THE ROLE OF A NEWSPAPER SUPPLEMENT IN PUBLIC PLANNING DISCUSSION IN COCHISE COUNTY

Item Type text; Internship Report-Reproduction (electronic)

Authors Araneta, Irma Cecilia

Publisher The University of Arizona.

Rights Copyright © is held by the author. Digital access to this material is made possible by the University Libraries, University of Arizona. Further transmission, reproduction or presentation (such as public display or performance) of protected items is prohibited except with permission of the author.

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Link to Item http://hdl.handle.net/10150/555366 THE ROLE OF A NEWSPAPER SUPPLEMENT IN PUBLIC PLANNING DISCUSSION IN COCHISE COUNTY

by Irma Cecilia Araneta

An Internship Report Submitted to the Faculty of the GRADUATE PROGRAM IN URBAN PLANNING In Partial Fulfillment of the Requirements For the Degree of MASTER OF SCIENCE

THE UNIVERSITY OF ARIZONA

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v m I r. - ' -> , v V

~v V w i w ~ ^ x> + ^ J' \ #Z>r L v STATEMENT BY AUTHOR

This internship report has been submitted in partial fulfillment of the requirements for an advanced degree at The University of Arizona and is deposited in the College of Architecture Library to be made available to borrowers under the rules of the Library.

Brief quotations from this report are allowable without special permission provided that accurate acknowl­ edgment of source is made. Requests for permission for extended quotation from or reproduction of this manuscript in whole or in part may be granted by the professor in charge of the graduate program in Urban Planning, or the Dean of the Graduate College, when in his judgment the proposed use of the material is in the interests of schol­ arship. In all other instances, however, permission must be obtained from the author.

SIGNED:

APPROVAL BY REPORT ADVISOR

This in^frnship rqport has been approved on the date shown below :

3/'///9 7 V hehr! c . h ig I tower Date Professor of Urban Planning and C hairm an. TABLE OF CONTENTS

Page

ABSTRACT...... v

CHAPTER I . INTRODUCTION...... 1 I I . THE PLANNING NEWSPAPER SUPPLEMENT IN THE COUNTY’S PLANNING PROCESS...... I). Establishment of Planning in Cochise County. Ij. Commitment of Public Presentation of the County Policies and P lan ...... 9 Alternatives for Public Presentation.... 10 Advantages and Risks in Public Presentation. 11 The Cost of the Supplement...... 12 I I I . FORM AND CONTENT OF THE PLANNING SUPPLEMENT. . . llj. Purpose of the Supplement...... II4. The Supplement’s Look and Style ...... llj. The Supplem ent ’ s C o n t e n t ...... 15 IV. OBSERVED EFFECTS OF THE SUPPLEMENT ON PUBLIC DISCUSSION OF PLANNING IN COCHISE COUNTY .... 21}. Measuring the Effects of the Supplement. . . 21}. In itial Reactions After the Supplement’s P u b lic a t io n ...... 26 Long-Range Effects of the Supplement .... 30 The Supplement as an Initiator of Public Participation in the Adoption of the County’s Planning Ordinance...... 35 V. CONCLUSIONS ON THE ROLE OF THE NEWSPAPER SUPPLE­ MENT IN PUBLIC PLANNING DISCUSSION IN COCHISE COUNTY...... 39 Nature of Conclusions Drawn...... 39 Influence of the Supplement on Public Planning Discussion ...... 1}.0 i i i iv TABLE OP COUTENTS--Continued

Page The Commission’s Approach to Public Review of the Planning Proposals. . . 43 The Use of Means to Promote an Informed Citizenry and Public Participation in P la n n in g ...... 48 REFERENCES ...... £1 APPENDIX...... £2 ABSTRACT

This internship report concerns the role of a newspaper supplement in public planning discussion in Cochise County, Arizona. The Cochise County Planning and Zoning Commission published the County’s proposed develop­ ment policies, general plan and zoning provisions in a newspaper planning supplement the week of January 21, 1973• The supplement appeared in six of the County’s major news­ p a p e rs . The report analyzes the supplement’s role in the context of Cochise County’s planning process. Alterna­ tives and risks considered in the public presentation are raised. The report describes the style and the contents of the supplement. Effects of the supplement on the public discussion of the proposals are gauged by in itial reactions after publication, the level of discussion at group meetings, and the outcome of the public forums held by the Commission. The report’s final chapter draws con­ clusions on the role of the planning supplement and subse­ quent meetings with citizens on public planning discussion.

v I

INTRODUCTION

This internship report is an analysis of the role played by a planning newspaper supplement in the County of Cochise, Arizona, planning process. It is an analysis placed in the context of the County’s planning process for the supplement was another part of the planning process and the supplement's impact must be measured on an understanding of what preceded and followed its publication. The supple­ ment's prime purpose was to inform the County's citizens of the intent to regulate land use and to create an understand­ ing of its value in the development of the County. The analysis seeks to relay the considerations weighed in the supplement's use and the effects its publication had on the discussion of the planning proposals with the public. An internship with the Cochise County Planning and Zoning Department, June through December of 1972, allowed the writer opportunity to assist in the supplement's prepa­ ration. The supplement appeared the week of January 21, 1973, in six County newspapers. Sources for the observation of the effects the newspaper supplement had on public plan­ ning discussion included the following: interview with the Cochise County planning director, comments from the Cochise 1 2 County Planning and Zoning Commission nembers and attendance and recording of four public forums held by the Commission in the spring of 1973. Four chapters constitute the report. Chapter II . gives a brief account of the implementation of the plan­ ning process in Cochise County. Provision for public par­ ticipation in the planning process is described. The use of a newspaper supplement for public presentation of proposed development policies, plan and regulations emerges as another step encouraging public participation in the County's plan­ ning process. The advantages and risks considered in the decision to make a widespread public presentation conclude the chapter. Chapter III discusses, the supplement itself. It sets forth its purpose and the writing style adopted to attract the attention of County citizens. With reference made to a copy of the supplement contained in the report's pocket appendix, the supplement's content is closely rev iew ed . Chapter IV seeks to describe the effects publication of the supplement had on public planning discussion. This is done by relating various occurrences after publication. Immediate reactions accounted for by the remarks made to the Planning Department and the Commission members reflected interest and concern on the part of readers. The supplement 3 provoked requests for planning presentations by several community organizations. Discussion of pertinent planning objectives with these groups was facilitated by the supple­ ment. It served as an informative aid for the Planning and Zoning Commission's public forums at which the planning proposals were further explained and citizens' views listened to. By the time public hearings were held the Commission, through the supplement and subsequent meetings with the public, had allowed much opportunity for fam iliar­ ization with, and suggestons to, the planning proposals. The fifth and final chapter draws conclusions as to the effect of the supplement's publication and subsequent meetings with citizens on the public discussion of the plan­ ning proposals. It holds the Commission's deference to citizen participation as manifested by the supplement's publication, and meetings significantly shaped the form pubr lie discussion assumed. The Commission's open and non- dogmatic behavior during the period of public review of the planning proposals is evaluated. It is judged to have been wise in view of cautious commentary displayed in the County's newspapers. Lastly, the chapter affirms the need for the use in public planning practice of means, such as a newspaper supplement, which are able to inform large numbers of a p o p u la ce. II

THE PLANNING NEWSPAPER SUPPLEMENT IN THE COUNTY'S PLANNING PROCESS

Establishment of Planning; in Cochise County Planning in Cochise County has been recently in sti­ tuted. The Planning and Zoning Commission was established by the Board of Supervisors as an advisory body on planning and orderly growth in January 1970. It consists of nine appointed members, three from each of the County's super­ visory districts. Later that year, in September, the County's Planning and Zoning Department was established with the hiring of a professional planner as county planning director. The department's staff has to date remained small, consisting of the planning director, secretary, draftsman, and supplemented by interns, University of Arizona planning students employed on a temporary basis. From the outset the direction given the planning pro­ gram has been to emphasize a planning process rather than a planning product. The planning director, in an early posi­ tion paper, expressed this outlook when he described plan­ ning for the County as the establishment of "a planning process which can continually assist decision-makers in guid­ ing the development and conservation efforts within Cochise C o u n ty ." 4 Cochise County comprises a vast area of approxi­ mately 6,000 square miles in southeastern Arizona. It was one of the first settled counties in the state. Rich silver and copper deposits lured prospectors to numerous mining camps in the late nineteenth century. The copper industry, along with the Federal government, the cattle-raising, and agriculture industries continue to be prime employers. Like much of Arizona, Cochise County has pleasant weather and scenic country. Over 62,000 people presently reside in the County. The County has experienced growth in the last de­ cades. In 19^0 the population numbered 31,000 people. By 1970 it had nearly doubled to 61,910 people. Activity in land subdivision has markedly increased in the last two decades. From 1,300 subdivided lots during the 1950s, the number spectacularly rose to 36,500 lots during the *60s , with the 'YOs indicating no respite. Cochise County offi­ c i a l s in 1970 took the necessary action to provide planning for the County’s increasing population and land activities. At the outset of the planning process, the commissioners and planning director believed thorough examination of Cochise County’s resources and needs to be the basis for deriving planning solutions guiding county growth. Consequently, when a Department of Housing and Urban Development (HUD) federal grant for planning assistance was 6 awarded to Cochise County much of that grant fund was spent on invent or ing the County’s environmental composition. This first HUD award for the year July 1971 through June 1972 launched Phase I of the County’s comprehensive plan­ ning program. The consultant firm of Wilsey and Ham was hired to perform the environmental studies. Also completed by the consultants were reports on the County’s goal state­ ments, resources, and systems; significant environmental factors; land use suitabilities, optimum multiple land uses; a housing analysis; and County base mapping. During that year the County planning department undertook the inventory of present land uses, the draft of development policies, a planning ordinance, and the preparation of a general development plan. A planning process had been initiated in Cochise County. If one were to describe it simply, the following steps would be included: (1 ) selection of goals; (2 ) p e r ­ formance of planning studies and inventories; (3 ) formulation of proposed policies, general plan, and land use regulations; (ij.) public presentation and discussion of proposed policies, general plan and land use regulations; (5 ) revision of proposed policies, plan and regulations; (6 ) public hearing and adoption and implemention of policies, general plan and land use regulations; and (7 ) continual evaluation and updating of policies, plans and regulations. At the time this report was being written, the planning process had 7 proceeded to the fifth step—revision of proposed policies, plan, and regulations. Public participation was concurrently interwoven in the planning process. Various forms of public participation occurred directly in all but the third of these five plan­ ning steps, the formulation of policies, general plan and land-use regulations. But even in that step, the policies were based on a citizen concerns survey and the policies, general plan and land-use regulations were to be subject to public presentation and review.

Program for Public Participation in Planning As previously mentioned, the County’s planning pro­ cess provided for public participation from the initiation of the comprehensive planning program. The positive aspects of early and continued involvement of interested citizens were recognized. The form of public participation evolved in several courses of action. The formation of citizen committees in each town for technical and policy discus­ sions had originally been projected by the consultant. Due to time and manpower lim itations this did not occur. However, a countywide concerns survey was conducted by the County planning department. It consisted of a questionnaire on developmental issues sent to one hundred persons in the County identified as community leaders. The survey was performed in the summer of 1971 and utilized the delphi technique (Garrett 1971). Under this technique 8 respondents are allowed to see the response of the total group after the in itial survey. They are asked to respond again, allowing them opportunity to maintain or change their response based on the group's findings. The Cochise County concerns survey underwent two rounds. Both rounds obtained a high percentage of response, seventy and fifty- eight percent respectively. The results of the concerns survey were valuable input to the County's planning. They became the basis for the County's goal statements which later became incorporated into the County's development p o lic ie s . An environmental committee met in the fa ll in Bisbee to discuss the County's environmental studies being pro­ duced by the consultant. In attendance were individuals who had regularly been convening through the coordination of the University of Arizona extension officer for Cochise County. They included local representatives of the United States Soil Conservation D istricts, the Coronado Resource, Conservation and Development Organization and individuals working on community development programs. During the spring of 1972 a series of presentations to community organization were made by the County planning department. The subject of discussion was the concerns survey results and the environmental analysis. It was pointed out at these meetings that the concerns survey and the environmental analysis were important measures to be 9 considered in producing the County’s general development plan. Meetings were numerous and were held throughout the County. Presentations were made to various city councils, planning commissions, homeowners groups, realtors associa­ tions, civic clubs, chambers of commerce, an industrial development commission, and soil conservation d istrict organizations. On several of these occasions the planning director was accompanied by a Planning and Zoning Commis­ sion member. A television program,broadcast out of Sierra Vista, also presented planning developments.

Commitment of Public Presentation of the County Policies and Plan Cochise County was granted a second HUD planning assistance award to continue its comprehensive planning program during the year July 1972 through June 1973. An element in the contract between the County and the Arizona Department of Economic Planning and Development, the admin­ istering agency of the federal grant, was the public presen­ tation of the County’s development policies and general development plan. In including the public presentation element in the HUD contract, County officials were going beyond the legally required public hearings before County adoption of a plan or zoning ordinance. They made a commitment to public 10 presentation, recognizing the necessity and value of public announcement of planning regulations. An earlier occurrence in the County's planning history during the fall of 1970 had much influence over this positive approach to public participation and information. Recommendation of adoption of subdivision regulations was one of the first acts of the Planning and Zoning Commission. Previous meetings by the Commission in different areas of the County had brought forth very little public response. Thus, the Commission was taken by surprise at its public hearing when a large turnout of developers and realtors protested adoption of the subdivision regulations. The Commission was accused by these groups of not giving the public enough notice of the regulations. At the Board of Supervisors' public hearing the group of protestors was well organized and again leveled the same charge at the Commis­ sion. The Board approved adoption of the subdivision regu­ lations, but not without the Commission members having learned an important lesson. The significance of well publicized planning information and public participation was impressed upon them.

Alternatives for Public Presentation Alternatives for public presentation of the develop­ ment policies and general plan were available to the County. One option would have been to have held several rounds of 11 public meetings to discuss developmental needs and problems, as the city of Tucson has chosen to do in its current com­ prehensive planning program. Copies of printed reports could have been published for mass distribution. Television and radio programs could have been slated. Another option would have been to zone first and then talk later; but this would have been counter to the philosophy espoused by the County that early public participation brings positive r e s u l t s . Another alternative available, and the one selected, was public presentation of the development policies and general plan via a newspaper supplement in all of the County’s major papers. It had the advantages of reaching many people at the same time and in a more permanent form than word of mouth. It allowed the opportunity to give significant infor­ mation clearly, within space lim itations, on the County’s planning program and proposals. Readers would be free to read the supplement all in one sitting, to read or glance through parts of it on one occasion picking it up again at a later time, and to keep it for future reference.

