Land use plan

What Is a Land Use Plan?

A land use plan is a foundational document prepared by local governments to guide the physical development and management of land within a jurisdiction over a long-term horizon, typically 10 to 20 years. It falls under the broad category of urban planning, a discipline focused on the orderly growth and development of cities and regions. The purpose of a land use plan is to establish a vision for the future, outlining goals, objectives, and policies for how land should be used to achieve desired community outcomes. These outcomes often include promoting public health, safety, and welfare, fostering economic development, ensuring the efficient provision of infrastructure, and protecting natural resources. A land use plan serves as a blueprint for decision-making regarding public and private land development proposals, influencing everything from the location of residential neighborhoods to commercial districts and open spaces. It is a critical component of effective public policy at the local level.

History and Origin

The concept of regulating land use has roots in medieval Europe, but modern land use planning in the United States began to take shape in the early 20th century, largely in response to the challenges of rapid industrialization and urbanization. Early efforts focused on minimizing conflicts between incompatible land uses and promoting more coherent development patterns. A significant milestone was the publication of A Standard State Zoning Enabling Act (SZEA) in 1922, and its revised edition in 1926, by a committee of the U.S. Department of Commerce under Secretary Herbert Hoover. This model law provided states with a framework to enable local governments to implement zoning regulations. Following this, A Standard City Planning Enabling Act (SCPEA) was released in 1927 and published in final form in 1928, which specifically directed planning commissions to prepare and adopt a "master plan," a precursor to the modern land use plan. These two standard acts laid the fundamental groundwork for land development controls in the U.S., including the development of comprehensive plans that guide physical development¹⁰.

Key Takeaways

• A land use plan is a long-range strategic document guiding how land will be used and developed within a municipality or region.
• It sets forth a community's vision for future growth, balancing economic, social, and environmental considerations.
• Land use plans provide the framework for regulatory framework like zoning ordinances and inform public investment decisions.
• Effective implementation requires public participation, inter-agency coordination, and adequate resources.
• The plan aims to achieve desirable community outcomes, such as orderly development, protection of natural assets, and efficient service delivery.

Interpreting the Land Use Plan

Interpreting a land use plan involves understanding its proposed allocation of land for various purposes, such as residential, commercial, industrial, agricultural, and open space. These plans typically include maps illustrating proposed land designations and accompanying text that elaborates on the goals, objectives, and policies for each area. Stakeholders, including developers, property owners, and residents, use the land use plan to anticipate future development trends and understand the permissible uses and density levels for specific parcels of real estate. For instance, an area designated for "low-density residential" would generally preclude high-rise apartment buildings, while an "industrial" designation would allow manufacturing facilities. The plan provides a forward-looking perspective, helping to shape expectations for property values and future investments. It acts as a guide for development proposals and helps ensure that new projects align with the community's long-term vision.

Hypothetical Example

Imagine "Green Meadow City" is experiencing rapid population growth. To manage this expansion, the city council initiates the creation of a new land use plan. The existing plan, drafted 20 years ago, designates a large area on the city's western edge as "agricultural preserve." However, with the influx of new residents, there's a pressing need for affordable housing.

The new land use plan process involves extensive public outreach, including community workshops and surveys, to gather input on the city's future. After thorough analysis and debate, the updated land use plan proposes a change for a 50-acre portion of the agricultural preserve. This specific area is now designated as "mixed-use residential with commercial nodes," allowing for the development of medium-density housing alongside small retail businesses. The plan specifies that 20% of new housing units must be designated as housing affordability units, and that developers must contribute to new public park space and improved public transit access. This strategic re-designation within the land use plan reflects the community's evolving needs while still protecting significant agricultural lands and promoting sustainable growth.

