The Dallas Plan:
Creating A Partnership for Strategy and Action

Introduction

Trends Affecting Dallas

In the Dallas-Fort Worth metropolitan area, as in many other urban areas, the development trends showed growth on the fringes of the area and little investment in new development in the central parts of the region. In 1960, the city of Dallas was the home of 52% of the metropolitan region's population. By 1990, only 38% of the region's residents lived within the corporate limits of the city of Dallas. Unlike some central cities, however, Dallas' population did increase during this time, to almost 1,007,000 persons in 1990. Also, it has remained the significant job center for the region, with over 511,000 jobs in 1994. The population and employment trends, then, did not spell absolute decline but rather the attraction of a declining share of the region's growth.

The geographic location of new development added to the concern about Dallas' ability to attract residents and businesses. Much of the sprawling new development was located to the northwest of Dallas, in the vicinity of Dallas/Fort Worth International Airport, or to the north along Interstate 35 and Highway 75. In both these directions, the incorporation of suburban communities prevented Dallas from annexing growth areas. The areas of Dallas where large tracts of vacant land remailed, and the direction in which the city could consider annexation, was to the south. Major new developments in these areas would be contrary to the regional trends.

Leadership and Institutional Issues

Finally, the city government and the community lacked a shared vision for the future. There was no comprehensive plan or program. No major bond programs had been approved since 1985. The result of these concerns was the sense that the city was not anticipating the needs of the future. While immediate city services were provided, decline appeared to be the long-term prospect.

Creation of "The Dallas Plan"

1. Initiation of the Project

The Dallas Plan project was initiated by then-Mayor Steve Bartlett in 1992. He envisioned it as a partnership between city government, business leaders and the community. Mayor Bartlett persuaded a local business leader, Robert Hoffman, to lead the effort. A 501(c)3 non-profit organization (Dallas City Plan, Inc., known as The Dallas Plan) was created and funded initially by local foundations and some businesses. The City Council, which supported the effort, was responsible for setting policy direction and approving the resultant plan. The City administration also provided in-kind support for The Dallas Plan through the loan of city employees, location of Dallas Plan offices in City Hall and other means.

The organization had a 3-member board of directors, chaired by Mr. Hoffman. At first, the objectives of this effort were focused on creation of a plan for the city's capital investment. Since this goal seemed relatively clear, the project was expected to take approximately one year, after which it would no longer be required. For this reason, the organization's board chose to hire a "staff" of consultants to prepare the plan as a short-term project.

2. The Planning Process

The process of preparing this capital improvements plan included research and analysis, community input and policy discussion with the city's elected officials and community leaders. Background research began in late 1992 and continued through 1994. The analysis of demographic, economic and fiscal trends and conditions combined with policy research and urban design analysis of key areas of the community.

Community involvement occurred through four sets of outreach sessions, each structured to gain more specific input from those involved. The initial outreach effort, called "Listening to the City", began in early 1993 and helped to set an agenda for the plan. It became apparent that the project's goal would need to be broader than originally anticipated. To put it simply, there was no way to create a set of priorities for capital investment without a clear statement of the goals to be achieved by this investment and the overall vision of the community's desired future. The publication of the first "Discussion Draft" in October 1993 reflected this change in perspective and addressed issues of community character, urban design and economic development as well as the more specific assessment of needs and resources for capital investment.

The community debate in response to this discussion draft was extensive and, in some cases, heated. While some proposals and directions of the draft were strongly supported, others were soundly criticized. The Dallas Plan consultant team, the City Manager and the City Council considered these comments and further modified the project's direction.

By the spring of 1994, the ultimate shape of the plan was determined. Rather than simply a list of capital improvement priorities, the Dallas Plan was to focus on a vision for Dallas' future and a set of strategic initiatives for action. Instead of an emphasis on the urban design of particular projects or areas, it was to set policies and define an implementation agenda that would address issues and opportunities throughout the city.

3. Plan Approval

The fourth set of community workshops, in fall 1994, responded to a final draft of the plan that was significantly different from the discussion draft of a year earlier. The response was different as well. Organizations which had prepared plans or design concepts for particular parts of the city felt that their proposals were reflected in the plan and formed the basis for important recommendations. Residents and groups that had objected to some of the ideas presented earlier felt that their comments had resulted in change to the plan. When the Dallas City Council considered the Dallas Plan, many organizations, including some former opponents, stated that the proposed plan did reflect their comments and priorities. In part because of this broad-based community support, the City Council adopted The Dallas Plan unanimously on December 14, 1994.

4. From Planning To Action

Creation of The Dallas Plan had produced not only a document but a structure of partnership and collaboration. Several decisions in 1994 refined the organizational structure of The Dallas Plan to create a vehicle for plan implementation, a role which arose because of the success of the plan development process and a recognition of the value of a continuing partnership.

Continuing funding was secured from the Dallas area business community. Businesses were asked to commit to funding of The Dallas Plan for five years - enough time to focus on results rather than fund-raising but not an indefinite commitment if action was not forthcoming. The group of funders includes companies headquartered in Dallas suburbs, companies with national or international parent corporations and companies in Dallas itself. Together, the funders have provided a base of over $500,000 per year for each of the five years.

