THE PLANNING COMMISSION AT WORK Ten Steps in Preparing a Comprehensive Plan by Michael Chandler The primary job responsibility the third focuses on plan implementation. Other actions associated with the sec- shared by planning commissions Bear in mind, however, that effective com- ond step include: across the nation involves the prehensive planning is actually more like • Determining what role the public will a continuous loop, since feedback from design and development of the play in the plan development process. monitoring implementation of the plan’s • Identifying “key stakeholders” who comprehensive plan. Whether the plan is recommendations ideally should be used need to be involved. labeled comprehensive, master, or gener- to initiate needed changes to the plan • Deciding if the plan will be developed as al, we are describing the same thing: itself. putting down on paper the hopes, dreams, a “top-down staff/consultant effort,” a Step One: Plan to Plan. and aspirations a community holds for “bottom-up/citizen-driven effort,” or itself. No, this is not a typographical error! some combination. Capturing in words and pictures what The first step in the comprehensive plan- • Deciding whether the plan will be orga- a community hopes to become is a daunt- ning process must be a plan for planning. nized or formatted by chapters, sections, ing challenge. The task is made simpler, Key factors associated with this step or themes. however, when the planning commission include the allocation of time, human • Deciding what role the governing body chooses to systematically organize the resources, money, and energy to the effort. will play. Keeping the Governing Body process. This step is too often overlooked or short Informed, p. 10 changed. Some planning commissions While there is no universally accepted Step Three: Gather and Analyze Data. “one best way” to develop a plan, this col- seem to assume the preceding factors will manage themselves or can be dealt with as To be relevant, a comprehensive plan umn will describe one “typical” sequence must address not only issues and con- of steps that can be followed in develop- problems arise. This logic is faulty and potentially fatal to the planning process. cerns of the present, but also what will ing a comprehensive plan. likely face the community in the future. Step Two: Structure To accomplish this, the commission must PLANNING’S BUILDING BLOCKS and Schedule the Process. gather and analyze a wide array of data. Preparing a comprehensive plan The answers uncovered during Step Common to most planning efforts is involves a number of technical, political, One will enable the commission to struc- mapping the community’s natural fea- legal, and managerial considerations that ture and schedule the actual planning tures, such as soil types, topographic and will vary from one community to the process. It is not uncommon for a plan- geologic formations, and surface and next. There are, however, three phases ning commission or planning staff to pre- groundwater resources. Of equal impor- common to the planning process. The pare a flow chart featuring discrete first involves planning the process; the planning activities, the party(s) responsi- tance is mapping existing land uses and second centers on plan preparation; and, ble for each activity, and the due date. development patterns. A solid plan needs quantitative data as well. Data on demographic and socio-eco- Begin with questions – How much money will be earmarked nomic characteristics such as population Solid comprehensive planning for the planning process? Will the and age distribution, levels of educational begins with the end in mind. Before monies be linked to a particular time attainment, and employment patterns is initiating the planning process, answers frame such as a fiscal year? Will contin- typically collected. Likewise, data related gency funds be available? need to be given to several questions: to transportation usage, housing and eco- – How long will the planning process – What mix of human resources will be nomic growth trends, school enrollment, available to work on the planning last in weeks or months? and local building and development activ- process? Will local staff planners be – What future time horizon will the ity is often examined. And these are just a plan address; i.e. ten years, twenty given the day-to-day responsibility for developing the plan? few examples. Some observers have sug- years, fifty years? gested that everything associated with – What subject matter will be included – Will some or all of the plan be devel- oped by outside consultants? humankinds interaction with land should in the plan? Does it cover elements be considered and studied! – What time commitment are planning required to be included under the state Investing the time and resources to planning enabling law? commissioners willing to make? continued on page 10

