History and Theory of Urban and Regional Planning, in the School of Architecture + Planning at UTSA
By Natalie Steed
QUESTIONS
The 2040 Growth Concept, established by Metro in 1995, establishes a foundation for the region's development pattern. It offers advice, with a focus on determining where expansion should be concentrated, based on aims for making optimal use of land, safeguarding natural areas and farmland, and creating a multi-modal transportation system. The Growth Concept supplements and reflects the land use classifications made in the city's Comprehensive Plan in 1980. It identifies the optimum locations for more dense concentrations of housing and companies, as well as the greatest sites to protect industrial and employment lands, which are the backbone of the regional economy and generate high-paying jobs. According to the Region 2040 Plan, concentrating growth in major design type zones will be complemented by services and excellent transit links. Simultaneously, this concentration of development enables for significant change to be steered away from typical single-family areas.
From 1992 to 1994, people throughout the Portland region helped shape, review and contribute to the 2040 decision-making process through advocacy and plural planning (Davidoff, 2011) and communicative action. (M.P. Brooks) The main goals of Metro's fifty-year plan are to make Portland more livable through lowering traffic and pollution and maintaining open space. To achieve this goal, city planners also integrate community-centered planning by using local knowledge and communication to catalyze Portland, Oregon. (Lieberknecht, 2022) So, just how effective is Metro’s 2040 Growth plan and does the growth concept fulfill the city’s goals?
METHODS
Gov. Tom McCall and his friends persuaded the Oregon Legislature to pass the nation's first set of land-use planning rules in 1973. McCall politicized a planning process that required a scope of planning be broadened to include all areas of interest to the public. (Davidoff, 2011). He persuaded the Legislature with the support of an unusual combination of farmers and environmentalists, that the state's natural beauty and easy access to nature would be lost in a swelling flood of urban growth. The new goals and criteria mandated that every city and county in Oregon develop a long-term plan for future growth that addresses both local and statewide objectives. In summary, state land-use goals necessitate establishing urban expansion boundaries, properly employing urban land, and safeguarding natural resources.
Metro is approved by voters. In 1978, voters in Clackamas, Multnomah, and Washington counties supported a ballot proposal that established Metro as the nation's first elected regional government. Metro was given responsibility for coordinating the land-use plans of the region's 27 authorities, as well as other matters of "regional significance" as a result of that vote. Metro was obligated by state land use rules to establish a regional urban growth boundary (UGB) and to empower the Metro Council to make enforceable policy choices about development within the boundary. The tasks and processes of Metro are outlined in Oregon Revised Statutes Chapter 268.
The region's residents ratified a home-rule charter in 1992, directing Metro to prioritize regional growth management. The charter required the Future Vision, a long-term declaration of the region's vision and values, to be adopted. It also needed the Regional Framework Plan, a comprehensive set of regional regulations on land use, transportation, water quality, natural areas, and other matters of "regional significance." The framework plan has to be approved by the end of 1997, according to the charter.
Metro initiated an intense public outreach program in early 1992 to involve citizens in decision-making by obtaining answers to several basic livability issues. This planning practice followed the lines of Brooks’ concept of decentralized non-rationality, or communicative actions, through implications of cultivating community networks, suppling technical and political information, educating citizens and community organizations, listening to the concerns and interests, and ensuring access to planning information. (M.P. Brooks)
When asked which values they thought were most important to preserve for the future, the public responded with the following:
- A sense of community
- The preservation of natural areas, forests and farmlands
- Quiet neighborhoods with easy access to shopping, schools, jobs and recreational opportunities
- The “feel” of the region, with open spaces, scenic beauty and small town atmosphere
- An individual community ‘s character and assets
- A balanced transportation system providing a range of choices, including transit, walking, biking and cars.
By surveying the public and community with their local knowledge and through communication (Lieberknecht, 2022), the results concluded that people were also concerned that growth will have a negative influence on their quality of life. People were willing to accept minor modifications in their neighborhoods to preserve the region from urban sprawl, but they were averse to substantial increases in density near their houses.