Advantages and Risks in Public Presentation In undertaking public presentation of the develop­ mental policies and general plan. County officials were exposing the planning program to certain risks as well as certain advantages. On the positive side it was assumed 12 that by facilitating public participation to take place on a scale representative of the County's population planning intention would be made known, considered by citizens, and supported if agreed with. In casting their votes on adop­ tion of policies, a general development plan and land use regulation, public officials could be guided by what they judged their constituency favored. There was also the expectation that public presentation would produce a better plan, one which had been revised according to suggestions brought forth by individuals or groups. Public presentation also placed the County's plan­ ning proposals in a vulnerable position. Risks included the possibility that the plan and related zoning might be rejected altogether. A recent example of this had occurred in Yuma, another Arizona county. It could also happen that what the public presentation brought forth would produce regulations that no longer accomplished the purposes set out. Another risk to be considered was the possibility of bringing out of the woodwork anyone who had an axe to grind against the County government.

The Cost of the Supplement While the Commission and the planning director were conscious of the risks entailed, the decision was made in the summer of 1972 to prepare a newspaper planning supple­ ment for public presentation. Monetary costs were not 13 excessive. Actual graphic, printing, and distribution costs amounted to $3,000.00. But the cost was dear in staff time. This was time that was not able to be spent on the plan itself or the zoning maps. I l l

FORM AHD CONTENT OF THE PLANNING SUPPLEMENT

Purpose of the Supplement The purpose of the planning supplement was to pre­ sent the County's development policies and general plan to the citizenry. The supplement expressly was to inform of the intent to regulate land use. A favorable and realistic expectation of planning for the County by the supplement's readers was desired. The Commission wanted to give this information wide public notice. It saw the publication of a planning supplement in the County's principal newspapers as a means for carrying out these intentions.

The Supplement's Look and Style The look desired for the supplement was not to be that of a slick expensive report. Neither was it to appear as a final document, but rather as a preliminary report. Printing it on newsprint achieved both objectives. The supplement incorporated a simple style. The clear format present in the Brandywine Pennsylvania Plan reports, publications designed for distribution among resi­ dents of the Brandywine Valley, was eyed as a model (Ches­ ter County Water Resources Authority 1967, 1968). The Cochise County supplement was not to be published as a

114. 15 booklet on glossy paper, as the Brandywine publications were, but there were other apsects that were applicable for the supplement. These were the use of uniform column width in the text, color in headlines and graphics, well placed pictures of local scenes, and varying size and style of headlines and subheadlines. The planning staff in preparing the supplement aimed for the average citizen’s understanding. Its brief para­ graphs embodied common language. Eye appeal and reader interest was consciously sought through a variety of means. Graphics, photos, and maps were liberally interspersed among the text. Photographs pictured familiar sights in the Coun­ ty. Color was used on the cover page and the centerfold containing the plan. The Cochise County planning newspaper supplement consisted of twenty-four pages. Its size, 11 by 1$ in c h e s, permitted it to be folded in half and inserted in the larger sized County newspapers.

The Supplement’s Content A copy of the supplement is enclosed in the pocket Appendix of this report. The reader can refer to it as its contents are discussed. The supplement is denoted as ”a presentation to all the people of Cochise County” by its sub­ heading. On the cover page appears an open letter to the citizens of Cochise County from the Planning and Zoning 16 Commission members. In it the Commission states it is recommending development policies and a general plan for the County. The letter explains, the policies and plan are described in the supplement and are there presented in order to aid readers to become well informed citizens. It concludes with an invitation to citizens to participate with the Commission in planning the County's future. Pages 2 and 3 chronicle the County’s colorful history and population growth in the last few decades. Particular attention is paid to the amount of land subdi­ vision, literally a subdivision stampede, that has occurred recently. The following map (p. 17) was produced to illu s­ trate the tremendous rise in population which would occur if all the families who have bought land in the County moved there. The inner dark circles represent the present population, while the outer circles indicate the population expansion to occur if the absentee families came. The last paragraphs (on page 3 of the supplement) refer to the harm uncontrolled land speculation can bring to the County. Page Ij. discusses the concerns people surveyed from around the County have voiced regarding its development. The following graphic, shown on page 18, appeared 17

WILLCOX

BENSON

TOMBSTONE

SIERRA rvisiA:

BISBEE: □ DOUGLAS

in the supplement with the concise statements of concern depicted on placards.

Also on the same supplement page the choices regarding development confronting County residents are 18

.X ; : f - ' - y f.,r—v 4'-. ^7' ; **• '•* ''V "Tv?- :r- Mobile Homes Segregate | I Aside Opon $ Pace Areas

MakeSubdiv*r5 Restrict Septic Tanks LIMIT provide Sewers More BILLBOARDS Avoid Urban Sprawl Clean M ” "* | 6>eWisfc County using fnk.

t , U ° SoW/vWors- Designate Proi'We Wafer

Scenic Ronds t More Campgrounds

Develop Fishing Lakes

ESTABLISH ZONING Issnssw ®

Promofe Tourism

portrayed. Directional signs indicate choices can lead to developments possessing delight and space to dream in, or blight and congestion. 19 The County’s development policies appear on pages 5-7, An introductory section describes the policies as the basic ground rules to be followed for sound development. Three in itial policies, those of planning principles, popu­ lation growth and economic development, directly address themselves to the County’s growth. The importance placed on an awareness for development’s impact on natural resources is evident in the policy dealing with this subject area. Other policies express the consideration to be paid in development to housing, solid wastes, aesthetics, cultural enhancement, transportation, water sewage treatment, recre­ ation and open space. The County’s direct responsibilities in development are referred to in the last three policies of health, safety, and welfare, public services and govern­ mental relations. Extensive environmental studies preceded formula­ tion of the County’s general plan. These are discussed on pages 8 through 11. The studies began with an examination of the County’s climate and geology. From it an understand­ ing of topography became possible. The hydrology system and soils of the County were then studied. These made clearer the presence of vegetation and wildlife communities. The en­ vironmental elements were mapped and examples of the mapping around the Benson area appear in the supplement. Based on the findings of the environmental studies, land use 20 suitability maps depicting areas of urban, agriculture, grazing, recreation and conservation suitabilities were able to be drawn. Examples are shown on page 11 of the supplement. Unfortunately, in two of the land use maps shaded areas did not reproduce well. The development policies, environmental studies, and the existing land uses were the basis for formulation of the County*s general plan. The County's general plan is presented in the supplement’s centerfold pages. The plan reflects the development direction given by the policies and an understanding, though yet imperfect, of the County’s environment. Urban lands are shown in red. These are the lands that already are incorporated places, land under­ going urban transition, and those reserved for urban land in the future. The remainder of the County area covers resource production lands and resource conservation lands. The text alongside the plan explains how the plan seeks to guide development along the direction given by the County’s development policies. The different County areas with their development projects and potentials are subsequently discussed in the supplement. Because of extensive land subdivision activity, the locales around the cities of Sierra Vista, Willcox, and Douglas appear in area maps. Older townsites are reported as also ripe for development, while potential development 21 development for new towns is viewed as another relevant factor affecting the County’s growth. Arizona Sunsites is mentioned as the most notable new town development in Co­ chise County. The text on page 19 clarifies the status of the County’s planning program. It acknowledges land use plan­ ning as only a beginning of the comprehensive planning pro­ gram in the County but recognizes it as a pressing need in guiding the County’s future development. Other plans on water, transportation, housing, solid wastes, recreation and open space are said to be also needed. The text explains a planning process geared to appraising the County’s needs has been put into operation. The proposed policies and land use plan are described as important first steps in advancing the County’s well-being. It is noted that if the policies and plan are going to be made to work, some rules are in order. A zoning ordinance and subdivision regulations are pre­ scribed as meeting this need for implementation. Zoning and subdivision regulations are the topics of the next few supplement pages. Since zoning is often approached in negative terms, the supplement’s text purpose­ fully emphasized the positive aspects of zoning. The first page in this section entitled "Zoning—What’s It All About?" explains ways in which zoning can be a useful tool to the County's development. General provisions of the zoning 22 ordinance are presented. The supplement reports beneficial changes sound subdivision design requirements have brought. It states experience has shown the need for improving sub­ divisions by requiring such measures as water provision to lots and the upgrading of street surfacing. The need for large-scale subdivisions to be well documented is noted. The section recommends the amendment of the subdivision regulations. The supplement's text directly addresses the reader on the last page. It points out that the County's Planning and Zoning Commission has been actively at work the last two years It relates the Commission has taken its respon­ sibility seriously to initiate planning in the County. But it is emphasized in the supplement that the Commission's efforts solely are insufficient for effective planning. Planning must be recognized as a continuing effort which responds to public needs. The reader is encouraged to join the Commission’s efforts. The supplement informs the reader of the public meetings to be held to hear citizens' views. The opportunity for discussion of the proposals through a telephone call or visit to the planning office is also noted. The supplement’s text concludes with an appraisal that plan­ ning backed by public support w ill better prepare County resi dents to determine a desired future for the County’s develop­ m ent. 23 The preceding paragraphs briefly reviewed the con­ tent of the supplement. As can be seen from a reading of the supplement, the content had been consciously prepared to give the reader an understanding of Cochise County*s planning needs, the means used in county planning and what the proposed policies, plan and land use Regulations could accomplish in fulfilling the County's planning needs. The supplement was meant to be informative and to arouse interest in the County's planning proposals. Ques­ tions were likely to remain among readers because the nature of the supplement prevented its being written at the level of completeness which fully answered all questions on the planning proposals and their application. Rather, the supplement had stressed the concepts involved in planning for the County and the objectives of the planning proposals. IV

OBSERVED EFFECTS OF THE SUPPLEMENT ON PUBLIC DISCUSSION OF PLANNING IN COCHISE COUNTY

Measuring; the Effects of the Supplement The Cochise County planning supplement was pub­ lished the week of January 21, 1973. It appeared in six principal papers of the County: Bisbee Review, The Dis­ patch (Douglas area). Sierra Vista Heraid-Dispatch, Arizona Range-News (Willcox area), The San Pedro Valley News-Sun (Benson area), and The Tombstone Epitaph. The combined circulation of these newspapers approximates 17,000. In addition, the Cochise County Planning Department mailed more than £00 copies of the supplement to interested par­ ties. These included state legislators, municipal officials in the County, city planning and zoning commissions in the County and developers, realtors and engineers who presently were presenting subdivision plats or had submitted them in the recent past. It is not possible to measure on a statistical basis the reactions to the County's proposed policies, general plan, zoning ordinance and revised subdivision regulations of all the County's residents who read the sup­ plement without having surveyed all the readers or a 2k 25 representative sample of them. No survey on reader reaction was conducted, but reaction of individuals and groups was manifested in various observable means. These included com­ ments and inquiries made to the County’s planning office, remarks made to the Planning and Zoning Commissioners, news­ paper comment, reaction at planning presentations to com­ munity groups and discussion at public forums held by the Commission. Observations on public reaction to the County’s proposals presented in the supplement need to be considered in drawing up conclusions on the role the newspaper supple­ ment played in public planning discussion in Cochise County. The analysis of this role is viewed from the context of the planning process. The Planning and Zoning Commissioners, and the planning director, recognized that the County’s planning process would have to accommodate debate, challenge and protest, as well as support for the proposed policies, plan and regulations. The formidable task of the Commission, as it is of any group recommending public policy and legis­ lation in a democratic society, was to give a fair hearing to voiced objections and recommendation for revisions, form­ ulate acceptable solutions and yet produce policies, a plan and regulations which promote the public interest. What contributions the public presentation of the County’s pro­ posed policies, plan and regulations in a newspaper supple­ ment made to facilitate that task need to be judged in 26 light of the process which unfolded to accommodate public discussion.

