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Blueprint Planning in California:Forging Consensus on MetropolitanDevelopment

Elisa Barbour and Michael Teitz

Public Policy Institute of California

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Why Study Blueprint Planning?

Major innovation in regional planning in Major innovation in regional planning in CaliforniaCalifornia

Emerged independently in largest metropolitan Emerged independently in largest metropolitan areas from late 1990sareas from late 1990s

Now being systematized through state supportNow being systematized through state support Blueprint Planning Program Housing bond

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What is Blueprint Planning?

Consensus-building process to define a Consensus-building process to define a preferred scenario for regional development preferred scenario for regional development

Integrates transportation, land use, and Integrates transportation, land use, and environmental planning, regionally and locallyenvironmental planning, regionally and locally

Relies on Relies on Scenario modeling of measurable outcomes Broad-based “visioning” process

Implemented through incentives Implemented through incentives Promotes local action with regional benefits

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PPIC’s Blueprint Research Project

For inter-agency advisory group and Blueprint For inter-agency advisory group and Blueprint Learning NetworkLearning Network

Focus on four largest metro areasFocus on four largest metro areas

Seeking “best practices” and lessons from Seeking “best practices” and lessons from blueprint planningblueprint planning

Research based on 60 key informant interviews Research based on 60 key informant interviews and a survey of planning directorsand a survey of planning directors

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We Studied Four Major Blueprint Processes

Association of Bay Area Governments, Association of Bay Area Governments, Metropolitan Transportation Commission et al.Metropolitan Transportation Commission et al. Smart Growth Strategy/Regional Livability Footprint

Project ABAG’s policy-based projections

Sacramento Area Council of GovernmentsSacramento Area Council of Governments Sacramento Region Blueprint

San Diego Association of GovernmentsSan Diego Association of Governments Regional Comprehensive Plan

Southern California Association of GovernmentsSouthern California Association of Governments Southern California Compass Project/2 Percent

Strategy

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Overview

The origins of blueprint planningThe origins of blueprint planning

Stages in blueprint planningStages in blueprint planning Visioning and scenario adoption Implementation and assessment

Challenges in larger regionsChallenges in larger regions

ConclusionsConclusions

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Traditional Planning System: Fractured Authority, Emerging Conflicts The post-WWII planning system fractured growth The post-WWII planning system fractured growth

management at regional scalemanagement at regional scale State: infrastructure and environment Locals: land use

Conflicts emerged by the 1980sConflicts emerged by the 1980s Environmental and economic goals “Pro-growth” and “anti-growth” forces

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Blueprint Planning as a Framework for Coordination Fiscal and environmental constraint require Fiscal and environmental constraint require

coordinated actionscoordinated actions

Land use and housing policy are key levers Land use and housing policy are key levers

Presents a governance challengePresents a governance challenge

Collaborative regional planning can Collaborative regional planning can Match the scale of social and environmental

outcomes Reconcile interests Re-connect land use, transportation, and

environmental planning

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COG/MPOs Are the Vehicle for Blueprint Planning

Collaborative, consensus-building institutionsCollaborative, consensus-building institutions

Best connection among land use, transportation, Best connection among land use, transportation, and environmental authority and environmental authority

Blend Blend systemssystems focus (MPOs) with broad focus (MPOs) with broad participationparticipation (COGs) (COGs)

But no land use control, and redistributing But no land use control, and redistributing resources a challengeresources a challenge

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Overview

The origins of blueprint planningThe origins of blueprint planning

Stages in blueprint planningStages in blueprint planning Visioning and scenario adoption Implementation and assessment

Challenges in larger regionsChallenges in larger regions

ConclusionsConclusions

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Blueprint Planning Considers

Land Use Regionally… Focuses on COG/MPO population and land Focuses on COG/MPO population and land

use projectionsuse projections

But considering land use regionally alters the But considering land use regionally alters the traditional relationshiptraditional relationship

Models land use alternatives to improve Models land use alternatives to improve outcomesoutcomes

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…And Requires Broad Consensus-Building

Interacting land use and transportation requires Interacting land use and transportation requires a broad conversation a broad conversation

Smart growth strategies depend on local Smart growth strategies depend on local supportsupport

Has prompted broad-based, multi-stage Has prompted broad-based, multi-stage “visioning” processes“visioning” processes

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Best Practices in Preparation Stage

Build technical capacityBuild technical capacity Parcel-based maps and data Interactive modeling (e.g. PLACE3S)

Build institutional capacity Build institutional capacity COG/MPO board commitment Integrated decisionmaking: COG/MPO,

stakeholders, local planners and officials

Identify values, objectives, and performance Identify values, objectives, and performance measuresmeasures

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Best Practices in Visioning Stage

