Port Lavaca Future Land Use

Port Lavaca Future Land Use Introduction The City of Port Lavaca is beginning to see sustained growth, after many years of relative stable population. New single family homes, apartments, and businesses are locating within the City. This represents an opportunity for the City to define its future and chart how new development should occur. The goal of a Future Land Use Plan is to identify a vision of how the City should grow and develop policies that support that vision. Port Lavaca is fortunate to have a significant amount of undeveloped land within the current city limits. This means future development can occur in proximity to existing utility infrastructure, allowing the City to grow without extensive utility extensions. While the City does not have a Zoning Ordinance, it can use its subdivision authority, and this future land use plan, to ensure new development meets community goals. The goals outlined in this plan provide the framework for City leaders to make informed decisions, based on an agreed community vision, to ensure future development complements the character of Port Lavaca and benefits the entire community. Process The first step in developing the land use plan was a workshop with City staff. This workshop was an opportunity for staff to identify planned and proposed developments, planned infrastructure investments, road improvements, and other issues that will influence future development. This workshop resulted in a base map that was used in the Land Use Workshop. The base map provided a frame of reference to participants to understand existing conditions in Port Lavaca and expected changes in the next several years. The Land Use Workshop was an open workshop that included City Council members, Parks Board members, Planning Board, Port Commission, interested citizens and others. The workshop started with an overview of the base map and existing conditions in Port Lavaca, including current demographics and population projections. Participants also were given a brief introduction to what considerations developers and the City explore when planning new development. This includes a cost / benefit analysis, regulatory framework, potential market for what is being built, etc. The purpose was to ensure participants understood the implications of future growth and could be more informed as they were planning. After the education component, participants in small groups were provided a base map and instructed to draw their vision for future development in Port Lavaca. They were asked to lay out where new residential, commercial, industrial, and other uses should go, along with potential infrastructure improvements to support this growth. Five maps were created, and for the most part, they were all very similar in laying out the pattern for future development. Illustration 1 shows the consensus map developed from the workshop. This pattern of development ensures adequate land available for a healthy mix of uses, including residential from high end, waterfront homes, to apartments, as well as commercial and industrial uses. The definitions below detail what is shown on the Future Land Use Map. 1

Illustration 1 2

Definitions Low Density Residential Single Family Homes with lot sizes over 9,000 sq ft Mid Density Residential Single Family Homes with lot sizes between 5,000 9,000 sq ft (Predominantly the existing homes in Port Lavaca) High Density Residential Single Family Homes on lot sizes below 5,000 sq ft, Patio Homes, Duplexes and Townhomes allowed on larger lots within these areas Multi Family Apartment complexes and Townhomes Manufactured Home Park Mixed Use multiple uses allowed including office, retail, high density residential, potential for mixed use buildings of retail and office on first floor, residential above Commercial Retail and commercial uses (restaurants, offices, shopping centers) Industrial Heavy Industrial uses, with some external impacts (high traffic, noise, odors, etc.) Light Industrial light industrial uses, with minimal external impacts (machine shops, etc.) Park Public Public Facilities, such as schools, wastewater plant, etc. Based on the workshop, a series of recommendations were developed to support the Future Land Use vision. These recommendations are intended to provide Port Lavaca leaders with the tools they need to implement the vision and guide growth appropriately. The recommendations include the following: Ensure adequate land reserved for industrial uses Ensure adequate park land to support new residential development Consider Design Guidelines for the Central Business District and Waterfront Utilize the Waterfront as a community asset Protect the Integrity of Residential Areas Develop Gateways marking entrance to the community For each recommendation, a series of actions steps was identified, providing City leaders with an understanding of how to implement the recommendations. This plan is intended as a working document, to guide City decision making, not simply gather dust on a shelf. The final step in the process is a public hearing, where the Future Land Use Plan is presented to the public for any final comments and input. It is important to recognize that the Future Land Use Plan is NOT zoning, and does not constitute regulatory authority to control land use. Rather, it is an advisory document for City leaders to use to facilitate decision making. It helps determine where future infrastructure investment should be made, and allows for more orderly development. The public hearing will be an opportunity to present the plan, and educate citizens on what it means and how it can help protect community quality of life and livability. 3