In itial Reactions After the Supplement's Publication Through comments and questions made to the Cochise County Planning Department in the immediate weeks following publication, a general reaction of those voicing their opinion to the County’s development and the planning pro­ posals appearing in the supplement was able to be surmised. Information on these comments and questions came from an interview with the Cochise County planning director on April 3, 1973• The comments made could be characterized as expressing interest in county development, desire for clari­ fication and concern over land use designations by some particular groups. On the side of interest, comments indicated that many readers’ attention was caught by the amount of land for subdivision in the County. Remarks were made to the effect that there was little realization on the part of the readers of the extent of land subdivision. Very limited comment was made on the policies. The planning director attributed this to the fact that they were simply written, understandable, and that they embodied general concept of well-being allowing agreement on them. Clarification was asked by some individuals on the environmental studies and the general plan map of the 27 supplement. There were questions as to how the environ­ mental data was obtained. From the number of inquiries made concerning the general plan, the planning director related that it appeared most time in the reading of the supplement was probably spent on the general plan pages. The inquiries concerned the meanings of land use designa­ tion terms, particularly urban reserve lands. People queried how the urban reserve lands designation was arrived a t . Representatives of one large landholder in the County, Tenneco Corporation, expressed concern to the plan­ ning director that many acres of the corporation^ land was designated resource conservation land. In response to this concern a more explicit map was drawn by the planning department to illustrate how the resource conservation designation pertained to the San Pedro River floodplains. Several developers had questions as to what zoning would be allowed in the urban transition areas. Several persons from a couple of township sections northwest of Willcox sug­ gested that urban transition lands be extended to cover their territory. That area consists of holdings of various sizes, many of them five-acre sites. The suggestion was accepted by the planning department. The Planning and Zoning Commissioners were in a position to give their evaluation of the initial reaction 28 of County residents to the supplement. Four Commissioners were asked their views on County residents’ reaction to the planning proposals. These four Commissioners came from the three supervisorial districts and included the chairman, vice chairman, immediate past chairman and another member who most regularly attends the Commission’s meetings. Their evaluation of reader reaction to the planning propo­ sals reflected the different and varied amount of remarks they had heard, though on one point there was agreement. This was that the supplement had served an informative purpose, exposing the County government’s planning function and the existence of a planning and zoning commission acting as an advisory body on that function. The Commis­ sioners reported that after the supplement’s publication many acquaintances told them they had been unaware of the establishment of a planning and zoning commission in the County and of its role. One Commissioner explained that reaction he had encountered to the County’s proposed land-use regulations among persons he had spoken to depended on whether the per­ son owned land in the County or not. People not owning land expressed general interest and asked general questions. People who were land owners asked specific questions on how their land was going to be affected by the County’s regula­ t i o n s . 29 Another Commissioner was enthusiastic over the commentary on the supplement’s content that had been made to him by County residents and those interested in the County’s development regulations. He called ninety-eight percent of it favorable. Two other Commissioners expressed disappointment that there had not seemed to be much public opinion voiced after the supplement’s publication. They characterized general public reaction as public apathy. The Commissioners’ varying observations on public reaction to the County’s planning proposals published in the supplement indicate that the publication of the sup­ plement had not brought forth a vast outpouring of public reaction either pro or con toward the proposals on the part of the County residents or those possessing develop­ mental interests in the County. Another indication of this state of affairs was the lack of editorial comment in the local newspapers in the immediate weeks following publica­ tion. Ho editorial or letters to the editors appeared in the newspapers in which the supplement had been distributed during this time. The Arizona Range-Hews did give the County’s proposed general plan additional news coverage. In that paper's March 1, 1973 edition half of a full page was devoted to a news article entitled, "County P & Z Announces General Development Plan." The article was accompanied by a reproduction of the supplement's general plan map and the explanatory text which had appeared with it. 30 Long-Range Effects of the Supplement After the supplement’s publication in late January of 1973, many organizations in the County invited the plan­ ning director during February and March to meet and discuss with them the County’s planning proposals. These organiza­ tions comprised social, civic and special interest groups, such as the Farm Bureau, cattlemen and realtors’ associa­ tions. At several of these meetings a Planning and Zoning commissioner from the area also was in attendance. These meetings extended the information given in the supplement primarily by allowing oral expansion, clari­ fication and responses to questions. They served as a means to expose the position of the Planning and Zoning Commission which was entrusted with planning for the orderly development of the County. The meetings were a sign of the willingness of the Commission to have the planning proposals it had submitted for public presentation in the supplement d is c u s s e d . The meetings also served the Commission and the Planning Department as a means of becoming aware of reac­ tion to the planning proposals from the people attending. Though the majority of comments reported expressed under­ standing of the need for planning, this type of commentary was not unanimous. One participant had attacked the Com­ mission’s proposal to regulate land use through zoning as unconstitutional. Such an opinion was a verification that 31 adoption of the County’s policies, plan, zoning ordinance and subdivision regulations would not be without opposition from some quarters. Of significance is the planning director’s evalua­ tion of the supplement’s contribution to planning discus­ sion at meetings during these two months. He stated the supplement had kept discussion at a high level, allowing it to focus on the policies, the factors necessary to con­ sider in planning, and the role of the County’s Planning and Zoning Commas ion. He believed that through these dis­ cussions the public was beginning to understand the situa­ tion of the Commission. It, he explained, was one of having responsibility for ensuring that new development pays its fair share of public facilities and that the public is not left holding the bag. He continued to explain that in dispensing its responsibility, the Commission recognized the unreasonableness of advocating regulations that would put all developments out of business. Yet, it also judged as unreasonable the expectation for the County to pay development costs. At the meetings the director related, the stance set forth on the Commission’s behalf had been to invite participation from those interested in helping the Commission decide what are reasonable requirements. In summary fashion he attributed discussion at these 32 meetings to have contributed to the fostering of two reac­ tions on the part of those present. One was growing appre­ ciation for the difficult task the Commissioners have of weighing what is reasonable. The second, stemming from the discovery that the Commission had extended much thought and effort, was an admiration of the Commission’s approach of trying to find out what is best for Cochise County. The tenor of these reactions carried over to the Commission’s public forums. These forums were the public meetings the Commission had announced in the supplement to be held around the County in order to hear people’s views and to answer their questions, The Commission held four public forums on Wednesday evenings between April 18 and May 16, 1973, in the cities of Willcox, Sierra Vista, Bisbee, and Douglas. Because these forums were to be held in several areas of the County and were over and above the regular monthly scheduled meet­ ing of the Commission, the Commission made a practice of expecting attendance only from Commissioners in the locale in which the meeting was to be held. Thus, the number of Commissioners present ranged from five at willcox, three at Sierra Vista, six at Bisbee, and two at Douglas. The number of persons attending the Commission’s forums also varied. Public notice of the forums was given through the local newspaper of the area, in addition to 33 radio amouncement of the Willcox and Douglas forums, and through a television program earlier in the week in the case of the Sierra Vista forum. Persons attending the forums, besides the County planning director and Commissioners, numbered eleven at Willcox, twenty-six at Sierra Vista, twenty at Bisbee, and eight at Douglas. They included County residents, developers, u tility supervisors, realtors and local public officials. The Commission chairman, or vice chairman, opened the forums by stating their purpose. The planning director then was called on for an explanatory address on the pro­ visions of the County * s proposed plan, zoning ordinance and subdivision regulations. Draft form copies of the proposed zoning and subdivision regulations were distributed. The planning supplement played a background role at the forums. Its publication allowed Commissioners and the planning director to speak of the audience's fam iliarity with the proposed County policies, plan, and regulations. Copies of the supplement were made available and its maps were r e f e r r e d to d u rin g some p o in ts of d is c u s s io n . Many persons attending the forums held the partic­ ular interests of developers, subdividers, and home or property owners. Questions and comments at the forums reflected these interests as participants sought infor­ mation establishing the effect of zoning provisions and 314- subdivision requirements on their interests. The greater portion of questions asked centered on the applicability of subdivision requirements, zoning classification proposed for certain areas, permitted lot sizes of particular zoning districts, flexibility of zoning under changed conditions, regulation of u tility lines and the maintenance of horses on private properties. The forums allowed explanatory comments to be made on the Countyls proposed plan and land use regulations, and answers to be given to related questions. Also, partici­ pants 1 questions brought forth regulation provisions sug­ gested for revision which the Commissioners agreed to take under study. At the VJillcox forum a participant had ques­ tioned how subdividers would deal with city-owned u tilitie s in attempting to comply with the County’s proposed require­ ment of posting financial security for water provisions and sewage treatment. Because of probable complexities in such cases, the Commission agreed to drop the security requirement for the present time, though it recommended retaining county and state health requirements to be obtained before authorization of final approval of a sub­ division plat by the Board of Supervisors. Several persons at the Sierra Vista forum had commented they judged the County’s proposed acreage requirements for mobile home subdivisions (lj.0 acres) and mobile home parks (20 acres) to 35 be too high. Subsequently, the planning director recom­ mended to the Commission that acreage requirements be halved while the concept of minimum standards be kept in order to prevent the creation of many small mobile home subdivisions and parks uneconomical to service. The forums helped the Commission to appraise public sentiment toward the proposed County plan and land use reg­ ulations. Most comments at the forums had not been unfavor­ able toward the need for a general plan, a zoning ordinance and revised subdivision regulations. However, one indi­ vidual characterized required lot sizes in rural districts as arbitrary, the policy of considering slopes of 20 per­ cent as unsuitable for urban development as too restrictive and concluded with the observation that many more objec­ tions could be found in the County's proposed planning ordinance. These remarks indicated objections to the County's planning proposals would likely be raised by some individuals at the Planning and Zoning Commission's public h e a rin g .

The Supplement as an Initiator of Public Participation in the Adoption of the County's Planning Ordinance Cochise County's newspaper planning supplement was prepared and published to give wide publicity to the Plan­ ning and Zoning Commission's intent to recommend to the Board of Supervisors the adoption of policies, general plan 36 and land use regulations. The Commission sought to inform the public of its planning proposals and to encourage the public’s participation in the process leading to adoption of planning proposals it would recommend to the Board. It did this beginning with the supplement’s distribution, the meetings with community organizations prompted by interest elicited through the supplement’s publication and the public forums it sponsored before its official public hearing. The Commission responded to voiced public comment and suggestions for revisions. Revisions were made in the proposed county plan, zoning ordinance and subdivision regulations presented for public hearing May 30, 1973. At that in itial public hearing the Cochise County Board of Realtors presented to the Planning and Zoning Commission a three-page letter listing suggested changes to the proposed zoning ordinance and subdivision regula­ tions. The Commission accepted the realtors’ letter and moved to reconvene the public hearing on June 27, 1973. Objection to the County’s zoning ordinance was raised at the June 27th public hearing by a local attorney on the alleged grounds that the ordinance was derived from a model ordinance by the United States Department of Commerce for metropolitan areas. At this hearing the Commission announced it would accept w ritten comments on the County’s proposed planning ordinance until July 25, 1973. Another 37 public hearing would be scheduled after time had been allowed to review and study the public comments received. A third public hearing was held September 12, 1973• Draft copies of the revised general development plan, zon­ ing ordinance and subdivision regulations made available August 29, 1973, were distributed. On this occasion the aforementioned local attorney and another individual questioned the legality of several provisions of the zoning and subdivision regulations and urged the Commission to obtain the opinion of its own attorney or the county attorney. The Commission acted to demonstrate its w illing­ ness to recognize the merit of those comments. It voted to receive w ritten comment on the general development plan, zoning ordinance and subdivision regulations until October 9, 1973. From that date to the 2lj.th of October (those dates being qualified by the county attorney’s schedule) the Commission voted to meet regularly with the county attorney. A resumed public hearing was set for November llj., 1973. The Commission's public hearings were well attended. Approximately 300 persons combined were present on May 30 and June 27. The September 12th hearing attracted 60 per­ sons. Supporters of the County's planning proposals, as well as those who have raised objections, have been present. 38 The Commission, as is further evident from the number of public hearings thus held, has demonstrated careful delib­ eration and receptivity toward public commentary before it sets forth the final form of the County’s policies, general development plan, zoning ordinance and subdivision regula­ tions it votes to recommend to the Board of Supervisors for adoption. The Commission has encouraged public partic­ ipation in the process leading to adoption of the County’s planning ordinances. Encouragement of public participation in this phase of the planning process had been initiated through the newspaper supplement publicly presenting the Commission’s planning proposals. Many opportunities have been made available for the expression of public opinion. As of the time this report is being written, the Commission is continuing its public hearings. Although the final forms of the policies, general plan, zoning ordinance and subdivision regulations recommended for adoption are not presently known, it is evident the Cochise County Planning and Zoning Commission w ill have considered much public com­ ment in producing those forms it recommends for adoption. V

CONCLUSIONS ON THE ROLE OF THE NEWSPAPER SUPPLEMENT H PUBLIC PLANNING DISCUSSION IN COCHISE COUNTY

Nature of Conclusions Drawn This report has described the role of the newspaper planning supplement in terms of the background planning situation in Cochise County that gave rise to it, the expectations and consequent design formulated for a docu­ ment to be publicly distributed and the genre of discus­ sion of the planning'proposals with the public after its publication. The supplement has been viewed as an element in the phase of the County’s planning process calling for public review and comment on the planning proposals to be recommended by the Planning and Zoning Commission for adop­ tion by the Board of Supervisors. It was not conceived as an element by itself, but rather as one of several actions which the Commission undertook to provide for public par­ ticipation in the planning proposals* review and final formulation. Therefore, the conclusions stated are made in the context of the contributions by the supplement, along with the other actions providing for communication between the public and the Commission, to public discussion on the planning proposals. Also, because the supplement

39 kO was part of the manner in which the Cochise County Plan­ ning and Zoning Commission engaged in public presentation and review of its planning proposals, conclusions are drawn on the Commission's manifested manner toward public dis­ cussion. Finally, in light of the small population per­ centage observed partaking in public planning discussions in Cochise County and elsewhere, the significance of information dispersing means widely accessible to the public, such as a newspaper supplement, is considered.

Influence of the Supplement on Public Planning Discussion Publication of a newspaper supplement presenting proposed planning measures influenced the public planning discussion that has occurred in Cochise County. It, to­ gether with subsequent meetings of the Commission and the county planning department with the public, affected the form public planning discussion has been able to assume in two ways. F irst, publication of the supplement helped demon­ strate the Commission's desire for public information and participation on the proposed planning measures. The Com­ mission followed up with opportunity for the public to express its views through planning presentations at com­ munity organization meetings and at its sponsored public forums. The supplement had been published in late January of 1973 and the Commission's first public hearing on the 41 planning proposals was held May 30, 1973. The Commission’s actions made it untenable for the opposition to charge adequate notice and opportunity for public discussion of the planning measures had not been given. To have allowed such a charge to develop would undoubtedly have had negative consequences on public acceptance of the planning measures. The charge would have carried the insinuation that the Commission was interested in hastily pursuing enactment of planning legis­ lation in order to allegedly keep the public from being adequately informed and voicing opposition to such measures. In Cochise County’s setting where a general land use plan and a zoning ordinance were being proposed for the first time and where there is a long tradition of landowners' rights, the charge would have rendered damaging effects on the public understanding of planning measures in the County. Secondly, the supplement helped create and foster public understanding among the public for the planning measures. It set forth the County’s situation in regard to the need for planning future development as seen by the Commission. This viewpoint was expanded on at meetings with community groups and the Commission’s forums. Recog­ nition of the need to plan and to adopt county land regu­ lations occurred among those taking part in discussion of the County’s planning proposals. This is evidenced by the planning director’s evaluation of growing understanding at community meetings for the Commission’s responsibility to plan for orderly growth in the County and the nature of the vast majority of comments made at the public forums. The majority of remarks did not bring the need for a general land use plan or a zoning ordinance into question. This state of affairs prevented those raising objections to the County’s proposed planning measures from directly attacking the need for county land use regulation. Rather, it has prompted acknowledgment of the need. One of the two indi­ viduals questioning the legality of certain provisions of the County’s proposed zoning ordinance at the Commission’s public hearing September 12, 1973, acceded to the prevalent recognition for land use controls with the comment: ”We need zoning as quickly as possible, but it needs to be done r i g h t . " The significance of the role of the newspaper sup­ plement and ensuing provision of opportunities for c iti­ zenry inquiry and comment in public planning discussion in Cochise County lies in its contribution to shaping the form public planning discussion could assume. Publishing a supplement, and availing opportunities for public comment, did not prevent all opposition. This would have been an unnatural state of affairs in a situation where many 4-3 interests are affected. Yet, these actions prevented opposition forces from raising charges that could have aroused segments of public opinion to such a degree against the planning proposals that the Planning and Zoning Commission would have been placed in a very dif­ ficult position in recommending their adoption in light of such opposition.