Build a preferred scenario in stages from local Build a preferred scenario in stages from local to regional scaleto regional scale Workshop in each community Local planners engaged at all stages

Consider trade-offs among alternativesConsider trade-offs among alternatives

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Modeled Outcomes DifferedAcross Regions

Bay Area: difficult trade-offs when Bay Area: difficult trade-offs when accommodating all projected housing needaccommodating all projected housing need

Los Angeles area: substantial air quality Los Angeles area: substantial air quality benefitsbenefits

Sacramento area: dramatic benefits on multiple Sacramento area: dramatic benefits on multiple indicatorsindicators

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Mapping the “Preferred Scenario”

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Best Practices in Adoption Stage

COG/MPO adopts preferred scenarioCOG/MPO adopts preferred scenario

Integrated decisionmaking ensures no surprisesIntegrated decisionmaking ensures no surprises

Public support builds momentum for change Public support builds momentum for change

Manageable gap between preferred scenario Manageable gap between preferred scenario and current plansand current plans

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Overview

The origins of blueprint planningThe origins of blueprint planning

Stages in blueprint planningStages in blueprint planning Visioning and scenario adoption Implementation and assessment

Challenges in larger regionsChallenges in larger regions

ConclusionsConclusions

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Blueprint Plans Implemented Through Incentives

Requires strong institutional ties between Requires strong institutional ties between transportation and land usetransportation and land use

COG/MPOs have directed regional funds as COG/MPOs have directed regional funds as incentivesincentives

Process requires new criteria for allocating Process requires new criteria for allocating resourcesresources Can be contentious Produces a dilemma

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Implementation Strategies

Target priority development areasTarget priority development areas

Develop criteria for prioritizing resourcesDevelop criteria for prioritizing resources

Direct regional resources to priority areasDirect regional resources to priority areas Technical assistance Competitive grants Condition new investment

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How to Turn Blueprint Planning Into an Ongoing Process? Coordinate planning processes Coordinate planning processes

Ongoing, iterative planning Align RHNA, RTP, General Plan cycles Blueprint-style RHNA

Develop sub-regional strategiesDevelop sub-regional strategies Corridor planning Coordinate with CTCs/CMAs, sub-regional COGs

Incorporate key ingredientsIncorporate key ingredients System focus + broad participation Performance criteria + flexible implementation

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Best Practices in Assessment

Produce “regional indicators” reports to evaluate Produce “regional indicators” reports to evaluate progressprogress

Integrate with RTP performance measuresIntegrate with RTP performance measures

May help resolve conflicts over directing May help resolve conflicts over directing resourcesresources

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Overview

The origins of blueprint planningThe origins of blueprint planning

Stages in blueprint planningStages in blueprint planning Visioning and scenario adoption Implementation and assessment

Challenges in larger regionsChallenges in larger regions

ConclusionsConclusions

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Larger Regions Face Organizational Challenges

Much harder to have “one regional conversation” Much harder to have “one regional conversation”

Can devolve to sub-regional scale, but must Can devolve to sub-regional scale, but must retain link between systems focus and broad retain link between systems focus and broad participation participation

How to nest plans at different scales? How to nest plans at different scales?

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Planners in Larger Regions Less Familiar with Blueprint Processes…

0

20

40

60

80

Not familiar Somewhat familiar Very familiar

Los Angeles andSF Bay Areas

Sacramento andSan Diego Areas

Planning directors

(%)

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…And Less Engaged in Blueprint Implementation

0

25

50

75

100

Los Angeles SanFrancisco

Sacramento San Diego

Planning directors

(%)

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Overview

The origins of blueprint planningThe origins of blueprint planning

Stages in blueprint planningStages in blueprint planning Visioning and scenario adoption Implementation and assessment

Challenges in larger regionsChallenges in larger regions

ConclusionsConclusions

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Blueprint Planning Shows Way Forward…

We can’t yet determine outcomes on the groundWe can’t yet determine outcomes on the ground

Changing how people see urban developmentChanging how people see urban development

Reinventing growth managementReinventing growth management

Fits political realityFits political reality

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…But Substantial Obstacles Remain

COG/MPOs have institutional weaknessesCOG/MPOs have institutional weaknesses

State support is necessaryState support is necessary

Development in greenfield areas has been Development in greenfield areas has been neglectedneglected

Environmental planning lagsEnvironmental planning lags

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Ingredients of Effective Regional Strategies

Align and coordinate state, regional, and local Align and coordinate state, regional, and local incentives, priorities, and plansincentives, priorities, and plans

Provide real incentives for local governments to Provide real incentives for local governments to participateparticipate

Develop an ongoing process, not a static visionDevelop an ongoing process, not a static vision System focus + broad participation Performance criteria + flexible implementation

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Thank you

Please continue exploring Please continue exploring PPIC’s website atPPIC’s website at

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