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9 Keeping the Ten Steps… Step Six: Develop Plan Governing Body continued from page 9 Goals and Objectives. Informed gather and analyze data represents the Once the plan’s vision statement is heart of the planning process. A signifi- completed, the next step is to establish All of the planning commission’s hard cant challenge, however, involves decid- specific plan goals and objectives. If the work will go for naught if the governing ing how to manage the data gathering locality is fairly homogeneous and there body fails to enact the commission’s recom- process. Experience shows that having is general agreement and support for the mended plan. In order to minimize this too much data can be as much of a prob- vision statement, the selection of goals possibility, the planning commission should lem as not having enough. Clearly defin- and objectives can be accomplished with- be dealing with the governing body well in advance of when it formally transmits a rec- ing in advance the scope of the planning in a reasonable time frame. On the other ommended plan to that body for adoption. process should help minimize the poten- hand, if the vision statement took time The following strategies will help achieve tial for information overload. and effort to reach consensus on, it is this objective: Step Four: Identify Problems, Issues, likely that developing goals and objec- 1. Commitment to Communication. Plans and Concerns (PIC’s). tives will require even greater diligence. are rejected by governing bodies for many The planning commission, in part- Step Seven: Generate and Evaluate reasons. Unfortunately, the lack of commu- nership with the local planning staff, will Plan Options. nication between the planning commission need to sift through the data accumulated and the governing body, especially while Finally, it’s time to start drafting the the plan is being developed, is a primary with the goal of identifying the signifi- plan! One common approach involves reason plans are ignored or set aside by cant problems (and opportunities), the development of a draft plan featuring local legislatures. The planning commission issues, and concerns facing the commu- a series of chapters or elements focusing can avoid this by reaching out to the gov- nity. This step is crucial because the on selected topics. For example, the draft erning body and opening lines of commu- resulting PIC’s will function as the foun- plan might include chapters on the com- nication. dation for the comprehensive plan. munity’s natural environment, trans- Early on, the commission needs to pro- Determining what PIC’s to include in portation system, community facilities, vide members of the governing body with the comprehensive plan will require deci- as well as residential, commercial, and an opportunity to share their perspective sion making on the part of the planning industrial uses. An alternative approach and vision relative to the plan development commission. It is during this step that is to organize the plan around broad process. The commission also needs to many commissions engage the public themes such as balanced growth, the share with the governing body how the through community meetings, surveys, preservation of rural character, enhanced plan will be developed, what its contents focus groups, or advisory committees. will include, and why it will be of value to economic vitality, and so on. Securing the public’s perspective regard- the community. Expending time educating Each chapter or element featured in ing the range of problems, opportunities, the governing body about the planning the plan should provide the reader with and issues facing the community is criti- process will yield dividends during plan an explanation of its purpose, as well as adoption. cal not just to developing a sound plan, an overview of the specific planning 2. Develop a Timeline. The planning but to building a constituency that can assumptions and goals and objectives help ensure the plan’s ultimate adoption commission should develop a timeline that contained in the element. and implementation. will guide the plan development process. The various plan elements or chap- The timeline, with targeted milestones or Step Five: Develop a “Vision” ters, once drafted, should next be used to completion dates, should be shared with for the Plan. formulate a series of possible land use the governing body. This action will pro- Once community problems and futures for the locality. Each possible vide elected officials with a clear picture of opportunities have been identified, many how the comprehensive plan will actually future would be a function of planning be assembled and by what time. No one planning commissions prepare a “vision assumptions tied to the plan’s vision should be in a position to complain later on statement,” capturing in words what the statement, specific community goals and that the proposed plan has taken them by community intends or wishes to become objectives, as well as different growth “surprise.” at some point in the future. Burling- scenarios. The generation and evaluation 3. Involve & Inform the Governing Body. ton’s Vision. The vision statement will give of selected plan options presents the The planning commission should seek to direction to the development of plan planning commission with one more involve the governing body at various goals and objectives, the next step in the opportunity to involve the public. stages of the plan development process. For process. Preparation of a vision statement Step Eight: Select and Develop a example, the elected body might be asked also offers another opportunity for Preferred Plan. to participate in the development of the involving the public. In some communi- plan’s goals and objectives. If the commis- ties “visioning” or “futuring” forums Once the various plan options have been sion intends to involve the general public in have produced exciting results. reviewed and studied, the planning continued on page 11 sidebar commission will need to select a