From 1992 to 1994, Metro investigated several growth management strategies using urban development research tools and forecasting technologies. A variety of alternatives were identified and evaluated for their potential impacts on the region's neighborhoods, transportation system, natural resources, and critical urban services. This comprehensive research, dubbed Region 2040 at the time, allowed Metro to focus on a variety of ideas to prepare for local jurisdictions and the public to examine. Metro finally analyzed four growth scenarios for the region. The consequences of each alternative on land consumption, transit times and distances, open spaces and air quality, and varied urban landscapes were examined. The four possibilities, dubbed "growth concepts," gave various perspectives on how the region should actively manage growth.
Metro performed a comprehensive public involvement initiative in the spring of 1994 to find out what people felt about the concepts. A questionnaire was distributed to every home in the region (about 500,000 homes). Over 17,000 people responded, with 12,000 adding additional remarks. Metro received the following feedback from individuals who completed the questionnaire:
- Among the four proposals, increasing development along transportation lines earned the most approval (83%).
- More over three-quarters (77%) of those polled favored supporting growth in established centers that act as "hubs" for delivering goods and services to their individual areas.
- The majority of respondents (58%) agreed that average new residential lot sizes should be reduced.
- Reducing parking in retail and commercial development was supported by 55% of those polled.
Metro's public involvement method has helped people become aware of the implications of growth since the commencement of Region 2040 in 1992, and it has provided chances to shape, review, and participate to the decision-making process. Among the communication tools are:
- Television, radio and print newspaper ads
- Regionwide questionnaire on livability issues sent to more than 500,000 households
- Dozens of public open houses, workshops and forums
- A video distributed free at Blockbuster Video to 4,000 customers
- An information and comment phone line
- Youth involvement projects
- Survey on growth management strategies mailed to 70,000 households and distributed at coffee shops, restaurants, bookstores and public libraries as well as in newspapers and on Metro’s web site
- Presentations to hundreds of civic and community organizations
- Newsletters to a mailing list that grew to 65,000 interested residents
FINDINGS
A fresh concept arose in September 1994. The Metro Policy Advisory Committee's local government partners unanimously supported the 2040 Growth Concept, which drew on the best characteristics of the various methods. In 1995, the Metro Council adopted the 2040 Growth Concept. Land-use decisions are influenced by:
- Promote more effective land use in cities, business districts on "main streets," and important transit routes
- Safeguard natural areas, parks, streams, and farmland both within and beyond the urban growth boundary
- Encourage a transportation system that encompasses all modes of transportation, such as bicycling, walking, and taking public transportation, as well as cars and freight
- Collaborate with neighboring cities close outside the region to maintain community separation
- Encourage different housing options for all region residents
In 1994, Metro set out to let citizens of the region imagine what life might be like in 2040. To represent conditions encountered throughout the region, eight sites within or just beyond the urban expansion limit were chosen. They ranged from undeveloped acreage near light-rail routes to suburban strip commerce areas and historic downtowns. Calthorpe Associates' architecture/land-use planning business developed each of the designs, which utilized the principles of the 2040 Growth Concept and involved citizens' views and preferences through public open houses and stakeholder workshops. Only a few years after the 2040 Growth Concept was adopted, we can already notice developments that match the concept's goals and indicate that the 2040 vision is becoming a reality.
BUSINESS-AS-USUAL
What happens to existing neighborhoods in 2040? If you live in a well-established community, it should continue to appear and function as it does now. One of the most essential parts of the 2040 Growth Concept is the preservation of existing neighborhoods. Even if row houses appear near you, new developments sprout along major roads, or houses are built on previously empty lots, the nature of your community should remain substantially the same. Change will occur gradually over a long period of time. Another important goal of Metro's growth management strategy is to provide a variety of housing options for all people of the region, including inexpensive apartments above retail stores, row houses and apartments, and single-family homes.
Expect to witness more apparent changes if you reside along existing or projected light-rail lines, near major bus lines, or near commercial districts. Along these pathways, apartments, row houses, and condominiums may begin to sprout. Mixed-use complexes with companies on the ground floor and residential apartments on the higher floors are also possibilities. Redevelopment has the potential to transform neighborhood eyesores into community assets. New businesses and services are likely to open in the neighborhood to serve the residents. If you reside in an undeveloped location within the region's urban growth boundary that is not protected due to environmental or other constraints, you may already be noticing substantial changes. Some modifications will be necessary to safeguard farmland from urban development. If development is done well, it can imply greater chances for innovative housing, a deeper sense of neighborhood and community, a stronger link between work and housing, and easier access to public transportation.
