housing balance. c. Confirm and strengthen (or create if necessary) planned unit development (PUD) regulations to provide for an appropriate mixture of housing and jobs. The concept of jobs-housing balance holds that communities should plan for a rough match between the number of jobs and the number of housing units. A desirable range is approximately 1.5 housing units for every job in the community. Plans should also investigate whether the characteristics of housing in the community match the needs of workers residing in the community and whether the types of jobs in the community match the skills of the resident work force (i.e., consider the “qualitative” aspects of balance). A quantitative balance of jobs and housing does not necessarily signal smart growth, especially if there are qualitative mismatches between jobs and housing. 7. Open Space/Green Space a. Confirm and strengthen (or create if necessary) goals, policies, and implementation measures to set aside a certain percentage of total land area in the community as open space or green space. b. Confirm and strengthen (or create if necessary) that all (or most) zoning districts require a minimum open-space ratio (i.e., percentage of land area for each development that must be open space). c. Confirm and strengthen (or create if necessary) land-use regulations that require developers to consider connecting open spaces and greenways to existing destinations and open space reservations. d. Confirm and strengthen (or require as necessary) that all open spaces and green spaces are accessible to all or most of the residents of the community. Many cities and counties in Georgia have developed green space plans, which establish the goal of maintaining a minimum of 20 percent of the jurisdiction’s land area as green space. Smart growth plans establish a goal for green space acquisition and permanent protection, provide an inventory of obstacles to attaining the goal, and establish specific programs of implementation to meet the goal. Counties and cities that are not SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 5 of 10 eligible to participate in a state’s green space program should nonetheless have goals, policies, and programs in place to acquire and preserve green space. e. Confirm and strengthen (or create if necessary) land-use regulations that provide for “conservation subdivisions” or “cluster and subdivisions” as a matter of right (versus requiring a conditional use permit). Open space, conservation, and cluster subdivision practices are effective ways of setting aside green space and open space. Local regulations are not smart unless they provide for—and even encourage—these types of subdivisions. When clustering or conservation design is not allowed, developers subdivide land into individual lots that rarely preserve natural features and open space. 8. Energy Conservation a. Confirm and strengthen (or create if necessary) comprehensive plan identification of energy conservation as a goal, and do policies exist to promote energy conservation. b. Confirm and strengthen (or create if necessary) land-use regulations that require the planting of shade trees along new subdivision roads and within parking lots. c. Consider developing guidelines for designing development sites and buildings for energy efficiency. d. Consider strengthening (or create if necessary) local zoning code modifications to provide an option for encouraging subdivisions to use solar power. There are multiple ways a local plan can promote energy conservation. For instance, tree protection ordinances help retain and enhance shade, which reduces cooling costs. Shade tree requirements along streets and parking lots provide aesthetic benefits in addition to helping to attain energy conservation objectives. Local governments can adopt design guidelines for energy efficient buildings and site designs. Though more popular in the 1970s than today, changing local codes to facilitate efficient energy use can promote the design of subdivisions with solar access, which then facilitates solar panels and cells for domestic energy use. 9. Water Quality a. Confirm and strengthen (or create if necessary) land-use regulations that prohibit development within, and the filling of, floodways and floodplains. b. Confirm and strengthen (or create if necessary) development regulations to encourage or require best management practices for water quality. c. Confirm and strengthen (or create if necessary) water-quality ordinances. d. Confirm that programs have been instituted for water-quality monitoring and other related programs to ensure total maximum daily loads (TMDL5) are not exceeded. SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 6 of 10 10. Air Quality a. Confirm and strengthen (or create if necessary) comprehensive plan discussion of air quality and identify policies and implementation measures to protect it. b. Confirm and strengthen (or create if necessary) that the community is in a “nonattainment” area, and is the local plan consistent with, and does it reference, regional, and state goals for air-quality management. 