City Planning for Civil Engineers, Environmental Engineers, and Surveyors

© 2010 by Taylor & Francis Group, LLC

© 2010 by Taylor & Francis Group, LLC

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CRC Press is an imprint of the

Taylor & Francis Group, an informa business

Boca Raton London New York

Kurt W. Bauer, PE, RLS, AICP

© 2010 by Taylor & Francis Group, LLC

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CRC Press

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© 2010 by Taylor & Francis Group, LLC

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v

Contents

Scope of the Book..................................................................................................xv

Preface.................................................................................................................. xvii

Acknowledgments .............................................................................................. xix

About the Author................................................................................................ xxi

1 Introduction.....................................................................................................1

2 Definition of Terminology............................................................................3

Introduction......................................................................................................3

Definition of the Term City.............................................................................3

The City as an Economic Entity................................................................4

Exchange..................................................................................................5

Manufacturing........................................................................................5

Extraction.................................................................................................5

Government ............................................................................................5

Education and Religion .........................................................................6

Recreation and Health...........................................................................6

Quantitative Measures of Economic Functions......................................6

Employment Structure ..........................................................................6

Industrial Structure ...............................................................................7

Economic Base ........................................................................................7

The City as a Social Organism..................................................................7

Population Characteristics ....................................................................8

Institutional Structure ...........................................................................8

Value System ...........................................................................................8

Social Stratification.................................................................................9

Power Structure......................................................................................9

Ecological Patterning........................................................................... 10

The City as a Legal Entity........................................................................ 10

Cities....................................................................................................... 11

Villages .................................................................................................. 11

Towns .....................................................................................................12

Counties.................................................................................................12

Special Purpose Districts ....................................................................12

The City as a Physical Plant..................................................................... 13

Some Practical Definitions............................................................................ 13

Places........................................................................................................... 13

Census-Designated Places ....................................................................... 13

Incorporated Places................................................................................... 14

Urban Places .............................................................................................. 14

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Urbanized Areas ....................................................................................... 14

Metropolitan Areas................................................................................... 14

Census Tracts............................................................................................. 15

Concepts Represented by the Census Definitions ............................... 15

Planning.......................................................................................................... 17

Core Functions .......................................................................................... 18

Classification of Planning........................................................................ 19

Limitations of Planning ...........................................................................20

City Planning..................................................................................................20

City Planning as a Team Effort....................................................................22

Criteria for Good City Planning..................................................................22

Need for City Planning.................................................................................23

Value of City Planning..................................................................................27

Further Reading.............................................................................................29

3 The Historical Context of Urban Planning in the United States........ 31

Introduction.................................................................................................... 31

European New Towns................................................................................... 31

City of London................................................................................................ 32

Spanish Colonial New Towns......................................................................33

French Colonial New Towns........................................................................35

English Colonial New Towns.......................................................................35

Contributions of Colonial Planning............................................................40

Planning of the National Capital.................................................................40

Decline of Public Planning...........................................................................42

Railway Towns ..........................................................................................45

Textile Towns .............................................................................................45

Other Industrial Era New Towns ...........................................................47

Renaissance of Public Planning...................................................................47

The Columbian Fair..................................................................................47

The City Beautiful Movement.................................................................49

The City Efficient Movement................................................................... 51

The Greenbelt Towns................................................................................ 52

Other New Towns.....................................................................................56

Conclusion ......................................................................................................56

Further Reading............................................................................................. 57

4 Compilation of Essential Data—A Brief Overview ..............................59

5 Map Requirements for City Planning...................................................... 61

Introduction.................................................................................................... 61

Basic Definitions and Concepts ................................................................... 62

Spherical Coordinate System...................................................................63

Map Projections.........................................................................................65

Survey Control...........................................................................................69

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Contents vii

National Geodetic Survey Control System ................................................ 70

U.S. Public Land Survey System..................................................................71

Map Requirements for City Planning......................................................... 74

Survey Control for City Planning and Engineering................................. 76

State Plane Coordinate Computations........................................................80

Use in Creation of Land Information Systems ..........................................83

Aerial Photography .......................................................................................83

Further Reading.............................................................................................86

6 Population Data and Forecasts...................................................................87

Introduction....................................................................................................87

Estimating Current Population Levels .......................................................88

Projecting and Forecasting Future Population Levels .............................89

Techniques .................................................................................................89

Cohort-Survival Method.....................................................................90

Cohort-Change Method ......................................................................93

Mathematical and Graphical Methods .............................................93

