Creating An Implementable Comprehensive Plan
Creating anImplementableComprehensivePlanWorkbook and ReferenceVersion 1.1August 27, 2012
PA DCED Planning Team 2008Standing: Joy Wilhelm, Denny Puko,Cindy CampbellSitting: Kim Wheeler, Ron Bednar,Ed LeClearIn 2008, the team of planners at the Pennsylvania Department of Communityand Economic Development assessed the impact of local comprehensiveplans prepared with DCED funding. They plotted ways plans can be morepractical and lead to desired development and community improvements –i.e., get implemented! Those ideas evolved to become this workbook andtraining course.Workbook and training course prepared by:Governor’s Center for Local Government ServicesPennsylvania Department of Community and Economic Development4th Floor Commonwealth Keystone BuildingHarrisburg, PA 17120-0225888-223-6837www.newpa.comWorkbook – Creating an Implementable Comprehensive Plan
ContentsTable of contentsIntroduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1Instructors. 2Agenda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3Think differently about planning . . . . . . . . . . . . . . . . . . . . . . . . 4What others say . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8Five keys for an implementable plan . . . . . . . . . . . . . . . . . . . . 11Plans using the implementable plan approach . . . . . . . . . . . . . . 25Case studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37Overcoming obstacles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40Workbook – Creating an Implementable Comprehensive Plan
Workbook – Creating an Implementable Comprehensive Plan
IntroductionCourse objectiveTo stimulate thoughts and change perceptions on the comprehensiveplanning process in Pennsylvania so that plans lead to desireddevelopment and community improvements – i.e., so they getimplemented!DescriptionThe course will suggest a different philosophical approach forcomprehensive plans with an aim towards implementation. It willcover various methods and practices – the content and organization ofthe plan, and the process and participants used to prepare it – thatmake a difference in a plan being implemented. It will present fivekeys for creating an implementable plan. And, it will present researchon successful plans, and case studies that have used the aboveapproach.Who’s behind the courseWorkbook – Creating an Implementable Comprehensive PlanPage 1
InstructorsDenny PukoPA DCED Center for Local Government Services, Suite 250, 301 Fifth Avenue,Pittsburgh, PA, 15222, dpuko@pa.gov, 412-770-1660Denny Puko is planning program manager for the Governor's Center for LocalGovernment Services, PA Department of Community and EconomicDevelopment. He directed completion of the 2010 State Land Use and GrowthManagement Report which made recommendations for improving planning andpromoting green and walkable development in PA. Since joining DCED in 2004he has helped upwards of 50 local planning efforts.Denny prior worked 27 years in county planning, most recently as executivedirector of the Mercer County Regional Planning Commission. MCRPC is auniquely organized joint municipal-county planning commission recognized forits cooperative, community-based, and partnership-oriented planning programs.Puko taught a planning course at Thiel College (1999-2006) and has developedand instructed several planning training courses. In 2004 he received aGovernor's Award for Local Government Excellence. Denny has a B.S. inUrban/Regional Planning from Indiana University of Pennsylvania.Jim PashekPashek Associates, 619 East Ohio Street, Pittsburgh, PA, 15212,jpashek@pashekla.com, 412-321-6362Jim Pashek is president of Pashek Associates, a community planning andlandscape architectural firm located in Pittsburgh with offices in Mercer Countyand the Harrisburg area. Jim obtained a BSLA from Penn State University, andan MBA from the University of Pittsburgh. Pashek Associates is respected fortheir excellence in Planning and Design. His firm has received numerous awards,including top planning awards from APA-PA and prestigious Governor's Awardsfor Local Government Excellence in innovative planning.As part of the Central European Linkages Program, Jim crossed the ocean to workon community visioning with residents in small villages in the Czech Republic.He has been a frequent lecturer and contributor to professional magazines. Heprovided training twice a year to local elected officials on the benefits of goodcomprehensive planning through the Local Government Academy. In the spirit ofgiving, and to encourage others to contribute to the environment and theircommunities, Jim and his colleagues recently established an endowed PSUScholarship for students interested in environmental planning.Workbook – Creating an Implementable Comprehensive PlanPage 2
