Item 10A (3)City of Southlake
S* ZOO Department of Planning
Moscow
MEMORANDUM
February 14, 2002
TO: Honorable Mayor and City Council
FROM: Bruce C. Payne, AICP
Planning Director
SUBJECT: Comprehensive Plan Update — Southlake 2025 Plan
Action Requested: Adoption of the outlined process for the update of the Comprehensive
Master Plan as the Southlake 2025 Plan. This action would combine the
update of the key elements of the City's Master Plan — the Land Use Plan
and the Thoroughfare Plan. The adopted process recognizes that the
update of the Comprehensive Master Plan should be coordinated with
other existing components and may recommend new components to
adequately address the challenge of growth in Southlake.
Background: The City of Southlake has consistently used its Master Comprehensive
Plan components - Land Use Plan and the Thoroughfare Plan, to guide the
growth of the City. The City Charter (Section 11.06) requires that the
components of the City's Master Plan be updated every four (4) years.
The City's current Land Use and Thoroughfare Plans were updated in
1998 and 1997 respectively. Staff is recommending the update of the
City's Master Plan to meet the requirements of the City Charter
provisions.
A City's comprehensive plan is a critical document in guiding not just
quality and timing of the physical development of the city, but also help
decision makers in prioritizing public investments on infrastructure and
utilities.
The Land Use — Transportation Connection
There is a significant relationship between land use and transportation
decisions. The location of existing and future development has a strong
influence on the demand on our transportation systems in terms of
highway capacity, traffic flow, traffic distribution, transit use, and
pedestrian facilities.
Similarly, changes in transportation facilities such as new highways,
capacity increases on existing roadways, and the design of such facilities
affects both the accessibility to land uses and the type of development that
the transportation facility attracts. Because of this relationship, it is
important to plan for both land use and transportation simultaneously.
Southlake 2025 Plan Steering Committee
In order to gain community wide involvement and build cooperation
among different groups of stakeholders in the community, it is
recommended that a 15 member Southlake 2025 Plan Steering Committee
be appointed by City Council. The Steering Committee shall have the
responsibility of undertaking and overseeing all aspects of the Southlake
2025 Plan processes. Representatives from existing city boards and
commissions, SPIN, Chamber of Commerce, educational and religious
institutions, major employers, and other groups are suggested. Besides
representing an array of interests and perspectives, Committee members
should be persons who:
• Have the time to participate and work
Work well with others and in groups
Are truly committed to making Southlake a better place.
In order to build coalitions and community -wide support and build a
feedback loop in the process, staff recommends that a minimum of two
Planning and Zoning Commissioners and two City Council members be
on the Steering Committee. The Steering Committee could be appointed
through an application and selection process by City Council to ensure
representation from diverse interests.
Advantages of the Southlake 2025 Plan Steering Committee
The appointment of a Steering Committee for the sole purpose of
overseeing the Comprehensive Plan process, while retaining Planning &
Zoning Commission's advisory role to City Council has several
advantages:
After an initial broad based community input, the Steering Committee
shall work through all details of the plan in intense work sessions over
a period of 12 - 15 months, with regular status updates to P&Z and
City Council. The final recommendations developed by the Steering
Committee will be presented to the P&Z for recommendation prior to
City Council public hearing and adoption. This process ensures a
thorough review of the plan by a wide cross section of the City before
it is brought before City Council.
2. The P&Z meets twice a month and has a fairly busy schedule of
reviewing and making recommendations on development projects in
the city. Adoption of a separate Steering Committee with more
frequent meeting schedules will ensure the timely completion of the
Southlake 2025 Plan without affecting review and approval of routine
development proposals in the city.
The staggered term limits of P&Z members may hinder continuity of
Southlake 2025 Plan process. Hence, using an independent Steering
Committee with the same members throughout the process will
maintain continuity and streamline the planning process.
4. The Steering Committee shall be composed of at least 15 persons,
which increases the probability of meetings being better attended. Its
composition shall be large enough to be as broad based as possible in
representing both business and community interests.
5. The size and diverse interests of the Steering Committee lends itself to
the creation of sub -committees at different stages to work through
different topics of the plan in a more time efficient manner.
Southlake 2025 Plan Process
The update of the City's Comprehensive Master Plan is envisioned as a
two phased process. The first phase is the Vision, Goals, and Objectives
phase and the second phase is the Plan Elements phase. Phase 1 shall
involve a substantial broad based, public visioning and participation
process. This phase shall entail several community forums, workshops,
surveys, and charrettes.
The attached flow chart and outline of the Southlake 2025 Plan Process
identify and describe the major phases and processes involved in the
update of the City's Comprehensive Plan (Southlake 2025 Plan). The
process as recommended by staff maximizes staff role in collecting
background information and facilitating Steering Committee meetings
while recommending the use of consultants for key portions of the
process.
