Getting to Smart Growth
100 POLICIES FOR IMPLEMENTATION
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$MART GROWTH
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Acknowledgements
We would like to acknowledge the efforts of Danielle Arigoni, Amber Levofsky, Lynn
Richards, Eric Sprague, and Brett VanAkkeren of the U.S. Environmental
Protection Agency (EPA). Without their efforts and teamwork, this primer would
not exist. Assistance was also provided by John Bailey, Charlie Bartsch, Constance
Beaumont, Scott Bernstein, Kathy Blaha, Don Chen, Jessica Cogan, Peter Dreier,
Will Fleissig, Martin Harris, Don Holligan, ICMA's Smart Growth Advisory Group,
John Kostyack, Scott Lazenby, Meg Maguire, Harrison Marshall, Richard Massie, Ed
McMahon, Joe Molinaro, Dominic Mouldoun, Shelly Poticha, liana Preuss, Harrison
Bright Rue, David Scheuer, Gene Schiller, John Shirey, Paul Souza, Jeff Speck, Paul
Spoelhof, Ed Thompson, Betty Weiss, Paul Zykofsky—all of whom provided excel-
lent insight and review of the document as it was being developed. Laura Otis, as
well as the many photographers cited throughout the primer, provided valuable
assistance in collecting images for use in this document. Special thanks to Geoff
Anderson and other staff members of EPA's Development, Community, and
Environment Division for their role in providing comments and materials. Finally,
Joe Schilling and Nadejda Mishkovsky played a critical role in reviewing and draft-
ing text, coordinating the process, and bringing the document to publication. Finally,
Dharma Pachner provided valuable layout and design assistance.
Cover Credit
Peter Calthorpe Associates. Watercolor image of The Crossings development in Mt.
View, California.
About the Smart Growth Network
The Smart Growth Network is a network of private sector, public sector, and non-
governmental partner organizations seeking to create smart growth in neighbor-
hoods, communities, and regions across the United States. Partners in the network
include the American Farmland Trust, American Planning Association, Association of
Metropolitan Planning Organizations, Center for Neighborhood Technology, Congress
for the New Urbanism, Conservation Fund, Environmental Law Institute, George
Washington University Law School's Center for Sustainability and Regional Growth,
Institute of Transportation Engineers, International City/County Management
Association, Local Government Commission, Local Initiatives Support Coalition,
National Association of Counties/United States Conference of Mayors Joint Center
for Sustainable Communities, State of Maryland, Multi-Family Housing Association,
National Association of Counties, National Association of Local Government
Environmental Professionals, National Association of Realtors, National Growth
Management Leadership Project, National Neighborhood Coalition, National
Oceanic and Atmospheric Administration, National Trust for Historic Preservation,
National Wildlife Federation, Natural Resources Defense Council, Northeast-
Midwest Institute, Rails-to-Trails Conservancy, Scenic America, Surface
Transportation Policy Project, Sustainable Communities Network, Trust for Public
Land, Urban Land Institute, and the U.S. Environmental Protection Agency.
Individual membership information, publications and information about smart
growth are available online at www.smartgrowth.org.
International
City/County
Management
Association
icma.org
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INTRODUCTION
Getting to Smart Growth:
100 POLICIES FOR IMPLEMENTATION
Smart growth is development that serves the economy, commu-
nity, and the environment. It provides a framework for com-
munities to make informed decisions about how and where they
grow. Smart growth makes it possible for communities to grow in
ways that support economic development and jobs; create strong
neighborhoods with a range of housing, commercial, and trans-
portation options; and achieve healthy communities that provide
families with a clean environment.
In so doing, smart growth provides a solution to the concerns fac-
ing many communities about the impacts of the highly dispersed
development patterns characteristic of the past 50 years. Though
supportive of growth, communities are questioning the economic
costs of abandoning infrastructure in the city and rebuilding it far-
ther out. They are questioning the necessity of spending increas-
ing time in cars locked in traffic and traveling miles to the nearest
store. They are questioning the practice of abandoning
brownfields in older communities while developing open space
and prime agricultural land and thereby damaging our environ-
ment at the suburban fringe. As these quality-of-life issues become
increasingly important for American communities, local and state
policymakers, planners, developers, and others are turning to
smart growth as one solution to these challenges.
They are not alone. In the early 1990s, numerous national organ-
izations similarly recognized the problems facing communities. In
1996, they came together to form the Smart Growth Network,
which is now a broad coalition of 32 organizations that support
smart growth (see Acknowlegements). As a first step, the network
examined the breadth of characteristics of successful communities
and from that process, developed the ten principles for smart
growth (see box). These principles illustrate the characteristics
associated with healthy, vibrant, and diverse communities that
offer their residents choices of how and where to live. They also
suggest options for forming policy direction at local levels to
implement smart growth.
The ten principles were a first step in articulating the goals of
smart growth. To introduce communities to the benefits and
techniques associated with these goals, the International
City/County Management Association (ICMA), the U.S.
Environmental Protection Agency (EPA) and the Network wrote
and distributed three primers: Why Smart Growth, Best
Development Practices, and Pedestrian- and Transit-Friendly Design.
The fourth primer in the series is Getting to Smart Growth: 100
Policies for Implementation. While many state and local govern-
ments have been able to successfully implement policies that have
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GETTING TO SMART GROWTH
SMART GROWTH
PRINCIPLES
^^m
1.
Mix land uses
2.
Take advantage of
compact building design
3.
Create a range of housing
opportunities and choices
4.
Create walkable neighborhoods
5.
Foster distinctive,
attractive communities
with a strong sense of place
6.
Preserve open space, farmland,
natural beauty, and critical
environmental areas
7.
Strengthen and direct
development towards existing
communities
8.
Provide a variety of
transportation choices
9.
Make development
decisions predictable,
fair and cost effective
10.
Encourage community and
stakeholder collaboration
in development decisions
created healthy, livable communities, more work is needed. For
many other communities, there is a wide gap between recogniz-
ing the benefits of smart growth and developing and implement-
ing policies to achieve it. The primary purpose of this fourth
primer is to address this gap.
Getting to Smart Growth: 100 Policies for Implementation aims to
support communities that have recognized the value and impor-
tance of smart growth, and now seek to implement it. It does so
by highlighting and describing techniques to help policymakers
put the ten smart growth principles into practice. The policies
and guidelines presented in this primer have proven successful in
communities across the U.S., and range from formal legislative or
regulatory efforts to informal approaches, plans, and programs.
They do not represent the only means to achieve the principle
identified, but they do represent real and innovative ways for
communities to realize smart growth.
Perhaps most critical to successfully achieving smart growth is
realizing that no one policy or approach will transform a commu-
nity. The policies described here should be used in combination
with each other to better achieve healthy, vibrant communities. A
first step in the process of evaluating and determining how com-
munities want to grow, is for communities to recognize the
importance and value of modifying the way they grow. This can
be achieved through a community- or region-wide discussion that
honestly examines the development challenges facing the com-
munity and evaluates the benefits and downsides of both current
and alternative growth strategies. In most cases, this collaborative
process will result in some measure of popular and political sup-
port for a community's vision on how and where to grow. Once
this foundation is in place, a course for implementing this vision
can be determined. It is in this context, then, that the following
100 policies can be considered as parts of a comprehensive and
multi-pronged approach to achieving healthy, vibrant, and diverse
communities that offer bona fide choices of how and where to
live.
Admittedly, putting the smart growth principles into action
requires changes to the way communities function. It requires
that local governments, lenders, community groups, zoning
officials, developers, transit agencies, state governments, and oth-
ers agree to a new way of doing business. This shift, however, will
be eased by a process, such as the one described above, which
clearly illustrates the myriad economic, community, and environ-
mental benefits that are gained from a smart growth approach.
After all, regardless of his or her role in the development process,
each of the individuals involved in shaping how and where a com-
munity grows stand to benefit from the improved quality of life
that smart growth can provide.
This primer includes ten sections corresponding to each of the
ten smart growth principles, plus an appendix. Each "principle"
section discusses the role of the principle in a holistic smart
growth approach. Ten specific policies are then highlighted for
each principle, supplemented by a series of "practice tips" that
either illustrate their application in a community, or identify addi-
tional resources to aid communities in implementation. Finally, an
appendix describes the most likely level of government for imple-
mentation of each policy, and the other principles that each will
help achieve.
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Table of Contents
I. MIX LAND USES 1
II. TAKE ADVANTAGE OF COMPACT BUILDING DESIGN 9
HI. CREATE A RANGE OF HOUSING OPPORTUNITIES AND CHOICES 17
IV. CREATE WALKABLE COMMUNITIES 25
V. FOSTER DISTINCTIVE, ATTRACTIVE COMMUNITIES WITH ASTRONG SENSE OF PLACE 33
VI. PRESERVE OPEN SPACE, FARMLAND, NATURAL BEAUTY, AND CRITICAL ENVIRONMENTAL AREAS 43
VII. STRENGTHEN AND DIRECT DEVELOPM ENT TOWARD EXISTING COMMUNITIES 51
VIII. PROVIDE A VARIETY OF TRANSPORTATION OPTIONS 61
IX. MAKE DEVELOPMENT DECISIONS PREDICTABLE, FAIR, AN D COST EFFECTIVE 69
X. ENCOURAGE COMMUNITY AND STAKEHOLDER COLLABORATION IN DEVELOPMENT DECISIONS 77
CONCLUSION 87
APPENDIX A: MATRIX-100 POLICIES FOR IMPLEMENTATION 88
APPENDIX B: BIBLIOGRAPHY 94
LIST OF ACRONYMS 97
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Chapter One
Mix Land Uses
Mixing land uses—commercial, residen-
tial, recreational, educational, and oth-
ers—in neighborhoods or places that are acces-
sible by bike and foot can create vibrant and
diverse communities. In large part, a mix of
uses attracts people to shop, meet friends, and
live in urban neighborhoods like Georgetown
in Washington, D.C., or small towns like
Wiscasset, Maine. Mixed land uses are critical
to achieving the great places to live, work, and
play that smart growth encourages.
However, in many communities, current devel-
opment patterns mandate a separation of land
uses. Conventional suburban development—
which is primarily low-density, single-use
development—is a significant departure from
the way towns were built in the early 20th cen-
tury. During that time, land uses were more
integrated, enabling many people to walk to a
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
Integrating homes and retail make
walking for short trips more viable
at The Crossings in Mt.View,
California.
corner store, school, or work. Where once walking to school as a
child was the standard practice, today land uses and other changes
in development patterns combine to make walking or bicycling the
mode of transportation for only 13 percent of all trips made to
school.1 While the separation of land uses was originally intended
to protect communities from polluting industries and businesses,
it has led to a pattern of land development in which stores, hous-
ing, and schools are often placed so far apart that they can be
reached only by car. Improved environmental regulation and pri-
vate sector innovation mean that many businesses are now cleaner
than they were eighty years ago when zoning was first introduced
to separate land uses, thereby eliminating much of the need for
their strict separation from homes and schools.
Though the need to separate uses has diminished, it remains a
common practice that creates inconvenience for American house-
holds who spend a growing share of their day traveling between
home, work, shopping, and school. Separate uses levy larger social
costs, as well, by fundamentally changing the character of commu-
nities and undermining the
viability of opportunities
for people to walk to shops
or work, and to meet and
chat with their neighbors
on the way. In fact, one-
fourth of all trips that peo-
ple make are one mile or
less, but three-fourths of
these trips are made by
car,2 in part a result of
inhospitable pedestrian
streetscapes (see Principle
4) and of a lack of other
transportation options (see Principle 8). Where once locating uses
near each other posed an environmental risk, a new environmental
challenge has emerged instead from such separation of uses. Air
pollutants from cars—now the primary means of access and
mobility in this auto-oriented land-use pattern—are responsible
for 20,000 to 40,000 cases annually of chronic respiratory illness.3
In addition, auto dependency requires more roads and more park-
ing, thus increasing the total amount of impervious surface in
communities and causing more polluted stormwater runoff to
enter our rivers, streams, and lakes.
Smart growth supports the integration of mixed land uses into
communities as a critical component of achieving better places to
live. When homes are located within walking distance to grocery
stores or quality employment centers, alternatives to driving—
such as walking or biking—once again become viable, thereby
enabling more Americans to take advantage of this convenient
lifestyle. A mix of land uses also provides a more diverse and siz-
able population and a wider commercial base to support public
transit. Mixed land use can enhance the vitality and perceived
security of an area by increasing the number of people on the
street. Furthermore, a mix of land uses helps streets, public spaces
and retail stores again become places where people meet, thus
helping to revitalize community life.
Mixed land uses also convey substantial fiscal and economic
benefits. Commercial uses in close proximity to residential areas
often have higher property values and therefore help raise local tax
receipts. Businesses recognize the benefits associated with areas
able to attract people because of different uses. More economic
activity exists when there are more people in an area to shop. Lend
Lease Real Estate—a leading resource for real estate investors,
financiers, and builders—has reported for the past five years that
the nation's best commercial real estate markets are cities with
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MIX LAND USES
vibrant, traditional downtowns or with twenty-four-hour suburbs.
This trend reflects the value for businesses, which locate in these
communities because they are better able to attract skilled work-
ers. In addition, Lend Lease Real Estate repeatedly cites the
appeal of investment opportunities in areas that offer a multidi-
mensional environment convenient to work, shopping and recre-
ation.4 In short, there are economic benefits to investing in areas
that offer a mix of uses.
I.
Provide incentives through state funds to encourage residents
to live near where they work.
Teachers, police officers, and fire officials, plus many other profes-
sionals, are often unable to afford living near their places of
employment. Instead, they are forced to endure longer and longer
commutes. Many areas across the country are experiencing
increased traffic congestion as a result. Localities can address this
issue by analyzing the current distribution of housing and jobs,
and by targeting areas of imbalances. Areas in need of additional
housing can benefit from, for example, the use of density bonuses,
increased residential zoning, joint development around transit,
and affordable housing tax credits, to encourage housing construc-
tion. Similarly, areas that are principally residential can encourage
businesses to locate there by creating tax increment finance dis-
tricts, providing economic development incentives, and improving
the supply and quality of infrastructure needed to support busi-
nesses. Special attention should be given to matching the skills of
current residents with the requirements of incoming jobs.
Another way to encourage a positive jobs-housing balance is for
governments and businesses to work together to provide incen-
tives for people to live near their employment. When employees
take advantage of these incentives, their commuting patterns
change radically, and walking and biking become more viable
transportation alternatives, thus providing additional support for
the mix of retail and civic uses located between home and work.
2.
Adopt smart growth codes to parallel existing conventional
development codes.
Changing existing conventional development codes that prohibit
mixed-use development so that they facilitate smart growth devel-
opments can be a time-consuming and politically difficult process.
State enabling legislation that enables local zoning, for example,
may not permit the wholesale change to the underlying framework
that drives and directs development. Nevertheless, by providing a
policy framework that permits and encourages smart growth
development, local governments enable developers to construct
mixed-use properties without having to endure a long approval
process.
Creating a smart growth code that can serve on a parallel basis
with existing codes can, in fact, help remedy this challenge.
Parallel codes make it legal to develop innovative projects by right,
such as those that include a mix of uses or that employ different
approaches to parking, while still allowing developers to use con-
ventional codes if they so choose. In addition, to communities that
are considering full-scale modification of their zoning and plan-
ning practices to support smart growth, parallel codes provide a
means of testing the benefits of those modifications on a small
scale. For example, Lee County, Florida has used the parallel
codes approach in several areas slated for redevelopment.5
States can have a tremendous impact on the viability of mixed-use
construction by creating model smart growth codes that munici-
PRACTICETIP:
The Maryland Department of
Housing and Community
Development is implementing a
pilot "Live Near Your Work"
Program to encourage employees
of Maryland businesses and insti-
tutions to buy homes near their
workplace.This initiative will sta-
bilize the neighborhoods sur-
rounding the state's major
employers by stimulating home
ownership in targeted communi-
ties. The state contributes
$1,000, the employer contributes
$1,000, and the local government
contributes $1,000. Together,
these funds can be used for a
down payment or toward closing
costs associated with a purchase.
For more information, refer to
www.op.state.md.us/smart-
growth/lnyw.htm.
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GETTING TO SMART GROWTH
PRACTICE TIP:
Fort Myers Beach, Florida, adopted an optional smart growth code in parallel
to the conventional existing code. This parallel smart growth code allows
buildings to be constructed with zero setbacks and with canopies to shade
the sidewalk, and eliminates some of the open space requirements, to per-
mit more compact construction. This parallel code approach was written
to allow a quick comparison of the "old" and "optional" codes, and has
been wildly successful. While some viewed this format as cumbersome and
lengthy, it served its purpose of convincing landowners that the optional
smart growth code was in their best interests.' This optional code can be
downloaded at www.fmbeach.org/ordinances/96-20.htm.The American
Planning Association also offers model smart growth codes that encourage
mixed-use neighborhoods through its Growing Smart effort. For more
information, visit www.planning.org/plnginfo/G ROWSMAR/gsindex.html.
palities can adopt in parallel to their conventional codes. The state
of Wisconsin, for example, developed a model traditional neigh-
borhood design code and required that localities with populations
greater than 12,500 adopt the code or one similar to it. Wisconsin
permits these codes either to be used as the sole regulatory frame-
work for the community or to
exist in parallel with the conven-
tional code, thus giving develop-
ers a choice of what kind of proj-
ect they want to develop.
3-
Use innovative zoning tools to
encourage mixed-use commu-
nities and buildings.
Despite the obstacles that con-
ventional approaches to planning
and zoning represent—such as
master plans that continue to
require uses to be separated—a
number of zoning tools and
incentives can be used to
encourage the type of mixed-use developments that support smart
growth. Overlay zones—which permit a special application of land
use and building design standards in a targeted area—and planned
unit developments (PUDs) are two examples of tools that can be
used to create smart communities when they are implemented
along with complimentary design guidelines. Planned unit devel-
opments, which allow planners to evaluate the nature and location
of uses and buildings on an entire site, provide for flexibility in
zoning requirements. While these tools may require a lengthier
approval process than more traditional tools, they nevertheless can
be used to encourage smart growth in the short run while the mas-
ter plan and zoning codes are being revised. Political support for
mixed-use smart growth developments can help overcome some of
the project-approval burdens associated with these tools.
Many of the most well-known, first generation, mixed-use tradi-
tional neighborhood developments, such as Kentlands in
Gaithersburg, Maryland, were built using PUD ordinances. Their
success has made it easier over time for their communities to
adopt more far-reaching policies to support smart growth. Other
cities use overlay zoning to encourage mixed-use infill. For exam-
ple, San Diego has established an "urban village overlay zone" that
encourages mixed-use development. This overlay zone is responsi-
ble in part for creating a pedestrian-oriented, mixed-use develop-
ment in the Hillcrest neighborhood which combines shopping,
offices, restaurants, and homes.7
Facilitate financing of mixed-use properties.
Financiers view mixed-use development as complex and difficult.8
They are concerned that most developers do not have the knowl-
edge base to be able to manage mixed-use development properly,
so they often fund only projects that are suggested by large sophis-
ticated developers, and even then they may support only a small
portion of the entire project. For example, Denver Dry Goods—a
redevelopment of an old Denver department store into market-
rate and affordable housing, office space, and retail—required
twenty-three different sources of financing.9 When lenders do
support these projects, they may require higher rates of return and
quicker payback periods.
Surprisingly, mixed-use infill projects have an advantage over
mixed-use greenfield projects, as they are often easier to finance
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MIX LAND USES
because the surrounding markets and competition make it easier
to evaluate potential success. In addition, infill areas often have
existing prototype buildings that the new project can be compared
against. Large greenfield projects, on the other hand, usually
require more difficult, sophisticated phasing and large corporate
revenue streams to back up their loans. In areas where single-use
buildings are the norm, new mixed-use buildings may not have
comparable projects nearby that can help in determining their
value. For those reasons, the project may be undervalued, which in
turn requires the developer to provide more equity or to pay pro-
hibitively high interest rates.
If local government perceives that financing is a barrier to devel-
oping new mixed-use buildings in its community, it can provide
support by offering credit assurance, equity investment in the
project, or soft second loans to the developers who are pioneering
this type of development. Localities can also work with private
developers, foundations, and pension funds to identify new sources
of financing for mixed-use redevelopment projects. The city of
Albuquerque, New Mexico, for example, became an investment
partner with private developers in a mixed-use entertainment area
in downtown Albuquerque. City-owned land in a targeted area
was used for development, allowing the city to become an equity
investor in the project. Other investments in the project were fur-
ther divided into varied time tranches to accommodate the financ-
ing needs of different parties: the city holds a long-term position,
a local foundation gets midterm return on its investment, and con-
ventional financiers and developers receive the project's short-
term returns.10
5-
Zone areas by building type, not by use.
Traditional zoning relies on the separation of uses as a means of
managing development. In combination with complimentary
building codes, this approach carefully dictates both the look and
use of all buildings in a community. An alternative approach that
encourages a better mix of uses is one that limits regulation to
building type and that allows building owners to determine the
uses. As such, the look and layout of a street is carefully controlled
to reflect neighborhood scale, parking standards, and pedestrian
accessibility, but building owners and occupants are allowed maxi-
mum flexibility to determine how the buildings will be used.
This approach allows for a dynamic change in uses over time as
the needs of the community and of the building owner evolve.
With regulations in place to monitor the impacts (such as parking,
noise levels, and hours of business) of different building uses, for-
PRACTICETIP:
In Port Wentworth, Georgia, interstate truck traffic has turned the old main street into a major transportation corri-
dor. The impacts of this, combined with expected pressures for growth, have led the city to seek to redevelop its town
center on 2,100 acres of adjacent, largely vacant, privately owned land. The master plan for the new center uses a
building-type zoning code. Port Wentworth designated ten different street classifications—ranging from lane to boule-
vard to a frontage street—and determined the most appropriate structures to line the streets. The city has paid atten-
tion to the scale of the street, by accommodating taller and denser buildings along wider, more commercially oriented
streets, and smaller detached homes along lesser-traveled neighborhood streets. Once the buildings are constructed, it
is largely up to the building owner to determine what is an appropriate use. As a result of this plan, the large estate-
type homes slated for a frontage along neighborhood boulevards may accommodate single-family residences, multifam-
ily residences, or limited commercial uses as long as parking and other requirements, which are applied to all such
structures, are met. Other street types will feature near-lot-line attached structures, which may serve as row houses,
live-work units, and other commercial mixed-use units.
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GETTING TO SMART GROWTH
i
PRACTICE TIP:
Resources exist to aid communi-
ties in putting greyfields to full
and profitable use as mixed-
use centers. The Urban Land
Institute provides guidance on
redeveloping commercial strips
(see www.uli.org for more infor-
mation). Also, Greyfields into
Goldfields: From Failing Shopping
Centers to Great Neighborhoods
from the Congress for the New
Urbanism and Price Waterhouse
Coopers is an excellent resource
for technical direction and tools.
mer residential areas may, for example, accommodate office space
for doctors, day care centers, or small convenience stores.
Residential areas would not, however, be suitable for a big box
retailer because of the building and parking standards in place. As
a result, a neighborhood preserves its residential feel while provid-
ing more needed services within walking or biking distance.
6.
Use flex zoning to allow developers to easily supply space in
response to market demands.
Communities are fluid places, often changing character over time.
The most vibrant areas across the country, like Newbury Street in
Boston, demonstrate this natural evolution, as former homes are
converted to shops and restaurants thus accommodating the serv-
ice needs of residents that flock to distinctive, vital, pedestrian-
friendly areas. While commercial space is located on ground
floors, buildings often still retain a residential component on side
streets and in upper-floor apartments that create a natural mixed-
use, walkable area.
Flex zoning in areas of transition
between commercial and residential
streets can help communities accommo-
date this natural expansion and contrac-
tion of different uses as market needs
change. Flex zoning permits the devel-
oper or building owner to change the
use of the building (assuming that build-
ing codes are met for the new use) with-
out undergoing a lengthy variance or
approval process. As a result, buildings
The Mizner Park shopping complex in Boca
Raton, Florida, converted to a mixed-use,
Main Street design.
Sre better able to capitalize on fluctuating market demands and
can accommodate retail, office, or residential space as needed. In
conjunction with zoning by building type and mass, zoning for
flexible uses creates a neighborhood feel by managing the look of
the building, while also providing opportunities for dynamic retail
change and small business development within. Flex zoning also
allows developers or building owners to adapt to market changes
and thus make their units more profitable.
7-
Convert declining shopping malls and strip commercial streets
into mixed-use developments.
As shopping malls and strip retail centers become obsolete, com-
munities can explore ways to reuse the space—which often are
very large tracts of land—as mixed-use developments.
Underperforming regional shopping malls average fifteen acres
and are one of the largest sources of land holdings in existing com-
munities.11 These "greyfields" constitute prime opportunities for
infill development. Left untouched, these areas not only represent
an enormous loss of potential tax revenue, but they may also signal
the disinvestment and decline of the surrounding community.
Recycling these valuable sites helps a community maximize the
value of its resources and capitalize on their advantages: access to a
ready market; working water, sewer, and road infrastructure; and
proximity to transit and existing transportation networks.
Cities like Boca Raton, Florida, have successfully renovated aban-
doned retail areas into vibrant mixed-use developments. Boca
Raton's Mizner Park was a large-scale retail space that was
redesigned to conform to a traditional main street configuration.12
Its success lies in its mixed-use character: shops are located at
street level, with apartments and offices above. Many more such
opportunities exist. Price Waterhouse Coopers estimates that
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there are 140 regional malls in the United States that are aban-
doned. In the near future, another 200 to 250 malls are expected
to be vacated.13
8.
Provide examples of mixed-use development at scales that are
appropriate to your community.
Mixed-use development looks different in various settings.
Because there is no one specific model that communities can draw
on to evoke an image of how mixed-use development would work
in their area, communities that cannot easily envision it may be
skeptical of such development and may initially oppose it, thereby
creating delays and challenges for developers. By creating clear
concepts through prototype designs, and by providing clear exam-
ples of what is considered appropriate or desirable mixed-use for
their area, a local government or a community group can shape
the projects that developers propose.
The planning department of Boulder, Colorado, for example, pro-
vided developers with prototype designs of the type of projects
that the community wanted built. The clear information and
graphics indicated that the city wanted communities that would
ensure that the mix of uses that were provided, and the increased
density that resulted, would be aesthetically pleasing.14 The
designs have been successful. The mixed-use development at
Eighth and Pearl Streets so successfully integrated residential
units, local businesses, and professional offices that it received a
2001 Charter Award from the Congress for the New Urbanism.
The award-winning Eighth & Pearl
development in Boulder, Colorado,
puts homes in close proximity to
shops.
MIX LAND USES
Create opportunities to retrofit single-use commercial and
retail developments into walkable, mixed-use communities.
Declining retail malls are not the only opportunity to create
mixed-use communities. Fully occupied, desirable office and retail
structures can be made more so by integrating complimentary
uses into the site. The addition of residential, civic, retail, office,
education, or hotel uses into single-use facilities is needed to build
effective mixed-use developments. A number of developments
that are called mixed use may, however, offer only one or two
types of uses. This type of development is especially true for com-
mercial projects that include offices and hotels and that do little to
facilitate the interaction between the two. Such developments may
be equally guilty of integrating vital uses and failing to provide
easy access between them. This practice not only fails to capitalize
on the vitality that a creative mix of uses can generate, but it also
affects the transportation options that site users have available to
them. Research has shown, for example, that people who work in
walkable mixed-use developments are more likely to take transit
or to carpool to work because they can walk to lunch and to the
stores and services they need everyday.15 Using overlay zones, civic
building location policies, and tax and other incentives, communi-
ties can encourage developers to retrofit retail and office centers
into true mixed-use communities. The vitality and sense of com-
munity that accompanies the "twenty-four-hour" centers that
leaders in real estate investment seek can only come from a bal-
anced mix of office space, housing, and retail that are accessible to
each other.
PRACTICE TIP:
The Legacy Office Park in Piano,
Texas, is typical of conventional
office parks because it has large
single-use buildings surrounded by
parking on large campuses.
However, the office park is being
retrofitted into a mixed-use, walk-
able town center community by
adding retail and apartments to
make it more attractive and con-
venient to its tenants. The Town
Center plan will introduce apart-
ments, shops, and restaurants and
parks into a pedestrian-friendly
street plan that will integrate the
existing office space into a com-
plete community. For more infor-
mation on Legacy Town Center,
refer to www.postproperties.com
or www.shopsatlegacy.com.
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GETTING TO SMART GROWTH
PRACTICE TIP:
The state of California offers
"Jobs-Housing Balance Grants"
to employment center communi-
ties that have the permitted
greatest increase in the number
of housing units in comparison to
a previous three-year average.
The competitive grant program
also offers bonus points for infill
I and affordable housing projects.
The communities can use the
grants for a wide variety
of community projects. For
more information on Jobs-
Housing Balance Grants, see
www.hcd.ca.gov/ca/jhbig.
IO.
Reward communities that create a balance between jobs and
housing.
Parts of a region that are home to an overwhelming number of
jobs, but which suffer from a shortage of housing units, are ideal
opportunities to create mixed-use development projects. In addi-
tion to creating more vital, active communities, this approach can
help to mitigate the growth in traffic congestion from long com-
mutes by workers who do not live near their jobs. The effects of
adapting communities to mixed-use development will be most evi-
dent in areas that are currently dominated by office, retail or light
industrial properties.
States can encourage communities to create more mixed-use
structures by rewarding those that have balanced community job
locations and housing needs. States can give smart growth grants
to communities as a reward for increasing the amount of housing
permitted in job-rich locations or for expanding employment
opportunities through new retail, office, or light industrial struc-
tures within or in close proximity to residential areas.
