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Much of the material found in this lecture was adapted from, and is discussed in more detail in Tools of the Trade (DLCD, 1996).

 

The main problems with development inside urban growth boundaries (UGBs) include:

• Development at lower than planned densities
• Dispersed development in urbanizable areas
• Inconsistent system development charges, impact fees, and exactions across jurisdictions
• Overburdened public facilities and development in areas lacking the full range of urban services
• Development designs that discourage future infill or redevelopment at higher intensities
• A lack of infill and redevelopment in older urban areas

The causes of these problems include:

• The fragmented system of decision-making authority inside UGBs
• The lack of minimum standards applied to urban services on a regional basis
• Insufficient funds for public facility investment
• Insufficient coordination between urban service providers and land use planners
• Inflexible and often counterproductive development regulations

Broad Growth Management Strategies and Specific Problems

Strategy	Specific Problems
Land Use Strategies	Development is occurring at less than planned densities Dispersed development inside the UGB Inefficient land uses inside urban areas Smaller scale development is not resulting in coherent communities Neighborhood opposition to higher density development Difficulty in transitioning from rural to suburban to urban levels of development
Public Facilities Techniques	Dispersed development patterns make it costly to provide services Inadequate levels of service at the time of development Inconsistent levels of service across a region System Development Charges (SDCs) and exactions are inconsistently applied
Inter-governmental Agreements	Fragmented decision-making authority is resulting in conflicting decisions by neighboring jurisdictions Lack of coordination between urban service providers leads to duplication of services, service gaps, and costly service extensions

Source: Tools of the Trade, Oregon Dept. of Land Conservation & Development, Oregon Dept. of Transportation, Transportation & Growth Management Program.

Selected UGM Tools

UGM Policy Tool	Description
Land Use Strategies
Infill and redevelopment strategies	Identify and implement policies that (1) improve market opportunities, and (2) reduce impediments to development in areas suitable for infill or redevelopment.
Minimum density zoning	Amend plans and zoning ordinances to include minimum as well as maximum allowable densities.
Specific development plans	Work with land owners, developers, and neighbors to develop a detailed site plan for development of an area. Allow streamlined approval for projects consistent with the plan.
Interim development standards	Apply policies and standards that preserve opportunities for future infill development at planned densities.
Transportation-efficient land use strategies	Review and amend comprehensive plans to encourage patterns of land development that encourage pedestrian, bike, and transit travel.

Intergovernmental Agreements
Urban growth management agreements	Identify a lead jurisdiction for growth management inside urban growth areas. The agreements define lead responsibility for planning, zoning, and urban service extension within these areas.
Urban service agreements	Identify who - city, county, special district - will provide each urban service, determine the future service areas for each provider, and assign various roles and responsibilities.

Public Facilities Techniques
Regional urban service standards	Adopt minimum standards for urban services in developing areas of a region; require designs that facilitate future integration into the urban system.
Adequate public facilities requirements	Require provision of adequate levels of public services (e.g., roads, sewer, water, drainage, parks) as a condition of development.
Focused public investment plans	Focus public investments in specific areas; make developers responsible for providing those services outside the investment areas.
Annexation plans	Identify areas to annex for voter approval, timing of annexation, needed urban services and effects of annexation on current service providers.

Source: Tools of the Trade, Oregon Dept. of Land Conservation & Development, Oregon Dept. of Transportation, Transportation & Growth Management Program.

 

Land Use Strategies

• Infill and redevelopment strategies
• Minimum density zoning
• Specific development plans
• Interim development standards
• Transportation-efficient land-use strategies

Infill and redevelopment strategies

Generally try to get vacant or underdeveloped land to develop...

The strategies fall into three categories:

• Change regulations to reduce barriers and provide incentives for infill and redevelopment
• Reduce costs to developers
• Improve the market for higher density development

Potential Infill Strategies

• Update inventory of sites
• Eliminate zoning restrictions
• Streamline approval process
• Reduce permit fees and SDCs
• Upgrade urban services
• Assist with financing improvements
• Create neighborhood support
• Tax abatements or other incentives

Minimum density zoning

Minimum density zoning (MDZ) ensures that development occurs at densities that are consistent with comprehensive plans.