Staff recommends that City Council review and approve the process for
completing the Southlake 2025 Plan, the City's Comprehensive Master
Plan update and appoint a 15 member Steering Committee to formulate
the Plan. While the attached flow chart and outline are by no means to be
adhered to strictly, they shall, however, act as a general guide to formulate
the Southlake 2025 Plan.
Attachments: Southlake 2025 Plan Process Flow Chart
Southlake 2025 Plan Outline
Southlake 2025 Plan - Comprehensive Plan Update
Process Flow Chart
Appointment by City
Council
Steering Committee
PHASE
Vision, Goals, & Objectives
Visioning Process
Surveys
Affinity Groups
tlonsultant
Issue & Topic
taff Team
Identification
Draft Community
Vision Statement
Topic Groups
Topic Areas to include:
Land Use
Mobility
Community Appearance
w/ Consultant and Design
& Staff Team Economy
Housing
Environment
Open Space
Community Facilities &
Infrastructure
Other
Build Scenarios
Develop Build Scenarios
w/ Con:T:e
ltant Policy Alternatives
& Staffam Build Scenario Analysis
Policy Debates & Analysis
Establish preferred Build
(Growth) Scenario
Vision, Goals, & Objectives
w/ Staff Team Finalize Community Vision
w/ S�t.ffTea n
Finalize Goals & Objectives
for Topic Areas Identified
vv/ Consultant\' _I SPIN Public Forum
& Staff Team ^�
Steering Committee
Recommendation
on Vision, Goals, & Objectives
P & Z Commission Recommendation
on Vision, Goals, & Objectives
City Council Adoption of
Vision, Goals, & Objectives
Phase I -Vision, Goals, & Objectives
Phase II - Plan Elements
City Council
Appointment by City
Initiation of Planning Manager
Process
Presentation to include:
LUP/Mobility Plan -
Comprehensive Plan Approach
Formation of Steering
Committee
Adoption of the Planning Staff Team
Process
Background Information `
Data Collection
Economic market analysis (w/
Input for Visioning Process consultant)
City budget analysis (w/ Finance)
Community Information Forums.,
PHASE II
Plan Elements
Sub -Committee Formulation
Steering Committee to form sub-
committees to develop Plan
Elements
Develop Plan Elements
Plan Elements to include:
Land Use & Community
Form
Mobility
Economy
Livability
Community Facilities
Other
Plan Elements to include Strategies,
Action Plans, Maps & Graphics to
implement Vision, Goals, and
Objectives for each Topic Area
SPIN Public Forum
T_
Steering Committee
E
mendation on Plan Elements
P & Z Commission
Recommendation on Plan Elements
City Council Adoption of
Plan Elements
w/ Staff Team
w/ Staff Team
Flow Chart Key
Staff Team Tasks
Steering Committee Tasks
P & Z Commission Action
City Council Decision
Last updated on February 14, 2002
a Comprehensive an?
lishes a vision and goals for the future
h and change of the city
Long-range (20 years) master plan that guides
the physical development of the city
Statement of principles and policies that guide
public and private decision making in the future
lake's Current
ive Plan
Land Use Plan
Parks, Recreation and Open
Space Master Plan
Master Thoroughfare Plan Water and Wastewater Plan
tation of the
ensive Plan
Subdivision Regulations
• Other City Ordinances (Tree Preservation,
Drainage, Stormwater Management, etc.)
• City's Capital Improvement Program (CIP)
• Other City Policies & Programs
d Use - Transportation
Connection
ocation of existing and future development
as a strong influence on the demand on
ur transportation systems
Changes in transportation facilities and the design
of such facilities affects both the accessibility to
land uses and the type of development that the
transportation facility attracts
Ad
lake 2025 Plan
ring Committee
FrRecommend that City Council appoint a 15 member
Southlake 2025 Plan Steering Committee with the
primary task of drafting the Southlake 2025 Plan
• Recommend a minimum of 2 representatives from
City Council & Planning & Zoning Commission
• Recommend representatives from other city boards &
commissions, SPIN, Chamber of Commerce, educational
and religious institutions, major employers, and other
stakeholders
• Committee members should be persons who:
• Have the time to participate
• Work well with others and in groups
Are truly committed to making Southlake
abetter place.
lbs of Using an
Steering Committee
na a ommen ations will recommended by both
e Steering Committee & P&Z prior to City Council
P&Z has a busy schedule for reviewing current
development proposals in the City
Representation on the Steering Committee will be
broad based to include P&Z, City Council, other city
boards, and other stakeholders
lbs of Using an
Steering Committee
3gge term limits of P&Z members may hinder
ntinuity of Southlake 2025 Plan process
Its composition shall be large enough to increase the
probability of meetings being better attended
• Size and diverse interests of the Steering Committee
lend themselves to the creation of sub -committees
at different stages to work through different topics
of the plan in a more time efficient manner
Phase I - Vision, Goals, & Objectives
• Background Data Collection
• Community Visioning
• Build Scenario Analysis
• Vision, Goals, & Objectives
• Phase II - Plan Elements
• Land Use & Community Form
• Mobility
• Livability & Environment
• Community Facilities
• Economy
• Other
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LAND USE PLAN
11
y which
ommunity envisions t
iture it wants, and plans
ow to achieve it.