With City Council approval, the Board of Directors was expanded to nine members so it would reflect the broader community's gender, ethnic and interest diversity. The board is not appointed by the City Council; instead, it is an independent, self-appointing body. Continuing support by the City Council is conditioned on the organization's ability to reflect this diversity. The first expanded Board of Directors, which took office in May of 1995, includes two women, two African-Americans, two Hispanics and one Asian-American; it includes business leaders, neighborhood representatives, a design professional and individuals active in organizations ranging from the City's Park Board to womens' organizations, from neighborhood associations to international trade efforts. Only two of the nine members represent funder corporations.

Lastly, the organization shifted from a group of consultants to a team of permanent professional staff. This change enables the staff to build and maintain on-going relationships with the City administration and the community as action occurs over time.

Major Features of The Dallas Plan

1. A Vision for the Future

Exhibit 1 is the overall Vision Statement for The Dallas Plan. Recognizing that the future of the city will be the result of many independent decisions by individuals, businesses, community groups and governmental entities, the vision statement stresses the creation of a city that offers choices that are attractive to these diverse decision-makers. Also, its emphasis on the city's role as an investor (rather than simply a service provider) underscores the role public investment plays in the future character of the community.

Exhibit 1 Status of "25 for '95" Action Agenda

Year End '96 Update for "25 For '95" Action Items
Status	Significant Accomplishments Work In Progress
	Funding Neighborhood Capital Improvements Backlog
	Assistant City Manager for Intergovernmental Affairs
	Dallas Economic Development Corporation
	Trinity River Corridor Citizens Committee Recommendations
	Funding Partnerships with Federal, State, Local Governments, Private Sector and Non-Profits
	Neighborhood Renaissance Partnership
	Comprehensive Economic Development Plan
	Downtown Connector/Circulator
	Southern Dallas DART Station Area Evaluation
	Liveable Neighborhoods Strategy
	Haskell Boulevard Design Concept
	South Dallas Airport Feasibility Study
	Love Field Area Study Implementation
	Automated Library System
	Fair Park Community Cooperation
	Intown Housing
	South Dallas Industrial Revitalization
	Center City Parks and Linkages
	Capital Investment in Citywide Core Assets: Fair Park, White Rock Lake, the Arboretum, Zoo and Citywide Parks Network
	Downtown Sports Arena
	Hispanic Cultural Center
	SDDC as Community Development Financial Institution
	Collaboration for Education
	Redbird Airport Implementation Strategy
	Advanced Technology Task Force Recommendations

2. Strategic Initiatives

As mentioned above, The Dallas Plan is structured with six strategic initiatives - the key topics that will have a significant effect on the community's quality of life, its economic health and the city's ability to meet community needs. Each initiative contains a vision statement and a set of goals describing the desired results. Policies provide detailed direction for decision-making throughout the thirty-year planning period. An action agenda proposes projects and programs for the short term. Exhibit 2 lists the six strategic initiatives.

Exhibit 2: Status of "Action '96" Agenda

The Dallas Plan In Action '96 Partnerships with the City of Dallas, The Dallas Plan and many other organizations are carrying out this action agenda for 1996.
Status	Significant Accomplishments Towards Targets Work in Progress
CORE ASSETS
	Library System	Enhanced Services at Branch Libraries Public-Private Funding Partnership Automated Library System Capital investments
	Fair Park	Capital Improvements
	Arts District	Feasibility Study/Private Support Organization for Performing Arts Center
	White Rock Lake and Park System	Progress on lake desilting - disposal site selection and permit approvals Public-private partnerships
	The Dallas Zoo	Entry plaza Exhibit enhancement
	Redbird Airport Privatization	Implementation strategy
	Transportation Systems	DART Light Rail and Railtran start-up Pedestrian linkages (trails, paths, sidewalks, access to key destinations)
NEIGHBORHOODS
	Neighborhood Capital Improvements
	Neighborhood Renaissance Partnership
	Homeownership Initiatives	Homes for Dallas "Inside Loop 12" housing preservation demonstration program Public-private initiatives Evaluation of land assemblage and financing entity
	Neighborhood Fair
	Liveable Neighborhoods	Code enforcement review Community policing Multi-family housing rehabilitation Demonstration project - substandard housing assisted repair
	Healthy Communities	Strengthening neighborhoods Connecting service providers Regional stakeholders
ECONOMIC DEVELOPMENT
	Comprehensive Economic Development Plan	Coordination of current programs City Center TIF evaluation Assessment of core industries Advanced technology and multimedia Identification of priority geographic areas Heritage Alliance Initiative
	Hispanic Cultural Center
	Economic Development Area Strategies	Love Field Area development Capital investment and financial support Biotechnology partnership Stemmons/Harry Hines Corridor Spring Valley/Coit area Other economic opportunity areas
	Downtown Sports Arena
	Education Initiatives
THE CENTER CITY
	Intown Housing
	Dallas Education Center
	Center City Parks, Linkages and Gateways	Old Red Courthouse project Coordinated plan for public and private open spaces Haskell Blvd. and other transportation linkages Gateways to the Center City
	Center City Marketing
	Demonstration Projects	Main Street Area · Downtown Transit Mall
THE SOUTHERN SECTOR
	Southern Dallas Industrial Revitalization
	Building on Southern Sector Institutions and Assets	VA Hospital Paul Quinn College McCommas Bluff Area DART stations Historic districts
	South Dallas Airport Feasibility Study
	Fair Park - South Dallas/Fair Park Action Projects
	West Dallas Community Strategic Plan
THE TRINITY RIVER CORRIDOR
	Major Public Investment Projects	Trinity Parkway Floodway extension Upper Trinity feasibility study Trinity River State Park
	Planning and Development	Demonstration project - Oak Cliff Gateway Planning baseline study Economic opportunities market assessment
	Trinity Action Program	Creation of "Foundation" Trinity Trails "ground-breaking" Designation of the Great Trinity Forest Trinity awareness events and education
COORDINATION AND COMMUNICATIONS
	Communication about The Dallas Plan implementation