AgendaWelcomeIntroductionsThink differently about planning – Denny PukoResearch and expert views – Characteristics of good andimplementable plans – Denny PukoFive keys for an implementable plan – Denny PukoBreakCase studies – Plans using the implementable planapproach – Jim PashekCase studies – Other PA plans being successfullyimplemented . . . and why – Denny PukoOvercoming obstacles – GroupClosingWorkbook – Creating an Implementable Comprehensive PlanPage 3
Think differently aboutplanningComprehensive planimplementationComprehensive plan influenceon the communityImplementationTaking action to undertake recommendations of theplan.Using plan principles or policies to guidedevelopment, infrastructure, etc. on a routine basis.Community improvements are taking place as aresult of their initiation or boost via the plan.Measures of success of acomprehensive planQuestion:What are reasons comprehensive plans do not get implemented?Workbook – Creating an Implementable Comprehensive PlanPage 4
Planning is not just a toolfor controlling land use anddevelopmentVision for the future.Reality check – problems, needs,opportunities.Best ideas to improve a communityand get desired growth &development.Mobilize people and resources –start in action – Implement.How do planners changethis perception?Planning is part of a continuumProblemsNeedsOpportunitiesProblems getting solvedNeeds being metOpportunities pursuedComprehensive planCommunity isdissatisfied,restless,concerned forthe futureCommunity is takingaction, moving in newdirections, makingimprovements, achieving itsvisionDiscoverAdaptImplementWorkbook – Creating an Implementable Comprehensive PlanAnalyzeDecidePage 5
Planning is aboutCHANGE & INNOVATIONMain Event Principle Unless things change.Innovation – Is it. Doing things better? Doing better things?PA Municipalities Planning Code isan enabling law Gives local governments powers andprocedures for planning, zoning,S&LD. Enables local governments to createplanning commissions, departments,staff. Provides broad authority (interspersedwith some limitations). Not a comprehensive plan template.It’s not your father’s planning.You’ve come a long way, baby.Smart growthVillage of Euclid, Ohio v.Ambler Realty Co.,United States Supreme Court(1926)Value of place(quality built and naturalenvironment, place-based assets)Functional integrationWorkbook – Creating an Implementable Comprehensive PlanPage 6
Bottom line:To create an implementable comprehensive plan,implementation – not preparation – of a comprehensive planmust be the target, the end.The planning process and planners must acceptaccountability for this!TraditionInnovationPreparing a comprehensiveplan is a worthy goal.Improving your community is aworthy goal. Preparing acomprehensive plan is a means tothat goal.A comprehensive plan is aguide to decisions to be madeand actions to be taken afterthe plan is completed.A comprehensive plan is a recordmemorializing decisions madeand actions committed to andinitiated during a planningprocess.Workbook – Creating an Implementable Comprehensive PlanPage 7
What others sayCharacteristics of plan quality that serve as evaluationcriteria for good planningPhilip Berke & David Godschalk, University of North Carolina. “Searchingfor the Good Plan”. Journal of Planning Literature (February 2009).Internal characteristics Issue identification &visionAssessment of issues, trends,needs, and opportunities. Visionof what community wants to be. GoalsReflections of public values anddesired conditions. Fact baseAnalysis of current and futureconditions and explanation ofreasoning. Maps and tables thatenhance relevance. PoliciesSpecification of principles toguide public and privatedecisions. Sufficiently specificto be tied to definite actions. ImplementationCommitments to carry outpolicy-driven actions withtimelines, responsible parties,and financing. Monitoring and evaluationMeasurable objectives andtrackable indicators.Assignments made formonitoring. Internal consistencyIssues, vision, goals, policies,and implementation are mutuallyreinforcing.Workbook – Creating an Implementable Comprehensive PlanExternal characteristics Organization andpresentationPlan is understandable for a widerange of readers. Executivesummary; glossary; crossreferencing of issues, goals, andpolicies; clear maps, charts, andimages; supporting video, CD,web page. InterorganizationalcoordinationIntegration with other plans ofpublic and private parties.Vertical and horizontalcoordination. ComplianceConsistent with plan mandatesfrom enabling legislation.Page 8