Composite Diagram Method..............................................................95

Ratio Method ........................................................................................96

Holding Capacity Method ..................................................................97

Employment Relationship Method....................................................99

Symptomatic Data Method.................................................................99

Area Considerations .................................................................................99

Accuracy................................................................................................... 100

Concluding Comments on Population Projection and Forecast...... 101

Other Population Characteristics .............................................................. 104

Age Composition..................................................................................... 104

Dependency Ratio................................................................................... 104

Marital Status........................................................................................... 105

Family ....................................................................................................... 105

Households .............................................................................................. 105

Components of Population Change .......................................................... 106

Spatial Distribution ..................................................................................... 106

Labor Force Participation Rates ................................................................. 106

Further Reading........................................................................................... 107

7 Economic Data and Forecasts ................................................................... 109

Introduction.................................................................................................. 109

Economic Base.............................................................................................. 110

Structure of the Urban Economy............................................................... 111

Projection and Forecast Techniques.......................................................... 113

Economic Base Analysis......................................................................... 113

Dominant-Subdominant Industry Analysis ....................................... 113

Industrial Cluster Analysis.................................................................... 114

Mathematical Model–Input-Output Method...................................... 115

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Example Application ................................................................................... 115

Personal Income........................................................................................... 118

Property Tax Base ........................................................................................ 118

Concluding Comments on Employment Projections and Forecasts .... 118

Further Reading........................................................................................... 119

8 Land Use and Supporting Infrastructure Data .................................... 121

Introduction.................................................................................................. 121

Maps for Land Use Studies ........................................................................122

Land Use Survey..........................................................................................123

Analysis and Presentation of Data ....................................................... 126

Example Land Use Map and Summary Table .................................... 127

Use in Forecasting Space Requirements.............................................. 130

Industrial Land................................................................................... 130

Wholesale Land.................................................................................. 131

Commercial Land............................................................................... 131

Governmental and Institutional Land............................................ 132

Transportation, Communications, and Utilities............................ 132

Residential Land and Neighborhood Facilities ............................. 132

Utilities .......................................................................................................... 133

Community Facilities .................................................................................. 135

Further Reading........................................................................................... 136

9 Natural Resource Base Inventories......................................................... 137

Introduction.................................................................................................. 137

Climate .......................................................................................................... 138

Air Quality.................................................................................................... 138

Physiography................................................................................................ 139

Geology ......................................................................................................... 139

Mineral Resources ....................................................................................... 140

Soils................................................................................................................ 140

Standard Soil Survey.............................................................................. 141

Mapping............................................................................................... 142

Soils Data Interpretations ................................................................. 142

Surface Water Resources............................................................................. 143

Quantitative Aspects .............................................................................. 144

Qualitative Aspects................................................................................. 146

Groundwater Resources.............................................................................. 148

Woodlands.................................................................................................... 149

Wetlands........................................................................................................ 150

Areas Having Scenic, Historic, Scientific, and Recreational Value.. 153

Environmental Corridors....................................................................... 154

Further Reading........................................................................................... 156

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Contents ix

10 Institutional Structure for City Planning and the

Comprehensive Plan.................................................................................. 157

Introduction.................................................................................................. 157

The Plan Commission ................................................................................. 158

The Comprehensive Plan............................................................................ 159

Importance............................................................................................... 159

Scope and Content .................................................................................. 160

Plan Report............................................................................................... 163

Staff Organization ....................................................................................... 166

11 Objectives, Principles, and Standards.................................................... 169

Introduction.................................................................................................. 169

Basic Concepts and Definitions ................................................................. 170

Objectives ................................................................................................. 171

Principles and Standards ....................................................................... 172

Overriding Considerations......................................................................... 172

Application in Alternative Plan Evaluation............................................. 173

Further Reading........................................................................................... 183

12 Land Use Planning..................................................................................... 185

Introduction.................................................................................................. 185

Determinants of the Land Use Pattern..................................................... 186

Economic Determinants......................................................................... 186

Monocentric Model............................................................................ 187

Sector Model ....................................................................................... 189

External Expansion Model................................................................ 189

Polycentric Model............................................................................... 190

Concluding Comments on Conceptual Models............................. 190

Social Determinants ............................................................................... 191

Physical Determinants ........................................................................... 192

The Public Interest as a Land Use Determinant................................. 192

Steps in Land Use Plan Preparation.......................................................... 193

Delineate Planning Area........................................................................ 193

Assemble Needed Basic Data, Including............................................. 193

Delineate Existing and Potential Planning Districts ......................... 194