Core Assets

The first strategic initiative focuses on the city's Core Assets and emphasizes continuing investment to preserve these valuable resources and increase their benefit to the community. Core assets include the library system, Fair Park, the Arts District, White Rock Lake, the Zoo, Dallas/Fort Worth, Love Field and Red Bird Airports, and the water, solid waste and transportation systems.

The role of core assets in Dallas' long-range planning is illustrated by Fair Park. Fair Park was the site of the 1936 Texas Centennial Exposition, and is home to Dallas' largest grouping of cultural facilities, over one-half of Dallas' public art, significant art deco architecture, the State Fair of Texas and the Cotton Bowl. The Park and 22 of its buildings are National Historic Landmarks. The buildings, murals and statuary are in varying states of disrepair; significant capital investment is needed for their restoration. In addition, Fair Park is surrounded by lower income neighborhoods and is perceived as distant from other community and tourist attractions.

The Dallas Plan approach to Fair Park emphasizes reinvestment in this community asset and in its linkages to the larger community. Reinvestment in the Park itself includes contributions by the City, other governmental entities, the private sector and the leadership of the museums and other facilities located in the park. This investment is coupled with action to revitalize the surrounding neighborhoods and development of stronger links between Fair Park and other downtown attractions. Planning and action should occur through the involvement of all affected and interested groups. An inclusive consensus-building approach builds support for this core asset and for neighborhood development. Reinvestment increases the opportunities for Fair Park's year-round enjoyment by the entire community, in ways which are compatible with the surrounding neighborhood. By linking the future of Fair Park and its surrounding neighborhoods, we ensure that both will benefit from the community's investments.

Neighborhoods

Neighborhoods are the focus of a strategic initiative because they are critical to quality of life and, as a result, residents' satisfaction with their community. Proposals in this initiative stress neighborhood involvement and partnerships to provide services and meet the needs of each unique neighborhood. This initiative was added to the plan in response to community concerns raised in 1993; this addition enabled leaders from neighborhoods around the City to support the final Dallas Plan. Other issues addressed in this strategic initiative include homeownership, a set of indicators to measure neighborhood quality of life and gateways and other neighborhood points.

Economic Development

The third strategic initiative addresses Economic Development. It emphasizes investment to support growing industries, create new jobs and provide economic opportunities in all parts of the city. Partnership with the private sector is designed to help Dallas anticipate growth in emerging fields, such as biotechnology, and create the capacity for change so the City government and the community can support these new businesses.

Three strategic initiatives emphasize special geographic areas within Dallas. The Center City, the Southern Sector and the Trinity River Corridor are all places with distinctive strengths and challenges. The Dallas Plan proposes focused efforts to make the most of these areas' resources.

Center City

Creative urban design will be a significant part of these efforts. In the Center City, reuse of existing structures for housing and retail is creating a new activity mix for downtown. The Center City extends beyond the traditional Central Business District to include close-in urban neighborhoods and their community assets. Design for the future includes linked parks and public open spaces, some created from the surface parking lots that dot the downtown. Diverse transportation options, from historic trolleys and light rail to walking and travel along grand boulevards, further add to the unique character this area of the city will offer to residents, business owners, employees and visitors. Urban design opportunities here will shape the character and the quality of life for Dallas' future residents.

Southern Sector

The Southern Sector holds challenges and opportunities for Dallas. With most of the city's vacant land, it can make a significant contribution to the community's future. It presents a challenge because it includes many declining residential and commercial areas. Planning for the Southern Sector involves attention to neighborhood reinvestment and realistic efforts to attract new economic development. Transit-oriented development focuses on the urban design opportunities around Dallas Area Rapid Transit (DART) light rail stations. Neighborhood opportunities will include revitalization and renovation---with community involvement---and commercial/retail area investment to serve residents and support small businesses. Existing institutions such as Methodist Hospital, the Dallas Zoo and Paul Quinn College will be focal points for leveraged retail and commercial development. Additional design opportunities in the Southern Sector include new employment centers and new residential developments.