Communities may use these funds to support infrastructure needs
or the development of public amenities in these new areas.
Centers for Disease Control and Prevention and U.S. Department of
Health and Human Services (CDC), Kids Walk-to-School: A Guide to
Promote Walking to School (Atlanta: CDC). This document is available online
at www.cdc.gov/nccdphp/dnpa/kidswalk/kidswalk_guide.htm.
U.S. Department of Transportation, Federal Highway Administration,
Research and Technical Support Center, Nationwide Personal Transportation
Survey (Lanham, M.D.: FHWA, 1997).
Institute of Transportation Standards, University of California at Davis,
Health Effects of Motor Vehicle Air Pollution (Davis: University of
California Press, 1995).
Lend Lease Real Estate Investments, Inc. Emerging Trends in Real Estate
2002 (New York: PricewaterhouseCoopers and Lend Lease Real Estate
Investments, Inc., 2001).
Bill Spikowski, e-mail, 5 December 2001.
Keith Covington, e-mail, 7 December 2001.
International City/County Management Association, The Practice of Local
Government Planning, 3rd ed. (Washington, D.C.: ICMA, 2000).
For a complete analysis of financiers' perceptions of mixed-use development,
see Joseph Gyourko and Witold Rybczynski, "Financing New Urbanism
Projects: Obstacles and Solutions," in Housing Policy Debate 11, no. 3, (2000).
For details, see www.rose-network.com/projects/denver.html.
For more information on time-tranche investment and the Albuquerque
redevelopment project see Chris Leinberger, "Financing Progressive
Development," The Capital Xchange Journal, (May 2001),
www.brookings.edu/es/urban/capitalxchange/article3.htm.
Shelly Poticha, Congress for the New Urbanism, notes, 14 November 2001.
Andres Duany, Elizabeth Plater-Zyberk, and Jeff Speck, Suburban Nation.
(New York North Point Press, 2000).
Congress for the New Urbanism and PricewaterhouseCoopers, Greyfields
into Goldfields: From Failing Shopping Centers to Great Neighborhoods (San
Francisco: Congress for the New Urbanism, 2001).
Northeast-Midwest Institute and Congress for the New Urbanism,
Strategies for Successful Infill Development (Washington, D.C.: Northeast-
Midwest Institute, 2001).
Cambridge Systematics, The Effects of Land Use and Travel Demand
Strategies on Commuting Behavior (Washington, D.C.: U.S. Department of
Transportation, Federal Highway Administration, 1994).
-------
Chapter Two
Take Advantage of Compact
Building Design
A mericans are consuming more land than
.LAjsver before. During the last two decades of
the 20th century, Americans developed land
three times faster then we grew as a nation.
Between 1982 and 1997, the amount of urban-
ized land used for development increased by 45
percent, from approximately 51 million acres in
1982 to 76 million acres in 1997. During this
same period, however, population grew by only
17 percent.1 This rapid land consumption is
due in large part to the growing size of homes
and retail space on a per capita basis. According
to the American Housing Survey, the median
new house size grew from 1,725 square feet in
1993 to 1,928 square feet in 1999—a 12 per-
cent increase in size in just six years2—despite a
shrinking average household size of just 2.613
persons. Some of this growth is the result of
$MART GROWTH
NETWORK
-------
GETTING TO SMART GROWTH
consumer demand, but some of it is also due to nonmarket incen-
tives, such as zoning and tax breaks, that encourage larger homes.
Similarly, in the last 30 years, the amount of retail space has
grown four-fold from five square feet per person to 20 square feet.4
As more land is used for construction of homes and retail, less is
available on a regional basis for preservation as recreational areas
or for agricultural uses.
Smart growth encourages communities to determine how and
where they want to grow. An important part of achieving smart
growth, compact building helps create the convenient neighbor-
hood centers that people want. Compact building design also
presents opportunities to absorb growth and development in a
way that uses land more efficiently. By using smaller building
footprints for new construction, compact design leaves undevel-
oped land open to absorb and filter rainwater, which in turn
reduces flooding and stormwater drainage needs and lowers the
amount of runoff pollution. Other benefits accrue as well.
Compact communities help achieve the density of population
needed to support viable transportation alternatives. It is estimat-
ed that people will willingly walk to destinations—services as well
as transit stops—located within a quarter to one-half of a mile
radius. Thus, a minimum density of six to eight households per
acre around bus stops would support bus service, and fifteen to
twenty households per acre would support rail transit. The expe-
rience in California demonstrates that creating more compact
communities, which doubled household density, had the effect of
reducing vehicle travel by 20 to 30 percent, as people are able to
use convenient and cheaper alternatives to the car.5 Furthermore,
compact neighborhoods require fewer linear feet of utility lines—
like water, sewer, electricity, phone service, and others—than dis-
persed communities do. As a result, local governments find that it
is cheaper to provide and maintain many services to compact
communities.
Communities may accomplish more compact design by incorpo-
rating structured rather than surface parking or by encouraging
buildings to grow up rather than out, for example. The obstacles
to compact design in a conventional zoning context are formida-
ble. Minimum lot size requirements and prohibitions against mul-
tifamily or attached housing are just two common practices that
make it difficult to achieve more compact communities. These
regulations may reflect a community's desire to attract larger
high-cost homes and the increased tax revenue they represent, or
the negative associations many people instinctively have to devel-
opment that is labeled "higher density." Regulations may also
reflect, however, a lack of familiarity among community members
with examples of high-quality, high-value compact building
design and the benefits associated with them. As a result, many of
America's favorite town centers and neighborhood meeting
places—such as downtown Annapolis, Maryland, or the town
plaza in Napa, California—would be illegal to build today. As the
public becomes more informed about density and the benefits it
can convey, the following policies may be of use in incorporating
compact building design into the American streetscape.
I.
Use public meetings about development options to educate
community members on density and compact building options.
Local government officials and developers who propose compact
development face opposition from a public that is unfamiliar with
high-quality compact development. To make smart growth work,
the public will need to see how good design and compact building
will create communities with convenience, privacy, recreation,
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TAKE ADVANTAGE OF COMPACT BUILDING DESIGN
and manageable traffic. Public involvement and education at the
beginning of the process is the key to reducing citizens' resistance
to compact neighborhoods.
Visual imaging is one technique to help educate residents and
developers on the demand for and benefits of compact communi-
ties. A perception exists among builders and developers, for exam-
ple, that people prefer low-density developments. However, a
study done at the University of North Carolina at Chapel Hill
concluded that, when given visual surveys rather than convention-
al opinion surveys, the public prefers development that would be
6
classified as "high density." Visualization technology can be used
at public meetings to gauge citizens' interest in a variety of devel-
opment options or to help community members envision changes
to an existing street by modifying a scanned photograph. Such
opportunities represent an important learning tool in which com-
munity members begin to realize that the determinant of whether
or not they favor a type of development is often not how dense it
is, but how well it is designed. The Local Government
Commission in California helps communities create these
"Community Image Surveys" to educate their citizens about
The Crossings in Mt. View, California, features ready access to parks and
playgrounds throughout this compact, transit-accessible community.
issues related to planning and design. Private planning consultants
offer similar types of visual preference tools. By using tools that
focus on the impacts and benefits of this alternative development
approach, local communities can overcome much of the uncer-
tainty and lack of familiarity among citizens regarding compact
communities.
2.
Ensure ready access to open space in compactly developed
places.
Useful urban green spaces are characterized both by parks used
for recreation and by preservation areas used for habitat and envi-
ronmental protection (with the uses combined, when possible).
Well-planned and well-maintained parkland is essential in smart
growth communities where compact building design may reduce
the size of private yards. Parks should be designed for a variety of
people and purposes—such as civic plazas, formal gardens, chil-
drens' playgrounds, ballfields, and regional parks. Open space in
smart growth communities should also accommodate the ecologi-
cal functions of undeveloped land, mature trees, and natural
migratory corridors. Urban green space can provide habitat pro-
tection for birds or small animal species, can host trees that pro-
vide shade and filter the air, and can help recharge drinking water
aquifers. These open spaces are less formal, and their design will
be dictated in large measure by their natural features.
The need for open space, sunlight, and nature persists in all parts
of a smart growth community. In Boston, for example, officials
replaced a parking garage with underground parking and a park
on top; the new Park at Post Office Square now provides a recre-
ational opportunity in the crowded financial district. By clarifying
the function and value of the open space created in compact areas,
PRACTICE TIP:
For more information on how to
design good public parks, see the
Project for Public Spaces'Web
site at www.pps.org.
PRACTICE TIP:
Envision Utah, a public-private
planning organization in the Salt
Lake City area, conducted a
series of meetings to address the
future growth of the region. The
attendees, given maps of the Salt
Lake City area and counters that
reflected future population, were
asked to place the population
counters where they thought
growth should occur. Aside from
the team that located the new
population on platforms over the
Great Salt Lake, most groups
realized that they needed to place
future population growth in com-
pact development if they wanted
to preserve farmland or natural
areas in the region. Surveys con-
ducted after the workshop
showed overwhelming support for
a compact growth scenario in the
region.
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GETTING TO SMART GROWTH
PRACTICE TIP:
In the Uptown District in Dallas,
Columbus Real Estate (now Post
Properties) built apartment
buildings that wrap around struc-
tured parking lots. This gives the
residents convenient access to
their cars and apartments with-
out breaking up the walkable
nature of the community. In addi-
tion, the developer said that resi-
dents could market their apart-
ments as having covered park-
ing—a great asset in hot Texas
summers.
communities can meet the environmental and recreation needs of
those who live, work, and play there.
3-
Encourage developers to reduce off-street surface parking.
While compact building design can increase the viability of other
modes of transportation, most communities are still highly
dependent on the automobile and should therefore plan to
accommodate parking. Conventional approaches to parking—par-
ticularly large surface spaces between the street and the front door
of the home or business—not only represent inefficient uses of
valuable urban land but also undermine the walkability that com-
pact communities would otherwise support. Additionally, these
large paved surfaces increase the amount of stormwater that
quickly runs off into storm sewers and surface water, thus increas-
ing the risk of flooding and washing pollutants into our streams,
rivers, and lakes.
It is estimated that for each car
on American roadways today,
eight parking spots exist—many
of them on surface parking lots.7
Communities can better plan for
parking and reduce the need for
surface lots by using several
tools. They can allow on-street
parking to qualify towards the
Materials and creative treatment of
facades allow high-density buildings
to be integrated into the revitalized
Lower Downtown (LODO) district of
Denver, Colorado.
amount of parking a building owner needs or encourage buildings
that need parking at different times of the day to share parking
spaces. Communities can work with employers to offer the option
of financially compensating employees who do not use the com-
pany parking lot. They can also reduce many of the negative
impacts of parking by building parking structures. As structured
parking is more expensive than surface parking ($10,000 per space
to build and maintain structured parking versus $1,400 per space
for surface),8 localities may need to encourage its construction
with financing incentives such as city funds, the use of special tax
districts, or tax increment financing. In so doing, jurisdictions can
free up valuable land in compact urban centers for property devel-
opment that will generate tax proceeds, thereby offsetting the
additional costs. Montgomery County, Maryland, for example,
charges a special parking assessment on new development near
the Bethesda Metro station. Developers who opt not to comply
with requirements for structured parking must pay a fee that is
used by the county to build and maintain its own multi-story
parking lots in the area.9
Match building scale to street type in zoning and permit
approval processes.
Communities can highlight more opportunities for compact
building design by creating stronger links between street width
and building scale. People feel more comfortable in neighbor-
hoods in which buildings and landscape properly frame the street
area. Buildings that are closer to the lot line, for example, frame a
street and calm its traffic, which makes walking more pleasant. A
similar relationship exists for buildings lining large arterial roads.
For example, a wide boulevard that currently accommodates one-
story buildings along each side may become more visually pleas-
-------
TAKE ADVANTAGE OF COMPACT BUILDING DESIGN
ing and well proportioned if four-story buildings line it instead.
By clearly defining this balance between street type and building
scale, a community can encourage more compact communities
and, as a result, can better absorb new growth and development.
Rezoning existing commercial strips to require taller buildings on
the street rather than behind large parking lots is a good start for
rebuilding declining commercial strips into vital town centers.
Not only does this strategy transform inhospitable pedestrian
environments, but it also creates more space for office, residential,
and retail uses. When more people and uses are drawn to an area,
they create a pleasant, walkable environment that offers a sense of
place and increases demand for more stores, restaurants, offices,
and homes.
Establish model state-level design standards and codes to
encourage compact building design that can be adopted by
local communities.
Developers and neighborhoods face enormous challenges when
they seek to create more compact development. More often than
not, current planning and zoning requirements set minimum lot
sizes, setbacks, and parking requirements in a way that makes it
illegal to construct compact buildings. Additionally, zoning stan-
dards limit the density in many conventional neighborhoods and
business centers to a level that precludes development that would
be considered compact. Rather than being encouraged, developers
who want to build compact smart growth communities are instead
forced to endure the time-consuming and expensive process of
securing variances to the prevailing code.
Local governments may be unaware of the extent to which their
current planning documents prevent compact communities. They
may also lack the resources necessary to modify their zoning and
building codes once they have recognized the need to do so. State
governments can help by creating model codes that specify the
design standards, zoning requirements, and codes necessary to
create smart growth communities. This practice of state-generat-
ed model codes is not uncommon; many states have developed
codes (which generally reflect conventional suburban develop-
ment standards) that can be directly adopted by small communi-
ties. States that want to encourage smart growth may offer smart
growth model codes that localities can adopt as easily as they can
adopt conventional development codes. The state of Oregon pro-
vides a useful example with its publication Model Development Code
and Users Guide for Small Cities,10 and with its dedicated state staff
to help educate and assist local governments that want to develop
codes to promote compact communities.
6.
Use density bonuses to encourage developers to increase
floor-to-area ratio (FAR).
Density bonuses can promote many smart growth features in
communities while also creating the land-use intensity that more
efficiently supports public services. Density bonuses have been
used to provide a variety of amenities including parks and plazas
and structured parking. The basic premise is that a developer is
granted the opportunity to increase the size of a building beyond
that which is allowed by zoning, in exchange for providing a pub-
lic amenity from which the community can benefit. The level of
the bonus is designed to cover the cost of providing the amenity.
In order for the community to get what it wants, however, this
tool needs to be designed carefully, as there have been many cases
in which open spaces provided through density bonus programs
have been ill conceived and underutilized. Explicit design stan-
PRACTICETIP:
Building height to street width
ratios can be found in a variety of
new urbanist or traditional neigh-
borhood design guidebooks
including, Andres Duany and
Elizabeth Plater-Zyberk's 1991
book entitled, Towns and Town
Making Principals. For more
information on redeveloping com-
mercial strip centers read the
Urban Land Institute's 2001
publication entitled, Jen
Principles for Reinventing
America's Suburban Strips, writ-
ten by Michael D. Beyard and
Michael Pawlukiewicz.
PRACTICE TIP
For more information on density
bonuses see Marya Morris'
Incentive Zoning: Meeting Urban
Design and Affordable Housing
Objectives, an American Planning
Association's Planning Advisory
Service Report (no. 494) in
2000.
-------
GETTING TO SMART GROWTH
PRACTICE TIP:
The city of Milwaukee, Wisconsin,
reviewed its zoning requirements
and found that the addition of a
variety of new zoning changes
made the buildings on its most
desirable streets illegal. If these
neighborhoods would have been
destroyed in a disaster, they could
not have been rebuilt as they
were. In the process of revising
the zoning code, Milwaukee
stripped the code of many of the
modifications. The resulting code
is very similar to the zoning code
enacted over fifty years ago.
PRACTICE TIP:
For more information on con-
structing compact homes with pri-
vacy, see Steven Fader's Density
by Design, published in 2000 by
the Urban Land Institute.
dards, clear building criteria, and an engaged review board can
ensure that the amenities are provided at the highest quality level.
As a result of the use of density bonuses, not only do residents
benefit from higher density development in targeted areas, but
they also benefit from complimentary amenities that support a
more compact community.
The use of density bonuses around the country illustrates the
wide range of amenities that can be secured. The city of Bellevue,
Washington, used density bonuses to secure public plazas and
ground floor retail space in its downtown redevelopment project.
Near the Ballston Metro station in Arlington, Virginia, bonuses
were used to create housing and retail space in buildings that
would have otherwise been exclusively office space, thus creating a
lively twenty-four-hour neighborhood. Density bonuses in
Montgomery County, Maryland have relieved the added cost of
an inclusionary housing ordinance (see Principle 3, Policy 1 for
more information).
7-
Ensure a sense of privacy through the design of homes and
yards.
Opposition to compact communities is sometimes based on the
perception that buildings within these communities will be ugly
and poorly designed and will offer little or no privacy to residents.
Certainly, the threat of poor design is not limited to compact
buildings, but careful design can improve the relationship of the
compact building to the community around it and serve the
unique needs of those that reside or work within the community.
When buildings are designed appropriately, residents and build-
ing users can benefit from the amenities that accompany attrac-
tive, compact communities, without sacrificing personal privacy.
Well-designed projects balance both the need to engage the
street, by having the primary facade "open" to the street, and the
need to ensure a level of privacy for building occupants.
Apartments can be designed to provide center courtyards for resi-
dents to enjoy a sanctuary from the public. Narrow lot housing
provides private spaces in side or back yards that offer a private
refuge. Additional consideration in building construction can
ensure that neighboring houses that overlook these private areas
have windows mounted higher in the wall to allow light in while
limiting views of neighbors' yards.
8.
Employ a design review board to ensure that compact build-
ings reflect desirable design standards.
Attractive design is critical to balance the many competing
demands placed on compact building design for efficiency, priva-
cy, and accessibility. A design review function can be a means not
only to preserve the community character that exists, but also to
ensure that new development reflects an appropriate and compli-
mentary style. Use of a design review board can help alleviate
fears of compact building design and help interpret a community's
preference for new development. As a result, review boards can
help ensure that any amenities received from developers in
exchange for incentives are well-designed assets to the communi-
ty. Design review is found in most historic districts, but a commu-
nity need not have a historic designation to benefit from this
process. Developers can also benefit from a well-executed design
review process because it can reduce time and uncertainty of the
project approval process.
While design review can help ensure that the proposed projects
meet the community's vision for how it wants to grow, it cannot
-------
TAKE ADVANTAGE OF COMPACT BUILDING DESIGN
take the place of inadequate or poor planning and zoning. It is
important that concurrence between the planning and zoning
already exist and that they both reflect the community's wishes.
Since value judgments are inherent in the design review process,
it is critical that all potential stakeholders are represented in the
review board and that the guidelines developed by the review
board are approved by interested members of the community.
Offer incentives that encourage local communities to increase
density.
Local governments may avoid higher density development for
fiscal or other reasons. State and regional governments can pro-
vide financial incentives to encourage local governments to
approve compact building proposals with higher local densities.
Financial incentives are a way to pass on to compact communities
the cost savings that those communities generate for higher levels
of government. Thanks to compact local design, the state and fed-
eral government pay less on a per unit basis for education, school
busing, transportation, and water and sewer services than they
would under conventional development patterns.
The many sources of funding flowing from state and regional
governments include federal transportation funds, urban develop-
ment block grants, and state income tax revenues, to name a few.
These funding sources can be allocated on a priority basis to com-
pact communities, thereby encouraging others to follow this
example. In the San Francisco Bay Area, for example, the
Metropolitan Transportation Commission awards bonus regional
transportation dollars to communities that build high-density
housing near mass transit facilities (See Principle 8, Policy 1 for
more detail).
IO.
Support regional planning efforts to encourage compact com-
munities.
Residents are the best able to determine how and where their
neighborhood or jurisdiction grows. The impacts of these devel-
opment decisions, however, have a dramatic effect on regional
growth, traffic congestion, environmental quality, and quality of
life. Plans for incorporating higher densities into communities
must be coordinated with transportation investments, parks and
open space, and school planning, among other things. As such,
Detached single family homes in Northwest Landing in Dupont,
Washington, share an adjacent park and are built on lots of only 2500
square feet - roughly 1/2 the size of a typical housing subdivision parcel.
PRACTICE TIP:
For more information on design
review see Rachel Cox's Design
Review in Historic Districts, a 1997
publication of the National Trust for
Historic Preservation, Gary Hack's
"Ten Commandments of Design
Review" (available at www.city-
comforts.com/hack.html'), or Mark
Hinshaw's Design Review, published
by the American Planning
Association's Planning Advisory
Service (no. 454) in 1995.
-------
GETTING TO SMART GROWTH
communities can benefit from coordinating efforts at the regional
level to identify areas targeted for more compact development. By
encouraging each locality to recognize both the local benefits and
the regional implications of this development approach, more
support can be built across the region as a whole for compact
communities.
Regional coordination can also help communities alleviate the
concerns some residents may have about absorbing more than
their "fair share" of the growth in the form of higher-density
developments. The distribution of these clusters of development
around the region, particularly when coordinated with regional
transportation planning and transit nodes, can have a significant
positive impact on open space preservation and air quality while
also reducing traffic congestion. Regional coordination can also
help tie the compact building decisions of localities to the
benefits, in the form of land preserved on the urban fringe, that
these decisions help achieve. These lands—whether they are used
for agricultural or recreational purposes—provide economic and
quality of life benefits to all members of the region. Making this
link clear to area residents will help generate stronger support for
creating more compact, vibrant communities.
William Fulton, et al., "Who Sprawls Most? How Growth Patterns Differ
across the U.S.," Brookings Institution Survey Series Quly 2001).
U.S. Census Bureau, American Housing Survey for the United States: 1999
(Washington, D.C., 1999) detailed tables from the 1993 AHS-N Data
Chart.
The 1990 census estimated 2.63 people per household; eight years later,
the 1998 census estimate calculated only 2.61 persons per household.
Kathy Schalch, "Target Versus K-Mart," National Public Radio's Morning
Edition 29 August 2001, story on discount retail competition.
John Holtzclaw, Using Residential Patterns and Transit to Decrease Auto
Dependence and Costs (San Francisco: Natural Resources Defense Council,
1994).
Emil Malizia, "Consumer Preferences for Residential Development
Alternatives," Working paper 2000.02, (Chapel Hill: University of North
Carolina, Center for Urban and Regional Studies, 2000).
Tri-State Transportation Campaign, Parking Management Brochure,
2001. Available online atwww.tstc.org/pricing/parkman/parking.pdf.
Ibid.
Information on these and other parking tools can be found in the U.S.
Environmental Protection Agency online document, Parking Alternatives:
Making Way for Urban Infill and Brownfields Redevelopment 1999, located at
www.epa.gov/smartgrowth/publications.htm.
Oregon Department of Transportation and Department of Land and
Community Development, Oregon Transportation and Growth Management
Program, Model Development Code and Users Guide for Small Cities (Salem,
Oreg.: State of Oregon, 1999).
-------
Chapter Three
Create a Range of Housing
Opportunities and Choices
By using smart growth approaches to create
a wider range of housing choices, commu-
nities can begin to use their infrastructure
resources more efficiently, better accommodate
the housing needs of all residents, and help
aging citizens remain in their homes. Housing
is a critical part of the way communities grow,
as it constitutes a significant share of new con-
struction and development. More importantly,
however, housing provides people with shelter
and is a key factor in determining a household's
access to transportation, commuting patterns,
access to services and education, and consump-
tion of energy and other natural resources.
Providing quality housing for people of all
income levels is an integral component in any
smart growth strategy. In addition to improving
a household's quality of life, housing can ensure
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
a better jobs-housing balance and generate a strong foundation of
support for neighborhood transit stops, commercial centers, and
other services, thereby mitigating the environmental costs of
auto-dependent development.
Changing demographics mean that the standard post-World War
II approach—one that emphasized the construction of single-
family detached homes—may no longer adequately meet
America's changing housing needs. The share of households com-
prised of two parents and their children is diminishing, while the
number of single adult households and households without chil-
dren is growing. Furthermore by 2030—for the first time in the
United States—one in five Americans will be elderly. Many older
citizens will be unable or unwilling to drive or care for expansive
back yards. While the single-family detached home will remain
the housing product of choice for many, demand is growing for
greater alternatives in housing. Housing that is constructed to
accommodate the needs of some for better walkability, access to
transit, proximity to publicly maintained parks and civic spaces, or
PRACTICE TIP:
The Moderately Priced Dwelling Unit (MPDU) program of Montgomery County, Maryland, is perhaps the most well-
known version of an inclusionary zoning program, which has created more than 10,000 affordable housing units since
1974.The program requires that 12.5 to 15 percent of all units in developments of 50 units or above be set aside for
households earning moderate income —roughly 60 percent of the area's median. These units are then reserved for pur-
chase by low-income home buyers or nonprofit groups who in turn rent the house to low-income tenants. The units that
are sold are price-controlled to remain affordable for a period of ten years. In exchange for the set-aside, developers
who comply with the program are given density bonuses that allow more units—22 percent in the MPDU program—to
be constructed on the same amount of land.The program has been credited with increasing economic and racial diver-
sity in Montgomery County's housing developments, as well as vastly expanding the number of affordable units avail-
able to residents at a relatively low cost for the county.
smaller housing units in familiar neighborhoods, for example,
helps communities achieve smart growth and creates more
options from which households can choose.
The opportunities to expand the range of housing choices are
myriad. Housing choices in new developments can be diversified
by modifying land-use patterns for greenfield sites. Existing
neighborhoods, too, can benefit from a wider range of choices by
changing zoning and building codes to increase the type and
quantity of units provided. This can also lead to other benefits.
Integrating single- and multifamily structures in new housing
developments and existing neighborhoods can help reduce the
concentration of poverty. The addition of units—through
attached housing, accessory units, or conversion to multi-family
dwellings—to existing neighborhoods creates opportunities for
communities to slowly increase density without radically chang-
ing the landscape. New housing construction can be an economic
stimulus for existing commercial centers that are currently
vibrant during the workday but suffer from a lack of foot traffic
and consumers in evenings or weekends. Most importantly, a
range of housing choices allows all households to find their niche
in a smart growth community—whether it is a garden apartment,
a row house, or a traditional suburban home—and accommodates
growth at the same time.
I.
Enact an inclusionary zoning ordinance for new housing devel-
opments.
Inclusionary zoning represents a critical means to both create
affordable housing units and achieve a greater range of choice in
housing location for below-median-income households. The dis-
tribution of housing that inclusionary zoning can help achieve
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CREATE A RANGE OF HOUSING OPPORTUNITIES AND CHOICES
throughout a region ensures that more opportunities exist for
households to live near jobs, services, and other resources. By
requiring that some portion of every new housing development
beyond a given threshold size (e.g. fifty units) is offered at a price
that will be affordable to low-income residents, inclusionary zon-
ing helps to both increase the number of affordable units and cre-
ate mixed-income communities.
Beyond the Maryland program (see practice tip), other programs
in California, New Jersey, Florida, and Oregon offer variations on
this basic model. Some programs offer developers the opportuni-
ty to bypass this requirement if a contribution is made to a
regional affordable housing trust fund; the risk inherent in this
bypass, however, is that affordable housing will be constructed in
pockets of low-income communities. Other programs waive regu-
latory requirements, such as parking spaces, or reimburse impact
fees for developments that include affordable housing.1
2.
Provide home buyer assistance through support to community
land trusts.
Community land trusts (CLTs) constitute a long-term, permanent
means to ensure affordability in housing and to provide an oppor-
tunity to expand the range of housing choices in smart growth
communities. CLTs participate with traditional home buyers to
lower the cost of purchasing a home by retaining ownership of
the land upon which a home sits and making it available to resi-
dents through a long-term lease. By doing this, CLTs make it
cheaper for lower-income households to buy a home. Since CLTs
are nonprofit organizations and hold the land for a long period of
time, they ensure that the house will remain affordable for many
future home buyers.
When traditional subsidies for home ownership, such as down
payment assistance or first-time home buyer subsidies, are admin-
istered through CLTs rather than given to purchasers directly, the
benefits can be shared with future low-income purchasers.
Subsidies become, in essence, permanently tied to the property
rather than to the recipient household. For example, down pay-
ment assistance in the amount of a grant of $5,000 can be used to
assist the CLT in purchasing the land portion of a targeted prop-
erty. Whereas the grant would provide a one-time benefit to the
targeted home buyer (thereby requiring additional, larger grants
in the future to convey the same benefit to future buyers), the
same grant will remain available to future residents (in the form
of a lower acquisition cost) when directed through a CLT.
Communities should work to educate lenders about the concept
of CLTs to ensure that future CLT home buyers will be able to
access conventional sources of financing. Approaches such as this
are critical to ensuring that a sufficient range of housing at vary-
ing levels of income exists to allow for all types of households to
find their place in a smart growth community.
3-
Revise zoning and building codes to permit a wider variety of
housing types.
In many areas, communities are hampered by regulations in cre-
ating the types of developments that advance smart growth.
Setback requirements, regulations restricting the number of units
within a building, and lot-size standards advance the concept of
traditional suburban growth but are not well suited to helping
communities reap the benefits that smart growth can yield, which
include better walkability and a greater range of housing and
transportation choices. Reduced or flexible parking requirements
would allow developers to construct more units and therefore put
PRACTICE TIP:
The Institute for Community
Economics in Cambridge,
Massachusetts, is a technical
resource and provider of a loan
fund to support community land
trusts. Learn more at
www.iceclt.org.
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GETTING TO SMART GROWTH
PRACTICE TIP:
Cary, North Carolina, which has
been challenged by rapid growth
and rising housing prices, current-
ly operates under a zoning code
that allows all single-family
homes to include accessory units,
but requires them to be attached
to the main building and occupied
by a relative. The town is consid-
ering removing both of those
restrictions, which would expand
both the types of AD Us that can
be built and the number of people
who can take advantage of them.