Ten questions to be cognizant of in order to create animplementable planMichael Chandler, Professor and Community Planning Extension Specialist,Virginia Tech. “Preparing an Implementable Comprehensive Plan”.Planning Commissioners Journal (Spring 1995). Is the plan realistic?Is the plan comprehensive?Is the plan specific?Is the plan linked withrelated functions? Does the plan link publicand private interests? Is the plan citizen-focused? Is the plan understandable? Is the plan problem- andsolution-specific? Is the plan change-specific? Is the plan current?Citizen and stakeholder involvement is a key to animplementable planRichard Burby, University of North Carolina at Chapel Hill. “Making Plansthat Matter, Citizen Involvement and Government Action”. Journal of theAmerican Planning Association (Winter 2003). “Evidence from 60 plan-making processes in the states of Florida andWashington indicates that with greater stakeholder involvement,comprehensive plans are stronger, and proposals made in plans aremore likely to be implemented.” “.stakeholder advocacy is the critical factor in moving ideas forwardfrom proposals made in plans to actual actions undertake bygovernments.” “With broad participation in plan making, planners develop strongerplans, reduce the potential for latent groups who oppose proposedpolicies to unexpectedly emerge at the last moment, and increase thepotential for achieving some degree of consensus among affectedinterests.”Workbook – Creating an Implementable Comprehensive PlanPage 9
Common characteristics of Pennsylvania award winningplansDenny Puko, Awards Committee Chairperson,PA Chapter American Planning Association Efficient in words, minimal jargon Use of accepted publication layoutprinciples Ideas illustrated by drawings, photos &simulations Findings related to real issues, withdetailed recommendations Inclusion of ready-to-use samples of tools& practicesWorkbook – Creating an Implementable Comprehensive PlanBest &Brightest inPennsylvaniaPlanningPage 10
Five keys for animplementable plan1Focus the plan on real,relevant community issuesSuggestions & ideas A plan should be preceded by an assessment of community issues(problems to be solved, needs to be addressed, opportunities to bepursued) which the plan should address. The work scope should go beyond the “conventional formula” andcall for consultant attention to these issues, and lead to selection of aconsultant most capable of addressing these issues. As the plan is underway, confirm or revise the assessment of issues,and make those a priority for detailed attention in the plan process. Avoid costly generation of information/data not of particularrelevance. Focus on “discoveries” and “performance indicators” and“intelligence”, not encyclopedic tabulations of data.Workbook – Creating an Implementable Comprehensive PlanPage 11
Tools for pre-planning assessment of community issuesSWOTStrengths, Weaknesses, Opportunities, and ThreatsPESTELPolitical, Economic, Social (including demographic, cultural),Technological, Environmental, and Legal factorsCommunity functions and systemsLand and land use, housing, transportation, utilities,environment, history, recreation, safety services, human andhealth services, etc.Community sectorsNeighborhoods, downtown, commercial corridors, industrialareas, agricultural areas, natural areas, etc.Community assetsInfrastructure and services, economy drivers, “place” amenities,housing, cultural/recreational activities and entertainment,schools, and other local features or resources that are integral toquality of life and attracting investment.Some combination of the aboveWorksheets (Appendix 7), A Handbook on Community Visioning,The Center for Rural eports/visioning3.pdfWorkbook – Creating an Implementable Comprehensive PlanPage 12
Five keys for animplementable plan2Organize the plan the way localofficials and citizens thinkSuggestions & ideas Plan document should be organized around issues instead of aroundfunctional chapters. This is how people think. We have a problem.Here’s the data to substantiate it. Here are the best ideas to solve theproblem. And, here are the steps, who should carry them out, andhow will we pay for them. (It is a misconception that the PA MPC orDCED require comprehensive plans to have segregated chapters forobjectives, land use, housing, etc.) Meetings with consultant and steering committee, elected officials,public, etc. should be organized around issues instead of functionalchapters. And, such meetings should be work sessions not reviews ofdraft chapters. Be efficient in words, avoid jargon, and use accepted publicationlayout practices.Workbook – Creating an Implementable Comprehensive PlanPage 13
Comprehensive plan content and organizationMPC templateImplementablecomprehensive planBackground studies & dataCommunity visionStatement of communitydevelopment objectivesPriority issue #1 Data that substantiates &validates the issue Objective(s) Ideas, recommendedsolution Action plan – actions,needed investments/capitalimprovements, neededregulations, estimated costs,responsible parties,financing planLand use planHousing planTransportation planCommunity facilities planNatural & historic resourcesprotection planStatement of interrelationships ofplan elementsStatement of consistency ofdevelopment with neighboringmunicipalitiesPriority issues #2, #3, etc. Same content as #1Overall land use and developmenttargets, livability and designconsiderations, and infrastructureand community improvementsBackfill data and planning toensure MPC requirements are metWorkbook – Creating an Implementable Comprehensive PlanPage 14