Trinity River Corridor

The Trinity River Corridor offers Dallas the opportunity to create a new "front yard" onto an open space many times larger than New York's Central Park. Three key strategies are the basis for action here. First, planning for the corridor must integrate action to address all issues: flood damage reduction, transportation, economic development, environmental preservation and recreation and open space. Second, all interested citizens must be able to participate in the planning and implementation process. Third, the effort includes the entire Trinity River within the Dallas city limits. The result of this process has been innovation -- design to meet local and through traffic demands and increase access to the river, actions to reduce flooding of existing neighborhoods that will also preserve a major hardwood forest, inclusion of new recreational facilities and support for economic development ranging from reinvestment in industrial areas to creation of new centers for ecotourism. Action in this corridor will change the Trinity River from a barrier between communities to a "common ground" linking them.

3. Setting the Stage for Short-Term Success

The Dallas Plan has designed an approach to implementation that differs from traditional perspectives in several critical ways:
• It defines immediate targets for accomplishments that are steps toward the plan's long-range goals.
• It incorporates a wide range of governmental decisions and activities as part of plan implementation, rather than focusing primarily on zoning, subdivision regulation and extension of capital facilities as the major tools for carrying out the plan.
• It recognizes the role of private investment decisions, by businesses, homeowners and others, as integral to the plan's success.
• It includes organizations other than the city government as responsible partners and celebrates their contributions to plan implementation.
• It addresses the need for institutional structures to implement the plan as well as the customary "bricks and mortar" physical improvements.

The implementation process is structured around an action agenda based on community input and approved by the Dallas City Council. Immediately following the plan's adoption in December 1994, the City Council adopted the "25 for '95" - a list of 25 specific items to be completed during 1995 to begin plan implementation. Each item on the list was described by an overall objective for the year and detailed targets for action to reach that objective. In January 1996, a community outreach process reported the results of action in 1995 and sought input on priorities for 1996. This process resulted in the Action '96 agenda, again focused on particular targets for accomplishment during that calendar year. January 1997 has seen a second community review process; this year, the City Council will establish an action agenda with targets for accomplishment in 1997 and 1998.

Two Years Later: Results for the Community

1. Ability to Achieve Annual Targets for Action

1996 and 1997 have been years with noteworthy success in carrying out action items that are the first steps in achieving this 30 year plan. The Progress Report presented to the Dallas City Council in December of 1997 summarizes these accomplishments. It reports that work is in progress on all items on the 1995 and 1996 action lists. It notes that, of the 25 action items on the "25 for '95", 23 have seen significant accomplishment toward the targets set by Council. Of the 32 items on the "Action '96" list, 25 have had significant accomplishments. Though some action items were not accomplished, this record, with accomplishment reported for 78% of the 1996 action items, is an important statement of direct action to carry out the plan immediately after its adoption. Exhibits 3 and 4 show the "25 for '95" and "Action '96" items and the status of each. The examples which follow illustrate the variety of activities and projects that are part of carrying out The Dallas Plan.

1995 City Bond Program

May 1995 saw the first successful major City bond election in a decade. The projects included in this bond program reflected The Dallas Plan's strategic initiatives. Of the almost $175 million included in the bond program, $30.4 million was dedicated to reinvestment in the Core Assets defined in The Dallas Plan. Another $106.4 million was directed to address the "backlog" of investment needed in the neighborhoods. The bond program also reflected another Dallas Plan recommendation, as it was designed to be a manageable program for three or four years of capital investment, rather than an ambitious listing of projects that might not be completed for a much longer period.

The City of Dallas is successfully implementing this important aspect of The Dallas Plan. By the end of 1996, construction was complete or underway on 73 neighborhood street, drainage, park or other facility projects, representing $12 million of construction in the neighborhoods. An additional 181 neighborhood projects had engineering and design work complete or underway. The City's Public Works and Transportation Department and its Parks and Recreation Department have moved aggressively to complete this bond program on schedule.

The Core Assets benefitted from capital investment through the bond program and from other public and private funding. Core Asset capital projects completed by the end of 1996 include:

• A new user-friendly computer access system for the Public Library
• Opening of a new IMAX Theater as part of The Science Place at Fair Park
• Restoration of the historic "Transportation of the Future" mural at Fair Park
• A new entrance to the Dallas Zoo (including a 70-foot tall giraffe statue visible from Interstate 35) and completion of a new lemur exhibit
• Opening of the DART light rail system

It is significant that capital investment by other public entities is identified as part of The Dallas Plan's focus on Core Assets. Though DART is a separate entity from the City of Dallas, its investment in the light rail system is important to the community's transportation system and to economic development and neighborhood revitalization. By acknowledging the contribution of such other entities, The Dallas Plan emphasizes the interjurisdictional cooperation necessary to achieve any major community's vision for its future; it also recognizes the role these jurisdictions plan in shaping that future.

West Dallas Community Planning Strategy

West Dallas is a community which has received a great deal of attention in terms of specific problems but little opportunity for involvement in planning for its future. Located between the Trinity River and Interstate 30, this area includes light and heavy industrial areas as well as neighborhoods of predominantly Hispanic and African-American residents. Most development took place before Dallas annexed the area in the 1950's in order to address serious health and sanitation problems. Today housing values, rents and median incomes are well below those of the city and unemployment rates, percentage of adults without a high school education and health indicators all describe a population with serious needs.