Recommendations Ensure adequate land reserved for industrial uses For the most part, cities see residential development followed by an increase in commercial and industrial growth. What often happens is that cities allow residential growth to occur throughout the City, and realize too late they no longer have adequate or appropriate land for industrial users. This results in a loss of new business, and jobs for residents. It is critical to ensure that land is identified and set aside for industrial uses. Port Lavaca is fortunate to have a significant property around Harbor Refuge that is City owned, served by rail and highway facilities, and already has existing industrial use. This property is a tremendous opportunity for the City to ensure land is available for prospective new businesses. The following are the actions the City can take to ensure adequate industrial properties in the future. o Provide adequate transportation access to areas identified for industrial uses o Ensure adequate infrastructure to support industrial uses o Ensure industrial development occurs with appropriate buffers, landscaping, setbacks, etc. to minimize negative impacts on neighboring properties Industrial uses generate significant traffic, and can create a burden on adjoining areas because of that traffic. Industrial users also prefer sites with easy access for their trucks. It is important for the City to coordinate transportation improvements with the Future Land Use plan to ensure adequate road access to industrial sites. As industrial development occurs, the City can coordinate with developers to add capacity as needed to support growth and ensure adequate access to industrial sites. Adequate utilities are needed to support industrial growth. The City must ensure it has adequate water and wastewater capacity to serve expected industrial growth. Port Lavaca is fortunate to have adequate water and wastewater at this time; however, as the community grows, it will be important to stay ahead of demand for these services. The Capital Improvement Plan is the tool for adequately preparing infrastructure for expected growth. The City s subdivision ordinance can be the tool to mitigate potential negative impacts from industrial development. The City can enforce setbacks and buffers that will minimize potential visual and noise impacts on adjoining properties. Landscaping is a tool that can create a visual barrier to industrial development and protect the integrity of adjoining properties. The City should review its ordinances to ensure proper setbacks and landscaping is in place for industrial uses. Ensure adequate park land to support new residential development The City has been proactive in establishing a park dedication section in its subdivision ordinance. This requires developers to donate property to the City for new parks as they develop residential subdivisions. This ensures that there will be new parks located in proximity to homes and presents a huge amenity for new residents. One challenge it can represent is that new parks require new facilities 4

to be built and increased maintenance over time. The City will have to ensure an adequate parks budget going forward to ensure park facilities are well developed and well maintained. There is more to a successful park system than just having many parks. These parks need to provide amenities and services desired by residents. The City should work closely with the Parks Board to identify what new facilities are needed and will serve residents. This identification will drive parks planning to ensure Port Lavaca parks meet the needs of existing and future residents. o Continue to utilize park set aside in development regulations to acquire new park land o Ensure adequate funding in budget to develop and properly maintains park facilities o Work with citizens to develop new park amenities to support diversity of activities (skate park, playgrounds, ball fields, picnic areas, pavilions, etc.) The City should work with developers to acquire new park land and ensure that new facilities are located in a way that best serve the community. There should also be a consideration of utilizing a fee in lieu option for developers to pay a fee instead of donating land for parks. The benefit of the fee in lieu is that it allows for investment in existing park facilities rather than simply acquiring more land when there may not be adequate funding to make needed improvements. The City should review its existing Park budget and ensure it is adequate to support existing and expected needs. This is an on-going challenge for communities to ensure adequate funding, especially as growth places new demands on the system. However, parks are a critical element in quality of life and should be a priority for funding to ensure they remain a community asset. The City should coordinate with its Park staff, Parks Board, and park users to identify needs and how to address them. As the community grows and changes, the demands for park amenities and services will change. The City must reach out to residents to identify their vision for the park system and their expectations. This will allow the City to target its resources on those most needed projects and ensure a park system that serves the community. Consider Design Guidelines for the Central Business District and Waterfront The Central Business District and Waterfront are two of Port Lavaca s greatest assets. They define the character and heritage of the community, and create the unique identity that can be lost to new development. Design guidelines are a tool that can be utilized to ensure new development, and redevelopment of existing buildings, is done in a way that protects the identity of these areas. Cities are spending millions of dollars creating faux downtowns that are an attempt to create an identity for their town. Port Lavaca already has that and needs to protect it. o Develop design standards that protect the unique character of these areas (buildings to the property line / street edge, wide sidewalks to allow for seating, etc.) o Consider building styles that complement the character of the community The first step in developing design standards should be identifying best practices from other communities similar to Port Lavaca. It is not necessary to reinvent the wheel; however, it is also not appropriate to simply adopt another community s standards. Collecting a good range of options will 5