Estimate Future Land Requirements ................................................... 194

Intuitive Judgment ............................................................................. 194

Land Use Accounting ........................................................................ 194

Example Application of Land Use Accounting Method .............. 197

Application of Adopted Standards.................................................. 199

Design Land Use Plan............................................................................ 199

Simulation and Design Models............................................................. 201

Example of Land Use Plan.......................................................................... 201

Further Reading...........................................................................................203

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13 Neighborhood Unit Concept....................................................................205

Introduction..................................................................................................205

Essential Features ........................................................................................205

Size and Density Considerations...............................................................208

Comments on the Concept ......................................................................... 210

Example of an Actual Neighborhood Unit Development Plan............. 211

14 Principles of Good Land Subdivision Design...................................... 215

Introduction.................................................................................................. 215

The Context of Land Subdivision Design ................................................ 216

Principles of Good Design.......................................................................... 218

Provision for External Features of Communitywide Concern ........ 219

Proper Relationship to the Existing and Proposed Surrounding

Land Uses................................................................................................. 219

Proper Relationship to the Natural Resource Base............................ 219

Proper Design of Internal Features and Details.................................220

Street System.......................................................................................220

Stormwater Management..................................................................223

Lot Layout............................................................................................227

Creation of an Integrated Design..........................................................229

Subdivision Design Patterns ......................................................................229

Site Analysis .................................................................................................235

Utility Service...............................................................................................236

Historical Patterns of Development and Lot Yield Efficiencies ............236

Common Issues of Concern........................................................................ 237

Private Streets .......................................................................................... 237

Half Streets............................................................................................... 239

Stub End Streets ...................................................................................... 240

Access Control Restrictions ................................................................... 240

Cul-de-Sac Streets ................................................................................... 241

Other Design Considerations..................................................................... 243

Further Reading...........................................................................................244

15 Street Patterns and Transportation Planning....................................... 245

Introduction.................................................................................................. 245

Purposes of the Street System.................................................................... 245

Types of Street Patterns............................................................................... 246

Rectangular Grid Pattern....................................................................... 246

Curvilinear Pattern................................................................................. 247

Circumferential and Radial Pattern..................................................... 247

Focal Point and Radial Pattern.............................................................. 248

Organic Pattern ....................................................................................... 248

Functional Classification of Streets ........................................................... 248

Arterials.................................................................................................... 249

Collectors.................................................................................................. 251

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Land Access Streets ................................................................................ 251

Marginal Access Streets .................................................................... 251

Alleys ................................................................................................... 251

Design Considerations ........................................................................... 251

Street Cross-Sections ................................................................................... 252

Arterial Capacity and Level of Service..................................................... 252

Arterial System Planning ...........................................................................258

Facility Inventory ....................................................................................260

Travel Surveys .........................................................................................260

Objectives and Standards ......................................................................264

Arterial Street and Highway System Design......................................268

Jurisdiction Classification of Streets .........................................................268

Mass Transit Planning ................................................................................272

Functional Classification........................................................................ 273

Modes........................................................................................................ 275

Objectives and Standards ...................................................................... 278

Transit System Design............................................................................ 278

Concluding Comments ............................................................................... 279

Further Reading...........................................................................................280

16 Other Plan Elements .................................................................................. 281

Introduction.................................................................................................. 281

Common Base............................................................................................... 281

Characteristics of Individual Elements..................................................... 282

Need for Study Design................................................................................284

17 Plan Implementation—Land Subdivision Control .............................285

Introduction..................................................................................................285

Historical Background ................................................................................285

Reasons for Public Regulation ...................................................................288

Purpose of Public Regulation ....................................................................289

Statutory Authority for Land Subdivision Control................................. 291

Required Plat Approvals ............................................................................ 292

Final Plat Data .............................................................................................. 293

Recording of Plats ........................................................................................ 294

Local Land Subdivision Regulation.......................................................... 294

Example Local Subdivision Control Ordinance...................................... 295

Plat Review and Approval Procedures................................................ 296

Pre-Application Conference.............................................................. 297

Preliminary Plat Submission............................................................ 297

Final Plat Submission ........................................................................ 298

Required Information for Plats .............................................................302

Topography and Steep Slopes ..........................................................302

Floodplains..........................................................................................303

Wetlands..............................................................................................303

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Design Considerations.......................................................................303

Required Improvements ...................................................................304

Oversized Streets and Utilities.........................................................304

Off-Site Improvements.......................................................................304