Prioritize!How do you eat an elephant? One bite at a time.Establish priorities for your community’s goals,using a 1-5 scale for importance, visibility,“doablility”, budget availability, or other criteria.This will cut down on the inertia that can resultfrom the task of plan implementation appearing tobe so large that no one knows where to start.Jim Segedy, Ph.D., FAICP andLisa Hollingsworth-Segedy, AICPWorkbook – Creating an Implementable Comprehensive PlanPage 15
Five keys for animplementable plan3Devise practical and workablerecommendationsSuggestions & ideas Plan recommendations – at least the priority 3-5-10 of them – shouldinclude depth and detail – specific action steps, responsible parties,estimated costs and means of financing – to provoke implementation. Plans should provide fewer recommendations with practical depth anddetail instead of more general recommendations. Plans should use “non-traditional” but practical tools – marketanalysis to support land use and development recommendations,visualizations and concept drawings to help convey designrecommendations, pro-forma analysis to support fiscal workability ofrecommendations, and public involvement techniques, beyondmeetings, that reach all ages.Workbook – Creating an Implementable Comprehensive PlanPage 16
Have a specific action plan“Revitalize downtown” may be one of theprimary goals in your general plan. But whatdoes that mean? Who should be involved? Whatresources are available?A specific action plan will turn a broad goal into aseries of tasks that are more easily understood andundertaken. Think about it this way: the goals inyour plan are “what to do,” and the action plan isthe “how to do it.” For each goal, your actionplan should specify the steps that will be taken, inwhat order, by whom, and with what resources.Make the steps small and measurable. You canpresent these steps in either a list or a table, butmake sure to link the action plan you spell out tothe specific goal that they address. We like toinclude check boxes for each step, so that whenthey’re complete, they can be checked off.Jim Segedy, Ph.D., FAICP andLisa Hollingsworth-Segedy, AICPWorkbook – Creating an Implementable Comprehensive PlanPage 17
Review:An actual budget from a DCED planning grant.WORK ELEMENTSLUPTAPFUNDSLOCALCASHLOCAL INKINDTOTALPhase I – Identification of Planning Issuesand Development of goals and Objectives 2,500.00 2,500.00Phase II – Background Studies 9,000.00 4,000.00Phase III – Plan Recommendations 2,000.00 2,000.00 4,000.00Project Implementation 1,000.00 1,000.00 2,000.00Printing (P) 250.00 250.00 500.00Community Meeting (CM) 250.00 250.00 500.00 15,000.00 10,000.00TOTAL PLANNING 5,000.00 5,000.00 5,000.00 18,000.00 30,000.00RFPs and work scopes should be better at specifying creationof an implementable plan. How?Workbook – Creating an Implementable Comprehensive PlanPage 18
Five keys for animplementable plan4Recruit partners and createcapacity to implement the planSuggestions & ideas Recruit organizations and individuals with expertise and capacity.Involve them in development of the recommendations and actionplanning. Ask them to take responsibilities and be partners inimplementation. Match each others’ needs and assets. Create animplementation team. Plan process should identify and start implementation of early actionsteps, even before the plan is finished and adopted. There should be a “coordinator” –individual like a municipalmanager, organization like a municipal planning commission, or apartners team – to facilitate implementation. The planning process should not be considered finished until astructure and capacity for implementation is in place.Workbook – Creating an Implementable Comprehensive PlanPage 19
ElectedofficialsCommunityleadersCitizensPlan advocatesImplementation capacitySources of plan partners and team membersPlanning CommissionLocal Development AgencyMunicipal AuthorityEcumenical GroupsChamber of CommerceNeighborhood AssociationsMinority AdvocatesCounty OfficialsFair Housing AdvocatesUniversity FacultyTransit BoardAg AssociationsOlder TeensSportsmen ClubsLabor & Trade UnionsImmigrant GroupsPort AuthorityConservation GroupsUtilitiesState OfficialsDesign ProfessionalsElected OfficialsRedevelopment AuthorityHousing AuthorityBuilders AssociationBusiness Improvement DistrictLand TrustsReal Estate CommunityMunicipal RepresentativesSchool BoardMedical CommunityCharitable OrganizationsLarge BusinessesSenior Citizen Centers“Secret” SocietiesHistorical SocietiesTeachersCaptains GuildLocally Significant IndustriesResidentsFederal OfficialsBankers/Financial ProfessionalsWork
Workbook – Creating an Implementable Comprehensive Plan Page 11 Focus the plan on real, relevant community issues Suggestions & ideas A plan should be preceded by an assessment of community issues (problems to be solved, needs to be addressed, opportunities to be pursued) which the plan should address.
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