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EDWARD J. KAISER AND DAVID R. GODSCHALK
<br />• Statement of goals and/or legislative intent, includ-
<br />ing management- oriented goals
<br />• Program . of actions —the heart of the plan —in-
<br />cluding:
<br />1. Outline of a proposed development code, with:
<br />(a) procedures for reviewing development per-
<br />mits; (b) standards for the type of development,
<br />density, allowable impacts and/or performance
<br />standards; (c) site plan, site engineering, and con -
<br />struction practice requirements; (d) exactions
<br />and impact fee provisions and other incentives /
<br />disincentives; and (e) delineation of districts
<br />where various development standards, proce-
<br />dures, exactions, fees, and incentives apply
<br />2. Program for the expansion of urban infrastruc`
<br />tare and community facilities and their service
<br />areas
<br />3. Capital improvement program
<br />4. Property acquisition program
<br />S. Other components, depending on the commu-
<br />nity situation, for example, a preferential taxa-
<br />tion program, an urban revitalization program
<br />for specific built -up neighborhoods, or a historic
<br />preservation program
<br />•
<br />Official maps, indicating legislative intent, which
<br />may be incorporated into ordinances, with force of
<br />law —among them, goal -form maps (e.g., land classi-
<br />fication plan or land use design); maps of zoning dis-
<br />tricts, overlay districts, and other special areas for
<br />which development types, densities, and other re-
<br />quirements vary; maps of urban services areas; maps
<br />showing scheduled capital improvements; or other
<br />maps related to development management stan-
<br />dards and procedures
<br />The development management plan is a distinct
<br />type, emphasizing a specific course of action, not gen-
<br />eral policy. At its extreme the management plan actu-
<br />ally incorporates implementation measures, so that
<br />the plan becomes part of a regulative ordinance. Al-
<br />though the spatial specifications for regulations and
<br />other implementation measures are included, a land
<br />use map may not be.
<br />One point of origin for development management
<br />plans is Henry Fagin's (1959, 1965) concept of the
<br />"policies plan," whose purpose was to coordinate the
<br />actions of line departments and provide a basis for
<br />evaluating their results, as well as to formulate, com-
<br />municate, and implement policy (the traditional pur-
<br />pose). Such a plan's subject matter was as broad as the
<br />responsibilities of the local government, including but
<br />not limited to physical development. The format in-
<br />cluded a "state of the community" message, a physical
<br />plan, a financial plan, implementation measures, and
<br />376 APA JOURNAL • SUMMER 1995
<br />detailed sections- for each department of the gov-
<br />ernment.
<br />A more recent point of origin is A Model Land De-
<br />velopment Code (American Law Institute 1976), in-
<br />tended to replace the 1928 Model Planning Enabling
<br />Act as a model for local planning and development
<br />management. The model plan consciously retains an
<br />emphasis on physical development (unlike Fagin's
<br />broader concept), but stresses a short -term program of
<br />action, rather than a long -term, mapped goal form.
<br />The ALI model plan contains a statement of condi-
<br />dons and problems; objectives, policies, and stan-
<br />dards; and a short -term (from one to five years)
<br />Program of specific public actions. It may also include
<br />land acquisition requirements, displacement impacts,
<br />development regulations, program costs and fund
<br />sources, and environmental, social, and economic con-
<br />sequences. More than other plan types, the develop-
<br />ment management plan: is a "course of action"
<br />initiated by government to control the location and
<br />timing of development.l'
<br />The Sanibel, Florida, Comprehensive Land Use Plan -
<br />(1981) exemplifies the development management
<br />plan. The plan outlines the standards and procedures
<br />of regulations (Le, the means of implementation), as
<br />well as the analyses, goals, and statements of intent
<br />normally presented in a plan. Thus, when the local leg -
<br />islature adopts the plan, it also adopts an ordinance
<br />for its implementation. Plan and implementation are
<br />merged into one instrument, as can be seen in d%e con -
<br />tent of its articles:
<br />Article 1: Preamble: including purposes and objec-
<br />tives, assumptions, coordination with sur-
<br />rounding areas, and implementation
<br />Article 2: Elements of the Plan: Safety, Human Sup-
<br />port Systems, Protection of Natural Envi-
<br />ronmental, Economic and Scenic
<br />Resources, Intergovernmental Coordina-
<br />tion, and Land Use
<br />Article 3: Development Regulations: Definitions,
<br />Maps, Requirements, Permitted Uses, Sub-
<br />divisions, Mobile Home and Recreation Ve-
<br />hides, Flood and Storm Proofing, Site
<br />Preparation, and Environmental Perfor-
<br />mance Standards
<br />Article 4: Administrative Regulations (i.e, proce-
<br />dures): Standards, Short Form Permits, De-
<br />velopment Permits, Completion Permits,
<br />Amendments to the Plan, and Notice,
<br />Hearing and Decision Procedures on
<br />Amendments
<br />Figure 7 shows the Sanibel plan's map of permitted
<br />uses, which is more like a zoning plan than a land use
<br />
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