One builder, who has already rec-
ognized the potential market
value of ADUs, includes 300-
square-foot "suites" in new town
homes in Carpenter Village. More
information can be found at
www.townofcary.org/depts/dshom
e.htm.
Newly constructed homes in
Northwest Landing in Dupont,
Washington, offer accessory units
above rear-entry garages.
more households in closer proximity to bus and rail, making tran-
sit-oriented development more viable. Additionally, regulations
that prohibit the construction of multifamily housing impose for-
midable obstacles to building duplexes, row houses, and garden
apartments.
Construction of entire new neighborhoods is not the only way to
create new housing supply. Opportunities to expand the range of
housing choices also present themselves in existing single-family
neighborhoods. Spaces above garages, finished basements, and
attics with separate entrances all represent potential homes for
elderly people, adult singles, or small families. These "granny
flats", "mother-in-law" apartments, or elder cottages—generally
termed accessory dwelling units (ADUs)—provide a way for chil-
dren who have grown up in a neighborhood, or seniors who have
outgrown their large family homes, to remain in the area near
family and friends. As rentals, these units can provide an impor-
tant source of income to help households afford the purchase of
their home. When combined with a reverse mortgage, ADUs
permit seniors to age in place while receiving a steady stream of
income. They also serve to gently increase the density of neigh-
borhoods without new parcel development, which can in turn
provide better support for expanded transit and commercial activ-
ity. To gain the benefits of ADUs, communities must address the
zoning and building codes that currently prevent them and active-
ly consider the concern of neighbors who fear that ADUs will
dramatically change the look and feel of their neighborhood. If
these issues are addressed adequately, housing can more easily
meet the needs of a diverse and changing population, and home
owners gain more choice in how they use their homes.
4-
Plan and zone for affordable and manufactured housing devel-
opment in rural areas.
Housing needs remain pressing problems in many rural commu-
nities today. Finding adequate solutions to address them presents
an opportunity not only to better house many residents but also
to facilitate housing development in a way that encourages smart
growth. When these needs are not considered, the result has been
poor quality housing on unserviced land scattered throughout
rural farmlands or on the outskirts of towns. Improved solutions,
with better access for residents to services and infrastructure, can
be achieved by planning and zoning for a broad range of housing
types in rural areas.
Improved design, materials, and construction technology have
helped to make mobile and modular homes a very viable approach
to affordable housing in many rural—and urban—contexts. Local
governments would be well served to explore these opportunities,
as well as opportunities for traditional "stick-built" housing, and
to plan and zone for them accordingly. By accommodating this
growth, communities will be better able to respond in a coordi-
nated way to demands for low-cost housing and to ensure that it is
-------
in conformance with health and service standards. Communities
can address these needs by discussing service provision and infra-
structure needs with landowners prior to development, and by
enforcing standards for maintenance, upkeep, and title transfer
post-development.
5-
Educate developers of multifamily housing units and
nonprofits on the use of limited-equity (or equity-restriction)
components.
Opportunities to expand housing choices present themselves not
only in the construction of new housing types, but also in an
inclusive approach to ownership structures as well. Beyond the
traditional condominium approach to ownership in multifamily
or attached housing developments, co-operatives (in which mem-
bers own shares in the overall ownership structure and the right
to occupy their unit) and community land trusts (in which a non-
profit trust owns the land, and the resident owner retains title to
the house) represent additional, and at times more affordable,
approaches to home ownership.
These various ownership structures lend themselves to further
broadening the range of affordability through inclusion of limited
equity components. These regulations place limits on the amount
of equity or profit that can be earned by a single home owner
over a period of time. In places where housing prices are rising
quickly, this program helps to keep the housing affordable for
future purchasers. Depending on the structure, these equity limi-
tations provide a fixed return on investment (for example, two
Benedict Commons provides
affordable housing opportunities
for Aspen, Colorado, employees.
CREATE A RANGE OF HOUSING OPPORTUNITIES AND CHOICES
percent appreciation per year of ownership) or limit the sales
price based on average below-median income levels for house-
holds. In either case, the ability to limit the amount of profit that
home owners can earn from the sale of their units means that the
unit can be purchased by an approved household (often one that
must meet income criteria) for a lower cost than would normally
be the case. Despite a concern that some participants may find it
difficult to build enough equity to later afford a non-subsidized
home, limited equity ownership still remains a viable means to
build modest amounts of wealth and expand access to home own-
ership for many.
6.
Educate realtors, lenders, and home buyers on the use of
resource-efficient mortgages.
Resource-efficient mortgages allow home buyers to factor the
cost savings associated with homes that are near transit or that are
energy-efficient into their mortgage calculation, and can help put
a wider range of housing options within reach for people. Initial
pilots of the Location-Efficient Mortgage5*1 (LEM) by Fannie
Mae and the Center for Neighborhood Technology have helped
to expand the range of housing that is affordable near transit,
where the total household savings accrued by lower transporta-
tion costs are factored into the mortgage-qualifying calculations.
A similar product is in development to capture household utility
savings that are associated with energy-efficient housing, and to
factor those savings into qualifying calculations.
These tools will not only make transit-accessible and energy-
efficient housing more accessible for current home buyers. In
addition, over time, the availability of these specialized financing
resources—and the resultant market demand—will stimulate
PRACTICE TIP:
In the ski resort town of Aspen,
Colorado, where the average cost
of homes is more than $2.2 mil-
lion, local officials worked with a
developer to create affordable
home ownership opportunities.
Benedict Commons is a downtown
housing development that serves
local employees earning between
$17,000 and $38,000 per year.
The deed restrictions on the units
require that the resale price of
units does not rise faster than the
rate of inflation. In this way, the
community guarantees a perma-
nent supply of affordable housing
to local low-wage employees
and provides home owners an
opportunity to earn a profit —
albeit a limited one —on
their housing investment. More
information is available at
www.rose-network.com/projects/
benedict.html.
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GETTING TO SMART GROWTH
PRACTICE TIP:
Chicago, Illinois, was one of the
first sites for the groundbreaking
LEM. Initiated in 1999 with a
$21 million commitment from
Fannie Mae, lenders in the
Chicago area have used the LEM
to help households qualify for
housing in transit-rich areas. The
mortgage works as follows. A
"location value" is attributed to
units located near transit and for
households that have limited use
of private vehicles. That location
value is then factored into the
household's qualifying levels. In
the case of a two-person,
$60,000 per year income house-
hold in the city's Edgewater
neighborhood, for example, the
use of the LEM would allow the
household to qualify for a
$212,218 home-$53,854
greater than the amount the
household would qualify for under
traditional underwriting guide-
lines.
greater construction of housing that fit these criteria. By facilitat-
ing the construction of these types of housing, these financing
tools will provide greater choice for households that choose to
locate near transit or in energy-efficient homes.
7-
Implement a program to identify and dispose of vacant and
abandoned buildings.
Vacant buildings can act as physical indicators of neighborhood
blight and disinvestment in existing neighborhoods, and as they
such represent barriers to reinvestment and revitalization. While
vacant buildings may present very real physical obstacles in the
form of fire and safety threats to adjacent structures, they also
pose a significant psychological barrier to the community's
resources. Nevertheless, vacant properties represent potentially
valuable untapped resources for revitalization and redevelopment
as well as prime opportunities to expand the housing stock in
existing neighborhoods.
Local governments or nonprofit organizations can facilitate resale
and reuse of these buildings. Properties that remain vacant and
deteriorating often are a result of tax arrears, liens, or other unre-
solved financial obligations or legal issues that present obstacles
to transfers of ownership. Local governments can help address
those issues by stepping up enforcement actions against owners
where building code violations exist. In addition, local govern-
ments can make public information about vacant buildings more
accessible to potential purchasers and redevelopers of the proper-
ties. In cases where the owner cannot be readily located, or where
arrears are of a significant magnitude, public seizure and auction
can be used to recoup unpaid taxes or liens, while at the same
time creating investment opportunities for developers or home
owners. Local governments and nonprofit organizations can help
stimulate interest in opportunities to purchase these units by tar-
geting investment and infrastructure resources in the surrounding
areas and by marketing the assets of underutilized neighborhoods
to prospective residents and investors. The result is one in which
the buildings will no longer serve as examples of disinvestment
but will act as symbols and opportunities for economic growth
through their return to use as functional housing units.
8.
Adopt special rehabilitation building codes to regulate the ren-
ovation of existing structures.
A sizable share of older, pre-World War IE buildings characterizes
many urban and inner-suburban communities. When they are
well maintained, these buildings can represent a desirable housing
stock because of their architectural uniqueness. When they are
not, however, these buildings can quickly disintegrate into blight-
ed or vacant structures, posing risk of fire, economic disinvest-
ment, and increased crime for the neighborhoods surrounding
them.
The same features that make the buildings unique can also make
the prospect of their conversion into modern housing units cost
prohibitive for potential redevelopers. Building codes most com-
monly used to monitor structures are, for the most part, suited to
regulate new construction in houses that conform to modern
standards of hallway width, window and door dimensions, and the
like. Retrofitting older homes—which may contain more narrow
hallways, for example—to these standards represents a costly and
time-consuming challenge for many prospective investors.
Parallel codes to regulate renovation of existing structures can
stimulate the upgrading of homes, expand housing opportunities,
-------
CREATE A RANGE OF HOUSING OPPORTUNITIES AND CHOICES
and facilitate reinvestment in existing neighborhoods. These
codes do not replace the dominant building codes nor do they
require that all buildings conform to pre-World War II building
standards. Rather, these codes, which were adopted in consulta-
tion with fire and safety officials, ensure that the full range of
housing stock is available for safe and secure use by prospective
tenants.
Enlist local jurisdictions in implementing a regional fair-share
housing allocation plan across metropolitan areas.
The effects of individual housing needs are manifested at a
regional level. It is not uncommon to find, for example, enclaves
of middle- and upper-income housing supported by retail shops
and services in which the employees are unable to afford housing
anywhere near their typically low-wage jobs. Often those
employed in the service economy, the public sector (including
teachers, police officials, and firefighters), and increasingly in
white-collar professional jobs are forced to seek affordable hous-
ing in distant parts of the metropolitan region. The result has
been longer commutes, more congested roadways, and a growing
disparity between high-cost and low-cost housing areas. Local
governments often view the need to supply more affordable hous-
ing as a fiscal burden. They perceive risk in exchanging the
potential high tax revenue earned from expensive housing for the
potential net cost associated with low-cost housing, where service
needs exceed generated tax revenue. This perspective fails to rec-
ognize the interrelatedness of the locality's housing needs and the
economic growth it desires. This view also fails to recognize the
regional impacts that will result for all community members
should this jobs-housing imbalance persist (see Principle 1, Policy
1 for more information).
Fair-share housing-allocation plans can ensure that adequate
housing opportunities exist regionwide. When all local govern-
ments within a region comply with their "fair share" of affordable
housing (as determined by population, projected job growth, or
existing jobs-housing
Previously vacant and abandoned build- imbalance, for example),
ings are converted to high-quality,
affordable housing in the East Russel the risk of clustering low-
neighborhood of Louisville, Kentucky.
PRACTICE TIP:
In Richmond, Virginia, a commu-
nity-based process was used to
determine its six priority neigh-
borhoods for revitalization, of
which the disposal of vacant prop-
erties was seen as a critical piece.
The "Neighborhoods in Bloom"
program focused on enforcement
actions against building code vio-
lations, streamlined assistance for
the rehabilitation of units, and
targeted use of federal block
grant money for infrastructure
upgrades in the priority neighbor-
hoods. As a result, during the first
two years of the program, violent
crime rates dropped by nearly 40
percent, and property values
increased at a rate that exceeded
rates in the city as a whole.
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GETTING TO SMART GROWTH
PRACTICE TIP:
In the state of New Jersey, state
officials first secured the support
I of fire officials in creating their
Rehabilitation Code, by citing that
vacant structures posed a greater
fire risk than did buildings reno-
vated under the proposed code.
After the introduction of the
rehab codes, rehabilitation work
in the five largest cities increased
by 60 percent in the first year of
the code's implementation and 83
percent in Newark alone.
PRACTICE TIP:
Pension funds present a
significant opportunity to direct
financial resources to support
smart growth. In California, state
treasurer Phil Angelides has
encouraged the state's largest
pension f unds —Cal P E RS
(California Public Employees'
Retirement System) and the
State Teachers Retirement
System, on whose boards he
sits —to invest more of their
money in revitalizing urban cen-
ters in California.
income households in only a few areas drops. It also ensures that
the potential costs to localities of providing low-cost housing are
equally distributed among the region. Furthermore, the geo-
graphic distribution of affordable housing units creates more
opportunity for households to locate near jobs and services,
thereby mitigating the need for long commutes and congestion.
Guaranteeing compliance can be difficult from a regulatory or
legislative standpoint, as few regional bodies exist that would
trump local government authority. Incentives may be created,
however, to reward communities that do comply.
IO.
Give priority to smart growth projects and programs that fos-
ter smart growth in the allocation of federal housing and com-
munity development block grant (and other) funds.
Block grants such as HOME and Community Development
Block Grants (CDBG), as well as the Low-Income Housing Tax
Credit, represent significant sources of funds for housing and
community development. While the federal government provides
these resources, state and local governments have a great deal of
discretion in allocating them. By modifying the standards that are
used to distribute these funds, communities can encourage proj-
ects to incorporate desired smart growth aspects. Rather than
replacing good current housing and community development
projects, local government can encourage these projects to be
better by incorporating smart growth characteristics. These proj-
ects might include transit accessibility, a mix of uses, new housing
construction in existing neighborhoods, or the rehabilitation of
existing buildings to include accessory dwelling units or multi-
family housing.
These priorities for funding allocation must be set at the local or
state level and should reflect both the federal standards for their
use as well as the community's own vision of how and where it
wants to grow. Local decision making allows communities to sup-
port their priorities, such as the revitalization of existing neigh-
borhoods, the preservation of open space, or development to sup-
port expanded transit, pedestrian, or bicycle uses. As a result, not
only will federal funds be used to expand access to housing and
community services, but these funds will be used in a way that
considers a wider range of long-term needs of the community.
See Marya Morris, Incentive Zoning: Meeting Urban Design and Affordable
Housing Objectives, Planning Advisory Service Report No. 494, published in
2000 by the American Planning Association, for a more complete descrip-
tion of this approach.
Other Resources:
• Smart Growth Network and National Neighborhood Coalition's Affordable
Housing and Smart Growth: Making the Connection (Washington, D.C.:
Smart Growth Network, 2001).
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Create Walkable Communities
Before the mid-1900s, urban communities
and neighborhoods focused on the pedes-
trian. They were designed to move people to
their destinations. However, in the past fifty
years, dispersed development patterns and the
separation of uses have led to an increased
reliance on personal automobiles and to an
elimination of many characteristics that support
walkable communities. Today, traffic engineers'
and developers' arguments that sidewalks will
not be used leave many new streets without
sidewalks or with sidewalks on only one side.
The engineers and developers are right in one
sense: sidewalks by themselves will not induce
walking. Other pedestrian-friendly features
must be present, such as an appropriate mix of
densities and uses, compact street intersections,
and neighborhoods that are scaled to people.
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
Clear and distinct opportunities for
street crossing help make Highland
Gardens in Denver, Colorado, a
pedestrian-friendly community.
Walkable communities are integral to achieving the goals of smart
growth because they enhance mobility, reduce negative environ-
mental consequences, strengthen economies, and support
stronger communities through improved social interaction.
Communities can be built so that walking to destinations is a
viable alternative, thereby improving access to services for the
one-third of the population that is too old, too young, or too poor
to drive. Communities that enhance pedestrian access provide
many benefits for the environment. For example, by reducing the
need for people to drive cars to every destination, pedestrian
design can improve air quality. In addition, many of the suggested
pedestrian-friendly improvements—such as narrower streets, on-
street parking instead of off-street parking, or pathways through
parking lots—reduce or break up large swaths of impervious
cover, thereby decreasing stormwater runoff. These strategies
yield economic benefits, as communities with better air and water
quality are less burdened with the costs of treating air and water.
Other economic and social benefits associated with walkable com-
munities include lower transportation costs, improved personal
health and fitness, and
expanded consumer choice.
As these many benefits of
pedestrian-friendly com-
munities are realized,
more communities are
engaging the public and
private sectors in develop-
ing walkable neighbor-
hoods.
Unfortunately, a multitude of public and private practices hinder
the creation of walkable communities. Conventional land-use reg-
ulation often prohibits the mixing of land uses, thus lengthening
trips and making walking a less viable alternative to driving. This
regulatory bias against mixed-use development is reinforced by
private financing policies that view mixed-use development as
riskier than single-use development. Many communities—partic-
ularly those that are dispersed and largely auto-dependent—
employ design practices that further reduce pedestrian activity.
Conventional street design suggests wide streets with few cross-
walks, long blocks, and limited pedestrian infrastructure—such as
sidewalks, median strips, or traffic-calming features. The conven-
tional design of residential developments also acts as a disincen-
tive to pedestrian activity. Setback requirements, large minimum-
lot requirements, and indirect street routes, including cul-de-sacs,
increase the distance between pedestrians and destinations.
Similar pedestrian disincentives exist within conventional com-
mercial designs. Many office buildings, retail establishments,
hotels, and other commercial uses are surrounded by large park-
ing lots, which force pedestrians to navigate through a sea of
parked and moving cars.
These barriers demonstrate that land use and community design
play a pivotal role in encouraging pedestrian environments.
Communities can increase the number and quality of walkable
communities by building multiple destinations and uses within
close proximity. This type of development ensures that streets and
sidewalks balance all forms of transportation and that the build-
ings and corridors are the proper size and scale. Below is a range
of policy options to help communities achieve this critical goal.
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CREATE WALKABLE COMMUNITIES
I.
Provide grants or other financial assistance to local communi-
ties to retrofit existing streets and sidewalks to promote more
walkable communities.
As with any construction activity, retrofitting streets and sidewalks
and adding pedestrian-friendly amenities to existing develop-
ments costs money. In today's fiscal climate, where communities
sometimes omit sidewalks, landscaping, crosswalks, and other fea-
tures that support walkability, the importance of additional
sources of funding for these changes cannot be understated. State
governments can play a powerful role by directing financial
resources and technical support to aid local efforts. Targeted use
of state and federal transportation funds can assist communities in
initiating or completing pilot retrofitting projects, thus demon-
strating the benefits of improved walkability and generating fur-
ther support for expanded local financing of pedestrian-friendly
retrofits. The state of Illinois, for example, under the "Illinois
Tomorrow: Balanced Growth for a Better Quality of Life" initia-
tive, recently awarded $3.7 million in grants to assist localities in
promoting coordinated land use, transportation, and infrastruc-
ture planning efforts. Several of the awarded grantees (Berkeley,
Melrose Park, and Western Springs) are using state funds to
improve the walkability of local streets and streetscapes through
improved planning, pedestrian-friendly retrofits, and transit-ori-
ented development.
Federal sources of funding are also available, such as the
Transportation Equity Act for the 21st Century (TEA-21), which
supports the integration of bicycling and walking into the trans-
portation mainstream. More importantly, it enhances the ability
of communities to invest in projects that improve the safety and
practicality of bicycling and walking for everyday travel. Bicycle
and pedestrian projects are broadly eligible for funding from
almost all the major federal transportation programs, including
highway, transit, and safety. In the years before passage of the
Intermodal Surface Transportation Efficiency Act of 1991 (TEA-
21's predecessor), federal spending on bicycling and walking facil-
ities was approximately $4 to 6 million per year. Since then,
spending of federal funds by states has grown to more than $296
million in fiscal year 2000.
2.
Concentrate critical services near homes, jobs, and transit.
Developments or communities that have medium to high densi-
ties and mixed land uses bring destinations and origins closer
together and provide more incentives for people to walk.
Research has demonstrated the importance of densities in pro-
moting walking and transit use. Higher densities and a mix of
uses mean more residents or employees are within walking dis-
tance of transit stops and stations. It also means that streets have
more activity, interest and security with having more people
around. Finally, mixed-use development and higher densities lead
to a greater propensity to walk or use transit and to lower auto
ownership rates. However, in most communities, local zoning
ordinances for new or infill development prohibit the mixing of
land uses, which limit the location of public and private services
within walking distance of home, work, and transit. Furthermore,
many communities lack or have inadequate street standards that
provide the needed connectivity between mixed-use neighbor-
hoods, the street network, and existing transit routes.
There are several mechanisms for addressing these barriers. First,
local governments can identify and develop mixed-use overlay
zones to enhance the mixed-use and compact nature of new and
PRACTICE TIP:
Hillsborough County, Florida,
received $2.6 million from TEA-
21 to develop Riverwalk —a new
1.25-mile, vibrant, linear, pedes-
trian-oriented linkage along
Tampa's waterfront that provides
the public with the opportunity to
use and enjoy the special charac-
ter of the Hillsborough
Riverfront. For more information
on using TEA-21 funds for pedes-
trian activities, see:
www.fhwa.dot.gov/environment/bi
keped/bp-broch.htm.
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GETTING TO SMART GROWTH
PRACTICE TIP:
The city of Pasadena, California
I has developed a Specific Area
Plan for the neighborhood of
East Pasadena. The plan provides
policy objectives and standards to
enable the community to meet its
vision of being "an economically
viable and attractive environment
with a full range of mobility
options —auto, light rail, bus,
bicycle and pedestrian." To meet
the community goal of improved
mobility and an enhanced pedes-
trian environment, the city has
developed a series of land-use
strategies (emphasizing transit-
oriented development and infill
development) to encourage an
increased mix and higher density
of land uses in transit corridors.
The city has also encouraged a
series of urban design improve-
ments, including the addition of
landscaping, crosswalks, public
parks, and plazas, to add pedes-
trian-friendly amenities to the
city's streetscape.
infill developments. In addition, community groups and local
governments can ensure that streets and walkways are better con-
nected to each other so that pedestrian activities are increased.
Ensuring that street construction standards are pedestrian-friend-
ly also enhances the walkability of any community.
Transportation authorities can reroute bus routes and adjust bus
schedules to maximize ridership, and they can link buses with
heavy rail transit stops, thereby attracting more pedestrian activi-
ty between transit stops and destinations. Finally, transit-oriented
development (TOD) represents a key opportunity to accommo-
date new growth that is centered around transit and to retrofit
parts of existing neighborhoods to better focus pedestrian options
and destinations (see Principle 9, Policy 9 for more information).
3-
Require building design that makes commercial areas more
walkable.
Shops, offices, public facilities, and other nonresidential uses are
destinations as well as community assets. Diverse streetscapes
with retail shops, restaurants, public art and other amenities
encourage people to linger. A lively and inviting street is viewed
as safe and attractive, whereas an empty street, void of pedestrian
activity, can convey abandonment or danger. Building aspects that
isolate people and discourage pedestrian activity include "face-
less" buildings without windows or doors at eye level, buildings
with no first-floor retail, or buildings that are set back a great dis-
tance from the street. Increasing pedestrian traffic in these areas
requires that buildings incorporate designs that create a sense of
place and security.
There are several tools that local governments can use to make
commercial areas more walkable, including design guidelines and
zoning. Zoning for new construction can ensure that ground floor
space faces the street, street-level retail is included in appropriate
areas, structures are built to lot lines, and building fronts are made
permeable by the placement of doors and windows. In addition,
zoning and street standards can be used to ensure that blocks are
kept short (see Principle 8, Policy 3), sidewalk commerce is
encouraged (see Principle 5, Policy 5), and parking between
buildings and sidewalks is eliminated (see Principle 9, Policy 6).
Finally, the Specific Area Plan can be an important tool because it
allows communities to modify specific building designs and com-
mercial areas in targeted communities.
4-
Adopt design standards for streets that ensure safety and
mobility for pedestrian and nonmotorized modes of transport.
Making communities walkable requires that pedestrians and bicy-
clists feel comfortable and secure enough to share the street with
PRACTICE TIP:
Responding to public concerns that existing street design standards were
limiting the livability and walkability of their community, the public works
department in Sacramento, California, recently underwent an aggressive cit-
izen-based approach to revising and adopting new street standards. The
department brought an advisory team of developers, residents, bicycle advo-
cates, transportation and urban planners, regional transit officials, land-
scape architects, and policemen and firemen to the table to think "outside
of the box" about street standards applicable to the unique needs of
Sacramento residents and business.The results of this process were a series
of street standards that provide flexibility in street design (rather than a
one-size-fits-all solution) and that balance livability demands and the need
to maintain street function.
-------
CREATE WALKABLE COMMUNITIES
buses and automobiles. For example, conventional street design
places the automobile at the top of the hierarchy of transportation
modes, thus giving priority to automobile access and efficiency
above other considerations. Traditional street design offers con-
siderable advantages over conventional street design for providing
a sense of security and convenience. Short blocks, narrow widths,
landscaping, on-street parking, through streets and walkways
characterize traditional streets and lead to streets that balance the
needs of different transport modes (see also Principle 8, Policy 3).
In addition, these characteristics keep urban traffic dispersed and
at low speeds—two important considerations for ensuring the
safety of pedestrians.
Also, neighborhood and urban streets must be designed to facili-
tate pedestrian crossings. In general, pedestrians will cross streets
at crossing points as long as it requires going no more than 150
feet out of their way. For this reason, well-designed towns ensure
convenient crossing points each 300 feet. This spacing is especial-
ly important on main streets. When fewer organized crossing
points are established, sporadic or spontaneous street crossings by
frustrated pedestrians create unsafe, unpredictable movements.1
Retrofitting streets to contain design features that support pedes-
trian activity can be challenging, expensive, and frustrating.
Traffic delays resulting from structural changes to the street net-
work impose costs on users. Communities can be proactive and
avoid some of these costs by developing a toolbox of approved
alternative street standards that meet these criteria. The develop-
ment of regulations and incentives that encourage traditional
street design prior to construction can contribute to a street net-
work and design that support pedestrian and other nonmotorized
forms of travel. Through the use of subdivision regulations, com-
munities can require that new developments contain on-street
parking, landscaping, sidewalks, narrow roadways, short blocks,
grid-patterned streets, and well-marked bicycle lanes. Zoning can
be used to reduce setback requirements or require consistent,
human-scale design of storefronts.
5-
Adopt design standards for sidewalks.
Better sidewalks require better design. Sidewalks need adequate
widths, buffers, continuity, connectivity, and edges to ensure that
they meet the needs of pedestrians. However, too few local
officials understand these needs and fail to provide direction or
funding for constructing or retrofitting sidewalks. Many new
developments lack sidewalks, because often no local requirement
to build them exists. Through the use of design standards, regular
public investment, periodic evaluation of sidewalk performance,
and subdivision design, communities can provide citizens with
secure, convenient, and lasting sidewalks.
Specific design standards might include requiring a minimum
width for sidewalks, buffers to shield users from traffic, or edges
to clearly mark pedestrian zones. For example, a general design
standard for sidewalk width might set a minimum requirement of
at least five feet. To encourage more comfortable walking and
PRACTICE TIP:
While Martin Luther King Boulevard in Portland, Oregon, in the late 1980s was not much of a credit to its namesake,
a decade later the situation had reversed. By that time, the boulevard that most community residents had previously
regarded as a thoroughfare to shuttle commuters was transformed into a main street and neighborhood center.
Because of the state Department of Transportation's flexibility in administering design standards, an intergovernmental
team of officials was able to create a pedestrian- and transit-friendly streetscape and sidewalk. Widened sidewalks,
curb extensions to shorten street crossings, curbside bus stops, and crosswalks were some of the infrastructure changes
that supported increased pedestrian activity. In addition, the visual character of the sidewalk and boulevard
enhanced by the addition of ornamental lighting, decorative paving, and frequent street trees.
Narrow streets, sidewalks, and front
porches all contribute to make the
I'On community in Mount Pleasant,
South Carolina, walkable for residents and
visitors.
clIKb,
inges
was
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GETTING TO SMART GROWTH
PRACTICE TIP:
The experience of officials in
University Place, Washington,
shows how street design can
induce changes in vehicular
behavior and calm traffic.
University Place is home to
Grandview Avenue —a two-lane
suburban road where traffic held
constant speeds of 44 mile per
hour, despite posted speed limits
of 35 miles per hour. In an effort
to reduce speeding, a 1.1-mile
section of Grandview was
redesigned.Travel lanes were nar-
rowed to 11 feet each, five-foot
bike lanes were added, a two-foot
landscaped edge and a five-foot
sidewalk were included, and trees
were planted to buffer pedestri-
ans from the street. Today,
motorists on Grandview operate
at speeds below the 35-mile per
hour posted limit, and pedestrians
have a more secure and pleasant
environment for walking.
higher volumes of pedestrians in commercial and school districts,
however, sidewalk widths should be increased to eight to twelve
feet. Large successful downtowns have widths of 20 to 30 feet or
even a fifty-fifty ratio of street to sidewalk width. Sidewalk design
standards might also specify buffers and edges. For example,
design standards might require planter strips of four to six feet in
suburban areas or recommend that fencing, shrubs, and other fea-
tures form edges to parking lots, open lots, or other areas that
must be traversed. Other design standards that can improve the
pedestrian experience include instituting traffic-calming measures
and providing landscaping and street trees to buffer pedestrians
from traffic, locating sidewalks close to building fronts, discour-
aging off-street parking, encouraging on-street parallel parking,
and providing adequate lighting and ample street crossings.
6.
Require traffic-calming techniques where traffic speed
through residential and urban neighborhoods is excessive.
Many new or updated residential streets today are designed to
maximize vehicular flow. Long blocks, wide turning radii, and
broad streets create a comfort zone for drivers, which encourages
speeding and discourages pedestrians. Car volume and speeds
often increase because of the lack of pedestrians, which increases
perceptions of unsafe walking conditions and leads to further
declines in pedestrian use. Traffic-calming techniques can help
balance pedestrian and vehicular use by slowing neighborhood
and main street speeds, thereby encouraging walking. Traffic-
calming techniques can be used both to retrofit existing streets
and to design new streets.