Practical Applications

Land use plans are central to local governance and development, appearing in various practical applications:

• Guiding Development Decisions: They serve as the primary reference for local zoning and development regulations, ensuring that all new construction and land alterations conform to the community's future vision. City planners and review boards use them to evaluate permit applications.
• Informing Public Investment: Municipalities use the land use plan to prioritize and allocate resources for public works, such as new roads, water and sewer lines, schools, and parks. This directly impacts capital budgeting decisions and the efficient use of taxpayer money.
• Promoting Environmental Sustainability: Plans often designate areas for preservation, open space, and sensitive ecological zones, helping to protect natural habitats, manage water resources, and mitigate the impacts of climate change.
• Fostering Community Development: By designating specific areas for residential, commercial, and industrial uses, these plans help create balanced and functional neighborhoods, providing spaces for living, working, and recreation. A comprehensive plan, often synonymous with a land use plan, presents a vision for the future with long-range goals and objectives for all activities that affect local government, including guidance on public and private land development proposals⁹.

Limitations and Criticisms

Despite their importance, land use plans face several limitations and criticisms:

• Implementation Challenges: The effective implementation of a land use plan can be hampered by various factors, including a lack of stakeholder participation in its preparation, insufficient human and financial resources, inadequate data management, and a lack of integration and coordination among different governmental departments⁸,⁷. Political will and institutional support are also crucial, and their absence can significantly impede progress⁶,⁵.
• Inflexibility and Adaptability: Once adopted, a land use plan can be slow and difficult to amend, potentially making it unresponsive to rapid changes in economic conditions, population shifts, or technological advancements. This can hinder the ability of a city to adapt to new opportunities or challenges.
• Economic Impacts: Policies stemming from land use plans, such as urban growth boundaries, are often criticized for potentially constraining the supply of developable land within the boundary, which can lead to increased land prices and, consequently, affect housing affordability. While proponents argue these boundaries can prevent urban sprawl and protect rural areas, studies show mixed results on their impact on housing costs⁴,³. The economic implications of constrained urban growth are a subject of ongoing debate in the field of urban economics².
• Equity Concerns: Critics argue that land use plans can sometimes exacerbate social and economic inequalities if they do not adequately address the needs of all community segments, leading to issues such as gentrification or a lack of diverse housing options.

Land Use Plan vs. Zoning Ordinance

While closely related and often confused, a land use plan and a zoning ordinance serve distinct purposes in managing urban development.

A land use plan is a visionary, long-range document that sets forth the overarching goals, policies, and a conceptual map for future development. It is a broad policy statement that articulates where different types of land uses should ideally be located to achieve the community's vision. It doesn't legally restrict what can be built on a specific parcel; rather, it provides the policy basis for more specific regulations.

Conversely, a zoning ordinance is a legal tool used to implement the vision of the land use plan. It consists of specific regulations that divide a city or county into different districts (zones) and prescribe what types of land uses are permitted, the intensity of those uses (e.g., building height, density), and specific development standards (e.g., setbacks, parking requirements) within each zone. A zoning ordinance has the force of law, meaning property owners must comply with its provisions. In essence, the land use plan provides the "why" and "what for" of land development, while the zoning ordinance provides the "how" and "where" through legally enforceable rules designed to bring the plan's vision to fruition and guide the market equilibrium for development.

FAQs

What is the primary purpose of a land use plan?

The primary purpose of a land use plan is to provide a long-term framework for the orderly growth and development of a community. It helps local governments make informed decisions about where and how to allocate land for various uses, such as homes, businesses, and parks, while considering public welfare and resource protection.¹

Who creates a land use plan?

Land use plans are typically created by local government planning departments, often with the guidance of a planning commission and ultimately adopted by the city council or county board. The process usually involves extensive public participation to ensure the plan reflects community values and needs.

Is a land use plan legally binding?

The land use plan itself is generally a policy document and not directly legally binding in the same way a law is. However, it serves as the legal basis for other ordinances, particularly the zoning ordinance, which is legally binding. All development regulations and public investments are expected to be consistent with the adopted land use plan.

How often are land use plans updated?

The frequency of updates varies by jurisdiction, but land use plans are typically reviewed and updated every 5 to 10 years, or as significant community changes (like population growth or economic shifts) necessitate. Regular updates ensure the plan remains relevant and responsive to evolving conditions and priorities.

How does a land use plan affect individual property owners?

A land use plan affects individual property owners by guiding the permissible uses and development intensity of their land. While it doesn't directly change existing zoning, it signals potential future zoning changes or influences how variances or development proposals might be reviewed in line with the long-term vision. Understanding the land use plan helps property owners make informed decisions about their real estate holdings.