allow the City to tailor a solution that best meets local issues and concerns. The City should work closely with property owners, developers, and others to develop standards that are appropriate, allowing for quality development that enhances the community. These standards should be rigorous enough to protect the character of the community, but not so onerous that they discourage redevelopment in the area. Utilize the Waterfront as a community asset As mentioned, the waterfront is a tremendous opportunity for Port Lavaca, both to attract new businesses and visitors. It will be important to establish clear goals for this area and support development that protects the character and integrity of the area. Port Lavaca should not attempt to recreate amenities from other places, rather it should use the authentic nature of its waterfront, with its mix of commercial, retail, public and residential uses as a calling card to establish its own unique identity. New development should not take away from this eclectic character, but enhance it, bringing complementary businesses that benefit from proximity to the shore, creating new markets for the shrimpers and oystermen. Having a real, working waterfront will attract people to Port Lavaca and represents a tremendous opportunity for economic development in Port Lavaca. o Create a destination on the waterfront through mixed use development that incorporates retail, restaurants, and residential uses where appropriate o Allow for industrial and commercial uses that require water access where appropriate (existing industrial area and commercial focused harbors) This element of the Plan will be primarily driven by private investment as developers see the value in Port Lavaca s waterfront and invest in the area. The City can support this effort by ensuring public space along the waterfront continues to be an attraction and asset for the area. As well, there may be an opportunity in the future for alternative funding mechanisms to support potential development, such as a Tax Increment Finance district that utilizes any additional tax revenue generated in an area to fund improvements in that area. TIF districts are not an additional tax, rather they utilize any increase in property values that occur as development happens to fund public improvements. The City is fortunate to have a number of water access points, which allows for a variety of uses where appropriate. Some are already used for industrial and commercial purposes, and the City should support their continued use in this fashion. These harbors are a critical component of economic development in Port Lavaca because of their accessibility to the water and rail. Protect the Integrity of Residential Areas A city should strive to protect the health and safety of residents, especially in their homes. This means that residential areas are insulated from issues like lighting overspill, noise, and traffic often generated by industrial and commercial uses. The origin of zoning was a response to the negative impacts of industry on peoples homes. There are many tools available to the city to minimize negative impacts from development. These offer alternatives to zoning that can be adopted to protect quality of life without being overly restrictive on development. Tools include landscaping, setbacks, lighting standards, etc. These all are ways to mitigate impacts of commercial and industrial growth and preserve residential property values and quality of life. 6

o o Promote landscaping and buffers between different land uses, particularly commercial and residential areas Consider lighting standards to minimize light pollution and light spill over onto neighboring properties The City can utilize its subdivision ordinance to regulate setbacks and landscaping to protect the integrity of residential neighborhoods from encroachment. There is also an opportunity to limit industrial and commercial lighting and minimize the spillover from these lights. Without Zoning, the City cannot strictly regulate where certain activities and land uses occur; however, there are opportunities to mitigate conflict between land uses through landscaping, setbacks, and lighting controls that the City can regulate. Develop Gateways marking entrance to the community The phrase, You don t get a second chance to make a first impression is as true for cities as it is people. The appearance of a community is a huge factor in whether or not people will stop, visit, and spend money in the town. Gateways and corridors serve as an opportunity to introduce the community image and brand to visitors and those passing by. Gateways are typically a distinct point, usually an intersection, at an entry point to the City. These can be designated with signage (as Port Lavaca has at US 87 and SH 35) and other distinct features. These serve as the introduction to the City and present that initial brand to visitors. Corridor development encompasses the activity along the transportation network. It is recommended that the major entry corridors into Port Lavaca (US 87, SH 35) receive a focus of attention to encourage attractive, welcoming development. If someone has to drive past a series of decaying strip malls, junk yards, etc. to reach the waterfront, this will negatively impact their opinion of Port Lavaca. Having attractive, well designed commercial and mixed uses along these primary corridors will make Port Lavaca more attractive to visitors and potential businesses. o Identify appropriate locations for gateways at key intersections o Develop signage, etc. to highlight the community o Consider design standards along key corridors into the community to ensure development is attractive and welcoming There are a few key intersections leading into Port Lavaca that can serve as gateways for the community. The City already has a large entry sign at US 87 and SH 35, which is the primary entry point. While TxDOT is very strict about what can go into the highway right of way, there may be an opportunity to add to this feature. Another option can be to utilize design guidelines to establish corridors along major thoroughfares to reinforce the gateway character. This would ensure new development adds to the quality and appearance of the community. These standards should reflect local aesthetics and concerns and balance the need for quality design with development concerns of cost and time. Signage is another opportunity to create a brand for the City. Street signs, banners, etc. can be utilized to convey a theme and enhance community appearance. This type of signage is often found in downtowns and along key corridors in communities. It communicates a sense of place and the unique identity of the community to passersby. The City should look to other communities for examples and develop a program that fits the local needs of Port Lavaca and its residents. 7

Conclusion Port Lavaca is taking a proactive step to determine its future and control its destiny. This Future Land Use Plan defines the community s vision for its future, and creates the framework for decision making to implement that Vision. It will be up to City leaders to take the specific actions needed to make the Vision a reality. This Plan provides the starting point, and recommendations on how to move forward, within the existing regulatory environment in Port Lavaca. 8