Lead smelting operations have resulted in part of the area's designation as a Superfund site. West Dallas also included the highest concentration of Dallas Housing Authority (DHA) units in the city. Fair Housing litigation and a consent decree entered into by the plaintiffs, DHA and the City of Dallas provide for additional expenditures in DHA properties and adjacent neighborhoods. Both of these issues have been the focus of extensive public debate.

In community workshops in January 1996, West Dallas residents complained that, although their community was a part of the Southern Sector, there was no specific strategy in The Dallas Plan addressing their particular needs and opportunities. As a result, the Action '96 agenda included creation of a West Dallas Community Planning Strategy to define a vision for the community and a set of recommendations for action.

The Dallas Plan organization took responsibility for this initiative. Background research and communication with city departments, community and business groups and area leaders set the stage for community discussion. The first workshop for this project was held in August 1996, with a second workshop in November. Each workshop was attended by over 80 stakeholders in the community. The level of excitement and support for this initiative is striking. Many participants noted that this is the first effort with initial involvement by the community, with inclusion of all issues of interest and for which they are participants in shaping the results.

A final report from this community planning strategy is anticipated in early 1997. Implementation will occur through action by groups including neighborhood associations, non-profit housing corporations, the Dallas Police Department's "Weed and Seed" program, the city's Planning and Development Department (which will conduct a detailed land use and zoning study), churches and area business associations.

Neighborhood Fair

The Dallas Plan recognizes that neighborhood quality of life is a significant factor in the locational decisions of individudal residents and businesses. At the same time, the diversity of neighborhoods in a city as large as Dallas means that there is no single solution to the provision of adequate services, resources and facilities to neighborhoods. Also, the economic and fiscal conditions of the past decade have emphasized the limits to the role local government can play in assuring a good quality of life in the city. Resources beyond those of the municipal government must contribute to the revitalization, stabilization or creation of thriving and diverse neighborhoods.

The Neighborhood Fair is one of the action items devised to strengthen the role of other organizations and the resources available for neighborhood-level action. It was conceived as a forum for neighborhood leaders and service providers to meet, share successes and learn about available resources. The first Neighborhood Fair was held in October 1995, with the second event in November 1996. Both fairs were planned and conducted by representatives from more than a dozen organizations. The 1995 Fair was coordinated by the Greater Dallas Planning Council, a civic organization; the 1996 Fair was coordinated by The Dallas Plan.

For the first fair, over 80 neighborhood groups and service providers staffed displays and presented information on successful projects. The second fair focused on a set of workshops, at which neighborhood leaders, non-profit corporation representatives and others discussed topics such as funding of a neighborhood organization and creation of a "tool kit" of resources for neighborhood-based groups. In both cases, neighborhood representatives had successes to share with their peers from all parts of the city. Among the projects discussed were a successful homes tour, a food bank and local newsletters and marketing brochures.

City departments were active participants in these events, as were representatives of public and private health care organizations and other social service and community groups. Since the focus was not on "getting a bigger slice of the City budget pie" but on a wide range of techniques and resources, neighborhood participants gained tools that will make them more active partners in achieving the quality of life and neighborhood character that is most appropriate for their own neighborhood.

City of Dallas Business Development Corporation

Achieving the goals of The Dallas Plan requires a stable, growing tax base. This, in turn, requires new private investment in Dallas. Since the regional development pattern trends are outward and to the north, away from developed areas and away from Dallas' available vacant land, attracting private investment requires tax incentives, public investments and other means to make these areas attractive to businesses and developers. As part of The Dallas Plan's Economic Development strategic initiative, the need for an economic development corporation was identified. This corporation was intended to work with the public sector and private interests to target economic opportunities, carry out land assembly, support infrastructure improvement and otherwise assist in attracting investment to key parts of Dallas. Creation of this entity was included in the "25 for '95" agenda.

The City's Economic Development Department investigated this concept and conducted a detailed study to define the responsibilities, structure and area of focus for such an entity. The City Council established the organization in the fall of 1995, with responsibility for real estate development, development finance, marketing and promotion. Its efforts are to be focused geographically on the Southern Sector. By year end 1996, a Board of Directors had been appointed by the City Council, a President had been hired, and the new City of Dallas Business Development Corporation (CDBDC) was reviewing a set of candidate sites for initial investment and assistance.

Trinity River Corridor

The Trinity River Corridor is the focus of one of the six Dallas Plan Strategic Initiatives. Historically a barrier between the northern and southern portions of the city, the vision for the Trinity River's future is as a shared resource. A large citizens committee, co-chaired by two City Council members, developed a concept for addressing the varied issues related to the corridor. The Trinity River Corridor was identified as the top priority by current Mayor Ron Kirk in his inaugural address. Since he took office in June 1996, the City and other entities have moved forward on several major projects that will address Trinity River Corridor issues.

