1. Comprehensive Planning 101
2005 Region IV Conference
Atlanta, GA
Helene Merkel, Program Manager
Horne Engineering

2. Background
Unchecked growth and development represent a loss of training and testing capability
GAO reported that nearly 80% of the nation’s military bases are experiencing growth around their fence lines at rates higher than the national average.
DoD has implemented a number of initiatives to counter the effects of encroachment and to ensure compatible land uses

3. Background (cont.)
Will require installations and surrounding communities to think strategically about growth
Will also require installation personnel to become more involved in local land use planning decisions.

4. Workshop Format Planning Authority
Overview of Comprehensive Planning Process
General or Comprehensive Plan
Area Master Plans and Small Area Plans
Functional Plans
Plan implementation (zoning and development review)
Public participation
Examples of DoD Initiatives
Army Compatible Use Buffer Program
Marine Corps’ Encroachment Mitigation Planning
Nature Conservancy’s Consideration of Off-Base Conditions in Installation Master Planning

5. Planning Authority The Standard State Zoning Enabling Act
Developed by an advisory committee on zoning appointed by Secretary of Commerce (and later President) Herbert Hoover in 1921
GPO published the first printed edition in May 1924, and a revised edition in 1926
The Standard City Planning Enabling Act
A preliminary edition was released in March 1927
Final version was published in 1928.

6. Standard State Zoning Enabling Act
A grant of power
A provision that the legislative body could divide the local government’s territory into districts
A statement of purpose for the zoning regulations
Procedures for establishing and amending zoning regulations
A legislative body was required to establish a zoning commission

7. Standard City Planning Enabling Act
Covered six areas:
Organization and power of the planning commission
Content of the master plan
Provision for adoption of master street plan by the governing body
Provision for approval of all public improvements by the planning commission
Control of private subdivision of land
Provision of establishment of a regional planning commission and regional plan

8. Jurisdictions’ Planning Authority
Rests with the state’s enabling legislation
Maryland’s Enabling Legislation:
“The making of the general plan, including its parts, amendment, extensions, or additions, the protection of and the carrying out of the plan, and the exercise of all planning, platting, zoning, subdivision control, and all other powers granted in this title …shall be with the purposes guided and accomplishing a coordinated, comprehensive, adjusted, and systematic development of the regional district, the coordination and adjustment of this development with public and private development of other parts of the State of Maryland and of the District of Columbia, and the protection of the health, safety, morals, comfort, and welfare of the inhabitants of the regional district.”

9. The General or Comprehensive Plan
Primary official public policy document guiding a jurisdiction’s physical development
Addresses timely and orderly provision of needed public utilities, facilities, and services.
Contains goals, concepts, guidelines, and proposals for:
Environment and Energy
Land Use and Economic Development
Housing and Neighborhoods
Historic Preservation
Transportation and Public Facilities
Utilities

10. The General or Comprehensive Plan (cont)
Detailed recommendations concerning specific parcels of land or public facilities are not discussed
Detailed recommendations are presented at the next level of planning:
Area master plans
Small area plans
Functional plans
Recommendations contained in the above plans must be consistent with the policy guidelines set forth by the General Plan

11. Area Master Plans
For planning purposes, a county or local jurisdiction divides itself into subregions, which are further divided into planning areas
Each planning area is a fairly cohesive district that is typically bounded by a major highway, political boundary, and/or natural border such as a stream valley.
Area master plans may be prepared for an individual planning area, group of planning areas, or entire subregions.

12. Area Master Plans (cont.)
Consists of a plan map along with supporting data, text, and other maps
Provides specific recommendations on:
Environment
Historic Preservation
Living Areas and Housing
Commercial Areas
Urban Design
Circulation and Transportation (including highways and mass transit)
Neighborhood Revitalization (where appropriate)
Public Facilities

13. Area Master Plans (cont.)
Addresses the adequacy of public facilities
Land use proposals are analyzed for the impact on schools, police, fire, rescue, libraries, health, parks, and trails
Presents recommendations to correct any deficiencies of these public services and assets
A study is undertaken of the balance between the proposed land uses and the proposed transportation system.
This prevents the overzoning of an area with high traffic-generating uses.

14. Area Master Plans (cont.)
Planned land uses in the master plan become the basis for decisions on where new schools, fire stations, and other public facilities are needed in the future.
Area master plans are also used to guide decisions on zoning change, special exception, and subdivision applications.
Area master plans are used as the basis for comprehensive re-zoning.

15. Small Area Plans Master plan for an area smaller than a planning area
Typically occurs due to a special situation
Another type of small area plan is the sector plan
Often involves a specific land use evaluation for a portion of major corridors or economically-viable focus areas such as town centers or highway intersections

16. Functional Plans
Plans that comprehensively cover a specific topic for the entire county or jurisdiction
Functional plans are prepared for such topics as:
Housing
Parks, recreation, and open space
Transportation
Historic preservation
Schools
Trails
Public safety

17. Plan Implementation
Zoning
Development Review

18. Zoning
The legal power of government to regulate the use of private property for the purpose of protecting:
Public health
Safety
Welfare
One of the police powers of a state
Usually delegated and exercised by the City or County Council

19. Zoning (cont.) Link between planning and zoning is critical
Zoning ordinance is usually part of the jurisdiction’s code
Zoning ordinance does the following:
Describes the various zones
Lists the uses permitted in each zone
Specifies density
Sets forth the procedures to change the zones
Establishes standards for the location of structures, building heights, setback, and other area requirements

20. Zoning (cont.)
Zoning categories allow residential, commercial, or industrial uses at varying densities (e.g., RA, RR, RT, etc.)
Some adopted zones permit a mix of compatible land uses subject to certain standards
Two types of zones:
Conventional (Euclidean)
Floating

