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Agenda 2/23/1961 KANSAS STATE UNIVERSITY, MANHATTAN CENTER FOR COMMUNITY PLANNING SERVICES THE IN ROLE OF URBAN THE FUTURE OF RENEWAL SALINA Don a 1 d D a v ids 0 n VT hit e Associate Professor of Regional Planning Lamer Hotel, Salina, Kansas, February 23, 1961 Sponsored by: Salina-Saline County Development Committee Cooperating Agencies: City of Salina Planning Commis sion Saline County Planning Commis sion CJ < (J) 0 Z 0 ""T1 m Z Q Z m m ;::0 Z Q » Z CJ z CJ C (j) -I ;::0 » r- (J) m ;::0 < () m ~ (J) m » -I 0 Z I » r- r- ... ~ » z I » -I -I » Z Salina Chamber of Commerce, Civic Development Committee ,- 'Program for Community Improvement IA. Adoption of minimum codes and . ordinances pertaining to health, sanitation and safety. A general plan for long-range grm-¡th adopted. Identification of blighted areas and analysis. Establishment of legal and administrative agency. Development of financial means for program. Provision of adequate housing for families to be displaced by projects. Development of active citizen support and understanding of urban renewal program. I:: j I !D. I r (. f !G. i I I lAid: í URBAN RENEWAL PROGRAMS --. ¡ I General Plan Plans and Programs A. Land Use Plan B. Thoroughfare Plan C. Community Facilities Plan D. Public Improvements Program Regulatory Measures A. Zoning Ordinance and Map B. Subdivision Regulations ------- Aid: Grants up to 50% of project cost direct to regional agencies or to state agency for counties and cities of less than 50,000 -------- " Note: At the I does not have , authorized to ¡ , J~ I I I I present time, Kansas! a state agency ¡ accept ~~ning grants.¡ ~one - must be prepared by local officials. urban reneHal activities. --'- j I URBAN RENEí~AL PROJECT ----...--¡ An urban renewal project may involve slum clearance and redevelopment" or j ¡rehabilitation and conservation, or a combination of these. It may include I! ¡acquisition of land, site clearance, installation of streets, parks, and other improvements, disposition of acquired land for uses in accordance with an Urban I I ¡ !Renewal Plan, and carrying out plans for locally financed rehabilitation of . ¡structures in the area ~,¡hich are not acquired. Funds cannot be spent for the ¡ construction or rehabilita~~~n th~rojes., land.__.__-- I -.-- - ---L- .=------ . ~ -- I :Feasibility Surve:t I General I'ei,?;hborhood ~ecial Projects ¡^ Fe~Sibility S~rvey i~ a I ~ene~"al Plan ¡-Jon-Assisted Projects ¡spec1al study or quest~ons A General Neighborhood Disaster Area Projects ~bout an urban area WhiCh Renewal Plan is a plan for Demonstration Projects Ishould be examined even and urban renewal area of !before the beginning of such scope that renewal !normal survey and planning activities may have to be ¡activity for an urban ¡"phasedll over a period ~enewal project. ¡ as long as 10 years. .1.------.. ..--..--.----,-'----.--- f IA. ¡B. ; D. C. - I .- I Program for Community Improvement must be certified I I' by HHFA and General Plan available before project execution. I ,All follmoJi!llLE..ro~ra.ms F~dera.1 grant ~ua 1 tQ 2/3 of net £9..êt......J I I COHHUNlTY RENEWAL PROGRAN Identification of blighted or deteriorating areas in the community. Heasurement of the nature and degree of blight and blighting factors in the areas. Determination of the financial, relocation, and other resources needed to renew the areas. Identification of potential project areas and types of urban rene~val action contemplated. Schedulin of E. --__..__1 . i J FEDERAL FINANCI~L RIDS ~VAILABLE. "Urban renewal project" is a term referring to specific activities under- taken by a local public agency (LPA) in an urban renewal area to prevent and eliminate blight and deterioration. An urban renewal project may involve slum clearance and redevelopment, or rehabilitation and conservation, or ;a com- bination of these. It may include acquisition of land, site clearance, instal- lation of streets, parks, and other improvements, disposition of acquired land for uses in accordance with an Urban Renewal Plan, and carrying out plans for locally financed rehabilitation of structures in the area which are not acquired. Title I funds cannot be spent for the construction or rehabilitation of any building on the project land. Financial Aids The Net Project Cost is generally the difference between all costs of a project and the proceeds from disposition of land. The net Project Cost of an urban renewal project is shared by the Federal government and the LPA. The local contributions to Net Project Cost are called local grants-in-aid. They may be provided in the form of cash, site clearance work, land donations, project improvements, and supporting facilities which may include public buildings or other public works and facilities. Planninq Advance Federal funds may be advanced to an LPA to finance survey and planninQ work necessary before actual operations in the Title I project can be undertaken. Advances are also authorized for Feasibility Surveys and for General neighborhood Renewal Plans. I~mT>°rary Loan A temporary loan is used by the LPA as working capital in acquiring project land and structu~es, clearing the site, and preparing the area for redevelopment or rehabilitation. Such a loan may be either: 1. A direct loan from the Federal government; or A loan from a private financial