Traffic-calming measures generally include changes in street
design, such as incorporating traffic circles to replace traffic lights
or stop signs, shorter turning radii, speed humps, narrower
streets, or curves in roadways to create shorter visual horizons.
Other measures directly address the pedestrian, such as raised
crosswalks, landscaped islands between opposing lanes of traffic,
and fewer road lanes (or the conversion of some lanes to other
uses, such as bike lanes). These structural changes are often
regarded as more effective at reducing speeds on streets than tick-
eting and enforcement and help return the street to all users—
bikers, walkers, drivers, and buses.
7-
Beautify and maintain existing and future walkways.
Making communities walkable not only means providing residents
with pedestrian and pedestrian-friendly infrastructure—such as
crosswalks, bike lanes, sidewalks—but also maintaining that infra-
structure. Sidewalks, streets, and street drains that are not main-
tained act as a disincentive for potential pedestrians and may pose
a threat to safety for bicyclists and people who use other nonmo-
torized means of transport.
PRACTICE TIP:
In a partnership between the city transportation department, the Los
Angeles Transportation Authority, the California Department of
Transportation, and the U.S. Economic Development Administration, the
city of Calabasas, California, was able to mitigate the effect of traffic
spillover from nearby Ventura Freeway and enhance the walkability of the
downtown. Through the use of extensive tree planting and preservation of
existing trees; the incorporation of boardwalks, bollards, and lighting into
roadway design; and the additions of bicycle lanes and bus turnout bays, the
city has created a pedestrian-friendly destination.The design improvements
and beautification of downtown have increased tourism and economic activity.
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CREATE WALKABLE COMMUNITIES
Attractive and well-maintained walkways encourage more people
to walk to their destinations. Communities that incorporate or
create landscaping (such as trees or shrubs) along right-of-ways,
in town centers, along open spaces, and around other focus areas
encourage walking by providing a more enticing environment.
For example, Birmingham, Michigan, witnessed a 10-15 mph
speed reduction on roads where street trees are present. Public
art, seating, and frequently-maintained trash receptacles in heavi-
ly trafficked areas such as town centers, civic plazas and parks, and
along transportation corridors, also contribute to the overall
pedestrian experience.
Sidewalks require maintenance to ensure that they provide a hos-
pitable pedestrian environment and to extend their useful life.
While streets are routinely swept, patched, reconditioned, and
serviced, sidewalks in the same neighborhoods are often ignored.
Sidewalks require speedy snow removal and occasional resetting
of slabs. Periodic, ongoing repairs and maintenance are necessary.
Healthy neighborhoods have adequate measures to identify and
correct maintenance problems. Bushes, trees, and other vegeta-
tion need to be regularly trimmed. By developing and enforcing
sidewalk-shoveling ordinances and building codes to set standards
for yard maintenance, debris clearance, and bush and tree trim-
ming, local officials can help ensure that property owners are
doing their part to augment the public investment in safe and
well-maintained sidewalks.
8.
Provide Americans with disabilities easy access to sidewalks,
streets, parks, and other public and private services.2
Complying with the Americans with Disabilities Act (ADA) is not
only a matter of law; it is the best way to meet the needs of all
people. However, engineers are often stymied by the numerous
challenges posed by retrofitting current streets to meet the needs
of people with disabilities, and unfortunately, there are no easy
technological fixes. Because of the difficulties and cost associated
with retrofits, pedestrian access and ADA requirements ideally
should be addressed in all new developments, infill projects, and
street and sidewalk construction. Street crossings, for example,
should be developed to help people navigate to a crossing point,
easily identify the entry and exit of the crossing, and avoid barri-
ers along the way. Implementing many of the policies discussed
throughout this section will dramatically increase access, for peo-
ple with and without disabilities, and increase the pedestrian-
friendly nature of new and existing communities. By improving
access, communities can often better meet the requirements of
the ADA—often without incurring any additional expense.
Connect walkways, parking lots, greenways, and developments.
Communities need many links to facilitate pedestrian travel. Even
when residential and commercial areas are in close proximity to
one another, without adequate connections, community residents
are discouraged from substituting short vehicle trips with walk-
ing. Unfortunately, conventional land use and design has often
resulted in a street network with minimal or no through streets
and walkways. In contrast, traditional street networks typically
have shorter blocks and numerous through streets, providing
pedestrians with multiple routes by which to reach their destina-
tion. Retrofitting conventional street networks so that they have
the connectivity exhibited by traditional street networks is chal-
lenging but possible by using natural features—such as utility cor-
ridors, waterways and other open spaces—to link existing walk-
ways and destinations.
PRACTICE TIP:
The city of Richmond, Virginia,
was awarded $80,000 in federal
transportation funds to cover 80
percent of the costs of construct-
ing an accessible sidewalk for
wheelchair users. The sidewalk
linked a home for adults with
severe physical disabilities to
Maymont Park in Richmond.
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GETTING TO SMART GROWTH
An old dairy redeveloped into a
mixed use (retail and housing)
structure initiated the revitalization
of an vibrant, walkable corridor in
Portland, Oregon.
IO.
Identify economic opportunities that stimulate pedestrian
activity.
Design standards, traffic-calming measures, and the other policies
discussed all work to create an environment that is pedestrian
friendly. In addition to these direct mechanisms of creating walk-
able communities, local governments can also identify economic
or retail opportunities that stimulate and attract pedestrian activi-
ty. Main Street redevelopment programs, first floor retail, side-
walk service (see Principle 5, Policy 5), and pedestrian malls all
capitalize on pedestrian activity for economic development pur-
poses. Communities can enhance walkability by identifying
important local assets—for example, natural features, historic dis-
tricts, or unique architectural design—and by developing eco-
nomic development strategies that use those assets to attract
pedestrians to retail and restaurant venues. For example, many
communities have Main Street programs that are designed to
revitalize urban cores or downtown corridors. Some small towns
in upstate New York, however, are revitalizing their historic Main
Streets with the specific goal of attracting tourists from larger
downstate cities, by getting them out of their cars and onto the
sidewalks where they can browse the antique, craft, and other
shops native to these small towns.
Other communities—including Boulder, Colorado, Burlington,
Vermont, and Charlottesville, Virginia—have capitalized on their
appeal to tourists by creating shopping districts catered to pedes-
trians. These districts—sometimes identified as pedestrian malls
or commons—create a relationship between the pedestrian shop-
per and the storekeeper that is mutually reinforcing. With the
growth in customers who are able to gain access to shops on foot,
the stores flourish and are in turn able to attract more pedestrians
as the retail district grows stronger. Communities can use eco-
nomic revitalization as a magnet for pedestrian activity in any
number of ways. The city of Ann Arbor, Michigan, for example,
created a retail pedestrian atmosphere by permitting two-way
traffic on its downtown Main Street. Parking is limited, however,
and sidewalks are extra wide for outdoor cafes. Furthermore, the
city closes the street several days each summer for art fairs and
other special events. The result is a bustling atmosphere all day
and evening, which demonstrates that increasing pedestrian access
can do more than provide a transportation option or improve the
quality of a neighborhood—it can also generate an economic
boon.
Dan Burden, "Building Communities with Transportation," (paper pre-
sented at the Transportation Research Board Conference, Washington,
D.C., 10 January 2 001).
Summarized from Burden.
Other Resources
• Walkable Communities, a national nonprofit organization dedicated to
helping communities become more pedestrian friendly—
www.walkable.org.
• America Walks—a national nonprofit coalition of local advocacy groups
dedicated to promoting walkable communities—http://americawalks.org/.
• Reid Ewing, Pedestrian- and Transit-Friendly Design: A Primer for Smart
Growth (Washington, D.C.: Smart Growth Network, 1999).
-------
Chapter Five
Foster Distinctive, Attractive
Communities with a Strong
Sense of Place
Conventional development patterns have
helped to create a predominance of strip
shopping centers and large suburban tract
home developments that are, with the excep-
tion of small cosmetic variations, largely indis-
tinguishable from one another. While such an
approach may conserve costs initially and make
development more profitable for some, it does
little to stimulate civic pride or contribute to a
strong sense of place with which community
residents can identify.
Smart growth supports the idea that develop-
ment should not only respond to basic com-
mercial or housing needs, for example, but
should also help create communities that are
distinctive and unique. Smart growth seeks to
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
PRACTICE TIP:
In the state of Maryland, where
Governor Parris Glendening has
made smart growth a key focus of
his administration, existing
schools now receive funding pri-
ority over new schools. Long-neg-
lected, older public schools in
existing neighborhoods now
receive 80 percent of new state
school construction funds, up
from 38 percent a decade ago. In
2000, the school construction
investment exceeded $300 mil-
lion, with over 80 percent of the
funding being used to renovate
and modernize existing schools in
established communities.1
foster the types of physical environments that create a sense of
civic pride, and therefore support a more cohesive community
fabric. As a result, economic benefits accrue as well; high-quality
communities with architectural and natural elements that reflect
the interests of all residents are more likely to retain their eco-
nomic vitality and value over time.
A great deal can be learned from some of America's most distinc-
tive and interesting neighborhoods, such as San Francisco's
Japantown, the French Quarter in New Orleans, or New
England's small towns. Communities that have a strong sense of
place represent the values of their residents and reflect the unique
historical, cultural, economic, and geographical context of the
area. They use natural and man-made boundaries and landmarks
to create a sense of defined neighborhoods, urban communities,
and regions. These communities encourage the construction and
preservation of buildings, which prove to be assets over time, not
only because of the services provided, but also because of the
unique contribution they make to the look and feel of a commu-
nity. Beyond the construction of buildings, these communities
reflect their unique characteristics in myriad details—such as
landscaping, signs, and awnings—that help to further distinguish
the area for passers-by and visitors. Guided by their own vision of
how and where to grow, communities that have adopted smart
growth principles can direct investment and development into
areas that already reflect a strong sense of place. Moreover, these
communities can encourage new fringe development to make a
better effort to create distinctive, unique civic assets.
I.
Modify state funding processes and school siting standards to
preserve neighborhood schools and build new schools to a
"community level."
Neighborhood schools are those that serve the educational needs
of nearby residents and that contribute to the social and physical
environment of the community. Moreover, they function as com-
munity gathering places for adult education programs, evening
civic events, or weekend sports competitions. They may serve as
landmarks in a community or as examples of monumental archi-
tecture or historical significance within a region. Schools built at a
community level are constructed to complement existing neigh-
borhoods and provide improved walking or bicycle access to the
school by students and community members. Most importantly,
these schools serve as critical civic anchors in a community, often
acting as the center of districts or neighborhoods with which resi-
dents can identify.
However, siting standards and funding criteria common in many
states present significant obstacles to communities wishing to sup-
port neighborhood schools. Current standards typical in most
states require vast tracts of land for new construction—equivalent
to 14 acres for an elementary school with 400 students, or 50
acres for a high school with 2,000 students. Because of these stan-
dards, communities are often left with little choice but to build
these large schools on available land on the urban fringe. These
schools are then forced to accommodate the great number of
vehicles which students require to get there. State standards may
also require new construction if renovation costs to existing
schools exceed a threshold amount (e.g., two-thirds of the cost of
new construction).
-------
FOSTER DISTINCTIVE, ATTRACTIVE COMMUNITIES WITH A STRONG SENSE OF PLACE
Providing for schools in a manner that fosters their incorporation
into the surrounding neighborhood is an important aspect of
smart growth. Through modified siting and funding criteria,
states can better support localities that want to maintain existing
schools and ensure the responsible placement of new schools.
Other strategies, such as the use of shared-risk insurance plans,
can help overcome the liability obstacles that often prevent
schools from more fully serving as community gathering points
for other activities and events after hours.
2.
Create a state tax credit to encourage adaptive reuse of his-
toric or architecturally significant buildings.
Well-maintained historic, culturally, or architecturally significant
buildings are often regarded as some of the most valued civic
treasures in a community. These buildings remind residents and
visitors of an area's unique history and provide a visible link to it.
While historic buildings often do not retain their original use,
their adaptive renovation and reuse can create unique, interesting,
innovative spaces for modern services. When clustered in close
geographic proximity, these buildings can create the basis for a
specially designated zone or district that may attract tourism and
other appropriate economic development activities. Finally, the
very existence of historic or architecturally significant buildings
may provide the basic building blocks for recreating the pedestri-
an-oriented development typical of the pre-World War IE era.
The community value associated with historic properties, howev-
er, is not always fully represented in the building's market value.
As a result, building owners may not find it cost-effective to
maintain or renovate these buildings in a way that preserves their
unique features, while allowing for modern uses. State tax credits,
modeled after the federal program (see practice tip) constitute
one possible action for states to support historic preservation.2
Through state tax credits, incentives can be created for localities
and developers to engage in public-private partnerships, when
appropriate, to convert these buildings to new uses. Tax credits
would allow owners, for example, to claim up to 20 percent of the
cost of renovation on state income taxes, thereby effectively
reducing the cost of renovation. With creative thinking, effective
partnerships can turn historic theaters into arts centers or retail
spaces, and can renovate small factories as loft apartments or
business incubators. In so doing, not only are valuable and dis-
tinctive community treasures preserved, but new opportunities
for development in neighborhoods already served by infrastruc-
ture are also created.
3-
Plant trees throughout communities and preserve existing
trees during new construction.
Trees play important environmental, aesthetic, and economic
roles in creating distinctive and healthy places to live. Trees along
PRACTICE TIP:
A 2001 report released by the
National Park Service cited a 25-
year old federal program
designed to preserve historic
properties as "one of the most
successful revitalization pro-
grams ever created." The Tax
Reform Act of 1976 created the
first federal tax incentives for the
preservation of historic buildings,
renovating 3,000 historic build-
ings that represented more than
$4.5 billion worth of investments
in the last five years alone. The
Federal Historic Rehabilitation
Tax Credit is a dollar for dollar
reduction of federal income tax
liability, which permits anyone
who rehabilitates a historic build-
ing to claim a tax credit of 20
percent of the cost of the renova-
tion. For more information :
press release on www.nthp.c
renova-
i see the
>.org.
New and mature trees combine to
give this new development in
Huntersville, North Carolina,
a distinct character, and preserve
opportunities for recreation and
natural habitat.
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GETTING TO SMART GROWTH
PRACTICE TIP:
American Forests, an organiza-
tion dedicated to forestry issues,
has determined that in three
study areas—Atlanta, Puget
Sound, and the Chesapeake Bay
region —development over the
last 25 years has helped to
reduce the heavy tree canopy by
more than one-third. In each of
these areas, the tree canopy cover
falls short of American Forests'
recommended 40 percent average
cover for the metropolitan area.
For more information, go to
www.americanforests.org. Scenic
America, a nonprofit technical
and advocacy organization, has a
number of resources to aid com-
munities in increasing their tree
canopy, including a model tree
ordinance. For more information,
go to www.scenic.org.
medians, sidewalks, and embankments serve to filter noise and
pollution from nearby vehicular traffic, as well as mitigate erosion
that causes damage to and raises maintenance costs of adjacent
roadways. Along commercial and residential zones, trees provide
a canopy of shade and shelter from the elements, and soften and
frame the streetscape for the passerby. Large trees along a retail
strip make the strip more inviting, which generates more busi-
ness, thereby serving as an economic stimulus for the community.
By cooling homes and communities, trees reduce energy costs
and create a more comfortable climate for outdoor activities. By
slowing stormwater runoff and helping to protect wetlands, trees
can reduce the costs associated with water treatment for local
jurisdictions. They help the environment by cooling temperatures
and by consuming excess carbon dioxide (primarily the result of
pollution), thus reducing the amount of carbon dioxide that con-
tributes to global warming. In short, trees add to the beauty, dis-
tinctiveness, and material value of neighborhoods by incorporat-
ing the natural environment into the built environment.
Through collaborative efforts, neighborhoods and the public and
private sectors can be engaged to preserve and add to the tree
stock in a community. In existing communities, tree planting pro-
grams undertaken by schools and civic associations can increase
the presence of trees on residential streets and commercial thor-
oughfares. Other incentives, such as a community grant fund for
tree planting or reduced zoning requirements, can encourage
property owners to preserve existing trees or plant new ones.
Localities can put into place ordinances or incentives that encour-
age landowners to preserve a portion of in-situ trees or replace
trees that could not be preserved. When enacted in concert with a
community's own plan for increasing the supply of trees and tree
canopy cover, these actions can provide an additional way to cre-
ate distinctive, healthy communities.
4-
Create active and secure open spaces.
Open spaces, whether built or natural, active or passive, help cre-
ate distinctive communities. Pocket parks, playgrounds, plazas,
squares, social gathering places, and other publicly accessible
open spaces contribute to the aesthetic quality of the surrounding
area and to the feeling of "community" that fosters a strong sense
of place. Open spaces may also provide environmental benefits as
hosts to trees and penetrable ground surfaces that filter air and
water, respectively, and mitigate stormwater runoff. These spaces
must be managed and designed in a way that ensures the safety of
their users so that the public spaces remain viable and desirable
over time.
Many opportunities exist to foster open space in a community (see
Principle 6 for a full discussion of these issues). For example, open
spaces can be created through incentives to developers, through
direct construction by local governments, or through other pub-
lic-private partnerships. In new developments, open spaces should
be incorporated into the design process and placed in a manner
that ensures maximum access and use by area residents. In existing
neighborhoods, street ends, abandoned lots, brownfields, or dete-
riorated houses may provide opportunities for small, scattered
parks or community gardens. In bustling commercial centers,
plazas, parks, and public squares can serve as prominent visual
cues for business districts, provide amenities for employees and
shoppers, and add value to nearby buildings. Finally, each of these
settings can serve as a venue for engaging the public in festivals,
community gardening activities, sports events, or other civic
activities that help to galvanize the sense of community among
members, and that create places in which people have a vested
interest to preserve and protect.
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FOSTER DISTINCTIVE, ATTRACTIVE COMMUNITIES WITH A STRONG SENSE OF PLACE
5-
Simplify and expedite permitting regulations to allow vendors
to offer sidewalk service.
Facilitating sidewalk service (e.g., walk-up window purchases,
retail displays, dining, and kiosks) is perhaps the easiest way to
provide support for expanded business along pedestrian-oriented
commercial thoroughfares. By allowing vendors to sell their
goods and wares at walk-up windows or at kiosks placed along the
sidewalk, local governments make it easier for entrepreneurs to
connect with their customers, and sidewalk service creates a mag-
net for strolling shoppers who seek an alternative to the local
enclosed mall. The increased foot traffic that results will spur
more business investment and create a vital neighborhood shop-
ping area from which the entire community can benefit.
In many cases, permits for sidewalk service are either difficult to
obtain from local governments, or the permits require a compli-
cated approval process. Local governments, in cooperation with
local business leaders, can target neighborhood shopping districts,
identify the type of retail activity that would complement existing
businesses, and then simplify and expedite the permitting process
accordingly. Communities that
Sidewalk dining helps make ar£ s£eki nd sidewalk
Bethesda Row in Bethesda, &
Maryland, a vibrant neighborhood service should also ensure that
center day and night.
the designated sidewalks are wide enough to accommodate a
higher level of activity.
By coordinating efforts among zoning, licensing, and public
works officials, potential vendors benefit from an expedited
approval process, and the jurisdiction benefits from growth in
sales tax receipts and permitting fees associated with new business
start-ups. Most importantly, communities benefit from a vibrant,
strong, pedestrian-oriented shopping district that can provide a
focal point for activity and neighborhood identity.
6.
Create special improvement districts for focused investment.
The designation of special districts is a convenient means to
organize and focus investment in a particular area to achieve a
range of outcomes, such as historic
preservation, business improve-
ment, or economic revitalization. It
provides an opportunity for local or
other special purpose governments
to establish clear boundaries and
names for geographic areas with
which residents and businesses can
better identify. By strengthening
the sense of community in these
areas, citizens can become more
involved in development decisions
about their own district and the
region of which it is a part.
Creating fixed boundaries around
neighborhoods in which tax incen-
tives, regulatory flexibility, or other
PRACTICE TIP:
Main Streets are found in nearly every American community and rep-
resent one of the most common approaches to the use of special
improvement districts. With an emphasis on historic preservation and
economic development, the Main Street program supports commercial
district revitalization as a means to benefit all members of the sur-
rounding community. Nationally, Main Street communities have had
more than $12.8 billion of new public and private investment in their
downtowns. In North Carolina alone, the state Main Street program
has seen more than $540 million of new investment and has experi-
enced a net gain of 8,400 jobs in downtown areas since the program
began in 1980. The Main Street Center at the National Trust for
Historic Preservation provides tools and technical assistance to com-
munities to establish and revitalize these vital commercial district cen-
ters. Learn more at www.mainstreet.org.
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GETTING TO SMART GROWTH
Unique lightposts, signs, and side-
walk treatments help identify this
Brea, California, retail corridor.
financial benefits are made available can help channel targeted
investment to support strong, vibrant communities. In central
business districts, for example, business improvement districts
coordinate shared responsibility among businesses and building
owners to support entertainment, services, or other amenities that
can attract customers and improve the business climate. Historic
districts are used to help protect tracts of historic buildings
through the provision of tax incentives or grants for restoration
and preservation. Support to designated art corridors may help
attract a critical mass of artists, art suppliers, and vendors, which
would constitute a destination in itself for art lovers.
Neighborhood centers often benefit from a clear determination
of the service area around the center in order to better identify
potential customers and recruit businesses and service providers
accordingly. In these and other cases, creating smaller-scale zones
within a larger urban or suburban context can help residents, visi-
tors, and businesses better identify communities by their stronger
sense of place.
7-
Define communities and neighborhoods with visual cues.
Just as the ancient city wall once indicated to people the begin-
ning of a town, visual cues are an important means to help visitors
and residents distinguish areas from one another. Often subtle,
sometimes blatant, these cues act as either focal points or way-
finding aids to attract and direct pedestrian and automobile flow
to commercial or entertainment activities. In so doing, cues create
virtual borders around districts for special uses, give shape and
definition to neighborhoods, and contribute to the unique look
and feel of a given community. Communities that are well defined
and easy to navigate not only attract new activity and investment,
but they help create neighborhoods and amenities that are worth
preserving.
Cues can be explicit, such as signs directing visitors to important
locations or monumental-type architecture, which contributes to
the vista at street ends or along blocks. The decorative gate in
Chinatown, San Francisco, is a clear example of this sort of physi-
cal introduction to a unique and distinct community. Visual cues
can be more subtle, as well, and include elements such as unique
lightposts, novel street signs, variegated materials for streets or
sidewalks, distinct landscaping styles, or complimentary awnings
or overhangs above businesses. Open space and natural features,
such as greenbelts, creeks, or other prominent natural features,
can also be used to introduce or signal the transition from one
zone to another.
As with other policies to achieve distinctive communities, visual
cues can be incorporated into new and existing communities
through the combined efforts of the public and private sectors.
The preferences articulated by communities for aesthetic details
are codified and enforced in building codes and design standards,
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FOSTER DISTINCTIVE, ATTRACTIVE COMMUNITIES WITH A STRONG SENSE OF PLACE
and preferences for the placement and orientation of open space
and monumental buildings are represented in master plans.
Innovative public-private partnerships, which call on the
strengths of each sector to enhance the physical environment for
all, will implement these community preferences.
8.
Preserve scenic vistas through the appropriate location of
telecommunication towers, and through improved control of
billboards.
Extending high above rooftops and trees, telecommunication
towers and billboards often dramatically affect the appearance of
communities. They may clutter the view of an otherwise scenic
roadway or streetscape or obscure the natural or physical features
of a community altogether. Many creative alternatives exist for
the placement of wireless towers, for example, such placing them
on rooftops, where they can be concealed by high-reaching build-
ing details. However, communities that are pressured into creat-
ing full and fast access for telecommunications infrastructure may
not fully consider these options. Communities can regulate the
placement and use of towers by working with private industry to
generate ideas on how to locate towers and monopoles unobtru-
sively. Joint public-private efforts may include agreements to keep
tower height equal to the nearby tree canopy, to locate towers on
downslopes rather than summits to reduce visual impact, to limit
towers along ridgelines, or to incorporate them into existing fea-
tures such as water tanks, electric-transmission towers, or church
spires. Documenting these guidelines in ordinances that clearly
spell out the community's requirements for tower location,
appearance, and design can improve the process of expanding
telecommunication networks for all involved.
Billboards, too, present an opportunity for improved manage-
ment. Communities seeking to preserve their scenic vistas can
begin by instituting a moratorium on all new billboards and then
encouraging the gradual phase-out of existing billboards upon
expiration of leases. Incentives may be created in the form of tax
abatements or scenic easements to reward landowners who
require removal of billboards from their property upon lease expi-
ration, and who keep their property free of billboards.
Communities that have been successful in limiting or eradicating
billboards in favor of logo signs and tourist-oriented directional
signs have created a higher quality of life for their residents and
have continued to grow their economies based on their enhanced
visual appeal to visitors.
Create opportunities for community interaction.
Communities are defined by more than the physical and natural
elements that comprise them. The most well-designed street in
the world will fail to evoke a sense of community if there are no
opportunities for interaction or vibrant exchange among neigh-
bors. Public places of all sorts can provide the venue for these
sorts of interactions: sidewalks become hosts to outside shopping
or art displays, closed-off streets become havens for block parties
or markets, and parks and plazas become open-air theaters for
music or performances. Offered on a regular basis, festivals that
celebrate local produce, historical events, or cultural traditions
can become a vibrant and ongoing reminder of the unique nature
of a given community, and can create opportunities for distinctive
traditions from which all residents and visitors can derive enjoy-
ment.
PRACTICE TIP:
The organization Scenic America
has created a range of tools that
communities can use to protect
scenic vistas, including model
ordinances that have been pro-
moted by states and are currently
being used successfully to address
unsightly placement of towers
and billboards. These and other
resources are available through
the organization's Web site,
www.scenic.org.
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GETTING TO SMART GROWTH
PRACTICE TIP:
The city of Santa Fe, New
Mexico, has adopted design guide-
lines that ensure that new con-
struction complements the tradi-
tional architectural style of the
area, such as the use of light
earth tone colors and traditional
stucco finish materials. Its
Architectural Design Review
Handbook parallels the city's zon-
ing code and building permit
process and provides a checklist
for builders so that they can avoid
delays in the approval process.
Broad constituencies benefit from such events and can be tapped
to support farmers' markets, art and music festivals, or even block
parties. Business owners benefit from the increased flow of people
attracted by these events. Schools may support such activities
because of the learning opportunities they present to students and
as a means to share with the broader community the skills and tal-
ents of their children. Local farmers, artisans, and musicians are
likely to play a critical role in supporting such events, because
these events provide outlets for performances and sales that
would otherwise be unavailable to them. In many communities,
nonprofit organizations are formed with the support of local gov-
ernment and civic leaders to manage and promote these events.
Chambers of commerce, economic development agencies, civic
associations, and other local organizations can play an important
role in bringing together the diverse parties that are necessary to
make these events vital parts of the community landscape.
IO.
Enact clear design guidelines so that streets, buildings, and
public spaces work together to create a sense of place.
Beyond basic requirements for safety and accessibility, buildings
are often subject to little regulation of how they look, how they
are constructed, or how they relate to the street. In the absence of
such requirements, few developers find it in their financial best
interest to invest in architectural detail or decorative features,
which would enhance the look of buildings and would contribute
to a more distinctive and appealing community. The same could
be said of public officials who, in the construction of civic build-
ings, sidewalks, streets, and public parks, are motivated primarily
by the desire to deliver the
Strict design criteria help create
necessary product at the low- Civano's unique look in Phoenix,
est possible cost and in the Arizona - one that evokes traditional
' Southwest architecture.
shortest possible time. Yet, it is precisely the cumulative effect of
these numerous individual development and design decisions that
create the look and feel of our built environments.
Communities that include well-designed buildings, attractive sig-
nage, well-maintained facades, and a positive orientation of build-
ings to the street are often the most distinctive. Other opportuni-
ties for improved design guidelines pertain to the placement of
bus shelters and benches, the design of sidewalks and bike paths,
the introduction of landscaping and street trees, and the incorpo-
ration of community parks and public gathering spaces. With
improved attentiveness to these aspects, communities are more
valued for their uniqueness, better able to attract new businesses
and residents, and therefore less likely to suffer disinvestment and
neglect. This ongoing vitality of neighborhoods is both an out-
growth of and a contributor to smart growth.
As the community establishes its own definition of a desirable
look, an opportunity arises to create a unique, memorable
streetscape to attract future development. These preferences can
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FOSTER DISTINCTIVE, ATTRACTIVE COMMUNITIES WITH A STRONG SENSE OF PLACE
form the basis for the creation of clear design guidelines that reg-
ulate building setback, street and sidewalk design, architectural
styles, signage practices, and building materials. The guidelines
can be prescriptive and detailed, regulating everything down to
the size and color of signs, or they can set broad parameters for
design to allow for maximum diversity among users. In either
case, when they are applied in a clear and consistent fashion, these
design considerations add value to the community and provide
guidance for developers who, in turn, can create higher quality
projects by being attentive to their end design from the early
stages.
State of Maryland, Office of Smart Growth.
Other state activities to support renovation include: (1) the establishment
of a state-level "Main Street" office to support local affiliates, (2) priority
allocation of transportation or infrastructure funding for communities
committed to preserving historic structures, (3) grants to local nonprofit
organizations to carry out rehabilitation and restoration activities, and (4)
efforts to inform local government officials on the economic and cultural
value of preserving historic structures.