For 1996, the Action '96 agenda identified three broad areas for action related to the Trinity: major public investment projects, planning and development and a Trinity Action Program. Significant accomplishments were achieved in each of these areas. The City Council decided on a "chain of wetlands" approach as the first part of the locally-preferred option for a flood control project funded primarily by the U. S. Army Corps of Engineers. The Texas Department of Transportation is conducting a Major Investment Study to address the corridor's transportation issues.

An initial area for economic development along the river, known as the Oak Cliff Gateway, has been the focus of coordinated action by The Dallas Plan and the City's Economic Development and Planning Departments. Within this area, which is located directly across the Trinity River from downtown, a Strategic Implementation Program combines the use of a Tax Increment District, Historic District designation, Planned Development District and other tools to create an area for residential and commercial development that will enjoy dramatic views of downtown, an historic character for residential and tourism areas, recreation linked to the Trinity and employment based on the Methodist Medical Center and other anchors.

2. Involvement of Partner Organizations

   One of the strengths of The Dallas Plan is that is does not rely solely on the resources and actions of the municipal government in order to accomplish its goals. Partner organizations also share in responsibility for action. This innovation has several advantages:
   • It uses the City resources where those are most appropriate and effective, but it does not require additional governmental involvement in decisions that are generally made by private interests. The city does not need to encroach on the responsibilities of other entities or seek additional regulatory powers; instead, the plan is implemented in part by the fact that other private and public interests are using it as part of their own decision-making and investment processes.
   • It makes additional resources available to accomplish the plan's goals. Rather than focusing solely on a city's operating and capital budgets, implementation of the plan occurs through the decisions of the county hospital in designing community-based programs, the industrial attraction research funded by the chamber of commerce and the tree-planting programs carried out by neighborhood associations.
   • It brings the correct expertise to the table. City planners are not typically expert in the programming and marketing of a science museum or arts facility. Yet those institutions are important to the overall character of the community. They can also serve as centers for other community investment and economic development to serve facility visitors. Since those institutions are partners in accomplishing The Dallas Plan, they are active participants in structuring programs that support their institutions and help them reach out to the community; at the same time, they contribute their knowledge of their customers to the design of economic or community development programs.
   • It recognizes the diverse factors that contribute to a community's quality of life, vitality and image of itself. Very few long range plans describe visions for the future that can be completely addressed by application of zoning and subdivision regulations. Other aspects of a community's image are highly dependent on the decisions of many individuals and corporations. By recognizing this, and explicitly including these actors as partners, their contributions can be celebrated and their assistance sought in a way which helps them achieve their own objectives as well as those of the community.

   The Dallas Plan organization has been the focal point for partnerships carrying out the plan. This non-profit's partnership with the City of Dallas, discussed previously, has been the central relationship instrumental to creation and adoption of the plan. The Dallas Plan's coordination with many City departments has been a key part of the plan's initial implementation. Inclusion of projects and programs carried out by other governmental entities also recognizes those entities' role in the community.

   As part of setting the action agendas for plan implementation, The Dallas Plan has sought other partner organizations to participate or take responsibility for achieving certain action items. Exhibit 5 lists most of the partner organizations at the end of 1996.

3. Constituency of Support

   The broad base of support for The Dallas Plan was evidenced by its unanimous approval by the Dallas City Council in 1994. Since then, that support has continued and strengthened.

   On a political level, a new Mayor and four new City Councilmembers took office six months after the plan was adopted. All of them have continued to support the plan, the partnership between the City and The Dallas Plan organization and the process for plan implementation.

   The business community's support has also continued. Top executives with the funder corporations meet twice yearly with the Mayor and members of the Dallas Plan Board of Directors. Their support (and their financial contributions) have continued to evidence enthusiasm and support for this effort. The many partner organizations in the community, as listed in Exhibit 5, continue to participate in individual action items and related projects.

   Exhibit 3: Partners in Action for the Dallas Plan

   African-American Museum Asian-American Chamber of Commerce Alliance for Higher Education American Institute of Architects, Dallas Chapter Bethel A.M.E. Church ArtServ The Dallas Arboretum Baylor Health Care System Bill J. Priest Institute Community Council of Greater Dallas Central Dallas Association Community Development Assistance Corporation Community Development Corporations Center for Housing Resources Community Partnership Advisory Committee U.S. Army Corps of Engineers Dallas County Dallas Affordable Housing Coalition Dallas Area Rapid Transit Dallas Business Committee for the Arts Dallas Black Chamber of Commerce Dallas Coalition for the Arts Dallas City Center Dallas County Community College District Dallas City Homes, Inc. Dallas Computer Literacy Project Dallas Convention and Visitors Bureau Dallas Housing Authority Dallas Homeowners' League Dallas Museum of Natural History U.S. Department of Justice U.S. Department of Transportation Dallas Zoological Society U.S. Economic Development Administration East Dallas Chamber of Commerce Enterprise Foundation U.S. Environmental Protection Agency Texas A&M Commerce Friends of Dallas Public Library Friends of Fair Park Federal National Mortgage Association Greater Dallas Association of Realtors Greater Dallas Chamber of Commerce Greater Dallas Hispanic Chamber of Commerce