institution. The loan is secured by the availability of Federal funds, if needed, for repayment of the loan. 2. Definitive Loan A definitive loan, for a period up to 40 years, may be used to refinance short-term tempor3ry loans when pr~ect land is leased rather than sold to a redeveloper. A definitive loan is amortized from the rental income derived from the land. Çapital Grant When the area is ready for redevelopment or rehabilitation, acquired land is disposed of by sale, lease, or retention for its fair value for uses in accordance with the Urban ~e~ewal Plan. If the total return from d~sposition of land, including the capital value of any land disposed of by le2se, is less than the cost of carrying out the whole project, the loss (Net Project Cost) is shared by the Federal government and the LPA. The Federal share is in cash and is called the project capital grant. 2 Relocation ~ Relocation Payments in limited amounts may be made by an LPA to individuals, families, and businesses for their reasonable, necessary moving expenses and any direct loss of property resulting from their displacement from an urban renewal area. The LPA is reimbursed in full for these expenditures through a relocation grant from the Federal government. ßlternative Project Capital ~ Formulas The amount of project capital grant paid by the Federal government will be determined under one of two formulas. The LPn can elect which formula will be used for its program. When the cost of the project includes survey, planning, administrative, legal, and certain other expenses, the project capital grant cannot exceed two- thirds of Net Project Cost. Under the other formula, the Federal share may be three-fourths of Net Project Cost, with Net Project Cost computed on a basis which eliminates LPA adminis- trative, legal, survey, planning, and certain other expenses from project cost. Residential and Non-Resid~ntial Renewal Generally, the Federal capital grants must go into projects which are preponderantly concerned with housing -- that is, the project areas must either be predominantly residential in character before renewal or predominantly residential after renewal. There are two specific exceptions to this rule: 1. A limited ameunt of the Federal grant funds authorized by Congress may be used for project~ in bli£hted areas having little or no housing, which are to be renewed for predominantly nonresidential purpose~. Projects in urban renewal areas involving colleges and universities, as such projects are defined in Section 112 of Title I, are exempt f=om the residential r2quirements. 2. GENERAL ~ REOUIREh~NTS The minimum requirements of the (Federal) Housing and Home Finance Agency with respect to a general plan are: (1) Plans and Programs (a) Land Use Plan (b) Thoroughfare Plan (c) Community Facilities Plan (d) Public Improvements Program (2) Regulatory Measures (a) Zoning Ordinance and Map (b) Subdivision Regulations These planning requirements must be so interrelated that, taken together, they serve as a comprehensive guide for the physical development of the locality as a whole. They are described briefly as follows: Land ~ ~ - Projects future community land needs, showing, by location and extent, areas to be used for residential, commercial, industrial and public purposes. Thorouqhfare ~ - Provides a system of major streets, existing and proposed, distinguishing between limited access, primary and secondary thoroughfares. Community Facilities PlaQ - Shows location and type of present and proposed schools, recreation areas, and other significant public facilities. Public !IDprovement pronram - Identifies and recommends priorities for future public improvements needed to meet objectives established in other plan elements. Zoning Ordinance ~ Map - Establish regulations and zone districts which govern the use of land and the location, height, use, and land coverage of the buildings. Subdivision Requlations - Provide standards for land deve- lopment by requiring adequate lot sizes and arrangement, utilities, and street improvements; guide development to conform with the comprehensive plan. To Be Cited: JOINT CO-OPERATION IN AREA PLhNNING Chapter 12, Article 716 through 721 of the General Statutes of Kansas, 1949, as amended. Article 7.--PLANNING AND ZONING Joint Co-Operation in Area Flanning 12-716. Area Planning by certain political subdivisions; joint commission, powers. Any two or more cities or counties or other political subdivisions having adjoining planning jurisdictions, or any county and city or cities within or adjacent to the county, may jointly co~operate in the exercise and performance of planning powers, duties and functions as provided by state law for cities and counties. When two or more of such cities and counties shall by ordinance, resolution, rule or order, adopt such joint planning co-operation, there shall be established a joint planning commission for the metropolitan area or region comprising the area coterminous with the areas of planning jurisdiction of the cities or counties co-operating jointly. Such a joint planning agency for the metropolitan area or region may be empowered to carry into effect such provisions of state law relating to planning which are authorized for such joining cities or counties and which each may under existing laws separately exercise and perform. Any other public authority or agency which operates within, wholly or in part, the area covered by this joint planning co-operation may likewise join with the co-operating cities or counties in co-operative planning through resolution of its governing board or commission. 