-------
-------
Chapter Six
Preserve Open Space,
Farmland, Natural Beauty and
Critical Environmental Areas
Communities across the United States are
realizing that open space preservation is
an important component to achieving better
places to live. Open space supports smart
growth goals by bolstering local economies,
preserving critical environmental areas, provid-
ing recreational opportunities, and guiding new
growth into existing communities. Preservation
of open space can have a profound impact on a
community's quality of life, and therefore a
region's economic prosperity. An economic
analysis performed for the East Bay Regional
Park District in California concluded that "the
provision of open space and associated recre-
ational and educational opportunities, environ-
mental and cultural preservation, alternative
transit modes, and sprawl-limiting characteris-
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
Working lands and recreation
resources are preserved by directing
development to existing communities.
tics, all contribute positively to the quality of life in the East Bay
region."1 A 1997 study reported that owners of small companies
ranked recreation, parks, and open space as the highest priorities
in choosing a new location for their business.2
Networks of preserved open space and waterways can shape and
direct urban form and at the same time prevent haphazard conser-
vation (conservation that is reactive and small scale). These net-
works, known as "green infrastructure," help frame new growth
by locating new development in the most cost-efficient places.
The most cost-efficient locations for new development are where
roads, sewers, water lines, and other utilities cur-
rently exist. Green infrastructure also ensures
that the preserved areas are connected so as to
create wildlife corridors, preserve water quality,
and maintain economically viable working lands.
There are significant fiscal, environmental quali-
ty, and health benefits associated with the protec-
tion of open space. Open space can increase local
property values (thereby increasing property tax
bases),3 provide tourism dollars, and reduce the
need for local tax increases by reducing the need
for construction of new infrastructure.4 In addi-
tion, management of the quality and supply of
open space ensures that prime farm and ranch
lands are available, prevents flood damage, and
provides a natural and less expensive alternative
for providing clean drinking water.5 Preservation
of open spaces helps to protect animal and plant
habitats, places of natural beauty, and working
lands by removing the development pressure and
redirecting new growth to existing communities.
Preservation benefits the environment by combating air pollution,
attenuating noise, controlling wind, providing erosion control,
and moderating temperatures. Finally, open space also protects
surface and ground water resources by filtering trash, debris, and
chemical pollutants before they enter the community's water sys-
tem.
Political will is increasing to save the places that Americans treas-
ure. Voters in 2000 continued the trend over the past five years by
overwhelmingly approving ballot measures to fund open space
protection—passing 201 of 257 open space measures on the ballot,
an approval rate of nearly 80 percent. In most of these referenda,
voters approved tax increases, which provided more than $7.4 bil-
lion for land conservation.6
There is a sense of urgency to saving critical environmental areas.
Once a greenfield has been developed it is hard, if not impossible,
to return the land to its original state. Land preservation is also
becoming more expensive as growth pressures become stronger.
Therefore, communities must work with other communities in
their region and political leaders to expend the resources and
develop the innovative techniques to make open space preserva-
tion a reality. A range of policies and approaches that can help
communities in their efforts are presented in this chapter.
I.
Use transfer of development rights purchase of development
rights, and other market mechanisms to conserve private
lands.
It may not be realistic or desirable for the public sector to buy
outright all of the open space they wish to protect, so innovative
ways to protect targeted areas must be considered. An increasingly
popular tool for land preservation has been the use of market-
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PRESERVE OPEN SPACE, FARMLAND, NATURAL BEAUTY, AND CRITICAL ENVIRONMENTAL AREAS
based mechanisms such as donated conservation easements, trans-
fer of development rights (TDRs), and purchase of development
rights (PDRs). These tools all can permanently protect land from
development pressure by channeling financial incentives to the
property owner.
A PDR—in essence, a purchased conservation easement—offers a
permanent solution for communities looking to preserve open
space if they are unable to purchase the land outright. Under a
PDR, landowners sell the rights to develop their land to a land
trust or government agency while retaining the title to the prop-
erty and the rest of their bundle of rights. As a result, a legal
restriction is tied to the deed for the property that prevents all
future development on the targeted land. Landowners benefit by
not only receiving payment for the PDR, but they are often also
eligible for some combination of property tax, estate tax, or
income tax benefits. PDRs have been especially successful in pro-
tecting working lands. For example, PDRs have been used to
keep almost a million acres of farm and ranch land nationwide in
productive private ownership.7
In a TDR program, a community identifies areas for protection
and areas for increased density. Landowners who own property in
areas designated for preservation are given development credits
that can be sold. These credits can be purchased by developers to
build in areas designated for increased density. TDRs are an
evolving tool, but they have been successful in a handful of loca-
tions. One-third of the 90,000-acre agricultural reserve in
Montgomery County, Maryland, is protected through the use of a
TDR program.8 Approximately 13,000 acres of the New Jersey
Pinelands have been protected since the Pinelands Commission
sanctioned the use of TDRs in 1980.9
The use of these innovative tools remains illegal, however, in
many localities in the United States. Therefore, if these tools are
to be effective, it is imperative that states provide the enabling
legislation that is necessary to allow communities to preserve
valuable open space.
2.
Coordinate and link local, state, and federal planning on land
conservation and development.
Many resources exist at the local, state, and federal levels to pre-
serve and protect open space. Often the linkages between the var-
ious programs that would allow them to have a more significant
impact are absent. States can play an active role in building
stronger support for open-space conservation by collaborating
with relevant partners to protect open spaces.
The state of Utah's Critical Land Conservation Committee was
established as a catalyst for locally initiated conservation efforts.
The committee plans to assist localities and organizations by pro-
viding technical expertise, conducting a statewide open-space
inventory, developing a land-use and conservation clearinghouse,
and facilitating the multi-agency and cross-jurisdictional partner-
ships that many open-space conservation efforts require. This
effort included and educated all stakeholders: government, private
industry and organizations, academia, and individuals.10
3-
Expand use of innovative financing tools to facilitate open-
space acquisition and preservation.
The challenge of paying for a resource that is unlikely to generate
immediate fiscal benefits, yet necessitates expensive outlays of
capital to secure, requires innovative approaches to financing.
Creating opportunities for open spaces
in high-density downtown contexts -
like this one in Newark, New Jersey -
are critical.
PRACTICE TIP:
For an example of enabling legis-
lation for the New York State
TDR program visit http://
assembly.state.ny.us/
leg/?cl=118&a=33.
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GETTING TO SMART GROWTH
There are many such tools that can be used to finance open-space
acquisition and preservation. These tools include levying a por-
tion of the local sales tax or real estate transfer tax, instituting
impact fees, using borrowing power (e.g., bonds), providing
income tax credits, charging user fees, and collecting fees from
special motor vehicle taxes or license plates.
PRACTICE TIP:
For more information on innovative approaches to financing open space
acquisition, visit the Trust for Public Land at www.tpl.org/tier3_cdl.cfm?
content_item_id=1175&folder_id=708.
Maryland's "Program Open
Space", for example, provides
100 percent funding for acqui-
sition of parkland, greenways,
and places of special cultural
value and 75 percent of devel-
opment costs for local and
state parks and recreation areas funded through the state real
estate transfer tax. More than 2,800 local projects have been fund-
ed so far by the program, which places one-half percent of the
purchase price of a home or land into a special fund. Once the
program purchases a land, the land's use cannot be altered unless
a suitable alternative is provided.11 In 1967, Boulder, Colorado,
became the first city in the United States to pass a sales tax (0.4
percent) to buy, preserve, and maintain greenbelt land. In 1989,
an additional 0.33 percent was added. Using this and other fund-
ing, more than $100 million has been spent on the city's Open
Space Program.12
4-
Employ regional development strategies that better protect
and preserve open space in edge areas.
One of the most fundamental approaches to preserving open
space is to reduce the regional development pressures on existing
open areas at the fringe of communities. By providing financial or
regulatory incentives to focus development in areas where ade-
quate infrastructure for growth (water, sewer, roads, and the like)
already exists, land at the urban fringe will be under less pressure
for development. Regional development strategies can help coor-
dinate the efforts of localities and identify opportunities for infill
or brownfields development, thereby protecting land at the urban
fringe to benefit all.
The state of Wisconsin supports regional planning to ease devel-
opment pressures on fringe areas by providing state funding pri-
ority to local governments that address the needs of adjacent com-
munities in their development plans, instead of just pursuing
parochial interests.13 In 1998, the state of Maryland issued legisla-
tion for priority funding areas that directs state funds to munici-
palities and other existing communities, industrial areas, and
planned growth areas.14 This legislation allows the state and local
governments to target where economic development and new
growth will occur.
Adopt a green infrastructure plan.
A formal green infrastructure plan provides a framework for
future growth by prioritizing what open space should be protect-
ed and what open space should be available to development.
Conventional practice now largely designates whatever open
spaces are remaining for preservation after buildings and roads are
developed. Conversely, a green infrastructure plan would identify
and protect critical ecological sites and linkages in advance of
planning and construction of infrastructure and development of
land. In so doing, not only are valuable natural resources pre-
served, but recurring project-level decisions about conservation
can be avoided by identifying targeted sites comprehensively and
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PRESERVE OPEN SPACE, FARMLAND, NATURAL BEAUTY, AND CRITICAL ENVIRONMENTAL AREAS
early in the green infrastructure plan. According to the Green
Infrastructure Working Group, a coalition of nonprofit organiza-
tions and local, state and federal governments, green infrastruc-
ture is "the nation's natural life support system—a strategically
planned and managed network of wilderness, parks, greenways,
conservation easements, and working lands with conservation
value. This network supports native species, maintains natural
ecological processes, sustains air and water resources, and con-
tributes to the health and quality of life for America's communi-
ties and people."15
Identifying and planning for priority conservation areas prior to
development is critical because of the high cost of restoration and
the difficulty of creating man-made systems to mimic natural
processes (e.g., water filtration). When development is already
present, a green infrastructure plan can help communities to set
priorities for restoring areas and linking them to other open
spaces.
6.
Create a network of trails and greenways.
To maximize the utility of green spaces, communities must ensure
that trails and greenways form a continuous network of pathways
for biking, running, or cross-country skiing through a region.
Trails and greenways are protected corridors of open space that
allow for a multifaceted approach to land conservation and park
planning by serving both recreational and conservation functions.
Forming an interconnected network of trails and greenways not
only ensures stronger corridors for animal migration, but it can
also make these valuable resources more accessible to the region's
residents.
In Dane County, Wisconsin, for example, the open-space plan
strives to facilitate the linking of public lands and trails of various
political jurisdictions among communities and population centers
to amplify the availability and recreational use of these lands. 16
Other communities have chosen to take action at the state level.
In 1990, a Maryland executive order created a statewide natural
infrastructure by protecting and connecting important natural
corridors throughout the state. Since then, Maryland has protect-
ed over 900 miles of greenway corridors, with 200 more miles
currently being built, and has identified 1,000 miles as potential
greenways, many of which can be used for recreation. Most of the
current land is publicly owned, but numerous easements are
being placed on private properties to enhance the growing net-
work of corridors.
7-
Design and implement an information-gathering and educa-
tion program.
Gathering information on the status of land use and environmen-
tal characteristics throughout a region is a critical component for
determining which lands are more important to preserve and
which lands can be developed with minimal impacts to the envi-
ronment. Information collected should include data on issues
such as land ownership, protected areas, biodiversity needs, exist-
ing infrastructure, floodplains, shorelands, wetlands, ground
water recharge areas, and prime agricultural areas.
An inventory of a region's environmental characteristics and land
uses can help identify critical areas for open-space preservation.
For example, a comprehensive mapping project in Austin, Texas,
showed that proposed housing would negatively affect the city's
PRACTICE TIP:
Former railroad corridors provide
an ideal opportunity for many
communities to build a series of
trials and greenways. Since I960,
it is estimated that 11,000
miles of rail lines have been
used to create trails and recre-
ational networks. The Rails to
Trails Conservancy provides
technical assistance to communi-
ties interested in using their rail-
road networks for recreation.
For more information, go to
www.railstrails.org.
PRACTICE TIP:
For more information on green
infrastructure planning, see
www.greeninfrastructure.net.
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GETTING TO SMART GROWTH
PRACTICE TIP:
The use of geographic informa-
tion systems (GIS) has become a
powerful tool for preserving open
space. GIS is a computer-based
tool for mapping and analyzing
land use and environmental
trends. GIS can help localities
analyze different types of data by
allowing communities to "over-
lay" maps of new housing devel-
opments, for example, with maps
of the region's watersheds. As a
result, the data can identify gaps
in areas in need of preservation
and demonstrate the relationships
between ecosystems and human-
induced changes to the environ-
ment.
PRACTICE TIP:
For more information, visit the
American Farmland Trust's web-
site at www.farmland.org.
drinking water aquifer. The city then decided to direct its public
transportation and park investments in a less environmentally
sensitive area in East Austin.17
Chicago Wilderness, an organization that is dedicated to protect-
ing and managing the natural communities in the Chicago region,
developed an atlas of important natural resources and features in
the metropolitan Chicago area.18 This atlas was instrumental in
the development of its Biodiversity Recovery Plan, which provid-
ed a long-term vision for the preservation of the area's biological
resources.
8.
Design and implement zoning tools that preserve open space.
Communities across the United States have successfully used zon-
ing to preserve natural resources throughout a region. One com-
mon technique is cluster development zoning. This technique
allows the same overall amount of development that is already
permitted but requires that the development be placed on only a
portion of the parcel, thereby retaining the balance as open space.19
Clustering can protect resources such as environmentally sensi-
tive areas, forests, and historic sites, by allowing higher concen-
trations of development on a smaller portion of land, which leaves
large plots of land as permanent open space.
Another technique is the use of incentive zoning. The town of
Cedarburg, Wisconsin, has added language to its zoning codes
that allows builders to create a greater number of lots than nor-
mally allowed in a development in exchange for dedicating addi-
tional open space. Under the ordinance, developers are permitted
to increase the number of lots by up to 20 percent in exchange for
clustering the development and preserving the balance as unde-
veloped open space.20
Provide mechanisms for preserving working lands.
The preservation of prime farm and ranch land deserves special
attention for a variety of reasons. Most of the land that is under
the greatest development pressure is prime farmland that sur-
rounds metropolitan areas—termed "prime" because this farm-
land consists of the finest soils, requires the least amount of chem-
ical or irrigation inputs, or is in greatest proximity to markets or
transportation networks. Farmland also warrants special efforts to
protect it because it demands less in public services than develop-
ment, thereby serving as a net local tax contributor.
Agricultural districts can be used to support and protect the local
agricultural economy from the pressure of urbanization and sec-
ond-home development.21 They do this by primarily excluding
inhospitable land uses, such as suburban development, and ensur-
ing a critical mass of farmland to support needed agricultural
infrastructure (e.g., distribution channels, equipment supplies,
etc.). Agricultural districts can be made more effective by adopt-
ing a hybrid approach to farmland protection that includes market
mechanisms to preserve farmland.22 Places such as Lancaster
County, Pennsylvania, and Marin County, California, have com-
bined agricultural districts and the purchase of agricultural con-
servation easement programs (PACEs) to great success. These
approaches work by using agricultural districts to protect farm-
land in the near term, while funding is raised through a PACE
program to purchase the land easements over time.
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PRESERVE OPEN SPACE, FARMLAND, NATURAL BEAUTY, AND CRITICAL ENVIRONMENTAL AREAS
Otay Ranch in Chula Vista, California, uses a network of recreation trails to
connect its neighborhoods.
IO.
Partner with nongovernmental organizations to acquire and
protect land.
Foundations, land trusts, and other public and nonprofit entities
often have a fundamental interest in preserving space of natural,
cultural, or historic value.23 Such entities can be particularly help-
ful with building coalitions, assisting on land-use legislation, and
making policy recommendations to communities. Local govern-
ments should support these organizations through funding and
efforts to improve civic awareness about their mission.
In addition, these organizations can help with the acquisition of
open space. Land trusts operate at the local and regional level to
acquire and protect land of significant ecological, open space,
recreational, and historical value. According to the Land Trust
Alliance, there are 1,200 land trusts at work in the United States.
Land trusts can save open space in ways, and at speeds, not always
possible for governments. For example, organizations such as the
Trust for Public Land (TPL) and the Nature Conservancy can act
as intermediate brokers for land acquisition, by purchasing prop-
erty, conveying it to the local jurisdiction, and then waiting for
local funding to come through.24 For example, the city of Tucson,
Arizona, asked TPL to buy a scenic mountain tract overlooking
downtown, which was being offered for sale by a savings and loan.
City officials intended to include the costs of the property in the
next budget, but legally they could not commit the funds. The
trust purchased the property for the city and was reimbursed dur-
ing the next budget cycle.
The nonprofit status of land trusts and some other nongovern-
mental organizations also allows landowners to receive tax breaks
when they sell their property below market value.
Economic & Planning Systems, Regional Economic Analysis, Trends, Year
2000 fc Beyond, (Berkeley, Calif.: Economic & Planning Systems, 2000).
John L. Crompton, Lisa L. Love, and Thomas A. More, "An Empirical
Study of the Role of Recreation, Parks, and Open Space in Companies'
(Re)Location Decisions," Journal of Park and Recreation Administration, 15,
no. 1 (1997): 37-58.
In Salem, Oregon, land adjacent to a greenbelt was found to be worth
about $1,200 per acre more than land only 1,000 feet away. Elizabeth
Brabec, On the Value of Of en Spaces, Technical Information Series, vol. 1,
no. 2 (Washington, D.C.: Scenic America, 1992), 5.
For example, one study found that New Jersey communities would save
$1.3 billion in infrastructure costs over 20 years by avoiding unplanned
sprawl development. For details, see Center for Urban Policy Research at
the Edward J. Bloustein School of Planning and Public Policy, Rutgers,
The State University of New Jersey, The Costs and Benefits of Alternative
Growth Patterns: The Impact Assessment of the New Jersey State Plan
(Brunswick, N.J.: Rutgers, 2000).
For example, the cost to New York City of building a filtration plant, if
-------
GETTING TO SMART GROWTH
upstate watershed lands were developed and their associated waste treat-
ment ecosystem service was lost, was estimated at $6 to $8 billion. This is
significantly higher than the cost of buying and preserving the watershed
lands, estimated at $ 1.5 billion. Steve Lerner and William Poole, The
Economic Benefits of Parks and Open Space: How Land Conservation Helps
Communities Grow Smart, and Protect, the Bottom Line (Washington, D.C.:
Trust for Public Land, 1999).
6 Phyllis Myers and Robert Puentes, Growth at, the Ballot Box: Electing the
Shape of Communities in November 2000 (Washington, D.C.: Brookings
Institution, Center on Urban and Metropolitan Policy, 2001).
Edward Thompson, telephone conversation with author, 4 December
2001.
Robert Marriott, Charles Loehr, and Karl Moritz, Managing Growth with
Performance Standards in Montgomery County, Maryland, Planners Advisory
Service, no. 461 (Chicago, 111.: American Planning Association, 1996), 19-
21.
www.state.nj.us/pinelands/density.htm.
www.governor.state.ut.us/planmng/CriticalLands/wMte .htm#Introduction.
www.dnr.state.md.us/pos.html.
www.ci.boulder.co.us/openspace/.
Cynthia Nickerson, "Smart Growth: Implications for Agriculture in
Urban Fringe Areas," Agricultural Outlook, April 2001 (Washington, D.C.:
U.S. Department of Agriculture, Economic Research Service, 2001), 27.
Available online at
www.ers.usda.gov/publications/agoudook/april2001/AO280g.pdf.
www.op.state.md.us/smartgrowth/smartpfa.htm.
www.greeninfrastructure.net/Intro/Mission-WorkingGroup.htm.
www.co.dane.wi.us/parks/open%20space/body.htm#past_plans.
Kathy Blaha and Peter Harnik, Opportunities for Smarter Growth: Parks,
Greenspace and Land Conservation, Translation Paper no. 3 (Miami: Funders
Network for Smart Growth and Livable Communities, 2000), 6.
www.co.dane.wi.us/parks/parkhome.htm.
Randall Arendt, '"Open Space Zoning': What It Is and Why It Works,"
Planning Commissioners Journal, no. 5 (1992): 4. Available at www.planner-
sweb.com/articles/are015.html.
Dan Benson, "Motivating Developers to Maintain Countryside,"
Milwaukee Journal Sentinel, 10 March 2001.
Tom Daniels and Deborah Bowers, Holding our Ground Protecting America's
Farms and Farmland (Washington, D.C.: Island Press, 1997).
Edward Thompson, Agricultural Sustainability and Smart Growth: Saving
Urban Influenced Farmland, Translation Paper no. 5 (Miami: Funders
Network for Smart Growth and Livable Communities, 2001). Available
online at www.fundersnetwork.org/usr_doc/agriculture%20paper%2.pdf.
John B. Wright, "Land Trusts in the USA," Land Use Policy, vol. 9, (April
1992): 83
Harold Henderson, "Open Space: How to Get It and Keep It." Planning,
vol. 4, no. 9 (November 1990): 5-6.
-------
Chapter Seven
! III
•
\
Strengthen and Direct
Development Towards Existing
Communities
During the post-War World II era, urban
communities that experienced rapid
expansion at their edges often witnessed disin-
vestment in the urban core and first-ring sub-
urbs as they were abandoned for newer, low-
density, dispersed developments on the urban
fringe. This pattern of development had dra-
matic effects on the social and economic viabili-
ty of many core jurisdictions. It also led to
significant impacts on the natural environment
by developing on formerly open lands, which
reduced animal habitats, degraded water
resources and water quality, and influenced
transportation choices that over time degraded
air quality and increased the threat of global
climate change.1 Communities are now ques-
tioning the economic and environmental
rationale of abandoning neighborhoods, side-
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
walks, and water and sewer services in the urban center and older
suburbs, only to rebuild them further out.
Smart growth directs development towards communities already
served by infrastructure, seeking to utilize the resources that
existing neighborhoods offer and to maintain the value of public
and private investment. By encouraging development in existing
areas, communities benefit from a stronger tax base, closer prox-
imity of jobs and services, increased efficiency of already devel-
oped land and infrastructure, reduced development pressure in
fringe areas, and preservation of farmland and open space. In
addition, the process of increasing development in existing com-
munities can maximize the use of existing impervious surfaces,
thereby improving local and regional water quality, and can create
opportunities for more transportation options, which lower vehi-
cle miles traveled and ultimately improve regional air quality.
Often existing neighborhoods can accommodate much of the
growth that communities require through infill development,
brownfields redevelopment, and the rehabilitation of existing
buildings. For example, a 1996 study found that brownfields in
Detroit, Chicago, Milwaukee, and Cleveland could absorb one to
five years of residential development, 10 to 20 years of industrial
development, or 200 to 400 years of office space.2
However, there are a number of barriers that discourage develop-
ment in existing communities, some of which include detailed
zoning plans, government policies and regulations, and taxpayer
subsidies that encourage development in edge and greenfield
areas. In addition, greenfield development remains attractive to
developers for its ease of access and construction, lower land
costs, and potential for larger parcel assembly. Typical zoning
requirements in edge areas are often easier to comply with,
because these areas often have few existing building types that
new construction must complement and a relative absence of resi-
dents who may object to the inconvenience or disruption caused
by new construction. Finally, the cost of greenfield development is
often subsidized by the public sector through the provision of
road, sewer, and water networks and through the use of average-
cost pricing, which can underestimate the true per-unit cost of
expansion.
A range of options exists to begin to "level the playing field"
between greenfield and infill development and to help direct new
investment dollars to strengthen existing neighborhoods. Efforts
to increase development in existing communities must be imple-
mented with an eye to creating growth that improves the quality
of life for existing residents as well as creates benefits for new
investors. As more developers learn of the profitable experiences
that their counterparts have had through infill development, the
private market will increasingly identify ways to redirect resources
to existing neighborhoods. The following policies are designed to
address some of these issues and to provide state and local govern-
ment officials with ideas and tools to strengthen and direct devel-
opment toward existing communities.
I.
Strengthen state or local brownfields programs.
It is estimated that as many as 500,000 brownfields exist nation-
wide.3 Brownfields are those sites with real or perceived environ-
mental contamination. In existing communities, brownfields rep-
resent untapped development opportunities and often act as
impediments to community revitalization. Uncertainty about the
extent of environmental damage, the cost of remediation, and the
risk of liability for future owners often serve as obstacles to new
investment for site owners, developers, and lenders and can fur-
-------
STRENGTHEN AND DIRECT DEVELOPMENT TOWARD EXISTING COMMUNITIES
ther serve to drive new development to less problematic sites on
the urban fringe.
Brownfields programs can help make these parcels available for
redevelopment. In order to encourage brownfields redevelop-
ment, nearly all states have developed legislation that limits and
clarifies the liability of prospective purchasers, lenders, property
owners, and others regarding their association with activities at a
brownfields site. In addition, many communities have created
state or local brownfields coordinator positions whose function is
to coordinate information about sites, facilitate site assessments,
market the sites to potential developers, and coordinate remedia-
tion efforts with the state environmental protection agency. In
states and cities that already have established a brownfields pro-
gram, these efforts can be strengthened to increase the effective-
ness of existing programs, improve coordination with other play-
ers in the brownfields arena, improve remediation efforts, and
PRACTICE TIP:
The St. Paul Port Authority brownfields redevelopment program in
Minnesota has over 50 sites needing redevelopment. Because of scarce
resources, the Port Authority determines which sites to remediate based on
the extent of redevelopment costs, the site configuration, and a variety of
social indicators, such as the level of unemployment, housing vacancies, and
percentage of rental property. The redeveloped land is given to businesses,
which enter into an agreement with the Port Authority to retain businesses
in and attract others to St. Paul. Agreements also include design criteria
relating to energy efficiency, local hiring guarantees for St. Paul residents,
and livable working wages.The program is a success: the Port Authority has
three or four businesses competing for each available opening.This program
has generated over $2 million a year in property taxes, created over 1,500
jobs in distressed communities, and created 900,000 square feet of building
space in previously abandoned lots.
better leverage support from high-level officials and executives to
spur successful brownfields redevelopment.
2.
Adopt a "fix-it-first" policy that sets priorities for upgrading
existing facilities.
Public expenditures on infrastructure, such as streets, highways,
water and sewer systems, lighting, and schools and other civic
buildings, constitute a significant share of public expenditures
each year. Local and state governments suggest locational priori-
ties for new development when governments allow infrastructure
in existing neighborhoods to decay while investing in new infra-
structure in edge communities. By not fixing this infrastructure,
the local government creates for itself a larger fiscal problem for
each year that the maintenance issues are not addressed. For
example, a home owner spends time and money performing rou-
tine maintenance on a house in order to save money on costly
repairs later and may expand or alter the house to better meet
changing family needs. The maintenance and the expansion the
home owner performs over time maximizes the value of the initial
investment (i.e., the home) and is often less expensive than buying
a new home. "Fix-it-first" policies apply the same rationale to
public investments. They direct resources to support the mainte-
nance and upgrading of existing structures and facilities. This
helps to maintain the value of
investments made by the private
sector and to better position
communities to attract private
investment in new construction
and rehabilitation.
New infill townhomes on the site
of a former hospital complement
building styles in the surrounding
U Street area of Washington, DC.
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GETTING TO SMART GROWTH
PRACTICE TIP:
Wisconsin, in considering its implementation of a regional tax-base shar-
ing system, studied the experience of the Minnesota Twin Cities region.The
model used in the Twin Cities collects 40 percent of the growth in its com-
mercial and industrial property tax base since 1971 into a single pool. It
then distributes that pool of money to each community in the region that
has a lower than average commercial and industrial tax base.
By participating in this plan, communities have less incentive to compete
with one another for economic development opportunities. Wisconsin
noted, however, that the weakness of the Twin Cities approach is that it
relies on increases in the tax base since 1971, rather than on the total
value of these properties, and that it fails to include residential
properties, thereby creating disproportionate benefits for high-value
residential areas without commercial or industrial activities. For more
information on this program, please see the following website:
www. lafollette.wisc.edu/reform/Issues/Tax-Base_Sharing_Model.htm.
Current state or federal funding formulas may make this difficult
to implement, however. As with school construction, projects to
repair existing assets that exceed a target level (some percentage
of the cost of new construction) may be rejected in favor of new
construction. States have, however, found the political will to
overcome these barriers. New Jersey, for example, acted on the
fix-it-first principle by requiring that maintenance needs on exist-
ing roads be addressed before new roads are constructed. Then-
Governor Christine Todd Whitman committed $30 billion over
12 years for extensive repairs to the state's highways and transit
infrastructure, improvements in highway and pedestrian safety,
and new rail initiatives to spur regional mobility. The rationale
behind this initiative was the economic, social, and environmental
costs of allowing current infrastructure to further degrade. As
Governor Whitman said,
"We've delayed fixing or replac-
ing [our transportation infra-
structure] for too long. We're
fast approaching the danger
point."
3-
Institute regional tax-base
sharing to limit regional com-
petition and to support schools
and infrastructure throughout
the region.
The fiscal concerns of individual
jurisdictions can create an
intense local competition across
regions to attract more retail,
entertainment, and hotel devel-
opment, and less housing development. The revenues generated
by the property tax on housing usually fail to cover the full costs
of providing public services at all but the highest income levels.
Conversely, retail and service development generates sales tax rev-
enue that lands directly in local coffers because most state laws
redirect tax proceeds to the jurisdiction where the sale takes place.
The bidding wars that often ensue between jurisdictions lead
them to offer a wide array of tax breaks and incentives for incom-
ing businesses.4 When one community underwrites a new mall
with costly incentives like undeveloped land, tax discounts, or
road projects, other communities in the same region are forced to
offer incentives of an equal scale to their malls in order to remain
competitive. This type of regional competition can spur develop-
ment at the edge, because in most cases, the new mall or retail
outlet will use undeveloped lands, thus requiring new roads, infra-
structure, and larger parcels for construction. In addition, this
competition creates fiscal inequities between the communities
that succeed in attracting businesses and those that do not or can-
not.