The Commission’s Approach to Public Review of the Planning Proposals With the newspaper supplement the Cochise County Planning and Zoning Commission initiated a process of pub­ lic presentation and review of its proposed planning measures. Characteristics of the approach the Commission manifested toward this process are observable by an exami­ nation of the Commission's actions and behavior. From examining the Commission's course of action, its effects on public participation and understanding of the planning proposals can be viewed. In the public review phase the first act of the Commission was to give wide public notice of its intent to propose land regulation measures through the publication of the planning supplement. The Commission responded to the interest evoked by the supplement's publication by meeting (through its planning director and one or more Commis­ sioners) with various community groups during the two months fo llo w in g p u b lic a tio n . Communic a t io n a t th e se m eetin g s allowed clarification of the proposal's intent and applicability. Moreover, to permit any County resident or interested individual to express his views on the planning proposals the Commission sponsored public forums in four of the County's communities. A shortcoming of the forums, however, was that they were not held until April and May. The scheduling of the forums several months after the supplement's publica­ tion likely lessened the number of persons attending the forums than would have been the case if they had been scheduled earlier when the supplement's publication was more recent. The forums were announced in the supplement without meeting dates. If the forums' meeting dates would have appeared in the supplement, a greater chance existed that those reading the supplement would have read of their sc h e d u le . At the public hearings the Commission has not acted hastily but with deliberation. It has heard expressions of support and objections to the planning proposals. To allow due consideration to public views, the Commission has held three public meetings with an additional one or more to be sc h ed u le d . During the ongoing phase of public review, and com­ ment of the planning proposals, no Commissioner has taken a stand in public pro or con the planning measures. In surveying the Commission’s behavior it is clear it has chosen not to assume a campaigning manner for its planning proposals. Rather, it has chartered a course of action which placed reliance of adoption of County planning measures on the allowance for the public’s considerate judgment of them. It has not sought to mold public opinion by assuming positions favorable or negative toward the pro­ posals. The Commission’s influence on public opinion was pursued by having presented itself as a responsible public body conducting its activities for recommendation of plan­ ning measures adoption with openness and responsiveness to public views. The Commission’s noncampaigning approach appears to have been a wise move in light of the public mood over the planning measures, at least as manifested by the newspapers in the County. A no-comment, let the public be informed, speak and be heard policy seemed to be adopted by the papers editors. As was mentioned above, no editorial followed the supplement’s appearance in the newspapers distributing it. Through the time of the Commission’s third public hearing (the period this report was being written) editorial com­ ment on the County’s planning proposals occurred solely on three occasions known to the writer. It was sparsely volunteered in answer to publication of letters to the editor concerning the proposed measures. The first occasion was in the June 7* 1973 edition of the Brewery Gulch Gazette (not one of the six newspapers distributing the supplement, but a local periodical long famed for historical reporting of the Bisbee area). Refer­ ence was not made directly to the currently proposed County planning measures, though the topic was controlled growth in the County, A writer from out of the state wrote a letter to the editor containing the following paragraphs: It is my opinion, as a native of the East and being active in several large realty developments, that your county, because of location and weather, w ill experience an unparalleled growth compared with dense areas of the state. It is a redeeming note to find the interest on part of your supervisors and legislators that w ill permit a controlled, organized growth of what has certainly become uncontrolled in other areas. The editor’s reply noted: ", . . Arizona has had a number of land developments in recent years and some of them have been atrocious as well as crooked. We don’t know where it is going to end but the regulatory efforts by the counties and the state is at least the place to begin." In its June 28, 1973 edition The Tombstone Epitaph published a letter to the editor critical of the County’s planning proposals and written by an individual who had voiced objections at the Planning and Zoning Commission’s public hearing of May 30th. The editor’s reply was limited to urging the Planning and Zoning Commission to go slow on the proposed rules in order to give ample opportunity for citizens to make their feelings known. The third instance of editorial comment on the County*s planning proposals appeared August 16, 1973, in the Bisbee Review. A supporter of the County’s planning proposals had written to the editor criticizing the paper's news coverage of objections to the planning measure. The editor's reply offered brief editorial comment in favor of land use regulation. After distinguishing between news reporting and editorial comment, the editor's reply went on to state: . . . Matters were proceeding rather smoothly on the proposed ordinance until it was stopped by p e t i t i o n of some who were opposing i t . Our news report quoted liberally from statements and peti­ tion presented by the objectors, helping to show why they were objecting. Our reporting this does not mean we are supporting their views—only reporting them. VZe have long felt, and still do, that stiff zoning requirements should be placed on all real estate development in the County—for the long- range benefits of the County, its citizens and the residents of the new developments. But when legitimate objections are raised, it is our responsibility to report them. The very lim ited editorial comments on the planning proposals appearing in the local newspapers bear evidence to the fact that land use regulation is considered a sensi­ tive matter in the County. The Commission, in recognizing this fact, sought to avoid stirring up strong opposition by not assuming a forceful advocacy stance for its proposals. Rather, it saw its best opportunities for gaining public favor on the planning proposals lying in adoption of an open responsive manner which led to an awareness of devel­ opment issues and participation in their resolution by the p u b lic .

The Use of Means to Promote an Informed Citizenry and Public Participation in Planning If the figure is looked at for the number of people in Cochise County which attended public meetings on planning proposals, it does not represent a high percentage of the County’s population. Approximately 100 people were esti­ mated to have attended community organization meetings, and 91 persons were counted at the Commission’s public forums. The combined attendance represents 0.3 percent of the County’s 1970 census population of 62,000. A low percentage of total population attending pub­ lic planning meetings is not peculiar only to the Cochise County experience. Neighboring Pima County, Arizona, in the last eighteen months underwent two phases of public meetings as part of its comprehensive planning process. The meetings were given wide publicity in the newspapers, radio and television. During the first phase 4,166 persons attended 82 meetings. They represented 1.2 percent of the County’s 1970 population of 3^1,667. Attendance dropped in the second phase meetings with 1 ,0 3 5 persons attending 25 meetings, or 0.3 percent of the County1s population (City of Tucson Planning Division, 1972, 1973)• Planning offi­ cials in Dane County, Wisconsin, recently sponsored a series of public meetings to discuss land use plan alternatives. Twenty-two community meetings were held in the six months from July to December 1972. Publicity for the meetings included five forms: newspaper articles in local papers, radio and television announcements, posters in public places, and individual letters to a cross section of the population. A total of 1,675 persons attended. This was 0.6 percent of Dane County's 1970 population of 290,272 (Dane County Regional Planning Commission, 1973). The attendance figures cited give evidence to the fact that public meetings on planning general regional development commonly do not elicit a large percentage of a region's total population despite extensive efforts to do so. This fact enlarges the significance assumed by com- munication means widely accessible to a populace, such as a supplement in a region's major newspapers. Through means at their disposal persons not attending public meetings have the opportunity to become informed of proposed govern­ mental planning measures. Conduct of planning in governmental agencies needs to be carried out with the utilization of means aimed at informing the public and providing for its participation in government action. Two compelling reasons exist for this. A democratic public’s right to know and act upon matters affecting its public interest is the first. The second is the enablance of government officials to assume a responsible position for decision making in a context which has taken means to create an informed citizenry encouraged to partake in the formulation of government a c tio n . REFERENCES

Chester County Water Resources Authority. 1967. The Brandywine: A Place for Han/ A Place for Nature. West Chester, Pa.: The Upper East Branch Brandy­ wine Project of the Chester County Water Resources A u th o rity . ______. 1968. The Brandywine Plan. West Chester, Pa.: The Chester County Water Resources Authority. City of Tucson Planning Division. 1972. "Comprehensive Planning Process, Phase I Meeting Schedule." Unpublished Report. Tucson, A riz.: City of Tucson Planning Division. ______. 1973. "Comprehensive Planning Process, Phase II Meeting Schedule." Unpublished Report. Tucson, A riz.: City of, Tucson Planning Division. County of Cochise Planning and Zoning Commission. 1973* The County of Cochise Development Policies and General Plan. Bisbee, Ariz.: County of Cochise Planning and Zoning Commission. Dane County Regional Planning Commission. 1973. Citizen Responses to Land Use Plan A lternatives. Madison, W is.: Dane County Regional Planning Commission. Garrett, William H. 1971. "Formulation of Comprehensive Goal Statements—A Process." Unpublished Intern­ ship Report, University of Arizona.

51 APPENDIX

A copy of the Cochise County planning newspaper supplement published January 1973, entitled The County of Cochise Development Policies and General Plan.

52 C ounty of Cochise PLANNING AND ZONING COMMISSION D rawer AC BISBEE, ARIZONA 85603

• - JML, Dear Fellow Citizens:

Good citizenship begins vrith being well-informed. We know. You see, we are entrusted with planning for the or­ derly growth of Cochise County. We've been learning a great deal ourselves over the past months. We've learned a good many things about you. About what concerns you. About your desires. We've been taking a hard look at our county's future. We find planning for our future is essential. We are recommending development policies and a general plan for Cochise County. This report describes them. Positive steps are outlined to make the planning work. We believe you should be well-informed, too. You can be one citizen that kno\fS. Knows what alternatives we face. Which ones might do us in, like doing nothing. Which ones are right for us. After you read this report, read it again. Talk it over with your friends. Talk to us, too. We invite you to participate with us. Consider with us the kind of future we want for ourselves and our children and their children. Sincerely yours,

M illia m C. Bloomquist, Chairman William J. Winder, Vice Chairman Joe Clinton Tolbert Coleman V e m Cubit A rch ie Durham Roy Fourr A.J. Gilbert Gail Price

Sl’pptEMENT Blsbee Review, The Ofepatc, San T,le T°mbst0 0 t a "C> 'Vews-Si ne pPlta We've Come A Long W ay. . . From Frontier Tracks to City Streets

Cochise County Home for Generations of Men

Echoes of the past remain. They evoke images of man’s efforts at settlement. Man has almost always lived here. Traces of pre­ historic man date more than 10,000 years. Rugged mountain strongholds recall those yesterdays when they were home to Indian nations. Spanish conquistadores came. Intent on easy riches, they disdained an untapped wealth under their feet. They sought more distant legends. Nonetheless, the Spanish influence has been permanent. Americans pushed ever westward. They needed an easier route to California. In 1853, the Gadsden Purchase was made. Sparse groupings of settlements appeared. There were military posts. There were Butterfield Over­ land stagecoach stations. Still the Apache warriors bravely defended their homeland. After the Civil War, the strength of the Cavalry in­ creased. Silver and copper was discovered. The course for the future was set. Mining camps came to life. Charleston. Dos Cabazas. Tombstone. Millville. Contention City. Fairbanks. Bisbee. Miners, soldiers, gunfighters. Lawmen. Homestead­ ers, ranchers, farmers. Renegade Indians. They all made the scene a colorful one. Calm eventually came. The economy remained bas­ ically as before: Mining, farming, ranching, and the mili­ tary. Mining camps seasonally sprang to life as new dis­ coveries were made. Gleeson. Pearce. Garces. Ham­ WYATT EARP might not recognize Walnut Gulch If he were around today. Just burg. Courtland. Sunnyside. east of Tombstone, the gulch had an abundant carpet of grass in the 1890’s. By The railroad appeared. It made Willcox an impor­ 1960 a photo taken at the same spot reveals how heavily the mesquite and cat- tant cattle shipping center. It moved copper ores to the claw have invaded the valley. Why? Has the area been over grazed by cattle? smelters. Have we prevented wildfires from keeping the thorny desert scrub in check? Or is the climate gradually becoming warmer and drier? Photos courtesy of the Uni­ WESTWARD HO! versity of Arizona Press. The frontiers towns generally lacked cultural ameni­ ties. Bisbee was an exception. In due time, the tele­ phone, electricity, paved streets, and the automobile came El Sol Estates to town. All made their contribution. Particularly the auto. Loma Serena Arizona Bell Ranch Sons of the hardy pioneers continued to harvest La Maya Estates « . . . ■ Apple Valley wealth from the land. Irrigation brought substantial yield?. Ranchers continually improved their livestock. Winchester Foothills nlLLUUA Bowie Town site Dude ranches banished wordly cares. Accommoda­ Willow Lakes Ranchitos Los Alamos San Simon Townsite tions were excellent at the Y-Lightning, Bar-O, Triangle- T, Broken Arrow, and Faraway. There was no better Mescal Lakes nrycAy Dragoon Ranch Estates Apache Crossing tranquilizer. J-Six Ranchettes B C n v U M Arizona Sun Sites Paradise Indian Bead But national events intervened. There was the De­ pression. A second world war. Moreover, mines were Whetstone Mesa Estates St. David Townsite Sunizona Acres Galeyville worked-out, some flooded-out. Pearce Townsite Population of the county declined during the thirties Cochise Ranchos Tombstone Territory Estates Deer Run and forties. Coronado Estates Presidential Estates Holiday Ranch Estates Pradera Verde The decade of the fifties was a turning point. Growth Diamond Acres T A U Q C T A y E 1 Desert Sky Ranchettes was again seen. w l Growth has been good in many ways. More jobs are Silver Hills Estates I VUD IUH $|iern,an Oaks Estates available. There is better pay. New businesses have SIERRA VISTA Rancho Carmela Estates Valley Springs La Costa Estates been established. Soldiers have turned their attention to electronics and communications. Homes are being built. Town & Country Estates Montebello Mountain Mesas East Douglas Highlands There is a community college. Completion of an inter­ Village Meadows Estates Cloud Nine Ranch Estates Coronado Development state freeway is nearing. We now have twice as many residents as we had in Pueblo Del Sol Golden Acres Valley View Estates Coronado Lake Estates 1950. Indiada Charleston Park Estates Sunnyside Addition Bay Acres Parker Lakeview Estates n i Q i i r r Casa Adobe Tierra De Las Flores D lv D C fc g6$y Acres Rancho Palominos Sunset Acres Queen Addition Miracle Valley Mountain Ranch Estates Country Club Estates

WHAT’S IN A NAME? You can’t tell a subdivision by its name. Since 1950, dozens have sprung up. All have names with appeal. Some have attractive homes, well-kept lawns, utilities, good streets and community facilities nearby. Others do COUNTY PLAN, Page 2 not. The Challenge Is To Create Today— The Promises of All Our Tomorrows

Population Doubles In 100,000- Past Two Decades The County is changing. It remained essentially the same for centuries. Suddenly, new patterns of develop­ ment have emerged. The past two decades have witnessed a spectacular 77,500 X jump in land subdivision activity. More than six times as many lots have been subdivided since 1950 than had been subdivided in all times before. During the forties—145 lots. During the fifties— 61,910 1,300 lots. During the sixties—36,500 lots. So far during the seventies—28,000 lots.