11. Housing a. Confirm and strengthen (or create if necessary) the housing element of the comprehensive plan to include a housing needs assessment? Georgia’s planning rules require a housing element and an assessment of future housing needs. However, most local governments have not completed rigorous, detailed assessments of housing needs by type of unit and income. A local plan cannot be smart unless it has forecasted the future housing needs of the community and ensured that land-use regulations provide for development practices to meet those forecasts. b. Confirm and strengthen (or create if necessary) that the comprehensive plan provides for a wide range of housing types (detached single-family, duplex, manufactured home, apartment, etc.). c. Confirm and strengthen (or create if necessary) provisions within at least some of the residential zoning districts allow for a wide range of housing types by right (versus requiring a conditional use permit). d. Confirm that the comprehensive plan meets the housing needs of all income levels, as determined by a housing needs assessment. e. Confirm that if the regional planning agency has established a fair-share allocation that mandates a specific number of affordable housing units, does the comprehensive plan reflect that goal and provide for its implementation. f. Confirm and strengthen (or create if necessary) local regulations to allow for mixed- income housing developments. g. If the housing needs assessment identifies a need for multiple-family residences, confirm that the zoning ordinance provides sufficient vacant land to meet future needs. h. Confirm and strengthen (or create if necessary) that the zoning ordinance allow for “accessory apartments” within single-family residential zoning districts. i. Confirm and strengthen (or create if necessary) that manufactured homes are a use permitted outright in at least one residential zoning district. SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 7 of 10 j. Confirm and strengthen (or create if necessary) that minimum lot sizes are set low enough in at least one residential zoning district to provide for homeownership for all income classes. k. Confirm and strengthen (or create if necessary) that the zoning ordinance provides flexibility for house sizes (e.g., does it allow small units versus establishing large minimum floor areas for all dwelling units). Exclusionary zoning is the opposite of smart growth. A community’s zoning regulations are smart only if they provide reasonable and fair opportunities for diverse housing types and price ranges. Local governments can accomplish smart growth by reducing minimum lot sizes, eliminating or lowering minimum house sizes, providing for manufactured homes in one or more residential zoning districts, allowing accessory apartments, and encouraging apartment development where needed. 12. Transportation a. Confirm and strengthen (or create if necessary) that the comprehensive plan includes a transportation element that addresses long range needs for roads, sidewalks, bicycle paths, transit, freight movement, and water and air travel (where appropriate). “Smart” comprehensive plans provide detailed assessments of travel needs via multiple modes. b. Confirm that local transportation policies provide for the maintenance of current roads and existing transportation systems before spending money on new ones. c. Confirm and strengthen (or create if necessary) that transportation policies and the future transportation system provide for local street networks (as opposed to the conventional hierarchical system of arterials, collectors, and local streets). d. Consider development regulations that would have some requirement to consider and if appropriate provide for new local streets at designated regulations intervals (e.g., every 1,500 feet). Over time, planners have learned that in addition to overreliance on automobile travel, a major cause of traffic congestion is the design of road systems. Conventional thinking, which is not considered smart growth, calls for local roads to empty onto collector roads that often empty onto a single (or a few) arterials. Because so few major routes of travel are available, traffic is concentrated on these few roads, resulting in congestion. Smart growth demands a road network with more than one means of through travel in any given area. e. Confirm and strengthen (or create if necessary) provision(s) in the comprehensive plan to provide for an analysis of local street standards and recommendations for reducing excessive right-of-way and pavement widths. f. Determine whether street standards been revised to lower any excessive requirements for local subdivision streets. Many suburban street standards require excessive pavement widths for streets (e.g., from 29 to 36 feet). Smart growth means local streets are placed on a “diet” so that “skinny” streets result. Narrowing required pavement width (e.g., to 24 feet) reduces development costs and impervious surfaces, and may increase safety by lowering vehicle speeds. SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 8 of 10 g. Confirm that sidewalks are required within new residential subdivisions. h. Confirm and strengthen (or create if necessary) development regulations that require the installation of a sidewalk along existing public streets abutting the development, where such sidewalk does not already exist. i. Confirm and strengthen (or create if necessary) subdivision regulations to allow the planning commission or local governing body to require the connection of subdivision streets to existing streets and the