Regional tax-base sharing allows the revenues collected (most
often property tax assessments or sales tax revenues) to be distrib-
uted both to the locality where they were generated and to other
localities in the region based on their size, population, or other
measures of disparity. Tax-base sharing recognizes that interjuris-
dictional competition for economic activity is, over time, a losing
proposition for all the governments involved. Tax-base sharing
recognizes that both the causes and the benefits of growth tend be
regional. The use of this tool can, for example, ensure that all area
schools are working together to provide a well-trained workforce
for the next wave of economic expansion. It also distributes the
benefits of regional retail, for example, among the many localities
that provide customers, thereby helping to generate tax revenues.
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STRENGTHEN AND DIRECT DEVELOPMENT TOWARD EXISTING COMMUNITIES
This approach creates stronger resources across the entire region
and can provide critical to strengthen existing communities that
may suffer from disinvestment or stagnant economic growth. By
minimizing regional competition for large commercial projects
and business, such as malls and corporate headquarters, tax-base
sharing can ensure that new development occurs where it makes
the most sense, not for the sole purpose of raising the tax base of
one jurisdiction.
States have employed different approaches to this basic concept.
In Minnesota, for example, business property taxes are shared
among Minneapolis-St. Paul area governments, easing the fiscal
crisis in the area's declining communities. Tax-base sharing also
relieves the pressure that growing communities feel to spread
local debt costs through growth, and it erodes fiscal incentives
that encourage low-density development.5 Texas also offers a vari-
ation on tax sharing in which districts with high-value business
property are given five options to share resources. These include
directly sharing their property tax revenues with other districts,
or agreeing to send surplus revenues to the state for distribution
to poor school districts.6 In Colorado, the neighboring towns of
Windsor and Severance have agreed to share revenues from com-
mercial activity along their shared Highway 392 corridor, thus
saving each town from the cost and effort of attempts to draw
businesses into its jurisdiction at the expense of its neighbor.7
Use the split-rate property tax to encourage development on
vacant or blighted pieces of land in existing communities.
Property tax structures that assess land and improvements in the
same way can act as an impediment to upgrading existing struc-
tures or adding buildings to currently vacant infill parcels.
Owners may perceive the increased taxable basis on their proper-
ty—and the tax liability that results—to exceed the economic
value that could be derived from improving the property. As a
result, vacant or underutilized land remains that way until the
economics of potential improvements change, which encourages
speculation. This is particularly problematic in areas suffering
from disinvestment where the prospects for profitable investment
by businesses are lower and where concentrations of underuti-
lized property can exacerbate deterioration and neglect.
The split-rate property tax shifts the balance of the tax burden
onto land and away from improvements, which diminishes the tax
consequences associated with making improvements on the land.
It also raises the tax consequences associated with leaving vacant
land dormant. Under a split-rate tax, there is more incentive for
building owners to put their land to maximum productive use
(within the constructs of building and zoning requirements). The
split-rate tax thus stimulates development on lots that had previ-
ously acted as obstacles to redevelopment in existing neighbor-
hoods.
5-
Locate civic buildings in existing communities rather than in
greenfield areas.
Public investment in civic buildings, including historic structures,
can be a critical factor in the development of a community. The
placement of public and civic buildings indicates the locality's
development priorities, and placement determines the residents'
accessibility to the government services that these buildings
house. Furthermore, a range of private services, such as legal and
PRACTICE TIP:
A number of localities in
Pennsylvania use the split-rate
property tax. In the case of
Pittsburgh where improvements
were once taxed at one-half the
rate of land, this ratio shifted to
only one-sixth the rate of tax
assessed on land under the split-
rate tax reform. The results have
been significant. An analysis pub-
lished in the National Tax Journal
in March 1997 revealed that, in
spite of the dramatic economic
effects associated with the down-
turn in the steel industry, the rate
of development within Pittsburgh
was substantially greater com-
pared to other rust-belt cities that
used a traditional property tax.
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GETTING TO SMART GROWTH
Northwest Landing - a 3,000 acre
mixed-use community - was con-
structed on an abandoned brown-
field industrial site near Dupont,
Washington.
advocacy services, benefit from close proximity to public build-
ings, such as courthouses and legislative chambers.
By locating public buildings (e.g., libraries, government buildings,
and schools) in areas with existing infrastructure, state and local
governments send a message to the rest of the community that
these areas are worthwhile investment opportunities. Public
buildings act as harbingers of revitalization in distressed commu-
nities where few employment opportunities exist or where a lack
of services persists. Finally, they represent opportunities to go
beyond merely maintaining the quality of public services in a
community by adding services that were previously unavailable or
inaccessible to local residents. The federal government recognizes
the importance of the location of public-service buildings. In
growing recognition of the important role that civic buildings
play in the development of communities, federal legislation was
introduced in the 107th Congress that placed a greater emphasis
on the location of post office buildings in core downtown busi-
ness districts.
6.
Conduct an "infill checkup" to evaluate and prioritize infill and
brownfields sites for redevelopment.
Infill locations pose a number of challenges to prospective devel-
opers that greenfield locations do not. Perceptions and realities
about community opposition, environ-
| mental contamination, the difficulty of
I land assembly, access to the site,
$
I requirements for design conformity, and
infrastructure service standards may dis-
courage development that is needed to
strengthen existing communities.
Communities can attract infill invest-
ment by identifying priority sites for redevelopment—those that
are likely to convey the greatest economic, environmental, or
fiscal benefits—and then removing the obstacles that are prevent-
ing investment from taking place there.
Communities can be proactive in addressing these concerns by
doing an "infill checkup" in which answers to the following criti-
cal questions are identified:8 Is the community ready to accept
infill, and what are likely to be residents' greatest concerns? Does
the comprehensive plan (and applicable zoning code) include infill
in its long-term vision, and do corollary public investments in
infrastructure support it? Are efforts made to ensure that infill is
constructed within the community's character? Does the commu-
nity have a transit system or are plans in place, and what are the
implications for parking needs associated with new development?
Is the community prepared to invest financially in infill where pri-
vate investment alone is not enough to cover the costs of develop-
ment? Does the zoning support, encourage, allow, or prohibit
mixed-use, and what is needed for it to better support current
needs? Finally, are design guidelines or project prototypes in place
that clarify the community's priorities for what development
should look like? Answering these questions and implementing
the needed changes to overcome any obstacles that appear as a
result can ease the way for the redevelopment of critical infill and
brownfields sites.
7-
Facilitate programs to encourage home renovation and reha-
bilitation in existing neighborhoods.
Rehabilitation of existing homes represents a fundamental
approach to strengthening existing neighborhoods. Communities,
by creating tools and incentives for home owners to upgrade their
own homes, can bring about visible new improvements in their
-------
STRENGTHEN AND DIRECT DEVELOPMENT TOWARD EXISTING COMMUNITIES
neighborhoods. Such tools also allow residents to adapt their
homes to changing needs and to remain in place as a long-term
stabilizing force in the community. Furthermore, rehabilitation
and renovation represent large and generally stable parts of the
local economy, particularly during slower economic periods.
Communities seeking to encourage home renovation and upgrad-
ing can provide grants, low-cost loans, tax abatements, or other
incentives to home owners for rehabilitating their properties.
Communities may also consider evaluating current building codes
to ensure that they constitute a reasonable approach to ensuring
safety in all building types. New Jersey found, for example, that
its building codes made renovation of older properties often
infeasible and adopted a building subcode that applies specifically
to rehabilitation (see Principle 3, Policy 8 for more information).
PRACTICE TIP:
Cuyahoga County, Ohio, has employed a widely available yet underused strategy for investing county tax proceeds to
assist suburban home owners near the central city (Cleveland) to rehabilitate their homes—linked deposits. As author-
ized by law, the county treasurer invests up to 10 percent of total property tax intake in participating banks at below-
market rates (not to exceed a 3 percent differential). In exchange, the banks must commit to pass on the savings to
borrowers in the form of low-interest loans for rehabilitation and renovation. It is estimated that county treasurers in as
many as two-thirds of all states have this authority, making it a potentially enormous untapped resource for revitalizing
neighborhoods and improving housing quality.
Cuyahoga County's "Housing Enhancement Loan Program" is available to any home owner—regardless of income-
residing in a suburb close to Cleveland in which housing values have appreciated at less than two percent annually over
the last 15 years. By foregoing between $1.2 and $2 million in interest, it is estimated that the county will make avail-
able roughly $40 million to upgrade 4,000 homes over two years. As a result, residents of existing neighborhoods are
able to adapt and upgrade their homes for changing needs.This program thus creates less demand for new housing con-
struction on the urban fringe. New capital is flowing into existing neighborhoods that would otherwise appreciate slowly
or not at all. The county wins, too. Property tax assessments are expected to increase by $400,000 per year as a result
of the improvements.
8.
Support community-based organizations involved in revitaliz-
ing neighborhoods.
The cost of redeveloping land and buildings is not only driven by
the cost of materials and labor—it is also influenced by the devel-
oper's profit motive. In communities around the country, thou-
sands of local community development corporations (CDCs) or
other community-based organizations (CBOs) function as devel-
opers of residential and commercial property with no profit
motive. As a result, these organizations are able to create viable,
affordable projects, by using public, private, and in-kind contribu-
tions, that would otherwise remain absent from the community's
building stock. These nonprofits have vast expertise in develop-
ment at the neighborhood or block level. They are often capable
of putting together complex
financial development deals—
involving as many as a dozen or
more financial sources—that few
profit-minded developers are
willing to undertake.
Support for these community
organizations in the form of
financial resources, technical
assistance, or time on the civic
agenda of decision makers
ensures that public resources are
used for cost-efficient and civic-
minded projects. This support
improves the chances that public
resources are used in projects
that demonstrate a community's
PRACTICE TIP:
National Neighborhood Coalition,
a membership organization of
CDCs and CBOs working on a
range of issues, has developed ten
Neighborhood Principles for
Smart Growth. These principles
complement those of the Smart
Growth Network and are tailored
to speak to the needs and
resources of community-based
organizations. To learn more, visit
www.neighborhoodcoalition.org.
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GETTING TO SMART GROWTH
The formerly abandoned Standard
Dairy in Portland, Oregon's historic
Eliot neighborhood now contains 64
live-work or live-retail spaces that
evoke the foursquare home design
popular in the city in the early
1900's.
own development priorities. CDCs and other CBOs are often
responsive and accountable to community members in a way that
few other entities are. Board members and staff of these
nonprofits often live in the neighborhoods themselves, thereby
ensuring that the activities that the organization seeks to com-
plete help to achieve an improved quality of life for all residents
of the neighborhood.
Create economic incentives for businesses and home owners
to locate in areas with existing infrastructure.
Public investment is often able to leverage private investment. In
some cases, public investment may provide the necessary infra-
structure to attract desired development. Additional economic
incentives may be necessary, however, to help the business and
development community focus its attention on a given, targeted
neighborhood. This has been the experience with the successful
models for zone and district development, such as business
improvement districts, historic districts, Main Street programs,
and the federal government's Empowerment Zone/Enterprise
Community programs.
There are a wide range of economic incentives that can be made
available to developers and property owners. For example, com-
munities can offer favorable lending terms through dedicated
bond issues; direct grants or loans through tax-increment financ-
ing or from special assessments; tax abatements, credits, or
waivers; density bonuses or other zoning waivers; expedited per-
mitting treatment; or outright grants of publicly-owned land or
property. Often these economic incentives can be the missing
source of gap or bridge financing that makes investment opportu-
nities in existing neighborhoods viable. Finally, local employees
can be enticed to live in existing communities near their place of
work through "live near your work" initiatives (see Principle 1,
Policy 1, for more information).
IO.
Modify average cost-pricing practices in utilities to better
account for costs of expanding infrastructure in greenfield
areas.
Low-density, dispersed developments generally enjoy subsidized
utility costs because utility pricing is based on average—rather
than actual—costs of providing services. Average cost pricing was
established as a way to place rural residents on a level playing field
with urban residents, but that policy is now contributing to rapid
land consumption rates because the true costs of providing infra-
structure to edge areas are often not passed on to either the devel-
oper or the final consumer. Cable television, electric, phone,
water, gas, and wastewater services all charge for new hookups on
an average-cost basis. A regional Bell telephone company, for
example, estimated that, compared to the cost of serving cus-
tomers in the central business district, it costs twice as much to
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STRENGTHEN AND DIRECT DEVELOPMENT TOWARD EXISTING COMMUNITIES
serve households in the rest of the central city and ten times as
much to serve households on the urban fringe.9 Because all cus-
tomers pay average costs, residents in more urban, higher density
areas in effect subsidize those in edge areas. Linear utilities such
as cable television, water and sewer, phone service, and even mail
delivery fail to reflect the efficiencies associated with clustered
development.
Communities that have recognized this problem have had
difficulty in arriving at a solution that is efficient and equitable.
Assessing the true marginal cost of infrastructure expansion is
difficult, since some capital investments (such as schools, treat-
ment facilities, and pumping stations) cannot be expanded on a
small, incremental basis. Rather, they require one-time large
influxes of capital to expand the capacity for both current and
future users. The city of San Diego, however, uses a different
approach. It has created service areas designed for impact-fee
financing, in which impact fees are lower for areas served by exist-
ing infrastructure and higher for those without. This "step"
approach to calculating impact fees encourages development to
occur in existing service areas by offering lower impact fees to the
builders of new units. Conversely, higher fees (that more closely
approximate the true cost) discourage development in unserviced
areas.
U.S. Environmental Protection Agency, Our Built and Natural
Environments: A Technical Review of the Interactions between Land Use,
Transportation, and Environmental Quality, EPA 23 l-R-01-002
(Washington, D.C.: U.S. EPA, 2001).
Robert A. Simons, Brownfields Supply and Demand Analysis for Selected Great
Lakes Cities (Cleveland, Ohio: Department of Planning and Development,
Cleveland State University, 1996), prepared for U.S. Environmental
Protection Agency.
Robert A. Simons, Turning Brownfields into Greenbacks (Washington, D.C.:
Urban Land Institute, 1998).
Geoffrey Anderson, "Local Governments on Safari for Big Game," On
The Ground: the Multimedia Journal on Community, Design, and
Environment, vol. 2, no. 2, (1996).
Myron Orfield, Metropolises: A Regional Agenda for Community and Stability
(Washington, D.C.: Brookings Institution Press, 1997).
Hal Hovey, "The Property Tax in the 21st Century," prepared for
The Finance Project, May 1996. Available at
www. financeproj ect.org/property.html.
Michelle Kramer, Smart Growth Hall of Fame 2001, (Colorado Sprawl
Action Center, December 2001).
Summarized from Northeast-Midwest Institute and Congress for the New
Urbanism, Strategies for Successful Infill Development (Washington, D.C.:
Northeast-Midwest Institute, 2001).
U.S. Congress, Office of Technology Assessment, The Technological
Reshaping of Metropolitan America, (Washington, D.C.: GPO, OTA-ETI-
643, 1995).
PRACTICE TIP:
The city of Sacramento has devel-
oped a policy to promote infill
development by providing credits
for sewer hookups so that housing
that is built in the downtown or
midtown area will be assessed
only $900 for a sewer hookup fee
(per unit) versus $3,000 in outly-
ing areas.
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GETTING TO SMART GROWTH
Other Resources
• Robert A. Simons, Turning Broimfields into Greenbacks (Washington, D.C.:
Urban Land Institute, 1998).
• Diane R. Suchman, Developing Infill Housing in Inner-City Neighborhoods:
Opportunities and Strategies (Washington, D.C.: Urban Land Institute,
1997).
• Center for Livable Communities, Building Livable Communities: A Policy
Maker's Guide to Infill Development (Sacramento, Calif.: Local Government
Commission, 1995, 2001).
• U.S. Environmental Protection Agency and Association of Metropolitan
Planning Organizations (AMPO), Redeveloping Brownfields with Federal
Transportation Funds (Washington, D.C.: AMPO, 2001). Also available
online at http://smartgrowth.org/pdf/brownfields_tea21.pdf.
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Chapter Eight
K
Provide a Variety of
Transportation Options
Providing people with more choices in hous-
ing, shopping, communities, and trans-
portation is a key aim of smart growth.
Communities are increasingly seeking these
choices—particularly a wider range of trans-
portation options—in an effort to improve
overwhelmed transportation systems. Traffic
congestion is worsening across the country.
Whereas 65 percent of travel in 1982 occurred
in uncongested conditions, only 36 percent of
peak travel did so by 1997. In fact, according to
the Texas Transportation Institute, congestion
over the last several years has worsened in near-
ly every major metropolitan area in the United
States.
The science of traffic management and predic-
tion has begun to catch up with what citizens
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
Existing infrastructure can support
transit, vehicle, and non-motorized
means of travel.
have observed for years: new road capacity fills up almost as fast
as it is constructed. Known in transportation circles as "induced
demand," studies now show that as large new roads are built peo-
ple increase their driving to take advantage of the new infrastruc-
ture. Some studies suggest that between 60 and 90 percent of new
road capacity is consumed by new driving within five years of the
opening of a major road.1 In the short term, people may switch
from using transit and carpools to traveling on the new road, and
in the long term, with the increased accessibility of the surround-
ing land, development patterns shift to create more growth and
new traffic in the area. In regions around the country, travel fore-
casters show that the continuation of current policies and prac-
tices is unlikely to alleviate congestion.
In response, communities are
beginning to implement new
approaches to transportation
planning, such as better coordi-
nating land use and transporta-
tion; increasing the availability
of high quality transit service;
creating redundancy, resiliency
and connectivity within their
transportation networks; and
ensuring connectivity between
pedestrian, bike, transit, and road facilities. In short, they are cou-
pling a multimodal approach to transportation with supportive
land-use patterns that create a wider range of transportation
options.
Numerous policies are available to expand transportation choices,
and a number of them are featured in this section as a means to
help communities identify opportunities to enhance their trans-
portation network. Like the others presented in this document,
these policies are best used in combination with parallel policy
efforts to support other aspects of smart growth.
I.
Finance and provide incentives for multimodal transportation
systems that include supportive land use and development.
States are responsible for much of the nation's transportation
planning and investment. As a result, states can directly affect the
mix of transportation modes available by planning and funding a
balanced portfolio of pedestrian, auto, transit, and bike trans-
portation facilities. The effectiveness of these investments howev-
er, is greatly dependent upon the existence of supportive land
uses. For instance, sidewalks without nearby destinations render
walking an unrealistic option; transit servicing of low-density
areas is expensive, and land uses that separate residential develop-
ment from jobs and shopping increase congestion.
States can improve the cost-effectiveness of their transportation
investments by ensuring that transportation and development are
coordinated. Project selection criteria should give priority to
those projects that demonstrate supportive land uses (e.g., transit
service for areas with transit-oriented development or bikeways
connecting residential areas with shopping and amenities). By
including a commitment for follow-up implementation funds for
the transportation portions of the plan, states can use special grant
programs as catalysts for integrated land-use transportation plan-
ning by local governments. Requirements or incentives for land
planning can be implemented in areas where major expansions or
new facilities are contemplated. States can also offer incentives
and rewards to communities that ensure safe-routes to school and
to communities that locate schools in walkable locations.
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PROVIDE AVARIETY OF TRANSPORTATION OPTIONS
Communities can take advantage of the flexibility in federal trans-
portation law to create public-private partnerships around trans-
portation and development investments. For example, they can
use transportation funds for brownfields redevelopment or take
advantage of joint development policies to encourage transit-ori-
ented development. Finally, state transportation departments can
encourage their own offices and local governments to adopt poli-
cies that allow flexibility in road, pedestrian, bike, and transit
facility design standards, such that upgrades and new facilities fit
the character of existing communities.
2.
Modify roadway level-of-service standards in areas served by
transit.
Level-of-service requirements set the level of acceptable conges-
tion at an intersection or on a segment of road. Once this level of
PRACTICE TIP:
The Metropolitan Transportation Commission, the metropolitan planning
organization for the San Francisco Bay Area, encourages local govern-
ments to link transportation and land-use decisions through the "Housing
Incentive Program (HIP)." HIP is a grant program designed to maximize
public investments in transit infrastructure and to encourage transit use
while also addressing the region's housing shortage. For localities that are
locating housing developments within a one-third mile walk of transit, the
HIP provides additional funding for transportation-related improvements
such as streetscapes, transit villages, bicycle facilities, and pedestrian
plazas. As densities increase, HIP provides more funding to the locality:
$1,000 per bedroom in projects that contain twenty-five units per acre,
$1,500 per bedroom at forty units per acre, and $2,000 per bedroom at
sixty units per acre. For all affordable units, an additional $500 per bed-
room is awarded. For more information, visit www.mtc.ca.gov/projects/liv-
able communities/lcindex.htm.
congestion has been reached, it is common to require that devel-
opment in the surrounding area halt or that the road or intersec-
tion be upgraded. This one-size-fits-all prescription may not fit
all situations. Some of the most lively, economically vital districts
in the country are congested. In many cases, it is a sign of their
vitality, particularly in city and town centers. Similarly, uncon-
gested, fast-moving traffic can be a signal of a downtown or
neighborhood business district in decline. In addition, stringent
adherence to a statewide level-of-service standard may not be
appropriate in areas served by high-quality transit. In these areas,
reliance upon a roadway level-of-service standard fails to reflect
the accessibility offered by the transit service.
For these areas served by transit, some combined measure of
service and accessibility, which includes roadway, transit, and
pedestrian activity, may be needed to properly manage trans-
portation in these areas. Likewise, where transportation improve-
ments are deemed necessary, policies can then evaluate the impact
of upgrades to road, transit, pedestrian facilities, or some combi-
nation thereof.
3-
Plan and permit road networks of neighborhood-scaled streets
(generally two or four lanes) with high levels of connectivity
and short blocks.
Overreliance on hierarchical street networks composed of neigh-
borhood, collector, arterial, and freeway roads tends to force
traffic onto a small number of major roads, which provide drivers
with few alternate routes in the event of congestion or accidents.
Also, because major roads concentrate traffic, they generally do
not provide a good environment for pedestrians or residential
PRACTICE TIP:
The North Carolina Department
of Transportation (NCDOT) has
made it easier for local govern-
ments to implement traditional
neighborhood street networks in
new developments. In August
2000, NCDOT approved street
design guidelines to support com-
munity interest in streets that
slow and disperse vehicular
traffic and provide a pedestrian-
friendly environment. The guide-
lines specify widths, street geome-
try, utility placement, and provi-
sion of bicycle and pedestrian
facilities that promote walkable,
human-scaled communities
For more information se
www.doh.dot.state.nc.us/opera
tions/tnd.pdf. See also Institut
of Transportation Engineers
Traditional Neighborhoo
Development Street Design
Guidelines, A Recommends
Practice of the Institut
of Transportation Engineer
(Washington, D.C.: ITE, 1999).
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GETTING TO SMART GROWTH
PRACTICE TIP:
In Maplewood, New Jersey, the
Concierge Company has formed a
partnership with New Jersey
Transit, the Chamber of
Commerce, and the municipal
government to refurbish the tran-
sit station, complete with a "com-
munity concierge" program. This
service provides links to fifty local
businesses like grocery stores, dry
cleaners and auto repair garages
in a center within the train sta-
tion, so that rail commuters can
arrange their daily errands.
development. The result is that these corridors are generally
accessible only by car.
A finely woven network of smaller streets can move large volumes
of traffic, provide routing redundancy, and help drivers avoid long
delays associated with the left turns at large, multilane intersec-
tions. These streets also are scaled to the neighborhood level.
Narrower than major roads, such streets generally have slower
speeds that are compatible with a mix of residential, commercial,
and retail uses. This mix of uses and improved connectivity makes
walking a realistic transportation option because destinations can
be placed at closer distances, and more direct routes exist for
pedestrians to reach a given destination. In addition, unlike major
thoroughfares, large setbacks are not necessary to shield building
occupants from the noise associated with large volumes of fast-
moving traffic.
4-
Connect transportation modes to one another.
Too often, transportation systems and networks are planned and
operated in an uncoordinated manner—both within and between
jurisdictions. Providing
efficient connections
between different modes is
key to achieving a func-
tioning multimodal sys-
tem. For instance, nearly
every transit trip starts or
ends with a pedestrian trip.
Homes near transit systems
are a critical part of minimiz-
ing congestion and preserving
open space in Gresham,
Oregon.
If the pedestrian fails to connect well with the point of transit
pickup (no sidewalks leading to the stop, long walks, or wide roads
to be crossed), transit is much less convenient, accessible, and
competitive. All transportation options become more viable when
they are connected to other modes. For example, bike racks at
transit stations create a wider ridership for transit by effectively
extending the range passengers will travel. However, better still
are transit systems that allow bikes on board because they extend
the area of origin and destination. Similarly, auto trips can be
more effectively linked with pedestrian transportation when desti-
nations are close to one another and walkways are provided
between locations.
Zone for concentrated activity centers around transit service.
To be most effective, transit service requires supportive land use.
Local governments can help to ensure good accessibility to transit
by clustering higher-density residential development around tran-
sit stops. Some researchers estimate that a minimum of six to
eight residential units per acre are needed to support basic transit
service provision. In addition, transit becomes still more effective
if other services and amenities are also co-located with transit.
Such services and amenities include community services such as
childcare, as well as facilities for daily trips such as dry cleaning,
parcel pickup and drop off, and convenience store shopping.
Enabling transit riders to accomplish multiple errands as part of
their commute is essential if public transit is to become a viable,
convenient transportation option.
-------
6.
Require sidewalks in all new developments.
With the growing dominance of the automobile, many new
streets are built without sidewalks. It is true that the existence of
sidewalks will not create walkers. Other elements (many already
discussed) including mix of uses, short blocks and nearby destina-
tions are necessary to make walking anything but recreational.
However, sidewalks are indispensable to this mix. They are essen-
tial to creating a safe and secure pedestrian environment, and
therefore a balanced mix of transportation options. Local govern-
ments can require that new developments provide sidewalks so
that residents and users of these developments can walk or bike if
they choose (see Principle 4 for more information on walkable
communities).
7-
Address parking needs and opportunities.
Parking—its provision, pricing, and distribution—plays an impor-
tant role in creating a balanced transportation system. The avail-
ability of parking at local destinations influences an individual's
choice to drive, walk, bike, or take transit. Parking requirements
affect the financial viability and form of specific development pro-
posals and, in turn, affect the ability of those developments to
play a supporting role in a multimodal transportation system. For
instance, requiring large amounts of parking for a transit-oriented
infill development drives up the cost of the development and may
undermine the ability of the development to support transit.
Parking lots (this one concealed by a
wall and pedestrian pergola) can be
treated with design and landscaping to
create a safer, more interesting,
pedestrian environment.
Communities can affect change in the way parking influences
transportation choices through a range of potential efforts (see
Principle 9, Policy 6 for more information). They may choose to
allow on-street parking to meet parking requirements, or they
may reduce the amount of parking required for infill sites in
mixed-use or transit-oriented areas. They may work with employ-
ers to create priority parking areas and to reduce parking fees for
carpools, allow employees to "cash out" their parking benefits, or
tax as income parking benefits that workers receive. Communities
may encourage developers either to locate parking behind build-
ings (in garages, especially) or in courtyards rather than in surface
parking lots in front of buildings, or to design surface parking
more like a park, courtyard, or plaza that doubles as public space
in off-peak hours. Jurisdictions may design public parking garages
as mixed-use buildings with storefronts that match neighborhood
commercial buildings. They may allow local businesses to fulfill
their parking requirements by purchasing credits for garage
spaces or by sharing parking if peak hours are different (e.g.,
office buildings and entertainment venues have peak parking
needs at different times). Communities can work to ensure that
parking is located in areas that serve residents and businesses
throughout a district. Finally, parking can be located to allow
drivers to access pedestrian networks once they have parked, so
that they can access a day's worth of activities on foot. These
options are just a few of the many ways that communities can
improve their treatment of parking.
PROVIDE AVARIETY OF TRANSPORTATION OPTIONS
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GETTING TO SMART GROWTH
PRACTICE TIP:
The U.S. Environmental
Protection Agency (EPA) and the
U.S. Department of
Transportation (DOT) have estab-
lished a voluntary, national stan-
dard of excellence for
employer-provided commuter
benefits. The program encourages
U.S. employers to help employees
get to and from work in ways
that: cut air pollution, reduce
traffic congestion, increase
employee job satisfaction,
improve employee recruiting and
retention, reduce parking facility
expenses, reduce employee com-
muting expenses, and cut taxes
for both employers and employ-
ees. Detailed information about
commuter choice and the nation-
al standard of excellence can be
found on E PA's website at
www.epa.gov/otaq/transp/com-
choic/ccweb.htm.
8.
Collaborate with employers and provide information and
incentives for programs to minimize or decrease rush-hour
congestion impacts.
Daily travel patterns are the result of thousands of individual trav-
el decisions on the part of community residents. Employers are
one way to reach those individuals and influence these decisions.
Regardless of local and state government efforts to manage traffic
more effectively, employers are increasingly finding strong busi-
ness reasons to work with their employees on transportation
issues. Employee retention and lost productivity are just two of
the reasons for employers' interest. In Atlanta, Bell South's con-
cern over its employees' rising commuting difficulties led them to
consolidate more than seventy offices into three locations—each
immediately adjacent to a subway stop.
Local government can play an important role in increasing
employer efforts by providing information and incentives for
employer-sponsored commute options. Subsidies for use of public
transit and employer-assisted housing programs for employees
who live near their jobs can help minimize rush hour congestion
by vehicles. Additionally, included in the range of transportation
choices is the option to remain in place. Private employers who
provide opportunities for employees to work at home through
telecommuting, or condense work hours via flex time can facili-
tate this choice.