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10 preferred option or approach. The final the planning process through community Priorities draft plan can then be prepared and meetings or public forums, members of the for Plan formally received and considered for governing body should be invited to such adoption by the planning commission. events. As milestones are reached, written Implementation and oral status reports should be given to by Bernie Jones Step Nine: Adopt the Plan, the governing body. If appropriate, the Your plan has several dozen, or maybe Set an Implementation Schedule. planning commission may decide to seek several hundred, specific recommendations. Depending on your state code formal feedback from the governing body. So where do you start on the morning after Such efforts will help build the lines of requirements one or more public hear- it’s been adopted? Here are several alterna- communication between the commission ings will likely be required before the tive strategies: and the governing body. draft plan can be adopted. Once adopted • Early quick victories: Start with some 4. Schedule Joint Work Sessions. During by the commission, the plan is forwarded actions that are non-controversial, and thus the plan development process, the planning to the governing body for consideration most likely to be quickly adopted, thereby commission and the governing body might and final adoption. boosting morale, establishing momentum, consider meeting in formal work sessions. The plan development process and building a track record. Through discussion of the various elements • Importance: Start with the plan’s most should be considered incomplete if a plan and phases of the plan development important recommendation, regardless of implementation strategy and schedule is process, the planning commission can both its ease or difficulty. not included in the document. This is inform and learn from the governing body. • Linchpin: Start by addressing recom- critical, since a plan will make a differ- The key word to bear in mind when mendations which pave the way for yet ence only if it is implemented. considering any plan adoption strategy is other recommendations to get implement- communication. Designing a strategy that Step Ten: Monitor for Results ed. places a premium on communicating with and Impact. • High profile: Take some actions that the governing body will substantially Once a plan is adopted, the real work are very visible and draw attention to the enhance the likelihood that the plan will be begins. Implementation requires com- adopted. plan. mitment. It also implies accountability. The preceding is excerpted from Michael • Maximize implementers: Work to max- Increasingly, plans are being written Chandler’s “Developing the Comprehensive imize the number of different parties each with the goal of fostering change. In Plan: Part III,” PCJ #12 (Fall 1993). actively addressing at least one recommen- order to do so, plans must be written in dation. a manner that allows a locality to mea- Burlington’s • Multiple fronts: Simultaneously sure the impact the plan is having in the Vision address at least one recommendation from each of the plan’s major sections. life of a community. Priorities for Plan An Editor’s Note It also makes sense to prepare an annu- Implementation. The Burlington, Vermont comprehen- al action agenda of recommendations you Plans also need to be regularly updat- sive plan contains a series of vision state- hope to see implemented that year. The ments which provide an overarching ed. In some states, state law prescribes idea here is to bite off a manageable chunk direction to the plan’s more detailed policies this review. In Virginia, for example, a of the plan, involving the necessary imple- and action recommendations. Our plan is locality must review its comprehensive menters in that decision. That makes it organized in a fairly traditional manner, plan at least every five years. However, their plan as well as yours. with chapters on land use; the natural envi- even without such a requirement, it Similarly, prepare an annual status ronment; the built environment; transporta- makes sense periodically to review your report of what’s been done. Keep on top of tion systems; economic development; plan. what’s being implemented and let all the community facilities; and so on. Each chap- relevant audiences know each year what’s Michael Chandler is ter starts with a vision statement. Here, for been done, what has not – and why not. Professor and Community example, is the vision statement for the This helps to keep everyone’s feet to the Planning Extension Spe- transportation chapter: fire. cialist at Virginia Tech in Burlington maintains a diverse trans- Excerpted from “A Primer on the Politics Blacksburg, Virginia. portation system that is safe, affordable, of Plan Implementation,” PCJ #12 (Fall Chandler also conducts efficient and accessible for residents and 1993). Bernie Jones has served as a member planning commissioner visitors alike. Land use and transportation of the Denver, Colorado, Planning Board, and training programs across policy decisions are considered in relation the country, and is a fre- to one another, and the various modes are is the author of Neighborhood Planning: A quent speaker at workshops. He is currently a linked together as part of a system. The city Guide for Citizens and Planners (APA member of the Blacksburg Town Council and the is focused towards improving linkages 1990). American Planning Ass’n Board of Directors. between adjacent communities and neigh- borhoods, making the best use of existing infrastructure, and expanding alternatives to the single-occupant vehicle. —WMS

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