   Greater Dallas Planning Council U.S. Department of Health & Human Services U.S. Department of Housing & Urban Development Dallas Institute of Humanities and Culture Local Independent School Districts League of Women Voters Martin Luther King Community Center Board Music Hall North Central Texas Council of Governments North Dallas Chamber of Commerce North Dallas Neighborhood Alliance National Park Service Oak Cliff Chamber of Commerce Oak Cliff Development Corporation Dallas Opera Parkland Memorial Hospital Preservation Dallas City Department of Public Works and Transportation Paul Quinn College Richardson Chamber of Commerce The Real Estate Council The Science Place Southeast Dallas Chamber of Commerce Southern Dallas Development Corp. State Fair of Texas Save Open Space Trinity River Corridor Citizens' Committee Texas Turnpike Authority Texas Women's University Texas Department of Agriculture Texas Department of Housing and Community Affairs Texas Department of Transportation Texas Parks & Wildlife Department Urban Design Advisory Committee Dallas Urban League University of North Texas University of Texas at Dallas University of Texas Southwestern Medical Center United Way West Dallas Neighborhood Development Corp. Veterans' Affairs Medical Center Zale Lipshy Univ. Hospital

   Community support can be gauged by the response at The Dallas Plan's annual community review workshops. These workshops are held at locations throughout the city; in most cases, they are co-hosted by The Dallas Plan and one or more City Council members. During the workshops in January 1997, participants expressed a strong level of support for the plan and the action that is underway. Comments at previous workshops (particularly those prior to plan adoption) included many expressions of scepticism or mistrust (comments such as "other plans haven't done anything for us; why should we care about this one?" and "the City doesn't listen and doesn't act to take care of problems in our neighborhood" were not uncommon). At workshops in 1997, many participants responded with comments like "keep doing what you're doing" and "our group wants to get more involved with The Dallas Plan". Though the detailed analysis of comments is not yet complete, qualitative observations suggest community support that is far different from that of the plan's initial outreach.

4. Evolution of the Role for The Dallas Plan Organization

The Dallas Plan's organizational role was originally conceived as a temporary one, focused on creation of a specific list of priorities. Since that time, its role has evolved to include four principal areas of involvement: monitor, communicator, catalyst for change and implementor.
• First, it serves as an independent monitor of progress toward the plan's goals. To many in the community, an objective and independent organization is well-suited to monitoring and reporting on the progress made by the city and other organizations.

• Second, it is a communicator. By reaching a very broad cross-section of the community, The Dallas Plan serves as a vehicle to share information about programs and results. Few other sources report on the status of the light rail system, redevelopment at targeted industrial sites, preparation of a state park master plan, studies of downtown open spaces and linkages and neighborhood collaborations with local businesses. By providing this information, The Dallas Plan helps explain and celebrate the many positive efforts that are underway in Dallas. It also notes the areas where work is progressing more slowly than expected, spurring attention to these issues by a variety of organizations that may be able to assist. Communication takes many forms and reaches many audiences. As an example, Exhibit 6 lists approaches used as part of the 1997 Community Review Process.

• Third, The Dallas Plan can be a catalyst for change or a facilitator to reach new agreements. Since many organizations view The Dallas Plan as a partner, it can convene dialogue among groups that might not otherwise meet, or might meet only in an adversarial way. This role has been apparent in initiatives related to the Fair Park/South Dallas area. In this area, The Dallas Plan has convened discussions among the Fair Park/South Dallas community, area business organizations, the cultural institutions located in Fair Park itself, City departments and others. This dialogue has resulted in a shared agenda for improved communication and coordination between Fair Park (and its various organizations and institutions) and the surrounding community.

• Finally, it can be an implementor. The Dallas Plan's own resources can be used to supplement those of other entities where necessary to accomplish the action items. The Dallas Plan's participation in the West Dallas Community Planning Strategy illustrates this role. For this project, The Dallas Plan conducts background research, provides analysis, maps and issue assessment, and manages the public involvement process. Another illustration is The Dallas Plan's role in the interjurisdictional study of Center City Transportation System Management (TSM). For this project, The Dallas Plan serves on the technical team reviewing and directing the consultant's work, along with representatives from the Central Dallas Association and the governmental entities funding the project. The Dallas Plan has managed a workshop process through which stakeholder organizations have provided input and will participate in the evaluation of TSM alternatives.

Using The Dallas Plan Model

1. Transition from Growth to Sustainability

Planning in rapidly-growing cities invariably focuses on issues related to this growth and the city's physical expansion. Growth management policies, annexation, planning to guide major new developments, zoning and subdivision of previously agricultural land, extension of water, sewer and roadways - all of these are the issues with which many suburban cities and towns experiencing high growth rates must address. But as cities become more fully developed and as they reach physical or governmental limits to expansion, they can and should focus more attention on issues related to the character and quality of neighborhoods, the variety of cultural, educational or recreational resources available and maintenance of the viability of business areas as market conditions change. In other words, these cities must focus on issues of sustainability.

The Dallas Plan offers a useful model for cities making this transition from an emphasis on growth to a focus on sustainability. By placing a priority on existing public investments (in Dallas, with the Core Assets and neighborhood capital facilities), this approach focuses on ways to make the most of these investments for as long as possible. Issues of community design and neighborhood identity can be addressed within this overall framework because the emphasis is on retaining the valued and distinctive features of these areas rather than on extension of a standard package of services or facilities.