Adjust existing transit services to take full advantage of tran-
sit-supportive neighborhoods and developments.
Coordinating land use with transit is often considered in the con-
text of future developments and new transit service. However,
powerful opportunities may exist within the context of the current
transit system. Local governments can evaluate existing systems
and relocate routes or stops to ensure that areas with high densi-
ties, good mixes of use, and high-quality pedestrian access are well
served by transit. In addition to locating transit in areas with sup-
portive land uses, local governments can also target transit based
on economic and demographic factors. For instance, neighbor-
hoods with higher percentages of young people, students, and
elderly citizens may yield higher riderships, and strategic routing
decisions can help to ameliorate the effects of regional and subre-
gional jobs-housing imbalances. To be most successful, the nature
of commutes and other trips—reverse commutes, weekend service
employee job travel, and entertainment trips—should be consid-
ered to determine timing and fare schedules.
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PROVIDE AVARIETY OF TRANSPORTATION OPTIONS
IO.
Cluster freight facilities near ports, airports, and rail terminals.
Efficient management of goods movement within a region can
help reduce congestion and create healthier, more livable commu-
nities. Frequently, freight facilities are dispersed throughout a
region and offer poor connections between rail, port, and truck
modes of freight movement.
Local governments can encourage clustering and connectivity
between modes by (1) designating areas for freight facility devel-
opment, (2) making public infrastructure investments to support
modal connections and improved facility accessibility, and (3) tak-
ing steps to ensure that centrally located facilities and their opera-
tions are compatible with the broader community function and
character. These steps can cut short-haul truck trips and improve
regional air quality, build up the economic competitiveness of
local freight enterprises, and enhance community quality of life
by reducing the number of at-grade crossings and the number of
local truck trips with their attendant noise and pollution.
This study looked at the growth in vehicle miles traveled (VMT) as a
result of expanding highway capacity on the California state highway sys-
tem. Mark Hansen and Yuanlin Huang, "Road Supply and Traffic in
California Urban Areas," Transportation Research, 31, no. 3 (1997),
205-218.
PRACTICE TIP:
The North Jersey Transportation Planning Authority, Inc. (NJTPA) and
the New Jersey Institute of Technology are crafting policy that encourages
the reclamation of brownfields by freight businesses. The goal of the proj-
ect is to make efficient use of northern New Jersey's land and transporta-
tion resources and to help reverse the loss of jobs and economic activity in
blighted urban areas. In the region, freight-related businesses are a good fit
for brownfields redevelopment because these businesses require good
transportation access. A large number of brownfields lie within several
miles of the Newark/Elizabeth transportation hub that includes the marine
port, airport, and major rail terminals. According to NJTPA,
"[attracting freight businesses to brownfields sites would help reduce the
need for long distance trucking of goods, increase rail usage and create
new unskilled and semiskilled jobs in proximity to urban populations with
significant unemployment." For more information see www.njtpa.org/plan-
ning/brownfields/index.htm. See also The Foundation for Intermodal
Research and Education's products about the metropolitan implications of
"e-f reight" at http://intermodal.org/FIRE/e-f reight.htmI.
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-------
A
Chapter Nine
Make Development Decisions
Predictable, Fair and Cost
Effective
E>r a community to be successful in imple-
nenting smart growth, its vision, objec-
tives, and actions must be embraced by the pri-
vate sector. The private sector is crucial to sup-
plying the large amounts of money and con-
struction expertise needed to meet the growing
demand for smart growth developments. If
investors, bankers, developers, builders, and
others do not earn a profit, few smart growth
projects will be built. Fortunately, government
can help reduce barriers to profitable smart
growth development practices. Since the devel-
opment industry is highly regulated, the value
of property and the desirability of a place are
determined in large part by government invest-
ment in infrastructure and by government reg-
ulation.
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
PRACTICE TIP:
The city of Austin, Texas, offers a
variety of financial incentives to
developers through their Smart
Zone and Smart Matrix Incentive
programs. Developers who build
in desired growth areas and who
include smart growth features in
their projects can receive waivers
of development fees and city sub-
sidies for the development of
infrastructure such as installation
of water and sewer lines, roads,
sidewalks, and other related
improvements. For more informa-
tion on Austin's program see
www.ci.austin.tx.us/s mart-
growth/incentives.htm.
Government investment and regulation shape the types of devel-
opment that are being created today. For example conventional
zoning originally used by cities to separate homes from noxious
factories has also served to separate homes, stores, schools, and
offices from one another. As a result, many households are
dependent on automobiles to conduct day-to-day activities. This
pattern of separate uses is mirrored in the private sector, where
developers, investors and bankers are specialized in—and increas-
ingly compartmentalized into—a given type of conventional
development (e.g., retail or residential) and develop or finance
only projects of that one type.1 Even building codes that mandate
setbacks, parking requirements, and height or density restrictions
often make illegal the very type of development that would
achieve smart growth.
Despite the many barriers, developers have been successful in cre-
ating places that exemplify the principles of smart growth. The
process of creating such places, however, frequently requires them
to get variances to zoning codes—a process that is often uncer-
tain, time-consuming, and therefore costly. Creating more cer-
tainty and expediting the approval process for smart growth proj-
ects is of particular importance for developers, for whom the
common mantra "time is money" very aptly applies. The longer it
takes to get approval for building, the longer the developer's capi-
tal remains tied up in the land and not earning income. In addi-
tion, developers pay high interest rates on construction loans, fur-
ther increasing development costs if construction approval is
delayed. The additional effort required to create smart growth in
many areas helps to explain why developers continue to build
conventional suburban developments, even though studies show
that neighborhoods that reflect smart growth principles sell for a
premium price.2 Improved public-private cooperation to support
smart growth projects can help level the playing field with con-
ventional suburban projects.
For smart growth to flourish, state and local governments must
make an effort to make development decisions that support inno-
vation in a more timely, cost-effective, and predictable way for
developers. By creating a supportive regulatory environment for
compact, pedestrian-oriented, mixed-use projects, government
can create a more attractive investment climate for smart growth
in which the private sector is more likely to participate.
I.
Provide financial incentives to aid the development of smart
growth projects.
While many aspects of smart growth offer the opportunity to
conserve resources and land costs, some development projects do
require additional investment on the part of developers in site
infrastructure. Alleys to allow parking in the rear, structured or
underground parking lots, sidewalks and bicycle lanes, and parks
and other useful open space often add to the cost of a smart
growth projects. While these costs are often reflected in the final
price of the projects or may be offset by the lower land costs due
to more compact sites, in some cases these additional costs deter
developers from initiating smart growth.
Communities and states can use a variety of tools to help develop-
ers reduce the cost of smart growth developments. Local govern-
ments can use business improvement districts or tax increment
financing, for example, to provide funds for smart growth infra-
structure such as parking, sidewalks, and plazas for commercial
areas. Federal transportation dollars can be directed by states or
MPOs to make these types of community improvements, to offer
more transportation choices near projects, or to clean up
-------
MAKE DEVELOPMENT DECISIONS PREDICTABLE, FAIR AND COST EFFECTIVE
brownfields, and to make infill sites "shovel-ready." The cost to
developers of protecting watersheds and wetlands associated with
smart growth projects can be reduced, for example, by purchasing
easements through state clean water and drinking water revolving
loan funds. These funds can also be used in brownfields cleanup.3
Whatever the funding source, governments' investments in proj-
ects to support smart growth should be considered investments in
the future viability and livability of their communities.
2.
Conduct smart growth audits.
Along with a strong political commitment to smart growth, one
of the most important tools to achieve smart growth implementa-
tion is a clear evaluation of what is permissible in a given commu-
nity's regulatory context. Smart growth audits can help point out
standards or practices embedded in a jurisdiction's current opera-
tions that limit or prohibit smart growth projects from being
implemented. By identifying these regulations or practices, local
leaders can better prioritize those that need to be modified, and
developers can be better informed of the obstacles they are likely
to encounter should they attempt to create a smart growth proj-
ect. A regulatory audit in Illinois, for example, funded by the
Illinois Department of Natural Resources, found that the median
requirements of the state's jurisdictions' zoning laws were
"significantly more land consumptive" than standards set by the
American Planning Association. Pavement widths for local resi-
dential streets are nearly double what smart growth policy would
recommend; minimum lot-size requirements are three to four
times above the ideal; and commercial setbacks are well above the
optimal setback of zero, to cite a few findings. The study was set
up as a model smart growth regulatory audit that could be copied
in other states at a minimal cost.4
3-
Implement a process to expedite plan and permit approval for
smart growth projects.
Prompt, thorough review of proposed smart growth projects and
the timely issuance of permits can reduce the holding cost of land
for developers and make smart growth developments more attrac-
tive. One-stop shops, developer liaisons, priority review, and
review deadlines are just a few ways communities can focus their
review resources on projects they want to encourage. For exam-
ple, Montgomery County, Maryland, created a "Green Tape"
review team that helps builders and developers obtain necessary
permits more quickly, and that acts as an ombudsman for devel-
opers seeking project approvals.
Care must be taken to ensure that there is no real or perceived
favoritism when conducting these reviews. These resources can
be allocated many ways, including limiting them to specific geo-
graphic areas (such as special development zones) or by creating a
simple version of a self-scored checklist to quickly rank review
priority. By meeting their goals for expedited plan and review and
improving cooperation with builders and developers in the
process, communities can send the message to the private sector
that they are open for smart growth business.
Engage political support for improved coordination on
approval of smart growth projects.
Large mixed-use, infill projects are very complex and usually
require numerous approvals from a variety of regulatory agencies.
These projects are often the "showcase" smart growth projects in
any area, and they may be seen as the test model for smart growth
in the region. If a major project succeeds, it can accelerate smart
PRACTICE TIP:
The city of Charlotte and
Mecklenburg County in North
Carolina used outside consultants
to review their planning, zoning,
infrastructure, and development
programs against fourteen smart
growth principles. The results
identified policy and program-
matic changes that could improve
the region's ability to promote
smart growth. The results of this
study are available online at
www.charmeck.nc. us/dp Ian ning/c
omplan/smartgrowth/S mart Grow
thAudit.pdf.
PRACTICE TIP:
New Castle County, Delaware,
posts an annual timetable for
zoning and rezoning applications.
Developers know by what date
they need to submit their prelimi-
nary plans in order for the plans
to be reviewed by the next council
meeting. The schedule clearly
outlines the process and steps
that need to be taken and the
timeline for the review. For more
information, see www.co.new-
castle.de.us/Land Use/rezdates.htm
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GETTING TO SMART GROWTH
PRACTICE TIP:
Georgia Governor Roy Barnes
formed a "Green Light Team" of
state, local, and federal agencies
as well as private sector interests
to expedite the approval and
infrastructure development for
the redevelopment of an old steel
mill. The Atlantic Station project
in Atlanta is a 183-acre mixed-
use infill project in the center of
Atlanta. Its success—particularly
important due to the city's legacy
as a "poster child for sprawl" —
depends on coordinated input
from local, state, and federal
officials. The Green Light Team
meets monthly and has been suc-
cessful in coordinating approval
requirements, funding, and timing
of the various agencies.
growth in the entire region. The success of these projects may
hinge on the speed of the review process. Political leaders can use
their official position to encourage regulatory agencies to work
more closely together and to make such projects a high priority.
This coordination can identify and resolve problems quickly and
keep a project moving forward. In addition, smaller projects that
follow the larger ones often benefit from the relationships that
were created between regulators during this process.
This political support can be done through behind-the-scenes
networking or through a visible, institutionalized action. The
state of Maryland, for example, became the first state to create a
cabinet-level position for a smart growth coordinator. The office
under the secretary for smart growth coordinates the activities of
other agencies, provides education and information on smart
growth to the public, and facilitates the development of both
redevelopment projects in existing communities and smart neigh-
borhoods in growing communities.
Use a point-based evaluation system to encourage smart
growth projects.
Most conventional zoning codes offer relatively broad guidelines
that define the size and use of buildings. A point-based perform-
ance evaluation system for development projects provides a way
for communities to evaluate projects in terms of the smart growth
benefits they provide, as well. Since they are clear and open to the
public, the point systems give developers flexibility to determine
how they will meet the community's smart growth goals rather
than mandating exactly what amenities are expected.
Communities can develop a point system by first identifying a
series of design or service criteria that they want new develop-
ments to meet. The next step is to assign points to each criterion
to measure how well the proposed project meets community
goals. Proposed projects are reviewed against the criteria, and
incentives are offered for projects that achieve a predetermined
score. Austin (see Practice Tip under Principle 9, Policy 1), for
example, relies on very specific criteria concerning design and
performance as measured by its Smart Growth Matrix. Projects
that fail to meet the desired level can be redesigned during nego-
tiation with planning staff so they can achieve a higher score.
Communities can offer a wide range of incentives, such as reduc-
tion of development fees, support for infrastructure financing, or
density bonuses to encourage the features they desire. The value
of the incentives may increase as the project scores increase, with
a low level of concessions being given for minimally acceptable
scores and more valuable incentives given to higher-scoring projects.
6.
Remove parking from the development equation through pub-
lic-private partnerships to build community parking facilities.
Parking has a significant impact on the type of development that
takes place and the look and feel of a community that results.
Prominent voices in development adhere to the belief that park-
ing drives development, as more space is often needed to park cars
than to house people.5 This is particularly true for retail develop-
ment. The city of Olympia, Washington, estimates that parking
accounts for 54 percent of the site coverage for conventional retail
development—more than double the footprint of the building
that itself accounts for only 26 percent.6 The prospects for creat-
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MAKE DEVELOPMENT DECISIONS PREDICTABLE, FAIR AND COST EFFECTIVE
ing smart growth on infill sites are often diminished by the requi-
site amount of parking that is specified in local codes.
While local governments can ease the parking burden for devel-
opers by reducing excess requirements, governments can also
help improve the integration of parking into a community by
working with area landowners and developers to finance and build
community-owned parking facilities that serve all the surrounding
buildings. In so doing, local government removes a sizable por-
tion of site planning and development from the development
equation, which makes the project easier to implement. Using
local government authority and fees collected from nearby
landowners who benefit from the parking service, the community
can acquire land and build structured parking facilities and
remove the zoning requirements for parking in the surrounding
plots. Creating community parking structures can be particularly
useful when localities seek to develop high-density infill and tran-
sit-oriented development projects. In creating these lots, however,
the community needs to be very careful about the amount of
parking it supplies; too much parking will reduce transit use in
the area, and too little parking can make the area undesirable to
certain tenants. At the same time, potential lenders for new devel-
opments in the area must be educated on the use of community
parking facilities, because their own lending requirements may
stipulate that on-site parking be provided.
7-
Encourage demand for smart growth though consumer incentives.
Strong consumer demand is perhaps the most direct means to
create an incentive for private development of smart growth proj-
ects. The economics of home and auto ownership, supported by
post-WW II era government policies that favor buying houses on
PRACTICE TIP:
In the late 1970s, the city of Fort Collins, Colorado, adopted its Land Development Guidance System
(LOGS) —a point-based program to replace its conventional planned unit development ordinance. The system
gave developers density bonuses for projects that received high scores. The program was controversial and was
refined over time to ensure that the right types of projects received assistance. It helped to create a very
vibrant smart growth community, despite the burden of outdated underlying zoning codes. In 1997, the com-
munity revised its comprehensive plan and zoning codes to better promote smart growth design and amenities.
As a result, it was determined that the LOGS was no longer needed, and it was eventually dropped. Some
developers resist the mandates of the new system and want the option to retain the LOGS because it allows
them the flexibility to achieve results using a variety of designs rather than having requirements mandated. One
problem cited with the LOGS was that the criteria were so broad that the system would still award high scores
to projects that did not achieve quality smart growth.
the edge of urban areas, still persist, despite a growing demand
for smart growth. Local and state governments can offer incen-
tives to prospective home buyers that would help offset the myri-
ad existing tax, infrastructure, and utility subsidies that currently
favor conventional suburban development.7 New incentives
would help level the playing
field between conventional and
smart growth developments,
which would give consumers a
wider range of choice in the type
of communities they live in, and
which would create more
demand for development proj-
ects that exemplify smart growth
principles.
Helping people to live close to
work is one such opportunity.
Structured parking -
owned and operated by
Montgomery County,
Maryland - helps relieve
parking pressure on the
streets surrounding
Bethesda's retail areas.
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GETTING TO SMART GROWTH
PRACTICE TIP:
Montgomery County, Maryland,
has a number of county-owned
parking lots to service downtown
Bethesda. These lots are placed
and constructed to allow the
most desirable land —street
frontages on busy avenues and
boulevards—to remain available
for pedestrian-oriented, commer-
cial development. In an effort to
encourage transit-oriented devel-
opment in the area, developers
are allowed to forgo building on-
site parking if they contribute to
the county's parking fund, which
pays for the lots. The result has
been that developers are exempt-
ed from the cost and effort of
constructing parking, and the
community benefits from a
dynamic, walkable neighborhood
with a generous mix of office,
retail, restaurants, and housing.
A mix of buildings and a public square developed by
private developers on transit agency property
enhances the vitality of downtown Bethesda,
Maryland.
Living in proximity to workplaces provides
residents with opportunities for improved
household choice in transportation and
reduced time spent commuting (and the air
pollution associated with it). Localities can
encourage employers to provide employees
with direct financial support, such as low-interest loans or down-
payment assistance, to purchase a house near work through
employer-assisted housing programs. Maryland's "Live Near Your
Work" program goes one step further by providing direct finan-
cial assistance for employees to buy a home near their work (see
Principle 1, Policy 1 for more information). The Location
Efficient Mortgage5*1 is another useful tool to increase demand
for transit-oriented development by making it easier to qualify for
home purchases near transit (see Principle 3, Policy 6 for more
information).
8.
Display zoning regulations and design goals in pictorial fash-
ion to better illustrate development goals.
Depicting outcomes that are visual in nature through the written
word can be a challenge. Conventional zoning regulations are
often dense statistical documents, difficult to understand, and
sometimes vague. This can lead to confusion and misunderstand-
ing during the permit process, the need for multiple public hear-
ings to resolve disputes, and finally the resubmission of plans and
proposals—all of which constitute significant delays and addition-
al costs for developers. Faced with this uncertainty, many devel-
opers will simply resort to building what they know they can
build right away. The result is often more development that is
familiar and conventional and less likely innovative projects that
help create smart growth.
The concept that a picture is worth a thousand words has helped
to inform some communities' approaches to regulation. They are
finding that pictures can help convey to developers, architects,
and builders the precise types of developments that the communi-
ty wants. The city of Providence, Rhode Island, for example,
found that changing from "zoning by statistics" to "zoning by
showing" (what is desired) has created a simple, flexible process
for their Downcity redevelopment program (see Practice Tip
under Principle 10 for more information). The city of Boulder,
Colorado, has encouraged new mixed-use and infill development
by designing prototype projects to educate local developers about
the preferences that the community had expressed. The planning
office had architects create project prototype designs so develop-
ers could see exactly what the community was looking to have
built. Local developers used these designs as guidelines to build
many early mixed-use projects.
PRACTICE TIP:
Many new urbanist and traditional neighborhood developments, such as
Harbor Town in Memphis, Tennessee, use posters to define what design cri-
teria apply to new homes in the community. These criteria clearly depict
what will and will not be accepted by design review boards and thus help to
preserve community character and create a sense of place.
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MAKE DEVELOPMENT DECISIONS PREDICTABLE, FAIR AND COST EFFECTIVE
Maximize the value of transit agency property through joint
development of transit-oriented development.
Many transit agencies have underutilized property or air space
over property near rail stations or bus routes. These resources
constitute valuable investment opportunities for the private sec-
tor, which can be engaged through the joint development process
to put land to its highest and best use. Recent changes in federal
guidelines have helped to overcome obstacles that previously lim-
ited the sale or leasing of these properties and have simplified the
process. Transit agencies can modify the criteria that they use to
evaluate development proposals—which currently focus on eco-
nomic profitability, thereby favoring high-value, single-use build-
ings for office space,
for example—to
place more emphasis
on the potential role
of the development
in creating smart
growth. In short,
transit agencies are
well-poised to act as
key implementers of
smart growth. As they work with the private sector to develop
these parcels, transit agencies can ensure that space is used to cre-
ate the mixed-use, pedestrian-friendly development that the
parcels are naturally suited for.
Besides the potential for smart growth benefits, the joint develop-
ment effort can create benefits for both developers, who get
PRACTICE TIP:
The Washington Metropolitan Area Transit Authority (WMATA) has one of the nation's most aggressive joint
development programs. Over thirty projects have been developed or planned in the last few years. WMATA has
projected an income of $15 million dollars by 2003 from joint development projects alone —a figure that is
impressive, although it could still be improved. The Chesapeake Bay Foundation has issued a report on how
WMATA could enhance its joint development program entitled, "Building Healthier Neighborhoods with
Metrorail: Improving Joint Development Opportunities." The report identifies barriers that WMATA faces—
and which other transit agencies may face as well —and how better partnerships with local government and
new policies could improve opportunities for joint development.
access to valuable property that is near transit and in desirable
areas, and transit agencies, who are able to make more profitable
use of their real estate assets. Sale or lease of the property gener-
ates revenues for the transit system. Increased development near
transit centers enables more people to use transit for travel
between jobs, shops, and home. Finally, the public-private part-
nership that creates these transit-oriented development opportu-
nities can serve to demonstrate the viability and potential
profitability of smart growth projects for developers.
Public investment and plan-
ning and zoning changes
attracted private developers
back to "Downcity"
Providence, Rhode Island.
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GETTING TO SMART GROWTH
IO.
Incorporate by-right smart growth redevelopment into exist-
ing communities' masterplans.
Infill redevelopment projects usually face greater regulatory barri-
ers than do greenfield sites. This tendency is often a result of
more detailed regulatory systems put in place to protect existing
residents against any potential adverse effects of redevelopment.
While the underlying motives are good, these regulatory frame-
works often have the undesirable effect of preventing—or making
it difficult to build—smart growth. In many communities, for
example, the zoning code has evolved to a level that, if the current
buildings on a wonderful old commercial street were to burn
down, it would be illegal to rebuild them. These regulatory barri-
ers often make it nearly impossible to recreate the walkable,
mixed-use environments that once existed in many communities
across the country.
Local government can promote the revitalization of important
neighborhoods into smart growth communities by changing the
planning and zoning regulations in these areas so that compact,
walkable, mixed-use, transit-oriented projects can be built by
right. Such changes allow a developer to purchase the land know-
ing that zoning variances will not be required to build a smart
growth project because the community has approved this type of
PRACTICE TIP:
In Providence, Rhode Island, the city has used a master planning process to revitalize its old downtown retail district
known as Downcity. The planning process emphasized the educational and arts assets that exist in the area by creating
an arts and entertainment district that included housing and workspace for artists, students and retirees. An overlay
zone was created that designated streets as either "A" or "B" streets. On A streets regulations exist to preserve their
historical, architectural, and walkable qualities. The rules for B streets are more flexible, but require developers to get
approval for the height, shape, and location of the building on the lot. These regulations, along with complementary
investments in public infrastructure like sidewalks and streets, have resulted in a development renaissance downtown.9
development in advance. A number of tools, including area plans
and overlay zones, can be used to achieve this goal. By eliminating
uncertainty from the development equation and permitting this
development by right, the community is making a clear statement
that developers are welcome to help create smart growth.
See Chris Leinberger, Financing Progressive Development (Washington,
D.C.: Brookings Institution, 2001) for a thorough discussion on the eight-
een types of development that can be financed in today's system and the
obstacles for smart growth.
Mark Eppli and Charles Tu, Valuing the New Urbanism (Washington, DC.:
Urban Land Institute, 1999).
For more information on federal funding for smart growth see EPA's smart
growth Web page funding sources guide at
www.epa.gov/smartgrowth/funding.htm, as well as the Association of
Metropolitan Planning Organization's Redeveloping Brownfields with Federal
Transportation Funds at http://smartgrowth.org/pdf/brownfields_tea21 .pdf.
"Local Codes an Obstacle to Smart Growth," New Urban News,
January-February 2001, 1.
Robert Dunphy "Parking Strategies," Urban Land, 59, no. 10 (October
2000):78.
6 Ibid.
Michael Lewyn, "Why Sprawl is a Conservative Issue," Bulletin of Science,
Technology, and Society, 20, no. 4 (August 2000): 295-315.
The Chesapeake Bay Foundation's full report is available at www.savethe-
bay.cbf.org/resources/pubs/metrorail.pdf.
For more information on Downcity planning and Implementations see city
of Providence Department of Planning and Development, Downcity
Providence: Master Plan and Implementation Plan (Providence: 1994).
-------
Chapter Ten
Encourage Community and
Stake Holder Collaboration in
Development Decisions
Growth can create great places to live,
work, and play—if it responds to a com-
munity's own sense of how and where the com-
munity wants to grow. Articulating this vision,
however, can be a challenge because the vision
must reflect the needs of a wide range of stake-
holders and community members. The devel-
opment process allows for some of this input,
through periodic public hearings on planning
or zoning decisions, for example. While useful,
these opportunities are only a few of the many
ways in which the values and concerns of all
stakeholders in development can help shape a
community's plan for growth.
A key component of smart growth is to ensure
early and frequent involvement of all stake-
$MART GROWTH
NETWORK
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GETTING TO SMART GROWTH
PRACTICE TIP:
In 1999, Governor Ventura laid out Minnesota's framework for smart
growth in "Growing Smart in Minnesota." In response, Minnesota's state
legislature issued a number of mandates, which together form the basis of
the state's smart growth initiatives. Realizing the important role the state
can play in helping local governments carry out these initiatives,
Minnesota's Department of Planning and its local and state partners cre-
ated a guide for local governments. The guide incorporates the state's
goals and principles of smart growth. In addition, the Minnesota
Department of Planning has a Local Government Assistance Center with
staff who provide information and advice to local governments
on a number of issues, including how to fully engage the public
in the planning process. To receive a copy of the planning guide
or for more information about the Assistance Center see
www.mnplan.state.mn.us/commplan/index.html.
holders to identify and address
specific needs and concerns. The
range of these stakeholders is
broad and includes developers,
urban planners, transportation
engineers, conservation and
environmental groups, commu-
nity development advocates, his-
toric preservationists, com-
muters, students, environmental
justice advocates, senior citizen
organizations, children's advoca-
cy groups, churches, parent-
teacher associations, civic associ-
ations, and many others. Each is
capable of contributing a unique
and valuable perspective to both
broad community plans and
specific project designs. These perspectives are particularly criti-
cal for the construction of the mixed-use, compact, walkable, and
transit-rich communities that smart growth supports because
these varied perspectives may represent a departure from what is
conventional and familiar. The means of engaging the community
and stakeholders are myriad and range from early stakeholder
input in community plans to ongoing feedback and evaluation of
the plan's implementation as projects are constructed. Ensuring a
high level of public awareness is one of the most fundamental
strategies to guarantee that community needs and possible solu-
tions are fully considered. This strategy can help local leaders
better identify and support development that meets those needs.
This process can be time-consuming, frustrating, and expensive.
In many cases, involving the public is a contentious and even
messy process because of the diverse ideas and priorities among
stakeholders. However, it can also be a rewarding one as creative
solutions are found in the most troublesome problems. Moreover,
in the long run, community and stakeholder collaboration creates
a sound basis for creative, speedy resolution of development con-
flicts, which can help make development decisions more timely,
cost-effective, and predictable. Engaging stakeholders early and
often and sharing with them vital information about development
options will give them a greater understanding of the importance
of and challenges associated with good planning and investment.
Projects and plans developed without strong citizen involvement
will lack the community buy-in necessary for success and make it
more difficult to build support when tough decisions need to be
made. The following policies are designed to address some of the
barriers and constraints of community involvement.
I.
Seek technical assistance to develop a public participation
process.
Good information is critical to the smooth functioning of local
government, especially the planning process. While many local
governments may recognize the need for and value of engaging
the public in the decision-making process, governments may lack
the tools, information, or financial resources that will allow them
to do so. Numerous tools and information sources exist, howev-
er—often based on the experience of other communities and pub-
lic participation specialists—that can be used to help local govern-
ments develop the capacity and confidence to undertake an effec-
tive citizen participation process. Technical assistance may be
available from states, interest groups, nonprofit organizations, and
private sector consultants to help counties, cities, and towns craft
a strategy for stakeholder involvement. Local governments that
-------
ENCOURAGE COMMUNITY AND STAKEHOLDER COLLABORATION IN DEVELOMENT DECISIONS
lack the necessary financial resources may take advantage of the
capacity of local community groups or universities by engaging
them to assist with developing and implementing a public
involvement campaign for a specific project. For example, the city
of Eugene, Oregon, engaged faculty and students from the nearby
University of Oregon planning department to help them carry
out their widely successful "Eugene Decisions" process. As a
result, not only have the skills of local government staff improved,
but a wider range of stakeholders have been actively involved in
planning and development decisions about their community's
future.
2.
Use unconventional methods and forums to educate nontradi-
tional, as well as traditional, stakeholders about the develop-
ment and decision-making processes.
In order for a community to fully support a new initiative, all seg-
ments of the population need to be informed and educated on its
components. Similarly, citizens need information about possible
alternatives before they voice their choices or concerns. Often,
however, only a small portion of the community is engaged in the
decision-making process because of socioeconomic, language, or
education barriers. Involving a wide range of public voices at each
stage requires that local officials actively solicit and recruit diverse
components of the public. Doing so means identifying and
addressing barriers to full public participation.