SUBDIVISION STAMPEDE It used to be that subdivisions occurred only in, ad­ jacent or near existing communities. Now, they are likely to be remote. Of those subdivided in the past two decades, few lots are improved. Only three percent, in fact, are improved. Much subdivision activity has been premature. 20000 The future is likely to be one of further expansion. Our population in 1970 was 61,910. We project 75,000 by 1980. By 1990 we expect 100,000. These figures are based on historical trends. His­ tory is sometimes a. poor indicator of the future. The Charleston Dam will be a major impact. Tourism is yet 1930 1940 I960 I960 1970 1980 1990 an untapped potential. Of interest is where newcomers will settle. Of con­ YEAR cern is what would happen if those areas already subdivid­ ed were to become occupied. Of great concern is if this should happen quickly. We might not recognize many COCHISE COUNTY’S population declined during the period from 1930 to 1950. areas of the county. Since 1950, our population has steadily grown. Projections indicate this growth If present trends do continue, land speculation would will continue. Population of the county is expected to reach 100,000 persons surely obliterate most of our valleys. Prime agricultural around 1990. and grazing lands would be removed from production, for­ ever. The typical sprawl of cities into the countryside is occuring here. There must be a better way to accommo­ date our inevitable growth. There is. We can locate the urban development that is coming to Cochise County wisely. The preparation and adoption V4++:====J of a comprehensive plan is a first step. WILLC0X:==:=4

BENSON

TOMBSTONE

SIERRA viSTA:::::i

DOUGLAS

SUPPOSE SOMEONE GAVE A PICNIC AND EVERYBODY CAME! About 65, 000 people reside today in the county. The inner circles on the above map show where they live. Lots of others have bought homesites in county subdivisions, but still live elsewhere. The outer circles show how the distribution of people would change if all these absentee owners and their families came tomorrow. Move over, pardner. COUNTY PLAN, Page 3 Neighbor, What's On Your Mind?

What We Agree Upon, Mostly! Segregate MobileHomes Atid0 Open Sp.ee A, We’ve asked many people. We’ve asked many ques tions. We’ve listened. Sometimes, we’ve been surprise- AUe Subdivide* Restrict Septic Tanks at what we’ve heard. But we are impressed. LIMIT Impressed that people care about the future of the: Provide Sewers county. Impressed that they are concerned. More BILLBOARDS From our surveys, we find people believe continue development of the county is desirable. But not ju Avoid Urban Sprawl Clean helter-skelter. Not the way Phoenix has gone, or Tucs( Industry C$f,W,,h County P.rfej is going. UPgrade Housing Comprehensive planning is seen as necessary. Aloi f°r All with subdivision regulation and zoning. Most feel su Make Sul>dividers dividers should provide water and sewers. Yet make possible, and profitable too, for responsible develop* Designate Provide Water to add to the county’s growth. Depletion of water resources is the number one cc Scenic Roods cern. Is there enough to support further urban develt T~1 More Campgrounds ment? Yes and no. Who has first priority—urban u; SPe or agricultural uses? Pro and con. Broadening the county’s economic base is import; Develop Fishing Lakes we are told. Tourism receives strong support. Scei Preserve Historic Sites roads are desired. Historic sites need restoration. Social needs ’are not to be overlooked. Housing c( ESTABLISH ZONING ditions should be improved. ConserMC Our Recreation is on everyone’s list of things to do. R esources ftr o u n W cr P ro m o te Tourism

GROWING FAINS! The concerns of citizens throughout the county have been ex­ pressed. A consensus has been voiced. Problems brought about by development should be given top priority. Just Where Do We Go From Here?

What Choices Do We Have? The road ahead presents many choices. Many oppor­ tunities await us. Some important decisions will need to be made soon. Will homesites be allowed in flood prone areas? Will newcomers have suitable housing, jobs, public services? Will scenic lands be left undisturbed for future gen­ erations to enjoy? Will urban sprawl pressure farmers from their farms? Space To Dream In Our challenge is to make sure that we, as taxpayers, will be able to support the services we expect. We all place burdens on government. We require transportation. We require police and fire protection. We require wel­ Congestion fare. We use public schools. We can minimize the governmental burden. We can locate homes well, in the first place. We can reserve pub­ lic rights-of-way, before it is necessary to condemn. We can maintain neighborliness, without being forced later Perpetual Springtime to separate conflicting uses. We can choose wisely, or otherwise. Devil Take The Hindmost

BUT CAN WE GET THERE FROM HERE? History turns on small hinges. We constantly make small decisions. The total sum of them, though, determines our success or failure. That is why it is worth while to set a course and be ready when the moment of decision comes. As in a game of chance, we are compelled to fol­ low circumstances imposed upon us. But there is no excuse for starting off with­ COUNTY PLAN, Page 4 out a plan that looks ahead as far as we can see. Policies Needed for Guiding Growth

The county needs direction What shape Planning Principles do we want development to take? Things are happening. Here, all around Let’s establish sound planning principles. us. All the time. Will Cochise County con­ tinue to be a good place to live? Good planning looks into all areas affected. It con­ siders all relevant facts. It involves many people. What will it take to provide adequate Let’s involve all citizens and communities having an roads? How can we be assured that we will interest in our county plans. have enough water? Where will we find Planning is needed on a continuous basis. It is nec­ the dollars for the top priority needs? essary to review and update the plan as conditions change. Sound planning is required of all new developments. It is too easy for us to think only of im­ It is the developer’s responsibility to display a high stand­ mediate tasks. After all, we do lead busy ard of design. To minimize in his plans additional bur­ lives. dens placed on county taxpayers. To recognize his duties as property owner of neighboring landowners’ rights. But we cannot put off or ignore the fu­ It is the county’s responsibility to prepare to the ture. If we do, we risk danger. We may be same high standards its comprehensive plans. Clearly optimistic about our good luck. But we presented. Based upon an expanding understanding of need to take all the measures necessary to the natural environment. Guided by development policies insure the fulfillment of our aims. expressing concisely the best interest of the public health, safety and general welfare. Good drivers don’t travel bumper-to- bumper. They keep their eyes on the road far enough ahead to avoid trouble. Population Growth Cochise County is now looking down the road a piece. We invite each of you to join Let’s balance population growth with our us. Consider the kind of future you want. ability to provide public services. The list of goals and development poli­ cies presented here is a beginning. People are coming to Cochise County. Population growth appears inevitable. It must be accommodated. These goals and policies describe the Wisely. basic ground rules for the kind of develop­ Growth need not be destructive. Uncontrolled ment we seek. growth generally becomes self-destructive. Growth should be in accordance with adopted plans. Planned growth is not only more desir­ It should be in balance with the ability to provide and able—it is generally more profitable. The maintain required public services and facilities. public and private developers can join in Subdivision of land should not occur years before partnership to realize the plan. any households arrive. We discourage large-scale subdi­ visions that are merely land speculation ventures. These proposed policies make known Subdivision of land should be well planned to accom our major goals. They set standards. We modate well its residents. Large-scale subdivisions should can aim for greater benefits for the county. give promise of becoming balanced communities: Housing and jobs. Such communities should provide the full ar­ The policies will serve as guidelines to ray of public utilities and services in a timely manner. county officials. They will help the deci­ sion-making process. Private enterprise will also be benefited. Economic Development Developers will know what is expected of them before investments are made. Let’s promote steady economic growth and Firm policy direction is needed for the full employment. county if it hopes to govern well. To survive, the county must maintain a healthy econ­ omy. We need to induce economic renewal at a rate that matches the relentless march of deterioration. A broad­ ening of the economic base is encouraged. Large-scale developers must demonstrate that pros­ pective residents will have adequate employment oppor­ tunities. The economic well-being of the new families moving into the county must be considered prior to sub­ division approval. Careful consideration, too, must be given to the costs to the individual wage-earner and the public of travel be­ tween home and work. Industry and businesses must be located with care. It will not do to have the sound of heavy trucks or the odors of meat-packing plants intruding people’s homes. People ought to be able to smell their own flowers. Likewise, careful siting would allow businesses to carry out their transactions without harassment from a weary public.

HAVE A NICE DAY! A life or business without plan­ ning is like a lump of modelling clay in a kindergart­ en. Every day it assumes a different shape accord­ ing to the personality of the child who tries to express himself through it. Vital personalities prepare and plan their future. COUNTY PLAN, Page 5 Sound Policies Promote Good Decisions Natural Resources Housing Let's take into account the impact upon our Let’s promote an adequate distribution of natural resources whenever we make deci­ decent dwelling units so that choice of lo­ sions. cation and variety of housing is within the We are stewards of our environment. As such, we means of all households. must gain the best understanding we can as to how it Housing is important to all households. works. Residential developments should avoid leap-frogging Before any development is allowed to take place, vacant sites adjacent to existing communities. careful consideration of its interaction with the natural Large-scale developments should provide a mixture environment surrounding it must take place. of housing choices. Lower-cost dwellings should be in­ Tragedy is the result for the careless. Those forces cluded. of nature which are at times destructive are generally Mobile homes have their own unique qualities. They predictable and repetitive. They are avoidable. are appropriate in rural areas and in subdivisions or parks expressly designed and set aside for them. ' Steep slopes should be protected from development. A house high up on a hill may be picturesque. Yet Solid Wastes building on steep slopes can cause major erosion, site en­ gineering and drainage problems. Scenic qualities of the Let’s dispose of solid wastes in a santitary hillside may be destroyed. Slopes exceeding 20 percent manner. are not suitable for urban development. Slopes over 10 Garbage and trash keep accumulating. We live in percent can tolerate only limited development. Even then an age where most everything is disposable. special precautions must be taken. Solid wastes can become an eyesore. It can be a serious health hazard. Areas of geologic hazard should be protected from ' Developments are to provide sound solid waste man­ high-intensity development. agement solutions for sanitary disposal of solid wastes. Earthquakes, land subsidence, unsettled soil mater­ Processes using recycling methods are encouraged. ials, and rock falls can result in damage to buildings. Areas of high risk should be restricted to low-density low- rise development.

Aquifer recharge zones should be protected from wa­ ter pollution hazards. Aquifer recharge occurs at those places at which sur­ face water infiltrates the underground water-bearing lay­ ers. These areas of interchange are not particularly well suited for urban development. There is high risk of pol­ luting underground water resources. The intrusion of T H R O W SO M ETH IN G LOVELY AWAY TODAY pollutants from septic tanks must be avoided. The floodplains should be protected. Floodplains have an essential role to perform. They carry excess water during floods. J r ' T Development should be limited to those uses which are unharmed or improved by flooding. Care must be taken to prevent pollution of under­ ground water. Aesthetics Let’s promote a pleasant living environment Soils with one or more severe limitations for urban as attractive as our magnificent scenic use should be protected from excessive development. Soils are a major determinant in where not to build. beauty. Some soils can’t support heavy building foundations. Other The aesthetic beauty of our mountains and valleys is soils corrode steel or concrete. Soils differ in their ability incomparable. Environmental amenity should be preserv­ to absorb moisture. Some do not make good sites for ed. Junkyards and billboards require careful treatment. landfills, for septic tank filter fields, or sewage lagoons. Planned developments are preferred which express an Soils with a high clay content readily shrink or swell de­ appreciative feeling for the natural beauties of the county. pending on its moisture content. Cracked foundations and walls result. When undesirable soil conditions exist, ur­ Cultural Enhancement ban development must be regulated to the degree requir­ ed for protection. Let’s enhance our heritage through preser­ vation and restoration of cultural resources. Valuable resource lands should be given preference We have a rich heritage. Archaeologists have uncov­ for their productive capabilities over use for urban de­ ered bones of prehistoric mammoths. Historic trails criss­ velopment. cross the county. Significant architectural styles remain. Geologic forces have deposited minerals here and Numerous sites could tell of historic happenings. Scatter­ there. Where such deposits are known, these resources ed cemeteries mark the final resting place of the good and including sand and gravel, are given preference over urban not-so-good. encroachment. When developers encounter such places, their de­ Vegetation covering the soil is not to be taken for velopments should give due respect to our cultural herit­ granted. Woodlands play an important role in the water age. No development should harm or endanger them. cycle, replenish oxygen, and support life of all forms. Likewise, grasslands of grazing value and croplands Transportation capable of producing high-value yield are given prefer­ ence as resource lands over urban use. Let’s coordinate land use developments Primary wildlife habitats should be protected from with transportation facilities. intensive development. Transportation is a basic force in shaping develop­ Wildlife retreats once man makes his stay permanent. ment. Location and type of development is to be coordi­ The natural environment of any endangered species needs nated with the network of streets, highways, airports and to be maintained with a minimum of disruption of its com­ rail lines. munity. Some wildlife habitats may be suitable for sci­ The internal circulation of sites should be well-plan­ entific, recreational or educational purposes if properly ned. Off-street parking and loading areas should be pro­ managed. vided. In all developments, streets must meet minimum COUNTY PLAN, Page 6 county standards of design and improvement. W ater Health, Safety, and Welfare Let’s conserve and improve our invaluable Let's help promote the environmental and water resources. personal health, safety, and welfare of all Water is critical to life. It is especially precious in citizens by having orderly physical and so­ our arid climate. Wise use is demanded. Safeguards are cial development patterns. necessary to ensure that we will have an adequate supply Government is entrusted with promoting the public to meet our needs. good. It is the right of every owner to construct his home All proposed developments must provide potable on his property. It is his right to conserve the natural water to each user. Proper care must be taken to assure resources of his land. It is his right to produce food, fiber underground water resources will not be polluted due to and mineral goods from his land’s wealth. new development. Developers should show existing water To permit anyone to do absolutely what he likes with sources will not be unduly depleted by their developments. his property would be to make everyone’s property in Sewage Treatment general valueless. As guardian of the public’s interest, the county has no Let s prevent health hazards due to sewage inherent obligation to allow uses or development of prop­ wastes and effluents. erty detrimental to the public health, safety, convenience Minimum health standards exist. County and State or welfare. Health Departments safeguard the public’s health. All developments must meet the minimum standards Public Services they have established. Let's coordinate public services and facili­ In addition, concentrations of septic tanks are dis­ ties with private development so everyone couraged. Where soil characteristics and recharging of aquifers exist, septic tanks are to be limited to low-densi­ may have a full array of high quality services ties. at minimum cost to taxpayers. Modern living requires many public services. Urban Recreation living cannot take place without corresponding public in­ vestments for streets, utilities, parks, schools, police and Let's meet our recreation needs by making fire protection, health services, communications, recrea­ accessible a variety of areas and facilities. tion, libraries and other civil services. The county is blessed with many recreational oppor­ These services shape our physical, social and eco­ tunities. The demands placed on them is increasing rapid­ nomic well-being. They cost dollars. Dollars not only to ly. As more people come into the county, and as leisure build, but dollars to operate and maintain them. time increases, more sites will be needed. The timing, location, size, and type of urban develop­ Provision for park and recreation facilities are es­ ments must be coordinated with the public investments sential in large-scale developments. in services and facilities. The burden on taxpayers is to Potential recreation sites are to be reserved for ap­ be minimized. The existing level of services should not be propriate recreational use. jeopardized by new developments. A system of scenic roads should be implemented. Open Space Let's preserve open space lands which en­ hance the grand vistas necessary for the full enjoyment of life. It is uplifting to see what is around us. To contem­ plate our open setting. Open space is simply all those land and water areas open to the sky. Those green places not under a roof or paved over. Appropriate open spaces are to be conserved in large- scale developments. Prime conservation lands are not considered appro­ priate for urban use. Floodplains, poor soils, steep slopes, aquifer recharge areas, and prime wildlife habitats should remain as open spaces.