2. Strength in Diversity

Dallas is a city of diversity. The Census Bureau reports that 55.3% of Dallas residents in 1990 were white and 29.5% were black; almost 21% of the residents identified themselves as of Hispanic origin. The city's diversity is illustrated in other ways as well, with substantial variation in the age, style and value of housing in its neighborhoods and a high level of economic diversity in area employment. Lastly, the fact that Dallas is the center city for this area means that it is the home of many diverse cultural, artistic and educational institutions. Diversity, considered by these and other measures, is likely to remain a defining characteristic of Dallas in the 21st century; in fact, the city's diversity may increase further. Rather than viewing this diversity as a problem to be overcome, Dallas must use diversity as a strength.

The Dallas Plan offers a model for planning that welcomes and incorporates this diversity. By including all stakeholders in the community, those with diverse interests are participants in shaping the policies and action programs. Their perspectives are important in maintaining those aspects of the community that each group values; moreover, these diverse perspectives help the city structure its overall objectives. For example, participation by the Greater Dallas Hispanic Chamber of Commerce and the Greater Dallas Asian-American Chamber of Commerce helped structure economic development objectives that respond to international trade opportunities with Latin America and Asia. In today's global marketplace, the diversity of a community can be the basis for a strategy to attract and keep investment that can move anywhere on the globe.

Diversity also provides opportunities for "win-win-win" solutions. The diverse groups participating in planning for parks along the Trinity River Corridor have produced recommendations including preservation and restoration of wetland and forest habitat; environmental education centers for children in adjacent neighborhoods, many of whom are minorities; canoe rental, put-in and take-out areas; ecotourism trails; and a corporate-style retreat center. All of these activities bring new economic activity to this part of Dallas at a scale that can be compatible with surrounding neighborhoods; few of them would have resulted from a process with one or a few of the interest groups that are now involved. The process of inclusion begun with The Dallas Plan preparation has continued to bear fruit for this specific implementation project.

3. Maturing Cities

The Dallas Plan model suggests strategies that are relevant for other "maturing" cities - cities that are no longer in the adolescence of rapid growth and expansion yet are not struggling solely with the issues of old age. Like many major cities which experienced their first major phases of rapid growth and urban development in the middle years of this century, Dallas has both old areas in need of significant reinvestment and areas where vacant properties suggest their relatively recent agricultural use. Several aspects of this model are particularly relevant to cities at this stage of growth.

The strategic approach taken by The Dallas Plan allows the community to establish broad policy directives and priorities which can then be applied through more detailed plans for individual areas. Thus, the specifics of developed areas can be addressed within a framework of consistent objectives and approaches.

The plan's focus on investment includes both major new development (such as new warehousing and distribution areas near the I-20 and I-35 interchange) and investment by owners of homes or lots in existing neighborhoods (in order to stabilize communities and provide new infill housing). The emphasis on the City's role as an investor in its future provides a foundation for consideration of the trade-offs involved in these public investments and the potential "return" to the community.

Lastly, the emphasis on sharing of resources and expertise among partners creates a means for residents and service providers in relatively new areas to establish a network of contacts and a "tool kit" of means to deal with the issues they face as their neighborhoods or communities matures.

4. Less Government is More

In many parts of the United States, the trend over the past decade has been to reduce the role of government, to cut taxes and to slash regulatory red tape. In communities where the regulatory framework and past practices do not include a major role for planning, it can be quite difficult to persuade residents or elected officials of the benefit of additional government involvement in planning, development or redevelopment. The Dallas Plan does not assume that all action to accomplish the plan can or should be carried out by the City of Dallas alone.

The partnerships for creating and implementing The Dallas Plan mean that other entities can implement the plan without the need for an increase in municipal costs or responsibility. For example, one issue related to quality of life in neighborhoods is the access to health care services. The City of Dallas' role in this area is extremely limited. However, one of the partnerships implementing the Neighborhoods Strategic Initiative is a "Healthy Communities" project sponsored by the Community Council of Greater Dallas. This project involves representatives from the major health care providers in the Dallas area, as well as groups assisting seniors and other populations with special health needs. The Greater Dallas Healthy Community project has created approaches to address health care issues that are important to achieving The Dallas Plan's goals related to neighborhoods. These recommendations are now being implemented through action by these existing health care providers, not by new programs at the city.

Aversion to increased taxes also places a limit on a municipality's ability to deliver the services, programs and facilities desired by all residents. The Dallas Plan's emphasis on partnerships means that, in discussions of implementation measures for particular neighborhoods or commercial areas, the contributions of private sector or community partners are as much a part of the solution as are improved or enhanced city services.

Conclusion

References

Dallas City Plan, Inc. 1994. The Dallas Plan.

Dallas City Plan, Inc. 1995. The Dallas Plan Progress Report: Year End 1995.

Dallas City Plan, Inc. 1996. The Dallas Plan Progress Report: Year End 1996.

U. S. Department of Commerce. 1994.

The Dallas Plan
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