21. Conventional Zoning Conventional zones fall into three categories:
Residential
Commercial
Industrial
Permitted land uses and densities are specifically listed
Each land use is permitted subject to strict requirements regarding:
Lot size
Lot coverage
Street frontage
Building setbacks
Height limits

22. Conventional Zoning (cont.)
Residential Zones
Residential zones cover all types of residential development from single-family detached to high-rise apartments
Densities can range from a maximum of 1 dwelling per 20 acres to 48+ dwelling units per acre
Commercial Zones
Commercial zones provide for developments which is either predominantly retail, office or service-commercial in nature
Specialized commercial zones provide for upscale regional malls or small neighborhood shopping centers

23. Conventional Zoning (cont.)
Industrial Zones
Provides for both light and heavy industrial areas
Also provides for planned employment parks in campus-like settings
Includes two specialized industrial zones

24. Floating Zones
Purpose of this zone is to encourage creativity of design and permit specialized land development
The number of uses allowed is quite broad, but proposals are subject to in-depth review process
Certain development regulations (lot size and coverage, etc.) are not specified and are established in the review process
Examples include:
Comprehensive design zone
Mixed use/planned community zone
Overlay zone

25. Rezoning Zoning Map Amendments Sectional Map Amendments
Requested by a property owner for a single parcel of land
A determination must be made that:
There has either been a substantial change in the character of the neighborhood
A mistake was made either in the original zoning or the most recent sectional map amendment
Sectional Map Amendments
Also known as comprehensive rezoning
All of the zoning within a geographic area is examined
Result is a new zoning map for the subject area

26. Special Exceptions
Zoning ordinance permits certain uses that would not otherwise be allowed in a particular zone
Uses which may be allowed by special exception are listed in the zoning ordinance on a zone-by-zone basis
Special exception applications may be considered only for those uses listed as an allowable special exception under that zone

27. Variances
A mechanism to obtain relief from the strict application of zoning ordinance requirements
Building height
Building setback
Yard requirements
Variances are appropriate in situations where strict conformance would result in unusual practical difficulties or undue hardship

28. Departures
Grants relief from the strict application of zoning ordinance requirements
Examples include:
Design of parking and loading facilities
Number of parking and loading spaces required
Sign regulations
Landscaping, buffering, and screening requirements

29. Nonconforming Uses and Structures
Land uses and structures in existence that do not meet the current requirements of the zoning ordinance
Nonconforming uses and structures are considered to be “grandfathered”
Any alteration, enlargement, extension, or reconstruction of a nonconforming use requires approval by special exception

30. Development Review Subdivision Site Plan Review Preliminary plat
Cluster preliminary plat
Final plats
Record plats
Site Plan Review

31. Site Plan Review Some developments require site plan review
Triggered by a zoning ordinance requirement attached to a particular zone, or use
May also be required as a condition of preliminary plats, special exception, or zoning map amendment
Process involves in-depth review of the site plan and is based primarily on design issues:
Buffering
Landscaping
Grading
Architecture

32. Site Plan Review (cont.)
Plan must conform to design guidelines stipulated in the zoning ordinance
Guidelines are performance standards for:
Design of parking, loading, and circulation
Lighting
Views
Green area
Site and street amenities
Grading
Service areas
Public spaces
Architecture (in some cases)

33. Site Plan Review (cont.)
Public hearing is required
Properties are posted with a sign advertising the hearing
All adjacent property owners are notified by mail
Any interested person may speak on the proposal at the hearing
Two types of site plans
Conceptual site plan
Detailed site plan

34. Conceptual Site Plan Shows basic relationships among the proposed uses
Illustrates approximate locations of structures, parking areas, streets, site access, open space, and other major physical features
May be somewhat detailed or may depict large areas connected with arrows and other graphic symbols
Conceptual plans must be approved before a preliminary plat of subdivision may be approved

35. Detailed Site Plans
Detailed site plans show the specific location and design of all buildings and structures, streets, parking lots, open spaces, landscaping, grading, and other physical features.
Detailed site plans must conform to site design guidelines and preceding conceptual site plan
Building permit cannot be issued until detailed site plan has been approved

36. Detailed Site Plans (cont.)
Detailed site plan for infrastructure is also required and shows the following:
Grading
Stormwater management
Tree conservation areas (if required by the jurisdiction)
Sediment and erosion control
Utilities (e.g., water and sewer)
Allows applicant to go forward with grading and making infrastructure improvements

37. Growth Management Local Regional State Fundamental Planning Tools
Adequate Public Facilities
Rural and Natural Areas Preservation
Urban Revitalization
Regional
State
Open Space Protection
Smart Growth

38. Local Growth Management
Fundamental Planning Tools
Comprehensive Plan
Zoning
Subdivision Regulations
Capital Improvement Plan
Adequate Public Facilities (APF)
APF Ordinances
Conditional Use Permitting
Conditional Zoning
Land Use and Utility Coordination
Impact Fees
Targeted Development Areas

39. Local Growth Management (cont.)
Rural and Natural Areas Preservation
Conservation Easements
Transfer of Development Rights (TDRs)
Purchase of Development Rights (PDRs)
Land Assessment and Taxation Program
Urban Revitalization
Enterprise Zones
Empowerment Zones
Density Incentives

40. Regional Growth Management
Most regional agencies only have advisory powers
Address regional initiatives and issues
Planning
Transportation
Housing
Environment

41. State Growth Management
Open Space Protection
Use state funds to purchase properties
States’ Farmland Preservation Programs
State Land Conservation Programs
Smart Growth
Urban Revitalization
Focused Growth and Development

42. Public Participation General Plan Master Plan Functional Plans
Public Hearings
Rezoning
Special exceptions
Variances
Site Plan Review