Through public
involvement, communities
Identify their purpose, core
values and vision of the
future
Vision is then transformed
into a manageable and
feasible set of community
goals and action plan .
'► -
Visioning Important?
Public participation should be the
cornerstone of a successful plan
M
Meaningful early involvement during _ 4
each stage of the process is key
..onsultant becomes the facilitator ands
ompiler of resulting public dialogue
91uu
Citizens will take ownership of the a. - fl Oo� �
resulting vision and help in its ultimate ~'
adoption and implementation1i k _
(Public participation will include
surveys, visioning workshops, mini-
charrettes, neighborhood meetings,^�
visual preference surveys, and other a
tools
Analyses
- Market Sector Analysis
- Market Responsiveness
- Market Realty of Existing
Land Use
-Alternative Build Scenario
Analyses
- Revenue & Level of Service
Estimates
lake 2025 Plan
H - Plan Elements
an Elements shall comprise of principles, policies,
id implementation strategies directing growth and
range for each topic area such as:
• Land use and community form
• Mobility
• Livability/environment
• Community Facilities
• Marketplace/Economy
• Other
Each Plan Element, whether completed in concert
with this process or separately, shall conform
to the adopted Vision, Goals, and Objectives.
F
The Comprehensive plan is the community's vision for
0he future of the city
It forms the basis for all the regulations and standards
established
A visionary plan would establish Southlake as a
progressive community that both retains and
enhances the unique qualities that make it a great
place to live, work, and play
• Finally, meaningful public participation is critical to the
plan's successful adoption and implementation
Southlake 2025 Plan Outline
Purpose:
• Southlake Plan 2025 shall establish an overall vision and set of goals for the long-term development of
the City. It shall translate the vision and goals of Southlake's citizenry, property owners, and elected
officials into meaningful actions to benefit the city.
• The Plan shall guide the use of land and protection of the City's natural resources. It shall encourage
economic development while enhancing the unique character of the City's neighborhoods.
• Southlake Plan 2025 shall consolidate the ideas and direction of many other planning documents which
have been adopted over time that make up the city's comprehensive plan. (Land use plan,
Thoroughfare plan, Parks and Open space master plan, Trail Master plan, Storm water plan, Corridor
Master plan, etc.) It shall consolidate what has worked well in the past with new ideas from the city
residents. It shall also serve as a framework to integrate and coordinate new plans and policies as
they are prepared and adopted.
• The Plan shall incorporate long-range statement of principles and policies for all plan elements. A
"principle" is a "general or fundamental rule, direction, doctrine, or assumption". A "policy" is "a definite
course or method of action selected to guide and determine present and future decisions."
• The Plan shall describe the steps the city will take to protect public health and safety, to provide
services efficiently and effectively, and to provide the quality of life that the citizens of Southlake
expect.
• The Plan shall use public participation as its cornerstone and provide a forum for opportunities and
concerns voiced by the community
• It shall guide both public and private decision -making in building a better future for the citizens of
Southlake and the generations to follow. It can help prioritize the City's capital improvements in the
face of limited resources.
• The Plan is intended to be long range, with a 23 year planning horizon with updates every four years as
mandated by City Charter.
Process
Since the comprehensive plan is a community's vision, goals, and strategies for the future growth and
development of the City, true public participation is the cornerstone of a successful plan. This
participation has to happen at the beginning and not at the adoption (public hearing) stage. Each step in
the comprehensive plan stage may require different public participation tools. It is important to match the
participation tool with what we want to achieve at that stage of the comprehensive plan.
The update of the City's Comprehensive Master Plan — Southlake 2025 Plan is envisioned as a two phased
process. The first phase is the Vision, Goals, and Objectives phase and the second phase is the Plan
Elements phase. Phase 1 shall involve a substantial broad based, public visioning and participation
process.
Southlake 2025 Plan Outline 1 Attachment 2
Phase 1— Vision, Goals, & Objectives
Background:
• Data Collection: includes demographic, land use, transportation, etc. Sources that can be
used are the 2000 Census, other market research, field surveys for current land use, etc.