Governmental Relations Let’s develop the comprehensive plans of the county in full cooperation with other government agencies. Governmental responsibilities within the county are shared among federal, state and local governments. It is necessary to coordinate plans and programs. Preference for urban development is to be given to those areas adjacent to existing municipalities. Generally a higher level of community services can be provided by local government than can be by the county. The economic base of the municipality will be strengthened by addition­ al employment and housing choices. The required public facilities and utilities can be made more readily available and at lower cost. A sense of place is sought wherein an orderly gov­ ernmental structure can be promoted. Citizens can work WHAT YOU SEE IS WHAT YOU GET. Unfortun­ more effectively together. ately, many have bought without even seeing! Let the buyer beware. Yes. But let’s keep an eye out for the public’s interests, too. Meanwhile, welcome to beautiful Sunset Avenue. COUNTY PLAN, Page 7 Consideration of Our Environment Is Vital For the most part, Cochise County is healthy, fertile and beautiful. We have a place for man. There is a place for nature. For generations, our place in the sun hasn’t changed much. But now, the county is changing. Change could wreck the coun­ ty. 11 need not. We are vulnerable. Urbanization is reaching into the country side. Demands on our land and water resources continue re­ lentlessly. The urban impact is felt every­ where, even in once remote places. We can absorb all prospective growth. It can be done without destroying our health, productivity, and beauty. Urban development has been increasing­ ly eating into our countryside without great regard for the character of the land. The long-range needs of a growing popu­ Rainfall is one measure of climate. Annual precipitation for a portion of the San lation for food, fiber, and minerals have Pedro River valley around Benson is mapped above. Snowfall, temperature, frost- been neglected. free period, wind, humidity, and sunshine are other factors to consider. We’ve built on the floodplains as if the floods would never come again. Arable land of great productivity has given way to building sites. Natural landmarks and all manner of special places best left alone have been violated. As settlement grows, urban uses of land ‘ BENSON compete with resource productive uses. The earth is sealed with pavements and rooftops. The natural face of the land is closed off from the sky. — h> This process is of profound importance. How shall we best utilize the land? Land produces the substance of life. Land is also a locator for human settlement. Everything we do has an effect on the environment eventually. Often we are not even aware of the footprints we leave be­ Faults in the earth’s crust are shown by the lines on the above map. Mineral de­ hind. posits are also indicated. Metallic minerals are represented by a hexagon, preci­ We are generally shortsighted. We must ous metals by a square and non-metallic minerals by a circle. learn to anticipate the consequences of what we do. We’ve tried to learn the nature of our place, Cochise County. W e’ve made the systematic study of our total environment a part of our planning. We started by inventorying.___ , c .._veWe’> asured and mapped significantignificant factors factors.

We’ve gained an understanding of our * | A - BENSON nate and geology. They have created the i.° '«; V -* B i- iic forms. With this understood, various —r +__u iographic regions become evident. Hydrologic patterns — drainageways, N- N A V ° t e o ‘N a -loodplains, underground resources—have Deen described. ___.—!'~ r-4~ . From these natural processes, a knowl­ edge of soils has been revealed. These to­ gether, have made clearer the communities 'of vegetation and wildlife.

► Finally, land use patterns have been sug­ The slope of the ground’s surface has a direct impact on land use. Slopes steeper gested. than Id percent are generally not suitable for intensive urban use. These lands are shaded on the above map. ' COUNTY PLAN, Page 8 The Shape We're In Our environmental analysis has brought to light a number of findings. We pass along to you some impor­ tant ones.

Climate

We all know climate affects our uses of land. Rain­ fall and temperature affect grazing conditions. Climate influences outdoor recreation values. Climate conditions may provide relief for some respiratory ailments. There is another side to the coin. Climate can be influenced by man’s activities. Some­ times on a local scale, perhaps more often on a global scale. Climate is most closely associated with elevation.

Geology

Analysis of geologic conditions is essential. Sub­ surface rock strata are a source of raw materials. They serve as underground reservoirs for water. They are the The hydrologic cycle describes the travels of water. Water is delivered to the backbone of the earth capable of supporting heavy struc­ land when it rains. It infiltrates into the ground. It may be absorbed by plants tures. They contain important mineral deposits. and then transpired into the atmosphere. Or it may be percolated downward into underground water reservoirs. Some water collects in rivers or lakes. Water is The relationship of man and minerals in Cochise evaporated from them back into the atmosphere. From the atmosphere, water County has historically been of far-reaching proportions. again collects and is precipitated back on the earth’s surface. Man can tap the The eventual recovery of known mineral deposits can be cycle by collectin grainfall, storing surface waters in reservoirs, or pump directly endangered when encroached upon by urban develop­ from the aquifers. Man can upset the balance of this cycle. ments. It is important to maintain the recoverability of these resources. On the other hand, effects of mining are sometimes inconsistent with maintaining the kind of environment de­ manded by city dwellers. Long-range planning can avoid both problems.

Topography Hills and valleys, plateaus and ridges, elevation and slope describe the physical character of the county. All affect the suitability of land for development. Topography influences the cost of development. It controls the direction and rate at which rains run-off. Topography adds variety to the landscape. It influ­ ences the weather. In turn, it helps determine the types of vegetation and wildlife we have. Generally speaking, the steeper the slope of the land; the higher the costs of construction, the greater the risk of major erosion and landslides if vegetation is stripped, and the greater in scenic value. In sum, the steeper the slope, the land is less tolerant to development.

Underground water bearing rock strata are called aquifers. These aquifers are Hydrology replenished with water at “recharge” areas. These areas where water infiltrates the aquifer are rhown. In Cochise County, we derive the water we need by tapping our great underground reservoirs. Underground water is a stock resource. It has ac­ cumulated over many centuries. Only a small proportion of the total groundwater can be replenished each year from precipitation. We mine water. We mine more each year than is replaced. The rate at which we are depleting this resource is of great concern. The water table has dropped in some agricultural areas over 100 feet in just ten years. Underground water flows through water-bearing rock. These are called aquifers. The groundwater supply is replenished at “recharge” areas. Here, the aquifers come close to the surface. Our groundwater is generally of high-quality. But aquifer recharge areas are particularly vulnerable to ur­ ban development. Inadequate sewage disposal systems can easily contaminate the recharge area subsoils, then, groundwater seeping into the aquifer also becomes pol­ luted. Septic tanks can place contaminants directly into the groundwater supply. By building over the aquifer recharge areas, the ca­ pacity to absorb water is greatly reduced. Depletion rates are increased. Soils have been rated on the basis of their ability to absorb effluent from septic tank filter fields. The rating is based on factors such as soil depth, slope, perme­ ability, percolation rate, water table, and overflow or flooding hazards. Those soils having severe limitations for filter fields are shown. COUNTY PLAN, Page 9 A Look At Our Physical Fitness

Floodplains Flooding is a natural phenomenon. However, urban­ ization has tended to aggravate the seriousness of floods. First, more areas are eovered by buildings, streets, and parking lots. As a result, more water tends to run off the land. Less seeps into the ground. CAUTION St met ures have cneroaehed upon the natural drain- DANGER ageways. This creates obvious risk for the occupants. It also raises the flood peaks downstream. Rj Y a LNUT g u l c h DO NOT CROSS The best flood prevention method is to keep uses ^ experimental out of the floodplains that would suffer damage. m W ATERSHED Floodplains can be used to great advantage by agri­ | tlGRCULTUFAL RESEARCH culture and recreation uses. SERVICE i

Soils

Land use suitabilities relate directly to soil conditions. Soils vary greatly in their composition. They are quite different in their response to water and gravity. These variations affect a soil's productive capacity. Its ability to support heavy loads changes. Its ability to ■**-it* hold its shape after excavations is influenced. Soil is significant in other ways. It is a mineral re source. It is an engineering variable. It determines the It is by field studies that we can gain a better understanding of how climate, operation of waste disposal practices. soils, slope, vegetation and water relate to each other. From our knowledge, Some soils become unstable when vegetation is re­ potential hazards to man can be predicted and avoided. moved. Some become unstable when saturated with mois­ ture. An extensive study of soils in the county has been performed as part of the environmental analysis.

Vegetation and Wildlife It is important we have an understanding of nature’s interdependencies. Nature maintains delicate balances. Even small changes can be upsetting. Most all of the county still has its natural cover of vegetation. Native grasses and woodlands serve important func­ tions. They aerate and bind the soils. They prevent ero­ sion. They increase the absorption capacity of soil. Vegetation protects watersheds. It maintains the quality and quantity of water resources. Natural covers of vegetation, particularly woodlands, replenish our oxygen supply, exert a cooling effect in sum­ mertime, and reduce effects of air pollution. Natural landscapes arc pleasing to look at and help define places. Vegetation provides a habitat to all manner of wild­ life species. Each species is partial to a specific environ­ ment. Animals are mobile only within the confines of its Vegetation mirrors a variety of environmental relationships. It reflects soils, own habitat. landforms, climate, exposure and wildlife. By carefully reading vegetation com­ munities, potentials and limitations for man’s adaptation can be learned. Cultural Environment •*;' * Our environment contains additional features, once ERTIA destroyed can never be regained at any price. HABITi Included arc archaeological and historic sites. Nat­ HABITAT ural features of scenic value exist. These cultural features of our environment abound in Cochise County. They are unrcproduciblc. They at- 1 tract tourists. p p t It is not enough to merely inventory se- Ad OR HABITAT , lected environmental features. What we , seek is an understanding of their tolerance to urban development. SECONDARY H > We seek their suitability for specific k uses. Their usefulness to man. Their po- ► tential hazard to man. ONDAR

►

► Potential conflicts exist between man and his activities and wildlife living pat­ ► COUNTY PLAN, Page 10 terns. The map shows areas ranging from those where no major animal species lives to primary habitats. Getting It All Together, Together

Suppose we ask ourselves, “What are the lands best suited for urban develop­ ment, from what we know about the natural processes at work in Cochise County?” To answer this question, let’s start by excluding those areas of severe consequence if developed for urban uses. These we know. They would include slopes greater than 20 percent, the floodplains, habitats of en­ dangered wildlife species, geologic fault zones, and soils unsuitable for sewage filter fields. We can further close in on the task of finding the best urban sites. We can identi­ fy and exclude those areas of moderate con­ sequence. By repeating this procedure, areas of slight consequence can be noted. By subtraction, the areas best suited would be revealed. The shaded areas denote “prime” conservation lands. These areas include the floodplains, steep slopes, aquifer recharge zones, soils with severe erosion haz­ Using what we know about how our en­ ards, and prime wildlife habitats. These comprise the lands best left alone. vironment works, this same type of proced­ ure was used to reveal areas least suitable to most suitable for agriculture, grazing, and recreation use. In addition, those areas of the county best left undeveloped were identified. These were called the prime conservation lands. Areas of secondary importance for conser­ vation were identified, too. By overlaying each of the five single­ use suitability maps on one another, com­ parison was made of land areas suitable to each use. Potentials for using land for more than just one use alone are immediately appar­ ent. We know, for example, a forest can be managed for many different uses. It can be useful in water, flood control, erosion control, wildlife, recreation, timber, and grazing management. In sum, this look at the environment has identified a kind of ideal land use pattern. The areas with only slight environmental limitations for urban development are But our definition of ideal has been limited. shown. These were selected by subtracting from the total area those lands with Its scope is confined to natural factors. severe and moderate limitations for urban use. No mention has yet been made of our existing land uses. It has not yet consider­ ed policy desires. It has looked only at nat­ T jlf'T M : ural land units and their boundaries; not the i ~T|- — 4™ *--1 artificial boundaries of political jurisdic­ tions. We have yet to form a plan. The plans we are to develop will need to offer ways to achieve a good balance between our human desires and basic natural processes. We may choose, for sound policy rea­ sons, to use land in a manner counter to the land’s natural capabilities. An additional cost is logically going to be incurred. The costs may be in lost land use potential. The costs may be in extra measures required to overcome the land’s limitations. It is the long-range balancing of environ­ mental and governmental costs and savings that our plans must reflect.