Minimum density zoning is potentially useful in most residential areas, such as:

• Areas dominated by single-family, detached residential development.
• Areas zoned for multiple-family development.
• Areas targeted for future growth. Initially, urbanizable areas often develop at low densities.

Implementation of minimum density zoning requires:

• Analysis of actual development densities.
• Amendments to the comprehensive plan.
• Amendments to zoning ordinances.
• Zone Changes.

MDZ regulations are likely to:

• Encourage more efficient use of developable lands.
• Encourage more efficient use of services.
• Reduce obstacles to higher density development.
• Change development designs.

Issues to consider when thinking about adopting minimum density zoning:

• Setting the level of minimum density..
• Choosing where to apply minimum density zoning.
• Tying minimum density requirements to other growth management policies.
• Building political commitment.

Sample Minimum Density Standards

	Units per Acre
Zone	Maximum Density	Minimum Density
SFR	8	5
MFR	15	8

 

Specific development plans

Specific development plans, or specific plans, describe in more detail the type of development planned for a specific area than is typically found in a comprehensive plan, zone map, or public-facilities plan.

Some of the characteristics included in specific development plans are:

• Designation of site specific land uses
• Design standards for the area that may vary from the zoning ordinance
• Detailed description of public facilities
• A consensus-based development process

How do Specific Development Plans Differ From Comprehensive Plans

• Indicate uses of each site
• Provide design standards
• Describe, in detail public facilites and financing needed to serve area
• Involve greater cooperation between public and private sector

Advantages of Specific Development Plans

• Achieve neighborhood identity
• Coordinate development of multiple properties
• Achieve diversity, mixed use, and transportation-efficient objectives
• Ensure appropriate urban services are provided
• Provide for "fast track" development approvals
• Foster public/private partnerships

Potential impacts of specific plans include:

• More cohesive development of an area.
• Encourage certain types of development. Efficient patterns
• Provide more certainty to the developer and the community.

Issues to consider when using specific development plans:

• The level of coordination required.
• Will the plan work?
• A consensus-based approach.
• What is the role of government?
• Specific plans are more likely to work in the presence of other policies.

Interim development standards

Interim development standards are intended to facilitate future development of fringe areas at planned densities.

Implementing interim development standards may require amending subdivision codes, zoning maps and ordinances. It also may require changes to the comprehensive plan and public facilities plans.

Interim development standards are expected to have the following effects:

• Maintain large blocks of developable land.
• Reduce barriers to future redevelopment.
• Increase the amount of development that is at planned densities or fully-served by public facilities.

Several issues should be considered when implementing interim development standards:

Setting standards. Reasonable minimum standards for residential development could include:

• Restrict development to one housing unit per 20 acres
• Require shadow plats. For development on larger lots (greater than 5 acres), all buildings and driveways should be located to permit future development
• Require property owners to sign an agreement in which they promise not to object to future annexation

Choosing where to apply the standards.

Coordinating interim development standards with other UGM policies.

Transportation-efficient land-use strategies

This tool focuses on a review of existing comprehensive plan policies with the goal of addressing the connection between land use and transportation.

Most plans probably reflect a more conventional view of planning, which is:

• To separate land uses and limit densities in an effort to limit negative impacts
• To guide the public facilities investment needed to serve low-density land development patterns

Such a process would include:

Identifying the characteristics of transportation-efficient land uses.

• Reviewing comprehensive plan policies and zoning ordinances.
• Revising comprehensive plan policies. This involves two difficult steps:

1. Identifying desirable development patterns
2. Developing a strategy to achieve those patterns.

Potential Strategies:

• Encourage neighborhood shops and parks
• Reduce street widths and setbacks
• Allow mixed housing types and land uses
• Encourage transit-supportive development
• Provide interconnected, pedestrian- scale street network
• Enhance civic spaces and centers

Issues to consider are:

• The need for public outreach to address concerns.
• Coordinate policies between jurisdictions.
• Strive for incremental improvements.

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March 25, 2000