12-717. Same; purpose of metropolitan or regional commission; plans and recommendations. The general purpose of a metropolitan or regional planning commission shall be to make those studies and plans for the development of the metropolitan area or region that will guide the unified development of the area, that will eliminate planning duplication and promote economy and efficiency in the co-ordinated development of the area and the general welfare and prosperity of its people. The metropolitan or regional commission shall make a plan or plans for development of the area, which may include, but shall not be limited to recommendations for principal highways, bridges, airports, parks and recreational areas, schools and public institutions, and public utilities. Any metropolitan or regional plan so developed shall be based on studies of physical, social, economic, and governmental conditions and trends. The plans and its recommendations may in whole or in part be adopted by the governing bodies of the co-operating cities and counties as the general plans of such cities and counties. The metropolitan or regional planninu commission may also assist the cities and counties within its area of jurisdiction in carrying out any regional plan or plans developed by the commission, and the metropolitan or regional planning commission may also assist any planning commission, board or agency of the co-operating cities or counties in the preparation or effectuation of local plans and planning consistent with the program of the metropolitan or regional planning agency. 12-718. Same; membership of commission; qualifications; tl~rms of agreement. The co-operating cities and counties which join to create a metropolitan or regional planning commission shall through joint agreement 2 determine the number and qualifications of the memJ:.ers of tLe CQ[~- mission: PROVIDED, a majority of the members of the metropolitan or regional planning commission shall hold no other public office e~{cept appointive membership on a city or other planning commission or board. The joint agreement shall also provide for the manner of co-operation and the means and methods of the operation and functioning of the metropolitan or regional planning commission, including the employment of a director of planning and such staff and consultants as it may require, the proportionate share of costs and expenses, the purchase of property and materials for the use of the commission. The joint agreement may also allow for the addition of other public bodies to the co-operative arrangement. 12-719. Same; funds for commission. À metropolitan or regional planning commission established under the provisions of this act is authorized to receive for its own uses and purposes any funds or moneys from any participating city or county, from the state or federal government, and from any other source any other funds including bequests, gifts, donations or contributions. The participating cities and counties or other public bodies are authorized to appropriate funds for the expenses and costs required by the commission in the performance of its purposes and functions. 12-720. Same; duties and functions of counties, cities, local agencies and regional planning commission. Nothing in this act shall be so con- strued to remove or limit the powers of the co-operating cities and counties as provided by state law. ~ll legislative power with respect to zoning and other planning legislation shall remain with the governing body of the co-operating cities and counties. Each participating city or county may continue to have its own planning commission or board but may under the joint agreement and in the interests of economy and efficiency and in the interest of uniform standards and procedures, request the metro- politan or regional planning commission to assume duties and functions of local planning agencies in whole or in part. The metropolitan or regional planning commission shall have the duty and function or pro- moting public interest and understanding of the economic and social necessity for long-term co-ordinated planning for the metropolitan or regional area but its official recommendations shall be made to the governing bodies of the co-operating cities or counties. 12-721. Seme; invalidity of part. If any provision of this act or the application thereof to any person or circumstance is held invalid, such invalidity shall not affect other provisions or application of the act which can be given effect without the invalid provision or application, and to this end the provisions of this act are declared to be severable. THE PROFESSIONAL RESPONSIBILITY OF CITY PLANNERS AND TRAFFIC ENGINEERS IN URBAN TRANSPORTATION Close cooperation of various professional groups is indispensable in any urban transportation program. This applies particularly to the city planner and the traffic engineer. Others who are directly concerned are the public works director, city engineer, police official, transit official, utility manager, as well as county, state, and Federal highway officials. All must participate since urban