By combining the individual maps for lands most suitable for agriculture, graz­ ing, recreation, urban and conservation uses, multiple-use potentials are revealed. COUNTY PLAN, Page 11 The Plan

Elements of the Plan R .I9 t. r at. R 2 11 R.22E R. 2 3 1. R 24 E. R B E . R. 28 E. R. 31 E. R.32E. The accompanying plan identifies two basic types of '•••••••••••eeeeeelei ••••••••• land use, resource lands and urban lands. It is as simple as that. Resource lands produce the sustenance of life: cop­ per, cattle and cotton, if you will. Some of these resource lands possess, as well, conservation values vital to the overall well-being of Nature. Urban lands serve as a location for human settle­ ments. Three classes of urban lands are identified: those that are already urban places, those that are in a transi­ tional state of becoming urbanized, and those that are un­ developed but held in reserve for future urban use. The urban lands are shaded in color on the plan-map. The resource lands comprise the balance of the county. Those areas where particular conservation values exist are covered by the dot pattern. Beyond identifying resource and urban lands what does the plan tell us? It is saying that we have an understanding, though yet imperfect, of the natural processes at work. We have a proposed set of policies that reflect our attitudes toward development. We have places already urbanized or subdivided, for better or for worse. It is saying that we ought to encourage development in those areas which logically should next be developed. Those areas that can readily be served by utilities and public facilities. It is saying that we ought to encourage development adjacent to incorporated municipalities. Development should be directed towards strengthening the economic base of existing communities. It is saying that the County, in its efforts to provide county wide services, recognizes its continuing responsi­ bility for rural services. The County, however, is ill- equipped to provide costly urban services in remote and scattered places. It is saying that urban places ought to be well-defined. Particularly, their edges need to be given a definite boundary. A distinction between town and country is de­ sired. Endless sprawl of urban uses into the countryside is deplored. It is saying that there are enough appropriate places for newcomers to locate without despoiling the lands valued primarily for their food, fiber, and mineral pro­ ductivity. It is saying that within Urban Transition areas, de­ velopments are encouraged. They are, of course, ex­ pected to pay their fair share of the public costs that re­ sult. y a r- a y It is saying that the Urban Reserve lands are not re­ quired for urbanization now—and probably not for the next decade or two. These would be considered only upon the filing of a specific development proposal of out­ standing value and extraordinary benefit to the entire county. The goal of the urban development policies and land use plan is to insure that the county’s future growth will proceed in an orderly, planned manner. We seek to achieve a balance among urban, rural and public uses which will enhance the qualities of the place where we choose to live. Development in the future ought to be structured to provide a full range of employment, consumer, housing and public use opportunities. Future development ought to respect the environ­ ment as well. The urban places we build ought to be sought out by people for their healthful and pleasant set­ ting. LEGEND Resource Production Lands l l • • • ••••••••••••a• e • • I • •••••••• W * * * * * * * * * » V-A Resource Conservation Lands MMHX R 23 E. R 24 E R 27E R 28 E R.29E. Incorporated Places Urban Transition Lands Urban Reserve Lands

COUNTY PLAN, Page 12 The Huachuca Foothills Area

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Just as man is a part of the environment, The Huachuca Foothills Area Plan designates ap­ so are his works. Cities are as natural as bee­ proximately 42 square miles as Urban Transition lands hives. But we do not seem to have any in­ Of these, about 26 square miles are shown suitable for major urban activity and 16 square miles for low density stinctively correct city forms. development But we do have an unique opportunity The prime development now taking shape is on the to choose. New towns near established 6,000 acres belonging ton Tenneco West, Inc The "new towns are being created. The communities town" being created is Pueblo del Sol of tomorrow are being formed before our It is becoming the keystone of the H u ach uca Foothills eyes today. area. The key to this community . future lies in its mas­ ter planned environment. This planning includes a ha I It is an interesting time in which we are a nee of uses and open spaces ft includes efforts to pro­ participating. We can create significantly vide industry as well as homes A "town center" will greater community values while protecting focus regional shopping, governmental, and cultural ac­ the investments of land purchasers and tax­ tivities into a convenient complex payers as well as ourenvironment. The commercial strip development which has charac­ terized much of Sierra Vista’s early development is being It seems everybody’s going to town. eliminated with the new, master planned developments Three out of four have moved to a city in In addition to the Pueblo del Sol properties, it is an­ this country. ticipated that the other major land holders in the Hua­ Cities have problems, sometimes chuca Foothills area will also be adding their develop­ amounting to a high-fever, because nearly mental talents in providing planned neighborhoods and communities. everyone has decided that in or near a city One of the major objectives of the Huachuca Foothills is the place to be. Area Plan is to define the edge of the area suitable for In Cochise County, three cities are ex­ immediate urban development hibiting a recent surge of activity. The areas Virtually all of the area shown on the plan is bound­ surrounding Sierra Vista, Willcox, and ed by public or already incorporated lands The Huachu­ Douglas are rapidly being saturated with ca Foothills Area is surrounded by the Huachuca Military subdivisions. Reservation, Coronado National Forest. State of Arizona Bureau of Land Management and City of Sierra Vista A closer look at each is warranted. lands. In this manner, a distinction is made between the urban place and the rural valley The values of the for­ ested mountain are maintained as a scenic backdrop and The Huachuca Foothills vital environmental unit. The eastern foothills of the Huachuca Mountains has doubled its population in the past ten years. The area which includes Sierra Vista and Fort Hua­ chuca is the second-fastest growing region in Arizona. Today, the population is over 20,000 persons. The economic activity of the Huachuca Foothills area is closely related to the expanded importance of Fort Huachuca. Established in 1887 as a cavalry outpost, it is home post of the U. S. Army Strategic Communications Command (STRATCOM), Intelligence School, Electronic Proving Ground, and other major army commands. Improvements alone on the Fort total to more than $350 million. It’s daytime population is about 18,000 persons, including some 3,500 civilian employees. Compared to the Fort, Sierra Vista is a newcomer. Sierra Vista was incorporated in 1956. The Fort was an­ nexed by Sierra Vista in 1971, making the city's area one of the largest in Arizona. The explosive growth of the area and its continuation is the result of a number of factors. The needs of the Fort’s active military and civilian personnel, the climate, the area’s popularity with retiring military personnel, and the nearing prospect of the Charleston Dam are major growth factors. Excluding the military reservation. Sierra Vista con­ tains about 5 and one-half square miles.

Sierra Vista Is Bustin' Out All Over

LEGEND City of Sierra Vista III Hill IIIII Vrban Transition—Major Activity 7//////////

Urban Transition—I a i w Density Airport Airspace

COUNTY PI XV Page 15 | 9 © 'jTlWARO • SUBSTATION

The Greater Willcox Area

LEGEND I City of Willcox 7/////////1 Urban Transition—Major Activity Urban Transition—Low Density Airport Airspace

COUNTY PLAN, Page 16 The Douglas-Border Gateway Area

LEGEND City of Douglas Urban Transition—Major Activity Urban Transition—Low Density Airport Airspace

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COUNTY PLAN, Page 17 The Greater Willcox Area The Stable of Older Townsites Wklcox is great. Willcox is becoming even greater. Each of the several dozen communities in Cochise Willcox became and has remained a major south­ County has its own healthy personality. This is as it western cattle shipping point. It was incorporated in should be. 1915. Located in the northern part of the county, it We are cursed-blessed it seems at times by being such serves as the commercial center for the extensive agricul­ a pleasant place to live, work and play. tural and grazing lands of the Sulphur Springs Valley. It Our attractiveness has meant for at least three of our has developed a diversity of supporting industries and cities recent surge of platting land for building sites. institutions. Other areas are experiencing the same phenomenan A great deal of subdivision activity has occurred near if only at a somewhat lesser degree. Willcox in the past decade. Most has occurred to the Benson, Bisbee, Huachuca City, and Tombstone, the south, towards the Willcox Playa. other incorporated towns in the county, are ripe for During the past two years, activity has been focused growth. To date, they have largely been spared from the towards the northeast, along both sides of Interstate 10. lot sales promotions moving close-in. Such activity, The City of Willcox contains today approximately 2 though, has been conspicuous, but camped down the road and one-half square miles of land. a bit. The Greater Willcox Area Plans includes an addition- Each of these established towns have a lot going for 32 square miles of Urban Transitional lands. About 11,- them. They may not be so big, but have for many a cov­ 000 acres are indicated as suitable for major activity and eted style of life. They are delightful. 9,500 acres for low-density development. The goal we seek is one whereby each of these com­ The major growth incentive is now being provided munities can grow and prosper without losing their charms by the Southwest Properties, Inc. developments. These of small town living. include the Arizona Bell Ranch, and Arizona Bell Country The same goal applies to the rural villages, older Club, north an dsouth of Interstate 10 respectively. townsites and other unincorporated places, such as St. County Improvement Districts, the first in Cochise David, Bowie, Portal, Elfrida, San Simon, Palominas, and County, have been formed to provide water, sewers and Dragoon. paved streets throughout the Country Club development. Arizona Bell holds forth the promise of a much great­ er Willcox. The planned community clusters hillside town- houses and single-family residential homesites overlook­ ing the Yucca Sierra golf course and panoramic Sulphur Springs Valley.

The Douglas Border Gateway Area

Douglas, located on the U.S.-Mexico border, is an im­ portant international gateway. rC#. Douglas is characterized by its wide, tree-lined streets - ^ laid out in a gridiron pattern. Considerable foresight was exhibited by its early settlers in designing the town. The City of Douglas consists of nearly 3 square miles. An area of approximately 20,000 acres surrounding it have been subdivided in recent years. This activity has taken place primarily in Coronado The Potential of New Towns Lakes Estates, La Costa, Bay Acres, Coronado Develop­ ment, and Douglas Highlands. Much of this occurred prior At the other end of the scale, complete new towns to the time when the county had adopted subdivision reg­ are coming into life. ulations. To date, construction of community facilities It is important to think of these remote, large-scale has been minimal. developments as new towns. That is what they will in The ultimate population of these subdivided tracts fact be when completed. could reach 125,000 persons. The population today in It is important to consider at the very beginning how this same vicinity is about 15,000 persons. these new towns will work for their residents. How they Approximately 43 square miles of Urban Transition will be beautiful, workable small cities after they have lands are shown on the Douglas-Border Gateway Area been around for awhile. Plan. Of these, 25 square miles are indicated for major For these large-scale proposals, it is necessary to activity. think “full-circle.” Industries will be needed to create As noted above, most of these urban transition lands jobs. A wide range of goods and services will need to be have already been subdivided. However, a major portion easily accessible. Educational and cultural opportunities of the Douglas Highlands development is still in the de­ will have 'o be offered. Thought must be given to the sign stage. design of neighborhoods which will be the focal points The Highlands occupy a triangle shaped tract of about of family life. Open spaces will need to be conserved in 7,500 acres, located east of Douglas and generally south the form of parks and playfields. of U. S. 80. This entire parcel was first studied from the It is not just enough to provide for them. Means are standpoint of surface drainage requirements. The align­ required to maintain and operate these amenities. ment of the major arterials followed. Master planning of We seek new towns that are designed as a workable, land use was then carried out. attractive community that will be people-size. Opportunities still exist to bring into this borderland The immediate development area at Arizona Sun- genuine development as opposed to speculative paper sub­ sites is the most notable new town growing up in Cochise division. County. About 500 persons now reside in this Horizon Opportunities can be realized for solving housing Corporation development. The new shops, services, town problems, for diversifying the economy, and for increasing houses, and golf courses form a definite contrast to the tourism. nearby “Old Store” at Pearce.

COUNTY PLAN, Page 18 Planning for More Than Land Use The traditional approach would have started with the answers. We would then Our plans need to be comprehensive. have been obliged to “find” the problems Planning for one or a few needs in isolation for which we had the answers. Fancy re­ may result in unnecessary costs. ports would then have been the order of the Our resources are limited. What’s day. more, there are many competing demands We rejected this approach. for our human, financial and natural re­ We began by trying to identify our prob­ sources. lems. Not the problems of some other coun­ So far, we’ve concentrated on land use. ty but those of Cochise County. Being prepared are more detailed plans As our understanding of their nature in­ for water, liquid and solid waste, recreation creased, solutions began to evolve. and open space, housing, and transporta­ Our approach was similar to the prob­ tion. lem-solving methods used for safely getting These functional plans will represent man to the moon and back to earth. The agendas for action. The priority of projects spacemen didn’t know what the Apollo will be determined. would look like when they started. But they Thus, the timing and funding of projects were confident that if they went about their can be arranged in an orderly fashion. By problem-solving in a systematic way they advancing a capital improvements program, could achieve their mission. They did. improvements can be planned on a long­ We did not have a pre-conceived picture term schedule in a sound business-like man­ either. We have carefully sought out our ner. solutions in a systematic fashion. We still do not have all the answers. But we have developed a planning process The Planning Process that recognizes our policies and plan are The direction of future growth and de­ not end products. velopment is among the most pressing is­ Our residents and their notions will con­ sues facing Cochise County today tinue to change. This is a difficult issue. It raises some Our knowledge of how and why and serious questions. what of our surroundings will continue to The development policies and plan pro­ expand. posed in this report do not answer all ques­ Our perception of the problems and op­ tions. However, these suggested policies portunities that are ours will continue to in­ and land use plan set a point of departure crease. and a framework for future review and dis­ But the small steps taken in the prepara­ cussion. tion of these proposed policies and land use Our approach to planning for our future plan signify giant strides for the future is in some ways quite unique. well-being of Cochise County.

We Ve A Better Idea -Let’s Make It Work

We believe planning should be practical. It ought to be geared to the daily tasks of county government. We believe planning is a local function. It should be carried out by local people. We prefer to do the job ourselves rather than have distant cousins trying by remote control. We need to recognize our own responsibilities for meeting a broader range of local needs. Buck passing will likely cost us dearly in the long-run. Unless our planning efforts go to work now, our plans for the future aren’t going to get very far. We can decide what our development policies are going to be. Our plan can be a guide for desirable public and private action. We can build a better county. We can maximize the returns from our tax dollars. But the good things we want won’t happen by them­ selves. If we are going to be businesslike, we will need some rules. The county’s business is to represent and protect the public interest. To do so, it must impose somewhat on the developer’s own sweet will, so that the public is not left holding the bag. Zoning and subdivision regulations are checks on private actions so that on balance, the common good is served.

COUNTY PLAN, Page 19 Zoning-What's It Ml About?

Zoning is a means for local people to Zoning can help solve some common manage the development and use of land so ailments. Zoning should not be expected as to yield the greatest benefits to all the to solve all problems. Zoning may control people in the county. It is a tool. It is a the spread of areas declining in property method of dividing the land in the county value. But, it cannot cure them. Zoning into districts zoned for specific types of de­ may provide opportunities for sound devel­ velopment, such as residential, business, or opment. But, it cannot create the develop­ industry. ment. Zoning all of the county for oil wells Zoning in accordance with the compre­ won’t produce the oil wells. hensive development plan is intended to Looking to the future, zoning may pro­ promote healthy growth. vide an improved pattern of land use. Par­ Zoning can help create a better balance ticularly so where there is a significant of land uses in the future. How? It can pre­ amount of undeveloped land. serve key land parcels. For example, prime industrial land. Other examples might be preservation of agricultural lands, airport sites, school sites, and recreation areas. Zoning can help to keep such lands in rela­ tively large holdings until the private econ­ omy creates demand for their timely devel­ opment. Zoning can be used to cut city and coun­ ty expenses. How? It can reduce sprawl. This would cut initial costs of public facili­ ties such as sewers and water supply. It would reduce the area to be covered by such governmental services as police and fire pro­ tection and garbage collection. Leap-frog­ ging developments are costly for public utilities to provide gas, electricity, and tele­ phone facilities, too. i mam • i : i j In some areas, zoning may already be L i I too late. Sometimes the horse is stolen be­ f fore a lock is secured on the barn door. The hillsides have already been despoiled in places. Land development has been largely scattered and inefficient. Flood ways and washes have been built in. Commercial strips have intruded residential neighbor­ hoods. Zoning can provide a means of checking further aouse of the land. It can provide a guide for eventual correction of these prob­ lems. It can prevent present unfortunate Zoning does not discourage new devel­ situations from getting worse. opment. On the contrary, new construction Zoning is one of the best tools we have and renewal is encouraged. More impor­ for keeping our beautiful and fertile county tantly, it is encouraged in the right areas. worthy of our pride and glory. Possibly our Often these right areas include the close-in, greatest single source of future economic vacant parcels already having paved streets, growth lies in the natural beauty of our water, and street lights. countryside. Zoning can be used to pre­ Zoning can be used to preserve the in­ serve steep slopes from destructive develop­ dividual identities of our communities as ment, to fence off unsightly junk yards, to well as rural areas. The single-family char­ prevent billboards from cluttering the land­ acter of a residential neighborhood can be scape, and to keep the seeds of blight from preserved by keeping out non-compatible spreading. uses. It can protect a business center from First, we must know what we want. Sec­ encroachments that would destroy its char­ ond, we must work diligently toward those acter. Zoning can maintain the distinctive goals. Only then will zoning be a useful character of a community’s doorstep. tool to us.