• Mapping includes base maps, current land use, transportation (roads, sidewalks, trails, etc.),
community facilities, census information (population distribution, density, etc), open space &
parks, and other features.
• Community survey — to gather general community input that will help staff in designing the
process and content of public presentations and meetings. This will also give general direction
to staff on the issues that the citizens of Southlake consider important and help tailor the
process to address them.
Community Vision, Goals and Objectives:
• Represents an imagined future in which citizens will be able to identify Southlake as an
enjoyable, one -of -a -kind city. A qualified consultant team shall facilitate the community input
required to develop the vision, goals, and objectives.
• Emphasis on public participation, not only at the beginning stages, but throughout the entire
planning process.
• Shall establish core community value, and overall vision, and broad planning goals for the next
23 years — to the year 2025
• Shall help define a picture of the community that will be true over time, if the Plan is successful
• Is essential in creating a successful, sustainable community. The Southlake 2025 Plan should
be based on that community vision to be accepted and implemented.
• Vision shall be based on the community's values that provide a firm foundation upon which to
build a better future for the citizens of Southlake and the generations to follow. They are
shared interests that the community can realize together.
• Community Goals: shall clarify the vision further. The goals shall be beginning points for many
other efforts and the end toward which effort will be directed — they shall form the "concept
plan" for the future of the city. Goals shall not be used to evaluate individual land development
proposals. The goals shall be general in nature to allow some flexibility in ways to achieve
them.
Build Scenario Analyses:
In order to evaluate the options for the future growth of the city, different build scenarios will be
analyzed with exhibits showing how the patterns of development could be applied in the city. A
qualified consultant team will assist the Steering Committee and staff with this process. The
scenarios will identify physical form for the community together with potential implications on
transportation, land use, environment, urban design, and city services. Most importantly, the
build scenario analyses shall include a preliminary fiscal analysis and service level impact of
key sets of policy options derived from citizen input and Steering Committee deliberations.
Fiscal impact analyses are useful when they are a part of a broadly focused policy framework
discussion. The key is to help the Steering Committee establish a sustainable direction for the
City's future from both fiscal and quality of life standpoints.
Southlake 2025 Plan Outline 2 Attachment 2
Phase II — Plan Elements
After approval of the Vision, Goals, and Objectives, the citizens of Southlake will have established the
overarching principles and key goals for the future of the community. This can direct the development
of the Plan Elements — the individual plan documents for Land Use, Mobility, Community Facilities,
Livability, Economy, and other identified topics. Plan Elements shall include strategies, action plans,
maps, and graphics that implement the Vision, Goals, and Objectives for each topic area identified by
the community.
To facilitate this process, staff shall work with sub -committees of the original steering to develop the
individual elements of the Southlake 2025 Plan. Each sub -committee shall work on deriving a set of
strategies and action plans to implement the adopted vision, goals, principles, and policies using a
variety of public participation tools.
Components of Plan Elements
Plan Elements shall comprise of principles, policies, and implementation strategies directing growth
and change for each topic area such as:
• Land use and community form
• Mobility
• Livability/environment
• Community Facilities
• Marketplace/Economy
Each Plan Element, whether completed in concert with this process or separately, shall conform to the
adopted Vision, Goals, and Objectives.
Emphasis on Land Use and Community Form
Land use planning in Southlake has been progressive in its attention to quality of development through
the use of overlay district regulations and residential adjacency standards. This has reiterated the
importance of the creation of community — how to plan to bring people together in livable
neighborhoods, each with a unique sense of place. Community form, a new paradigm in planning, can
be critical in creating "true places" and resolving compatibility issues among adjoining land uses using
urban design standards and guidelines.
Typical Arterial Street
Arterial Street with Streetscape & Pedestrian Improvements
and Urban Design Standards
Southlake 2025 Plan Outline 3 Attachment 2
Emphasis on Mobility and Thoroughfare Planning
Increasingly, transportation is more about getting people most efficiently to their destinations instead of
just moving cars. National, state, and local agencies are recognizing the importance of treating our
transportation systems as networks to get people from the places in which they live to shopping, work,
schools, recreation facilities through a variety of modes of transportation, including walking, biking, or
transit.
In an era where air quality and traffic congestion are affecting the quality of life in our communities, it is
important to proactively plan our roadway networks with alternative transportation modes. Not only
should the planning process integrate different modes of transportation, emphasis should also be
placed on the design quality of our thoroughfares and residential streets alike to improve safety and
livability of our streets. Moving cars is balanced against other desired qualities of the street, such as its
value as an "address", its retail friendliness, and its role as a premiere public space of the community.
Conventional highway overpass built to DOT standards
Highway overpass with urban design and pedestrian
improvements.
Southlake 2025 Plan Outline 4 Attachment 2