stubbing of streets to allow connections to future subdivision developments. j. Confirm and strengthen (or create if necessary) land-use regulations that encourage, if not mandate, the provision of inter-parcel connections between individual developments, where compatible. Smart growth includes the objective of reducing reliance on major thoroughfares. Requiring driveways to connect with adjacent store parking lots, for example, is one way to reduce traffic on nearby thoroughfares. k. Confirm and strengthen (or create if necessary) land-use regulations that are “transit- friendly” or “transit supportive”. Developments near rail stations and along bus routes need to be planned for the transit user. Smart growth here means requirements that pedestrian facilities connect from the transit corridor or rail station to nearby developments. It also means that businesses should be oriented to the transit user rather than the automobile. Various design changes are needed to make developments friendly to the transit user who will always approach a bus stop or train station on foot. For instance, large building set backs from the major thoroughfare with parking lots in front and no designated pathways on-site make for a “pedestrian hostile” environment which is counter to the principles of smart growth. Land-use plans and regulations also need to ensure a certain density threshold in the area of rail stations and bus routes to ensure they have minimum ridership levels. 13. Parking a. Review and verify whether parking regulations require excessive on-site parking requirements. b. Confirm and strengthen (or create if necessary) land-use regulations that include maximum parking ratios (i.e., a cap on the number of parking spaces that can be built in a particular development) in addition to minimum parking requirements. c. Confirm and strengthen (or create if necessary) parking regulations that provide for reductions of on-site spaces in places where transit is available. d. Confirm and strengthen (or create if necessary) on-street parking allowed in places where it can be safely provided, such as in pedestrian-retail districts. Planners and policy makers now realize that minimum parking requirements in land-use codes have been excessive, as evidenced by the vast numbers of unused parking spaces in many parking lots. Smart growth means the reduction of excessive parking requirements and SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 9 of 10 the creation of maximum parking thresholds for commercial, residential, and other developments. e. Review and discuss the potential for engineering construction specifications for parking lots allow for porous pavements where appropriate. Porous pavements are environmentally smart because they allow the flow of storm water into the ground, rather than as polluted runoff into streams and/or detention structures. There has been little research, however, to show that these pavements are viable alternatives to impervious surfaces. Generally, porous pavements are not designed to handle heavy loads such as garbage trucks. Practices today generally limit porous paving materials to overflow parking and areas that are not heavily used. Porous pavements also require provisions for cleaning or vacuuming the “pores”; without regular maintenance, they will become clogged and will no longer function as designed. Pavement engineers should be consulted when considering regulations allowing porous pavements. 14. Water, Sewer, and Other Infrastructure a. Confirm that the comprehensive plan provides clear discussions of how water and sewer infrastructure policies are tied to the goals and objectives of the land-use plan and Transportation plan. b. Determine whether water and sewer facility master plans provide for the systematic extension of future trunk water and sewer extensions into areas designated for development in the short-term, versus allowing such lines to be extended without restraint anywhere in the community. Some communities designate “urban service boundaries” beyond which the local government will not extend public water and sewer lines. Smart growth means tying facility planning and land use together. Controlling infrastructure is one of the most powerful means of guiding the urban form of a community (see related commentary on ”urban form” above). 15. Permitting Processes a. Confirm that land development permitting processes been comprehensively reviewed to identify opportunities for eliminating duplication, unfairness, excessive and unnecessary various land-use requirements, etc. If found, confirm how inefficient regulations may be reformed. b. Confirm that the community’s building code provides flexibility in restoring historic structures, as opposed to rigid requirements that discourage such restoration. 16. Regionalism and Intergovernmental Relations a. Confirm that the comprehensive plan place the community within the context of the region in which it is located. SMART GROWTH DRAFT RECOMMENDATIONS February 6, 2009 Smart Growth Committee Page 10 of 10 b. Confirm and strengthen (or create if necessary) comprehensive plan recommend intergovernmental agreements where needed to foster cooperation aimed at attaining mutual goals of community building. c. Verify and discuss whether comprehensive plan policies reflect notions of social equity and environmental justice?