COUNTY PLAN, Page 20 Speaking of.... ZONING

Developing a zoning ordinance is not easy. There are difficult decisions to make, which affect many people. Too, Cochise County is uniquely itself. Zoning should be strong enough to do its job, not merely legalize current abuses of the land. It should guide the future, not imprison the past. It should encourage good development, not reward the irresponsible developer. Zoning should be fair. It should provide adequate “safety valves.” It should be understandable. It should reflect our development policies and general plan.

Exemptions By State law, certain uses are not to be regulated by the county’s zoning ordinance. The use of land for rail­ road, mining, metallurgical, grazing or general* agricul­ tural purposes are exempt. However, the tract of land must contain at least 5 commercial acres to qualify for exemption.

Rights Protected The zoning ordinance protects the fundamental rights of property owners. The application of zoning is govern­ ed by all the particular facts of each case. No individual owner shall be prejudiced by reason of his being a minor­ Residential Zoning ity, either in number or amount of land owned. Residential zoning can accomplish two general goals. First, and perhaps most important, it can prevent harm­ ful uses from entering the residential neighborhood. Not Retroactive These may be commercial and industrial activities of a Zoning is not retroactive. It cannot be made to com­ nature that would tend to blight a residential area. Sec­ pel a property owner to cease his present land use. Any ondly, residential zoning can encourage certain amenities on-going use which is not consistant with zoning may con­ within the neighborhood. If each property is required to tinue indefinitely, until the use ceases. New uses are to develop to adequate standards, the neighborhood itself conform to the zoning requirements. becomes a bulwark preventing blight. It ensures the neighborhood a longer life. Residential zones for single-family homes are pro­ Safety Valves posed. Minimum setbacks, height limits, and minimum lot sizes are designed to achieve a typical pattern of sin­ The zoning ordinance contains safety valve features. gle-family detached dwellings. Mobile homes would not Behind zoning is the comprehensive plan for the future. be permitted. Properties would also be protected from But, zoning is a day to-day regulation of land use. Natur­ undue encroachment and exclusion of light and air by ally, it is sometimes subject to debate. Safety valves are neighboring homes. created for the dynamic zoning boiler. • Residential zones for multiple-family residences are Under the zoning ordinance, a Board of Adjustment also proposed. These zones would comprise a mixture of is established. This Board provides a kind of built-in residential structures. Duplexes, town houses, condomini- flexibility. It is charged with the responsibility of inter­ mus, apartments, group lodgings as well as single-family preting the ordinance. The Board may issue conditional housing would be permitted. Again, regulations are de­ use permits. A conditional permit allows a land owner signed to stabilize and protect the character of such high­ to develop his property in accordance with the general er-density districts. A favorable environment for family intent of the zoning ordinance, but only after special re­ life is promoted. view, so that neighbors are not subject to an unnecessary nuisance. The Board may grant a variance where strict inter­ Planned Units pretation of the zoning code would create an unnecessary hardship on the land owner. However, it cannot be arbi­ Traditional zoning is based on a lot-by-lot type of de­ trary or capricious in either granting or denying vari­ velopment. There are some disadvantages. This type of ances. approach often results in relatively monotonous develop­ Another safety valve is changing the zoning ordi­ ment. It may also be wasteful of land. nance itself. The text of the ordinance may be amended. Modern planning encourages tracts be developed as Also, property may be rezoned from one zoning district an entire unit. This newer approach encourages variety, to another district. Changes in the zoning ordinance can full use of all open space, and the addition of residential only be made after official notification and public hear­ amenities to ensure a long, useful life of the development. ing. Under planned unit development, the density of dwelling units remains the same. The developer may build an assortment of housing types. By careful plan­ Zoning Districts ning, the developer may achieve substantial savings in streets and utility construction. More important, by clust­ Zoning would divide the unincorporated areas of the ering the dwellings, a substantial saving in land will be county into districts. The regulations vary from one dis­ achieved. Developers can then add special attractions, trict to another. But within each district, the controls including swimming pools, bike paths, community centers are uniform. and golf courses. A variety of districts are proposed, including rural, Planned residential zoning is proposed. It is offered single-family residential, multiple-family residential, mo­ as an incentive to encourage developers to use better bile home, business, and industrial districts. methods of building residential areas.

COUNTY PLAN, Page 21 Zoning To Reflect Policies and Plan

Mobile Homes Mobile homes are the fastest growing segment of the new-homes industry. Outside of rural areas, mobile home zoning would segregate mobile homes into parks or sub­ divisions specifically designed for their particular needs. A modern approach is proposed for mobile home zon­ ing. The planned unit development approach is recom­ mended. Density of development would 'be limited to 8 units per acre within a mobile home park or subdivision. Development would also be limited by requirements for streets, common recreation areas, spacing between mo­ bile homes, and open space adjacent to units. Zoning would provide minimum area, exterior yards, and screen­ ing of the development boundaries.

Business Zoning Establishing correct zoning standards is a difficult task, for it is a changing one. What is true today may not be true tomorrow. This is particularly true of business uses. While a considerable amount of latitude may be necessary to maintain a healthy climate for business, zon­ ing may accomplish several things. Business areas need buffers between them and resi­ Rural Zoning dential areas. Business centers need to have direct access to collector and arterial streets. They require adequate The purpose of zoning rural areas is to conserve and and convenient off-street parking. Signs need to be limit­ protect valuable resource production lands. It would fos­ ed to those that are compatible with the size and type of ter orderly growth in rural lands. It would minimize business area. These can be achieved by up-to-date busi­ conflicts between urban and rural land uses. ness zoning standards. Rural zoning would serve as an interim zoning classi­ It is proposed commercial areas be classified into fication for those undeveloped lands that are suitable for groups. Neighborhood business areas service residential urban development. It would reflect the policies and neighborhoods. General business areas serve a larger pop­ comprehensive plan. ulation and may include older town business centers and Rural zoning would allow a wide range of uses. It newer shopping centers. would discourage small lot subdivisions, unless described as suitable for such on the plan. Mobile homes would be permitted, but limited to one per lot. Other uses permit­ ted would include commercial developments that are an Industrial Zoning adjunct to agricultural, grazing or mining uses of the land. The county’s program for industrial development goes well beyond merely zoning land for industrial uses. It in­ cludes organized efforts to expand existing industries and Large-Scale Plans to obtain new ones. In the long-run, however, zoning may Of particular concern is the impact of large-scale de­ be the single most important step we can take to preserve velopments upon the growth and development of the coun­ appropriate industrial lands for the future. ty. In the past two decades, a number of subdivisions Industrial zoning would provide adequate buffering have been recorded that cover several sections of land. between residential and industrial properties. It would The public should be assured that large-scale develop­ provide adequate lot size, off street parking for employees ments will have a favorable effect. They should be well and visitors, maneuvering and storage room for trucks, conceived, should conserve open space land, should mini­ and exclusion of residential use. mize transportation problems, should extend the range of Two industrial districts are proposed. Light indus­ housing opportunities, should promote needed economic tries can be operated in a relatively clean, quiet, and safe development, should create an attractive environment for manner compatible with adjoining uses. Heavy indus­ work, living, shopping, and recreation, should reveal a tries would be zoned so that any offensive or hazardous maximum creative application of private enterprise’s tal­ characteristics do not adversely affect the economic wel­ ents, and should provide a sense of socially balanced com­ fare of nearby properties. munities. We are dealing with what amounts to new towns. The size and scope of these projects alone requires careful Airport Zoning consideration. Failure amounts to a major catastrophe. Developers with 320 acres or more under their con­ Airport zoning would regulate and restrict the height trol would be required to demonstrate the soundness of of structures and objects in the vicinity of airports. It their proposals. Plans and reports for public review would restrict uses in order to prevent hazards and so as would be filed. These would contain a land use plan, a to not endanger the lives of airport users and occupants housing plan, a community services plan, economic feasi­ of land in the airport’s vicinity. bility report, and financial capability plan.

COUNTY PLAN, Page 22 Requiring Sound Subdivision Design Is Working

The subdivision of land makes available sites for urban settlement. Subdivision regulations govern the manner in which land is divided into lots and streets. The county’s subdivision regulations work. It’s true they are not popular with those who want to sell out as fast as possible and without making any lasting improvements. Not all subdividers are after a fast buck. Fortunately, there are those that proceed with care. Their subdivisions are adapted to the land. They consider the community’s needs. They install paved streets. Wa­ ter and sewer lines are provided. They get homes built. When we talk about subdivisions, we need to con­ sider others besides the subdivider himself. Others get into the act. There are the lot buyers. And there are the public taxpayers. Usually newcomers are welcomed by taxpayers. They are welcomed provided they are going to pay their fan- share of the costs they create. Otherwise, taxpayers have enough troubles as it already is. New residents are surely going to demand public services. Our local governments are going to be hard pressed. We can’t afford to subsidize growth that increases our per capita tax load. What is the best way for new subdivisions to carry their share of the load? It is to have sound regulations. What happens if we don’t? For one thing, the less responsible land sales promoters will saturate the market, pushing out the better quality developers. What has been taking place during the past two years since the county adopted its present subdivision regula­ tions? It certainly hasn’t stopped new subdivisions from oc­ curring. Last year alone, almost 40 new ones containing nearly 14,000 lots were proposed. If anything, there has been an increase in subdivision activity. Some changes are happening in the manner in which subdividing is done. Sites unprotected from flooding are not being allow­ Our experience indicates the subdivision require­ ed. ments are working. They have worked even without the Major streets are being aligned to minimize conges­ support of a comprehensive plan and zoning. tion. Our experience indicates also that they can be im­ Minor streets are being designed to discourage proved. through traffic in residential areas. Subdivisions have been duly approved, whether we Streets are being built to county “all-weather” stand­ need them or not. Premature subdivision has created tre­ ards. mendous problems over the years. It still is. Securities are being posted by subdividers to insure Subdivisions are still occurring in places inconven­ construction of streets and culverts. ient for the extension of public utilities and services. These Dedicated public access is being provided to every lot. are proving to be expensive. They are costly to the lot Alleys or easements are being provided along all lots buyer and to all utility customers. They will continue to for utilities. be expensive when it comes to maintenance. All plats are being checked closely and are being Subdividers are still making it the lot buyers respon­ recorded only after conformance with the regulations. sibility to find his own water and dispose of his own wastes. Let the buyer beware. But let the public be­ ware too. Though such situations may be within the law, they are hardly moral. Some modifications are in order. We propose the need for large-scale subdivisions be well documented. That evidence be submitted to assure more than speculative promotions of lot sales. These proposals to subdivide 320 acres or more should fit our comprehensive plan and development policies. It should be possible to provide required services efficient­ ly and economically. All subdividers need to certify avaliability of ade­ quate and potable water supplies. Assurance is needed to safeguard existing water supplies from undue deple­ tion and pollution. We propose subdividers themselves, within a reason­ X Nd able time, install the lot buyer’s well or water system for the subdivision. We recommend that the minimum standard of sub­ division streets that the county ought to accept for main­ tenance be upgraded. Subdivisions streets ought to re­ ceive a double-bitumenous seal-coat surface over a proper­ ly built base.

COUNTY PLAN, Page 23 The Next Step of A Continuing Effort Includes You

The board of supervisors are directed by the state Legislature to plan and provide for the future growth and improvement of the county. The supervisors formed a planning commission in January of 1970. The commission acts as an advisory body to the supervisors. Each supervisors appoints three commissioners. A total of nine members serve on the Commission without pay. During its brief existence, the Commission has been busy. A full time professional planner was hired to direct the program. Subdivision regulations were adopted. Thorough re­ view of over 70 new subdivisions have been made. Federal grants were acquired to financially assist the comprehensive planning program. A soil survey of the entire county was put together for planning purposes. Efforts to secure a full-time professional engineer for the county were successful. Survey’s have been taken of peoples’ concerns. Goal statements have been written. Development policies have been drafted. Planning with nature rather than in spite of it has been kept in the foreground. Communication of ideas between public and private interests has been established. But by simply having a planning commission actively at work won’t automatically guarantee effective planning. Planning must be recognized as a continuing effort. It is not a one-shot job. The legislature would not be expected to sit down today and come up with all the laws we are going to need over the next 20 years. It would be just as foolish to think a comprehensive plan for the next 20 years can be done in one try. Planning should respond as needs change. We encourage you to join our efforts. Planning is not so complicated that you cannot participate.

The Commission Is Preparing foi the Future

Our purpose is to enhance the place where you live and work. To do this well, your help is needed. We wish to know your feelings about the proposed development policies and plans. We hope you will read this report. If you do it thoughtfully, we hope you will be well informed about the important issues affecting you. No doubt you will have some questions. We have tried to outline our ob­ jectives and methods. It would have been impossible to include all of the details. So that we can hear your views and answer your ques­ tions, public hearings will be held soon around the county. At any time, you can discuss the proposals by calling 432-5162 or coming tq the planning office located in the County Court House in Bisbee. The Commission believes that the time for action is at hand. We now have the opportunity to create the kind of place to live we want. This opportunity will not last long. Once it passes by, it will never come again. We hope you will support our efforts. We have ac­ cepted our responsibility to take the initative. You now have the responsibility to become involved in the planning process. A planning commission can’t do the job alone. If we let each tomorrow just happen, we will always be forced to react to what takes place. We may be caught The preparation of this report was financially aided by surprise. Surprises can sometimes be unpleasant. through a Federal grant from the Department of Housing The fact that we have begun to plan our future won’t and Urban Development, under the Urban Planning As­ stop surprises from coming. But we will be better pre­ sistance Program authorized by Section 701 of the Hous­ pared. The things we want can be done. ing Act of 1954, as amended.

COUNTY PLAN, Page 24