transportation has so many facets - planning, design, construction, operation and maintenance. To the extent possible, members of these different groups must perform as a team. Obviously it must be recognized that each member has certain in- dividual assignments to carry out either by law or administrative order. Generally speaking, however, there is still ample latitude for the co- operative effort that is needed. For his part, the city planner is assigned the responsibility of developing and guiding the implementation of the comprehensive community plan. Trans- portation is one of the most important elements in such a plan. Therefore, the city planner, of necessity, must see that transportation facilities are integrated with other key elements of the community plan. This, of course, can be achieved only by coordinating his efforts with those of other professionals who are responsible for building and operating these facilities. The city planner must weigh with the other groups the inter- relationship between various elements of the comprehensive plan. The traffic engineer's responsibility is to see that the transportation system in a community is operated safely and efficiently. In this task he is interested in the planning and designing of the transportation facilities as they will ultimately affect the operation of the system. He is also interested in the operational control measures such as traffic signals, signs and markings, as well as the necessary laws regulating traffic required for safety and efficiency. In fact, he is concerned with any plans that will affect desires and needs relating to the movement of people and goods. The goal of both city planners and traffic engineers should be the deve- lopment of a unified transportation program that effectively fosters sound community development and assures safe and efficient transportation services. Division of Responsibility The following outline indicates the general responsibility of the city planner and traffic engineer in various phases of the transportation program. In carrying out these responsibilities, the type of cooperation will naturally depend upon the status of transportation and other community plans. While the transportation plan and land use plan are under development, cities will undoubtedly move ahead with various types of projects which will call for collective action. In this event itis essential that the city planners and traffic engineer get together as early as possible in the development of sound projects. In communities where a definite transportation plan exists, much of the cooperative effort and individual action will, of course, be directed to - 2 - carrying out the plan and keeping it up to date and, therefore, will be concerned mainly with the last portion of the outline. But regardless of the status of transportation plans in an area, there are many routine chores that the city planner and traffic engineer must tackle cooperatively. The city planner in reviewing site plans for major developments, or proposed major changes in zoning densities, should discuss such matters with the traffic engineer. The traffic engineer should review with the city planner major operational changes such as one-way streets. On all daily administrative matters that impinge on one another's work, a sincere effort must be made to "work with" all in- terested parties. Gathering the Facts Basic to any sound transportation plan is a continuing fact-gathering program. This above all requires cooperative action. For this reason the National Committee on Urban Transportation recommends that a technical coordinating committee be established. This should include the city planner and traffic engineer as well as the public works director, the city engineer, transit and highway officials. The committee would guide the general collection of facts and development of the transportation plan and program. The impetus for the establishment of such a program should come from the various professional groups involved, though the leadership should rest with the top administrative official. Usually this type of program can be carried out within the existing administrative structure. However, at times it may be advantageous to create a special technical team or staff to help carry out the work load and assist the technical coordinating committee. This type of coordinated approach should also be established on a regional basis. With such a committee framework, the responsibilities of the city planner and traffic engineer generally should follow the pattern below. In some instances the joint responsibilities may involve only advisory duties; in others, actual participation in the work. ~oint Responsibility: 1. Street use study 2. Origin and destination study (often conducted by state highway departments) 3. Study of transportation expenditures 4. Use of transit (if not undertaken by the transit agency) ~itv Planner's Responsibilitv: 1. Land use survey 2. Economic base studies 3. population surveys (zone by 4. Employment surveys (zone by 5. Social and economic surveys zone) zone) - 3 - traffic 1. 2. 3. 4. 5. 