Local governments should be creative in identifying and using
new methods for sharing information. Common methods for
reaching a broad audience might include placing meeting notices
in local papers, directing mail to individuals and groups who
express an interest in a project, leaving copies of documents in
public offices and libraries, handing out leaflets, or inserting
information into other community forums. To reach other audi-
ences, a local government might hold evening or weekend meet-
ings on specific issues, present updates at neighborhood meetings,
host design charrettes, distribute radio public service announce-
ments, or work with local clergy and community-assistance
groups. Often, lower-income communities feel less politically
empowered to participate. To reach these audiences, localities can
issue neighborhood notices or post notices in local newsletters
and local gathering spots such as post offices, popular shops, or
local farmers markets. Finally, to ensure full access, key informa-
tion on proposed development decisions should be translated into
the languages of area residents. Every community should develop
its own range of methods to reach as many individuals and seg-
ments of the community as possible. The community must reflect
its unique demographic makeup in the values it uses to frame the
planning process, and this can only be ensured if the cross section
of residents and their development priorities are well known.
3-
Conduct community visioning exercises to determine how and
where the neighborhood will grow.
Effective decision making about how regions will grow requires
considerable information gathering on the part of both profes-
sionals and citizen-stakeholders. For this reason, it is important to
use a number of visualization tools that allow for a greater under-
standing of the way planning decisions affect citizens. For exam-
ple, a computer simulation can depict radical changes in a
streetscape—such as the construction of new buildings or the
incorporation of transit infrastructure into existing roadways—in
just seconds. It can help create an image of what a proposed mul-
tifamily development would look like, thus enabling community
PRACTICE TIP:
In 1989, the city of Portland,
Oregon, began the work that led
to the adoption in December
1994 of a regional growth plan —
the Region 2040 Growth
Concept. Metro developed base
conditions and community values
that were then used to propose 3
potential alternative urban form
strategies for the region, from
which a preferred alternative
could be constructed. To engage
citizens in developing this alter-
native, a video outlining the
options and their impacts on the
region was developed and avail-
able to the public for no charge
through Blockbuster Video out-
lets, a chain of video rental
stores. As a result, the process
solicited more than 17,000 citi-
zen comments and suggestions,
which eventually led to the selec-
tion of an alternative that reflect-
ed public comment as well as
aspects of each of the alternative
scenarios provided.
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GETTING TO SMART GROWTH
members to determine its appropriateness based on specifics
rather than broad planning concepts such as "higher-density con-
struction." Alternative future scenarios can be used to model the
growth of a region over a specified time frame and can be gener-
ated in real time to respond to different variables suggested by a
live audience. This rapid response to concerns and ideas provides
facilitators with the tools to more quickly and efficiently reach
consensus for innovative plans. Other exercises might include
providing local residents an opportunity to vote, to comment on
several designs of a proposed
project, or to speak directly with
designers and architects
Increasingly, planning offices
and development consulting
firms use computer imaging to
engage citizens in planning
workshops. In Chattanooga,
Tennessee, after the East Gate
Mall failed, the community came
Developers engaged community
residents and neighborhood vendors
to address density and retail design
issues in Hisman Hin-Nu terrace in
Oakland, California.
together with strong ideas about future uses of the old shopping
center. Members of the community were tired of large, single-use
developments and wanted to see a village center that was consis-
tent with the scale of surrounding neighborhoods. Since it was
not feasible to redevelop the entire site at once, they were shown
a computer simulation of several distinct phases that would be
implemented over a span of years, according to market condi-
tions. This simulation enabled citizens to visualize how new
buildings would initially be sited in outlying parking areas, even-
tually replacing the mall itself. The community's vision formed
the basis for a plan that will guide development and that will radi-
cally change the look and feel of that community over the years to
come.
4-
Require communities to create public access to tax and lien
information on all properties to facilitate the rehabilitation of
distressed properties.
Community groups are better able to offer innovative solutions
about difficult development challenges when they have access to
information. However, neighborhood groups often have difficul-
ties obtaining the information they need to fight deterioration in
their own area. Efforts to find information about tax arrears and
outstanding liens on properties in disrepair or blight, or about
owners of abandoned or vacant properties, can be time-consum-
ing and difficult. Residents may be frustrated by efforts to access
this information that is kept in various computer banks or scat-
tered among different government agencies.
State and local governments can support the public information
process by providing better access to tax and lien arrears. Citizens
can then use this information to encourage owners to make need-
-------
ENCOURAGE COMMUNITY AND STAKEHOLDER COLLABORATION IN DEVELOMENT DECISIONS
ed repairs or sell their properties or to engage local authorities to
seize abandoned properties for revitalization. Local governments
can help the public be an active participant in strengthening its
own community by providing easy access to data by collecting
and assembling into one area data that would otherwise be scat-
tered. This can include making data available on computer sys-
PRACTICETIP:
In Chicago, the Center for Neighborhood Technology has developed the
Neighborhood Early Warning System (NEWS) that makes it easy to obtain
housing information that can be critical to the success of any sustainable
community development project. NEWS is an online inventory of property
in Chicago, which provides information that can help community groups and
city and county agencies identify sites of potential disinvestment and aban-
donment. For severely tax-delinquent buildings, NEWS makes data avail-
able for Chicago's Scavenger Sale and the County Treasurer's Annual Sale.
With NEWS, residents can respond proactively to troubled buildings and
neighborhoods. Because it is a Web-based system, NEWS can be easily
replicated in other areas, which allows localities to increase community
access to information. For more information, see www.newschicago.org.
terns that could be accessed online or through a computer located
in a central public building, such as city hall. Governments can
provide training for local groups on how to access and use the
data available. In addition to being more informed about the
development challenges communities and government face, this
approach also allows residents to more effectively act to prevent
commercial and residential abandonment and decline, which can
lead to additional financial disinvestment. In this way, residents
work with their governments to create more livable, vibrant com-
munities.
5-
Incorporate opinions and interests often and routinely into
the planning process.
There are numerous phases within the development process that
require public involvement, including the process of deciding
what to build, where to build, how to build, the constantly chang-
ing site plans, and the multiple phases of implementation. Many
of the policies in this section discuss mechanisms of public
involvement in the initial phases of development. However, the
involvement of the public after the decision has been made of
what to build is equally important to ensure that the project con-
forms to the original decision and design parameters during its
implementation. This citizen involvement is most effectively
done when there is a clear and consistent means of incorporating
public opinion on an ongoing basis into the development process.
The process may include an easy and convenient mechanism to
reach public decision makers or regularly scheduled (weekly or
monthly) public meetings with the developer. A number of other
communities use Web sites to increase the availability of informa-
tion about changes to a specific site design, for example. In this
way, the public can remain informed and engaged as the develop-
ment moves from design to construction and use.
Local jurisdictions can also formalize citizen input by institution-
alizing a citizen role in the process of reviewing development
decisions. Citizen involvement can be achieved through citizen
advisory and neighborhood councils. In general, advisory com-
mittees tend to attract individuals who are knowledgeable around
a specific type of project and who, over the course of that project,
PRACTICE TIP:
The Community Development
Department in the city of
Spokane, Washington recognizes
thirteen neighborhood groups in
areas primarily composed of low-
and moderate-income residents.
These neighborhoods receive a
portion of the city's Community
Development Block Grants to
make recommendations on proj-
ects to be funded in their respec-
tive neighborhoods. The neighbor-
hood groups support existing
projects, research and propose
new ones, and present their rec-
ommendations for approval.
Because they have been involved
in the decision-making process
and are familiar with their own
needs, the neighborhoods groups
are better prepared to participate
during the implementation stage
as well. They meet with the divi-
sions of city government that are
implementing projects, monitor
progress and timelines, and make
suggestions when new issues
arise.
-------
GETTING TO SMART GROWTH
rPRACTICE TIP:
David Goldberg of the Atlanta Journal Constitution identified the interest
of local citizens in stories on congestion and quality of life, but he noted a
lack of ability among many readers to connect these impacts to local plan-
ning and development decisions. By securing the commitment of editorial
staff, Goldberg was able to feature a regular weekly section on these
issues, which provided a context to explain how these effects were linked to
the development decisions that created them. This coverage provided an
important forum for Atlanta's residents to consider critical decisions on
regional transit, downtown revitalization, and a proposed outer beltway,
among others, in the years that followed. Tips on how to portray issues in
the media related to development and growth are available in Goldberg's
publication, Covering Urban Sprawl: Rethinking the American Dream,
available through www.rtnda.org/resources/sprawl/sprawl.html.
provide a neighborhood perspective and experience in their rec-
ommendations. Conversely, neighborhood councils are usually
institutionalized mechanisms for direct public involvement in
comprehensive planning and civic issues. Neighborhood council
can make recommendations on proposed development activities
and serve as the vehicle for citizen input for changes to the land
use plan, park plan, or other planning activities. Whether formal-
ized or not, providing a means for ongoing citizen participation in
decision making and project implementation creates a feeling of
ownership among community members and ensures higher-quali-
ty outputs as a result.
6.
Work with the media to disseminate planning and develop-
ment information on a consistent basis.
Traffic congestion, loss of open
space, and economic growth and
jobs are concerns that consis-
tently rank at the top of the list
of citizen concerns for their
communities. Although plan-
ning, smart growth, and growth
management issues are complex
and multifaceted issues that are
sometimes difficult to comprehend,
they have a profound effect on
these common problems. Often,
the public does not understand
how its everyday activities influ-
ence these conditions or how
planning or smart growth could relieve some of the problems and
improve quality of life.
All media outlets regularly feature stories on pertinent local and
regional topics. Localities can encourage newspapers, radio, or
local television to cover development and planning issues. The
greatest impact will be made when these issues are covered as a
regular column or through a series of recurring feature stories
that take the time to unravel the complex web of individual public
and private decisions and the cumulative changes in quality-of-life
that result. Not only do these information venues provide a means
for news outlets to cover issues that resonate with their audiences,
such venues also provide a means for local leaders to better
inform citizens on the impacts of pending development and infra-
structure decisions.
7-
Engage children through education and outreach.
As it is often said, today's children are tomorrow's leaders.
Engaging children often and early is critical for them to develop a
comprehensive understanding on how the built environment
impacts the natural one, and moreover, their quality of life. In
addition, many children "teach" their parents about new issues
and innovative solutions. To some degree, the success of recycling
can be attributed to children who learned about it in school,
brought it home, and created a demand by parents for curbside
recycling. Many schools now have some type of environmental
education program in their curriculum. Local governments and
school boards can work with teachers to expand these programs to
provide children the vocabulary and tools to understand how
development impacts the natural world and what they can do to
influence the development process. Once a better understanding
-------
ENCOURAGE COMMUNITY AND STAKEHOLDER COLLABORATION IN DEVELOMENT DECISIONS
has been developed of the links between development decisions
and quality of life, students will have a better sense of how to
build a community that meets the needs of its residents and will
be more inclined to engage in the process to implement that vision.
One of the most innovative programs that teach children about
the concepts of community planning is known as "Box City."1
This program provides a hands-on approach to community plan-
ning by allowing students to use milk cartons to make their own
buildings and to create their own communities. Program compo-
nents mirror the way real communities get built, through a mix of
collaboration, regulation, and entre-
preneurship. When the community is
built, the kids evaluate it and compare
the good and bad features with the
community in which they live. The
program aids students to better com-
prehend the built environment, why it
is important to them, and how they
can help shape it.
8.
Cultivate relationships with schools,
universities, and colleges.
Universities and colleges can be a great resource for localities for
intellectual capital and research assistance. At the same time, the
real-world process of local government decision making about
development provides an excellent opportunity for applied stu-
dent learning. Recognizing these shared benefits, many universi-
ties are able to assist local governments to address growth issues
through research and community-based
projects. Such opportunities provide plan-
ning and real estate students the chance to
assist on projects as interns, and provide
local government a way to expand its tempo-
rary work force to complete short-term
projects. Furthermore, the insight that pro-
fessors and instructors can provide as aca-
demic experts can enrich many local govern-
ment planning processes with original ideas
and perspectives.
For example, the University of Notre Dame School of
Architecture in South Bend, Indiana, has established a center
that employs the expertise of faculty and students to assist
developers and public officials on projects in that city.2 Another
such center, the National Center for Smart Growth Research
and Education at the University of Maryland in College Park,3
analyzes the impacts of alternative development patterns and
monitors and evaluates specific smart growth alternatives in
communities across Maryland and elsewhere. In addition, the
center conducts outreach
Children in Kansas City envision
changes to their community using sessions with developers,
Box City.
PRACTICE TIP:
In Liberty, Missouri, a Kansas
City suburb, a program demon-
strated how youth can contribute
to problem solving for community
transportation issues. Students in
the seventh grade surveyed sixth
grade students to determine cur-
rent modes and preferences for
getting to school. The results
showed that 77 percent of the
students would like to bike to
school, yet only 10 percent did so.
The students shared the results
with the local planning commis-
sion and pointed out that a lack
of sidewalks was one of the main
reasons that students were not
able to safely bike or walk to
school. They provided input on
how to improve city trails and
walkways. The planning commis-
sion was so impressed with the
information provided by the stu-
dents that a student is now a
member of the long-range plan-
ning committee.
-------
GETTING TO SMART GROWTH Community members were
engaged to help create a plan for
the reuse of a historic train station
in Evanston, Wyoming, as a com-
munity center.
local government officials, lenders, public health experts, and citi-
zen leaders to identify barriers to smart growth and solutions to
overcome them.
Bring developers and the development community into the
visioning process.
The vision of how and where a community wants to grow should
help resolve a number of key social, economic, transportation,
and growth considerations. The vision should represent the val-
ues of its residents of what the community should look like in the
future. In order to be successful, the vision should also represent
the input of an important stakeholder group: developers. As one
of the most critical groups for implementation, developers should
be engaged in the visioning process, not only in the plans to carry
out a specific project. Early engagement by developers can help
ensure that community plans are economically feasible and attrac-
tive enough to ensure active private-sector participation.
PRACTICE TIP:
The Urban Land Institute (U LI) in Washington, D.C., has an advisory service that offers expert advice to help commu-
nities find creative, practical solutions for the full range of land-use and development issues. Washington, D.C.'s
Department of Planning enlisted ULI to help redevelop Waterside Mall, an underutilized two-block stretch in the
southwest part of the city. A team of experts spent several days on site touring the study area, meeting and interview-
ing key people within the community, and preparing findings and recommendations. This process, which incorporated
community participation, helped build consensus for the recommendations that served as a blueprint for the plan
adopted. Over time, the area will be redeveloped into a town center with new restaurants, cafes and services that serve
nearby residents. In addition, the project will reconnect downtown with the waterfront and will provide additional
opportunities for commercial development or recreation. For more information on ULI's Advisory Services see
httpy/experts.uli.org/DI
-------
ENCOURAGE COMMUNITY AND STAKEHOLDER COLLABORATION IN DEVELOMENT DECISIONS
ronmental obstacles that the project may face because true buy-in
has been achieved.
Charrettes can be used to address a variety of needs, from reach-
ing consensus on long-term visions for town development to
finding workable agreements on single projects. They can identify
short-term and long-term problems and issues that are important
to residents and business leaders, as well as identify opportunities
and needs. Charrettes build both immediate and long-term solu-
tions, by outlining short-term steps as part of the work product.
They may offer implementation strategies and offer policies and
principles for future decision making and town development.
Brainstorming and negotiation during a charrette can change
minds and facilitate unexpected concepts or solutions to prob-
lems. As a result, the number and variety of solutions and ideas
generated and considered are far greater than those under con-
ventional planning methods, which would normally take months
to achieve.
PRACTICE TIP:
Jackson Hole, Wyoming, struggles with an affordable housing problem. To
address the area's need for more housing, Teton County (in which Jackson
Hole is situated) acquired a 329-acre parcel of land on which it plans to
build a new neighborhood that will include affordable housing. To ensure
that this new development meets the needs of the Jackson Hole community,
the design process is being guided by public input. In November 2001, a
design charrette was held to solicit public input that the county would use
to create specific ideas about the development for the public's approval. The
public was able to return to the charrette time and again during the course
of a week to see the project transformed and to see how its new ideas were
translated into the specific plans for development.
For more information on Box City, see www.cubekc.org/.
For more information see www.nd.edu/~arch/.
For further information see
www.inform.umd.edu/EdRes/Colleges/ARCH/URSP/Research/CSG/.
-------
-------
Conclusion
The range and breadth of policies that communities can use to
achieve vibrant, healthy, and diverse living environments go
well beyond the 100 identified here. Nevertheless, the framework
provided in this primer—using the ten smart growth principles as
broad community objectives and specifying detailed programs and
policies to achieve them—may provide a first step for communities
to move toward implementation. It is not uncommon for the
slightest change—even adoption of even a single policy—to be
met with resistance by some. It is incumbent upon communities,
therefore, to ensure that any new approach to development is one
that actively and equitably considers the needs of all those who
affect and are affected by development. The rationale for this new
smart growth approach must be well articulated and supported by
clear short- and long-term community goals that measurably
improve the community's quality of life.
As with all efforts, implementation of a broad smart growth strat-
egy as well as detailed policy changes should be evaluated periodi-
cally for effectiveness. Creating benchmarks for improved fiscal
efficiency in infrastructure and school spending, for example, can
be valuable management tools for local officials seeking to ensure
that smart growth efforts result in an improved bottom line.
Partnerships and diverse coalitions—such as that represented by
the Smart Growth Network itself—can also be effective tools for
identifying priorities and reaching consensus among members of
a community.
The route to achieving smart growth will be different in every
community, as will the outcomes. In every case, however, it is the
demand for the the economic, environmental and community
benefits that smart growth can provide, paired with a clear and
comprehensive approach towards achieving them, that will result
in successful smart growth implementation.
-------
GETTING TO SMART GROWTH
100 Policies for Implementation
State Local Mix land Take Create a range Create Foster distinctive Preserve open Strengthen and Provide a Make Encourage
uses advantage of housing walkable attractive space, farmland, direct variety of development community and
of compact opportunities communities communities with natural beauty, development transportation decisions stakeholder
building and choices a strong sense and critical towards existing choices predictable, collaboration
design of place environmental communities and cost in development
areas effective decisions
1 I. Mix land uses
i.
2.
3.
4.
5.
6.
7.
Provide incentives through state funds to encour-
age residents to live near where they work.
Adopt smart growth codes to parallel existing con-
ventional development codes.
Use innovative zoning tools to encourage mixed-use
communities and buildings.
Facilitate financing of mixed-use properties.
Zone areas by building type, not by use.
Use flex zoning to allow developers to easily supply
space in response to market demands.
Convert declining shopping malls and strip com-
mercial streets into mixed-use developments.
////// / / //
////// /
/////// /
/ / / / /
/ / / / / /
///// / / / /
8. Provide examples of mixed-use development at
scales that are appropriate to your community.
9. Create opportunities to retrofit single use commer-
cial and retail developments into walkable, mixed-
use communities.
10. Reward communities that create a balance
between jobs and housing.
1 II. Take advantage of compact building design
i.
2.
3.
4.
Use public meetings about development options to
educate community members on density and com-
pact building options.
Ensure ready access to open space in compactly-
developed places.
Encourage developers to reduce off-street surface
parking.
Match building scale to street type
in zoning and permit approval
processes.
/ V
/
/
/
' / / / / /
/ / / /
/ / / /
/
5. Establish model state-level design standards and
codes to encourage compact building design that
can be adopted by local communities.
6.
Use density bonuses to encourage developers to
increase floor-to-area ratio (FAR).
7. Ensure a sense of privacy through the design of
homes and yards.
-------
State Local Mix Land Take
uses advantage
of compact
building
design
Create a range
of housing
opportunities
and choices
Create
walkable
communities
Foster distinctive
attractive
communities with
a strong sense
of place
Preserve open
space, farmland,
natural beauty,
and critical
environmental
areas
Strengthen and
direct
development
towards existing
communities
Provide a
variety of
transportation
choices
Make
development
decisions
predictable,
and cost
effective
Encourage
community and
stakeholder
collaboration
in development
decisions
Employ a design review board to ensure that com-
pact buildings reflect desirable design standards.
Offer incentives that encourage local communities
to increase density.
10. Support regional planning efforts to encourage
compact communities.
III. Create a range of housing opportunities and choices
1. Enact an inclusionary zoning ordinance for new
housing developments.
2. Provide homebuyer assistance through support to
community land trusts.
3. Revise zoning and building codes to permit a wider
variety of housing types.
Plan and zone for affordable and manufactured
housing development in rural areas.
5. Educate developers of multi-family housing units
and nonprofits on the use of limited equity (or
equity restriction) components.
6. Educate realtors/ lenders/ and home buyers on the
use of resource-efficient mortgages.
7. Implement a program to identify and dispose of
vacant and abandoned buildings.
Adopt special rehabilitation building codes to reg-
ulate the renovation of existing structures.
Enlist local jurisdictions in implementing a region-
al fair-share housing allocation plan across metro-
politan areas.
10. Give priority to smart growth projects and
programs that foster smart growth in the allocation
of federal housing and community development
block grant (and other) funds.
Create walkable communities
,
1. Provide grants or other financial assistance to
local communities to retrofit existing streets and
sidewalks to promote more walkable communities.
2. Concentrate critical services near homes, jobs, and
transit.
3. Require building design that makes commercial
areas more walkable.
Adopt design standards for streets that ensure
safety and mobility for pedestrian and non-motor-
ized modes of transport.
5. Adopt design standards for sidewalks.
-------
State Local Mix Land Take
uses advantage
of compact
building
design
Create a range
of housing
opportunities
and choices
Create
walkable
communities
Foster distinctive
attractive
communities with
a strong sense
of place
Preserve open
space, farmland,
natural beauty,
and critical
environmental
areas
Strengthen and
direct
development
towards existing
communities
Provide a
variety of
transportation
choices
Make
development
decisions
predictable,
and cost
effective
Encourage
community and
stakeholder
collaboration
in development
decisions
6. Require traffic-calming techniques where traffic
speed through residential and urban neighbor-
hoods is excessive.
7.
Beautify and maintain existing and future walk-
ways.
Provide Americans with disabilities easy access to
sidewalks/ streets/ parks, and other public and pri-
vate services.
9. Connect walkways, parking lots, greenways, and
developments.
10. Identify economic opportunities that stimulate
pedestrian activity.
V. Foster distinctive, attractive communities with a strong sense of place
1. Modify state funding processes and school siting
standards to preserve neighborhood schools and
build new schools to a "community level."
2. Create a state tax credit to encourage adaptive
reuse of historic or architecturally significant
buildings.
3. Plant trees throughout communities, and preserve
existing trees during new construction.
4. Create active and secure open spaces.
5. Simplify and expedite permitting regulations to
allow vendors to offer sidewalk service.
6. Create special improvement districts for focused
investment.
7. Define communities and neighborhoods with visual
cues.
8. Preserve scenic vistas through the appropriate
location of telecommunication towers, and
improved control of billboards.
9. Create opportunities for community interaction.
10. Enact clear design guidelines so that streets, buildings,
and public spaces work together to create a sense of place.
Preserve open space, farmland, natural beauty, and critical environmental areas
1. Use TDRs, PDRs and other market mechanisms to
conserve private lands.
2. Coordinate and link local, state, and federal plan-
ning on land conservation and development.
3. Expand use of innovative financing tools to facili-
tate open space acquisition and preservation.
4. Employ regional development strategies that bet-
ter protect and preserve open space in edge areas.
-------
State Local Mix Land Take
uses advantage
of compact
building
design
Create a range Create
of housing walkable
opportunities communities
and choices
Foster distinctive
attractive
communities with
a strong sense
of place
Preserve open
space, farmland,
natural beauty,
and critical
environmental
areas
Strengthen and
direct
development
towards existing
communities
Provide a
variety of
transportation
choices
Make
development
decisions
predictable,
and cost
effective
Encourage
community and
stakeholder
collaboration
in development
decisions
5. Adopt a green infrastructure plan. / / / / /
6. Create a network of trails and greenways.
/ /
/
/
/
/
7. Design and implement an information-gathering
and education program.
8. Design and implement zoning tools that preserve
open space.
9. Provide mechanisms for preserving working lands.
10. Partner with nongovernmental organizations to
acquire and protect land.
VII. Strengthen and direct development towards existing communities
Strengthen the state or local brownfields program.
»
2. Adopt a "fix-it-first" policy that sets priorities
for upgrading existing facilities.
3. Institute regional tax base sharing to
limit regional competition and to support
schools and infrastructure throughout
the region.
4.
Use the split-rate property tax to encourage devel-
opment on vacant or blighted pieces of land in
existing communities.
Locate civic buildings in existing communities
rather than in greenfield areas.
6. Conduct an "infill checkup" to evaluate and priori-
tize infill and brownfield sites for redevelopment.
7. Facilitate programs to encourage home renovation
and rehabilitation in existing neighborhoods.
Support community-based organizations involved
in revitalizing neighborhoods.
9. Create economic incentives for businesses and
home owners to locate in areas with existing infra-
structure.
10. Modify average cost-pricing practices in utilities to
better account for costs of expanding infrastructure
in greenfield areas.
VIII. Provide a variety of transportation choices
1. Finance and provide incentives for multimodal
transportation systems that include supportive
land use and development.
2. Modify roadway level-of-service standards in
areas served by transit.
3. Plan and permit road networks of neighborhood
scaled streets (generally two or four lanes) with
high levels of connectivity and short blocks.
-------
State Local
Mix Land
uses
Take
advantage
Create a range Create
of housing walkable
of compact opportunities
building and choices
design
communities
Foster distinctive
attractive
communities with
a strong sense
of place
Preserve open Strengthen and
space, farmland, direct
natural beauty, development
and critical
environmental
areas
Provide a
variety of
Make Encourage
development community and
towards existing
communities
transportation decisions
choices
stakeholder
predictable, collaboration
and cost in development
effective decisions
4. Connect transportation modes to one another.
5. Zone for concentrated activity centers around
transit service.
6. Require sidewalks in all new developments.
7. Address parking needs and opportunities.
Collaborate with employers and provide informa-
tion and incentives for programs to minimize or
decrease rush-hour congestion impacts.
Adjust existing transit services to take full advan-
tage of transit supportive neighborhoods and
developments.
10. Cluster freight facilities near ports, airports,
and rail terminals.
Make development decisions predictable, fair, and cost effective
Provide financial incentives to aid the development
of smart growth projects.
Conduct smart growth audits.
3. Implement a process to expedite plan and permit
approval for smart growth projects.
4. Engage political support for improved coordina-
tion on approval of smart growth projects.
5. Use a point-based evaluation system to encourage
smart growth projects.
6. Remove parking from the development equation
through public-private partnerships to build com-
munity parking facilities.
7.
Encourage demand for smart growth though con-
sumer incentives.
Display zoning regulations and design goals in pic-
torial fashion to better illustrate development goals.
9. Maximize the value of transit agency property
through joint development of transit-oriented
development.
10. Incorporate by-right smart growth redevelopment
into existing communities7 masterplans.
Encourage community and stakeholder collaboration in development decisions
1. Seek technical assistance to develop a public par-
ticipation process.
2. Use unconventional methods and forums to edu-
cate non-traditional/ as well as traditional/ stake-
holders about the development and decision-mak-
ing processes.
-
-------
State Local Mix Land Take Create a range Create Foster distinctive Preserve open Strengthen and Provide a Make Encourage
uses advantage of housing walkable attractive space, farmland, direct variety of development community and
of compact opportunities neighborhoods communities with natural beauty, development transportation decisions stakeholder
building and choices a strong sense and critical towards existing choices predictable, collaboration
design of place environmental communities and cost in development
areas effective decisions
3.
4.
5.
6.
7.
8.
9.
10.
Conduct community visioning exercises to deter-
mine how and where the neighborhood will grow.
Require communities to create public access to
tax and lien information on all properties to facili-
tate the rehabilitation of distressed properties.
Incorporate opinions and interests often and roun-
tinely into the planning process.
Work with the media to disseminate planning and
development information on a consistent basis.
Engage children through education and outreach.
Cultivate relationships with schools, universities,
and colleges.
Bring developers and the development community
into the visioning process.
Hold a design charrette to resolve problematic
development decisions.
/ /
/
/ /
/ /
/ / /
/ / /
/ /
/ /
-------
GETTING TO SMART GROWTH
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GETTING TO SMART GROWTH
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List of Acronyms
ADA - Americans with Disabilities Act
ADU - Accessory dwelling unit
AHS- American Housing Survey (part of the U.S. census)
APA - American Planning Association
CalPERS - California Public Employees' Retirement System
CBO - Community-based organization
CDBG - Community Development Block Grant (a HUD pro-
gram)
CDC - Community Development Corporation
CLT - Community Land Trust
DOT - Department of Transportation (also referred to as U.S.
DOT)
EPA - Environmental Protection Agency (also referred to as U.S.
EPA)
FAR - Floor-to-area ratio
FHWA - Federal Highway Administration (part of DOT)
GIS - Geographic information system
HIP - Housing Incentive Program
HUD - Department of Housing and Urban Development
ICMA - International City/County Management Association
ITE - Institute of Transportation Engineers
LOGS - Land development guidance system
LEM - Location Efficient Mortgage5*1
MPDU - Moderately priced dwelling unit
MPO - Metropolitan planning organization
NCDOT - North Carolina Department of Transportation
NEWS - Neighborhood early warning system
NJTPA - North Jersey Transportation Planning Authority, Inc.
PACE - Purchase of agricultural conservation easements
PDR - Purchase of development rights
PUD - Planned unit development
TDR - Transfer of development rights
TEA-21 - Transportation Equity Act for the 21st Century
TOD - Transit-oriented development
TPL - Trust for Public Land
ULI - Urban Land Institute
USDA - Department of Agriculture
VMT - Vehicle miles traveled
WMATA - Washington Metropolitan Area Transit Authority
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International
City/County
SMART GROWTH
NETWORK icma.org
http://smartgrowth.org
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