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Abstract: The San Diego County Department of Planning and Land Use initiated a planning process to facilitate a dialog with residents regarding the economic needs of the unincorporated communities. The goal of the process was to create a "community up" method that would produce an integrated action plan to direct future development policy and capital expenditures.
An integrated action plan identifies a preferred plan for economic restructuring, defines discrete tasks, assigns task responsibility, provides project cost estimates, and an implementation timeline. The content of the preferred plan is the result of extensive community outreach and a series of topic-intense workshops. The workshop participants and steering committee members are responsible for the content of the action plan.
The process begins with the identification of project goals and objectives. It also requires an in-depth review of existing conditions as well as anticipating the needs of the future population. The process also requires that the community conduct a gross market analysis. A SWOT analysis — a consideration of the community’s Strengths, Weaknesses, Opportunities and Threats, constitutes a gross market analysis.
The concept plan is then presented in a single document that must undergo public review and approval by the elected decision-makers. Local residents, planning groups, and potential investors are then able to reference the approved document.
Introduction
San Diego County, population 2,442,150, is the fourth most populous county in the nation and the second fastest growing county in California, based on population change from 1998 to 1999. The unincorporated area of San Diego County encompasses approximately 2.3 million acres of land, and offers a diverse mixture of open space, agriculture, habitat preservation areas, low-density residential estate development, and small communities identified by a traditional central business district and moderate- to high-density residential development.
Patterns of settlement and land use began to change dramatically after the end of the Second World War. The completion of the interstate highway system allowed persons to live further away from their employment. The rural life-style of the unincorporated areas proved to be a tremendous attractant to people hoping to escape the pressures of more urbanized areas. Consequently, lands in agricultural production were being converted to subdivisions at an alarming rate. The transportation corridors also lured businesses away from the traditional town center, and the impact of the economic restructuring on the established central business district was evidenced by vacant storefronts, blight, vagrancy, and a lack of community spirit. The long-standing countrified traditions of the unincorporated communities were being threatened, and it became apparent that changes needed to be made in order to preserve the character of the rural communities.
The San Diego County Department of Planning and Land Use undertook a program to facilitate change in the depressed communities. The program was based on the philosophy that the preferred plan of action must rise up from the citizens. In 1997, the Department applied for and received Community Development Block Grant funds to finance the planning activities.
The Session
The 75-minute session was described as a "how-to" approach for creating an integrated action plan for economic revitalization. Maxx Stalheim, Planner III, moderated the session, and was assisted by Ms. Nancy Whalen, Regional Planner. The speakers, Mr. Jim Yerdon, AICP, and Mr. Vince Ross, represented communities that have participated in the economic revitalization process. Three perspectives were presented during the moderated discussion. Mr. Yerdon, representing Valley Center (population 15,000), was the speaker for the First Perspective: Getting Started. Mr. Ross, representing Fallbrook (population 36,000), spoke about the Second Perspective: Create Something New. Mr. Stalheim, filling in for the third speaker who was unable to attend due to a family emergency, spoke about Lakeside (population 55,000) and the Third Perspective: Create Something Old.
Overcoming Resistance to Change
The entire process for creating a community-up integrated action plan is an effort to facilitate change. Change is often met by resistance, and it is important to consider how the resistance can be overcome. A simple formula is beneficial to understanding the concept of overcoming resistance.
C + V + P > R
C represents change. The reasons for changing, and the consequences of not changing, must be clearly communicated.
V represents the vision of the community. The goals and desires must be clearly articulated.
P represents the plan of action that is created to attain the goals and objectives. The participants in the planning process are responsible for the plan’s content.
And finally, these three components, when added together, must be greater than the force of Resistance.
Integrated Action Plan
An integrated action plan is a document that is intended to direct future development policy and capital expenditures. The plan is based on a thorough analysis of existing conditions, projected population increases, and the desires of the community. The plan outlines the preferred development plan, identifies specific discrete tasks, assigns task responsibility, estimates project costs, and includes an implementation strategy and timeline. An example of the final product is represented by illustration A.
The Process
The process for creating a "community up" integrated action plan for economic revitalization begins with extensive public outreach. This involves a well-coordinated media campaign, town meetings, and a series of topic-specific workshops. All materials should be translated as necessary to accommodate the needs of stakeholders. San Diego County attained the goal of enfranchising the Spanish speaking community.
The purpose of the media campaign was to generate interest for a town meeting. Residents who attended the town meeting were instructed to close their eyes and imagine their ideal community, as it would appear 15 years in the future. The responses were grouped into categories in order to begin identifying key issues. This serves two purposes. The first is to begin the process of document "ownership", and the second purpose is to recruit volunteers who will participate in the planning process. Most importantly, though, the information provides a general sense of direction, or mission, and is essential when formulating project goals and objectives. A goal is defined as an ultimate desire expressed in general terms. An objective is defined as a measurable step that leads in the direction of the goal.
The planning process involves a series of intense topic-specific workshops. The volunteers, based on group consensus, are responsible for the content of the integrated action plan. This stage is the most intensive and requires a large investment of time and energy. As an example, the Fallbrook Economic Revitalization Plan, recognized by the San Diego Chapter of the APA as an outstanding comprehensive planning project in a small jurisdiction, represents more the 1,700 hours of community work.
Illustration B represents the flowchart of the process. The work of the volunteer group is reviewed by a steering committee. Draft documents are reviewed and changed according to the suggestions of the steering committee. The volunteers then review the amended document, and the cycle is repeated until there is produced a document that meets with the agreement of all participants.
Finding "The Fit"
But how do you determine what will work in your community? This task is accomplished through the use of a SWOT analysis. The analysis is an exercise that is used to determine the Strengths and Weaknesses of the community. This information is used to identify what the community is capable of doing. The exercise also determines the Opportunities and Threats that are present outside of the community. This information is used to determine the needs of residents, competitors, and allies, and may suggest an appropriate regional market niche. In essence, the community is conducting a gross market analysis. The results of the analysis, when combined with goals and objectives, will intersect and thus suggest a preferred course of action.
The Results
Although three unincorporated communities have participated in the "community up" planning process, each community reached a different conclusion when considering how to revitalize their local economy. The Fallbrook Economic Revitalization Plan determined that the downtown business environment would best be preserved and enhanced by creating five new "Village Zones". Each proposed zoning district includes unique development standards and allowed uses. This is a significant departure from the "one-size-fits-all" approach of standardized zoning. Lakeside determined that the greatest benefit to the local economy would be to create a historic district and to develop specific design standards for new construction and major remodels of existing structures. Valley Center has determined that a full-blown revitalization plan is not necessary. Instead, the recommendations of the advisory committee will be forwarded to the local planning group for consideration during the update of the San Diego County General Plan.
Conclusion
The planning process used by the San Diego County Department of Planning and Land Use is an ideal method for creating a "community up" integrated action plan. The methods are easily adaptable and have a broad range of applicability - whether creating a large-scale community plan, or determining a course of action for smaller community or group events. The success of the San Diego experience is reflected by the fact that the concept economic revitalization plans were approved by the County of San Diego Board of Supervisors without public opposition. The Department of Planning and Land Use is currently in the process of implementing the concept plans and enacting the desired land use development policies.
Author and Copyright Information
Copyright 2001 by Author
Maxx Stalheim, Planner III, has fourteen years of professional planning experience, eleven of which have been with the San Diego County Department of Planning and Land Use. Mr. Stalheim is a talented facilitator, and finds that working with communities and identifying solutions to economic challenges is a very rewarding experience. Maxx was born and raised in a small town in South Dakota, and has intimate knowledge of the challenges facing rural communities.
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