6. Enaineerts Responsibili1Y: Traffic volume surveys Travel time studies Accident studies Street capacity studies Parking studies Control devices surveys Analysis of the Facts The analysis of the data collected will be largely the responsibility of the professional groups that have assembled the information. IIowever, collation of the facts and their evaluation should be a joint effort. Mutual understanding of how the facts are interrelated is most important in the development of an effective transportcition plan and program. l2ln1 Responsibility: 1. Determination of relationships between land use, transportation facilities and travel habits 2. Analysis of the street patterns - spacing, intersection fre- quency, traffic volume and land use type 3. Review of the traffic and transit service characteristics 4. Analysis of land access problems as related to types of streets Çity Plannerts ResQonsibility: 1. Evaluation of residential land patterns 2. Evaluation of commercial and industrial patterns 3. Location study of parks, schools and other public 4. Analysis of social and economic patterns hci li ties Traffic 1. 2. 3. 4. Enaineerts responsibi~ity: Comparison of existing volumes and street capacity Comparison of travel times on various street segments Comparison of accident patterns for various street segments Analysis of traffic control measures Analysis of these facts should be used in developing projections of future land and traffic patterns. This will call for a joint decisions as to how this can best be done for a particular community. Once this is achievedt the nature of the traffic problem should be evaluated by all professional groups associated with carrying out the transportation plan. Developing the Plan When the facts have been collected and analyzed, appropriate standards and objectives should be adopted to guide the development of the plan and to measure transportation and terminal deficiencies, present and future. r,Juch of this work will have to be done on a cooperative basis, by profes- sional groups concerned, though a considerable amount of detail work can be left to staff. ~ Responsibility: 1. Establishment of general objectives relating to community development. - 4 - 2. Adoption of standards for transportation - design capacities, cross sections, access controls, spacing and intersection frequency, speed, etc. Determination of transportation and terminal deficiencies Formulation of alternative solutions that should be considered 3. 4. Citv Planner's ResponsibilitX: 1. Review of land use and density patterns to help formulate overall objectives as to the development and redevelopment of the community. 2. Consideration of the different land use and density alternatives that could be realized by the community 3. Assessment of the effect that various transportation plans would have on land development 4. Coordination of the transportation plan with all other elements of the general plan Traffic 1. 2. 3. Enqineer's Responsibilitv: Review of existing level of transportation services as a means of determining appropriate standards Testing the various transportation alternatives including as- signment of traffic to the various proposed systems. Determination of the several types and location of transportation facilities with regard to operational aspects Following the testing of adequacy of the alternative proposals, an evalu- ation of each proposal should be made. Yardsticks can be established to measure the benefits to the traveling public as well as the impact that each plan will have on community development. Having evaluated each proposal on the basis of these findings, the technical coordinating committee can now recommend which plan is most appropriate for the com- munity. Generally local law will require that the plan be evaluated and then adopted by the local planning agency. The necessary approval of the State Highway Department should also be sought. Carrying Out the Plan In carrying out the plan, a close working relationship betweE!n the various professional groups can help to insure the logical development of the transportation program, while at the same time minimizing disruption of normal community activities. Such a team is especially important with regard to design details that affect operation and community amenities. Division of responsibility at this stage would be as follows: Joint Responsibilitv: 1. Determining the exact location of proposed transportation facilities 2. Establishing transportation improvement priorities 3. Keeping the data and plans up to date - 5 - City Planner's Responsibility: 1. Establishing the necessary planning program (oft-street parking and load requirements in zoning ordinances, requirements that subdivisions conform to the transportation plan, etc.) to foster the development of the transportation plan. 2. Consulting with the traffic engineer to report on the impact that various zoning changes will have on transportation problems. 2. Enqineer's Responsibility: Establishing the necessary operational and control measures to assure smooth traffic operation during construction of facilities Determination of operational measures necessary to effectuate the transportation proposals Review with the city planner proposed major traffic operational changes like one-way street and thru-street program Traffic 1. 3. In developing and implementing the plan, all professional groups have a responsibility to inform the public fully of their actions. Public support for any transportation program is most essential, and this fact must be recognized during all phases of the program.