Dedication or Fees in Lieu of Dedication for Park and School

Sites.......................................................................................................305

Surveying Requirements...................................................................306

Protective Covenants .........................................................................307

Improvements...............................................................................................308

Street Improvements...............................................................................308

Street Lamps ................................................................................................. 310

Street Name Signs................................................................................... 310

Street Trees............................................................................................... 311

Landscaping............................................................................................. 311

Grading..................................................................................................... 312

Stormwater Management....................................................................... 312

Drainage Considerations................................................................... 312

Stormwater Storage and Infiltration Facility Considerations ...... 313

Public and Private Utilities .................................................................... 314

Standardization of Utility Locations......................................................... 315

Improvement Guarantees ........................................................................... 316

Further Reading........................................................................................... 317

18 Plan Implementation—Zoning................................................................ 319

Introduction.................................................................................................. 319

Definition ...................................................................................................... 319

Brief History ................................................................................................. 320

Benefits of Good Zoning............................................................................. 323

Zoning Techniques ...................................................................................... 324

Zoning District Map.................................................................................... 325

Zoning District Boundary Delineation Related to Resource

Protection...................................................................................................... 329

Floodland Zoning ................................................................................... 329

Wetland Zoning ...................................................................................... 332

Zoning Ordinance Regulations .................................................................334

Board of Appeals.....................................................................................338

Common Zoning Problems ........................................................................338

Amendment to Ordinance.....................................................................338

Overzoning .............................................................................................. 339

Underzoning............................................................................................ 339

Strip Zoning.............................................................................................340

Spot Zoning..............................................................................................340

Non-Conforming Uses ...........................................................................340

Contract Zoning ...................................................................................... 341

Variances .................................................................................................. 341

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Conditional Uses and Exceptions.........................................................342

Further Reading...........................................................................................342

19 The Official Map.........................................................................................343

Introduction..................................................................................................343

Brief History .................................................................................................344

Definitions.....................................................................................................345

Functions.......................................................................................................346

Relationship to the Comprehensive Plan .................................................347

Effectiveness .................................................................................................348

Legal and Administrative Considerations...............................................350

Legality of Official Map ......................................................................... 351

Administration........................................................................................ 352

Appeals..................................................................................................... 352

Intergovernmental Cooperation ...........................................................353

Engineering Considerations.......................................................................354

Base Mapping Considerations ..............................................................354

Facility Design Considerations .............................................................355

Map Format ..................................................................................................356

Further Reading........................................................................................... 359

20 Capital Improvement Programming ...................................................... 361

Introduction.................................................................................................. 361

Definition and Context................................................................................ 362

Benefits of Capital Improvement Programming.....................................364

Elements of a Capital Improvement Program .........................................365

Procedure ......................................................................................................366

Prepare List of Projects...........................................................................366

Conduct Financial Analysis...................................................................366

Prepare Capital Improvement Program .............................................. 367

Project Evaluation ................................................................................... 367

Presentation.........................................................................................368

Adoption and Revision .......................................................................... 369

Appendix A

Example Land Subdivision Control Ordinance Regulations................... 371

SECTION 1.00 Introduction..................................................................... 371

SECTION 2.00 General Provisions ......................................................... 373

Section 3.00 Land Division Procedures............................................. 382

SECTION 4.00 Preliminary Plat..............................................................390

SECTION 5.00 Final Plat .......................................................................... 396

SECTION 6.00 Certified Survey Map..................................................... 399

SECTION 7.00 Design Standards............................................................404

SECTION 8.00 Required Improvements................................................ 416

SECTION 9.00 Construction.................................................................... 421

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SECTION 10.00 Fees ................................................................................. 424

SECTION 11.00 Definitions......................................................................426

SECTION 12.00 Adoption and Effective Date.......................................435

Appendix B

Example Zoning Ordinance Regulations ..................................................... 437

SECTION 1.0 Introduction..................................................................... 437

SECTION 2.0 General Provisions .........................................................438

SECTION 3.0 Zoning Districts ..............................................................442

SECTION 4.0 Conditional Uses.............................................................448

SECTION 5.0 Traffic, Parking, and Access ..........................................455

SECTION 6.0 Exceptions........................................................................458

SECTION 7.0 Signs..................................................................................460

SECTION 8.0 Nonconforming Uses ..................................................... 462

SECTION 9.0 Board of Zoning Appeals ..............................................464

SECTION 10.0 Amendments ...................................................................468

SECTION 11.0 Definitions........................................................................ 469

Index .....................................................................................................................477

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