ADVANCED CLIMATE CHANGE
Climate change will be one of the most significant long-term risks to our region's continued prosperity and livability, but unfortunately, “society tends to neglect the future in favor of the present.” (MacAskill) Climate change endangers our ability to maintain stability and economic prosperity. Already, our region is experiencing rising temperatures and an increase in extreme weather events. Climate change is looming as a major issue with the potential to negatively impact the region in the absence of deliberate and proactive planning. Through William MacAskill’s idea of longtermism, “we have the power to encourage these positive trends. And we can reverse course on negative trends, too, like increases in carbon emissions and factory farming.” (MacAskill)
Climate change has an impact on water sources, food supply, and human health. Climate change will continue to have an impact on ecosystems and creatures, though not in the same way. Changes are also taking place in the seas. The ocean absorbs around 30% of the carbon dioxide produced into the atmosphere by the combustion of fossil fuels. As a result, the water is growing more acidic, which has an impact on marine life. Because to thermal expansion and melting ice sheets and glaciers, sea levels are increasing, putting coastal areas at increased risk of erosion and storm surge.
Bridges, highways, ports, electrical grids, broadband internet, and other components of our transportation and communication networks are examples of physical infrastructure. It is frequently planned to last for years or decades, and many cities have infrastructure that was built without considering future climate. Even newer infrastructure, though, is subject to climate change. Extreme weather occurrences, such as torrential rainfall, floods, wind, snow, or temperature fluctuations, can put existing structures and facilities under stress. Increased temperatures necessitate greater interior cooling, putting strain on an energy grid. Heavy rains can cause floods, closing down highways and key business districts.
FLOODING
Portland, as history has demonstrated, is not immune to flooding. It not only rains frequently, but the entire city was built around two main rivers. Then there's the issue of the rising seas, which is only an hour away. Without a doubt, Portland homeowners and buyers must consider the possibility of floods. In addition to causing property damage, flooding can also disrupt access to utilities, emergency services, and transportation, as well as have an influence on an area's general economic well-being. Overall, Portland faces a high risk of flooding over the next 30 years, which implies flooding will have an impact on day-to-day life in the city. This is based on the level of danger that the properties face, rather than the proportion of risky properties. Higher oceans, altered weather patterns, and greater storms are all consequences of a changing climate. As the atmosphere warms, evaporation increases, making more water accessible when it rains. A warming atmosphere means warmer oceans, which can exacerbate floods caused by hurricanes and offshore storms. Sea level rise also raises the risk of coastal flooding because higher seas mean more water available when high tides and coastal storms cause flooding.
The City of Portland has made infrastructure changes to prevent, or at least mitigate, future catastrophic flooding damage. Communities that adjust to greater hazards can reduce damage and save money on flood insurance. Portland is already investing in flood mitigation initiatives, but more may be required. Higher standards are the first step in reducing flood danger. Some areas plan to a higher level, which reduces the number of properties at danger. Individuals, mayors, governors, and Congress may work together to establish protections before floods, to rebuild stronger after flooding, and to develop strategies that will help communities in the future. They can accomplish this by implementing green and grey infrastructure, as well as resilience. Green infrastructure is a low-cost, long-term flood management strategy that collects and removes water at its source. To combat floods, grey infrastructure employs concrete or steel structures. These designed buildings are expensive, time-consuming to construct, and necessitate constant maintenance.
REFERENCES
Brooks, M. P. (2017). Planning theory for practitioners. https://www.taylorfrancis.com/books/e/9781351179454
Davidoff, P. (2011). Advocacy and Pluralism in Planning. In R. T. LeGates & F. Stout (Eds.), The City Reader (7th ed., pp. 435–445). Routledge
Lieberknecht, K. (2022). Community-Centered Climate Planning: Using Local Knowledge and Communication Frames to Catalyze Climate Planning in Texas. Journal of the American Planning Association, 88(1), 97–112. https://doi.org/10.1080/01944363.2021.1896974
Metro (Or.), "The Nature of 2040: the Region's 50-Year Plan for Managing Growth" (1995). Metro Collection. 34. https://pdxscholar.library.pdx.edu/oscdl_metro/34
https://www.oregonmetro.gov/2040-growth-concept