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R-593-3-85RESOLUTION NO. 593-3-85(R) A RESOLUTION OF THE CITY COUNCIL, CITY OF ALLEN, COLLIN COUNTY TEXAS, ADOPTING THE ATTACHED AS THE OFFICIAL COMPREHENSIVE PLAN FOR THE CITY OF ALLEN, TEXAS AND DIRECTING THAT IT BE PLACED INTO USE BY THE APPROPRIATE BOARDS AND COMMISSIONS AND CITY STAFF. WHEREAS, the City Council and the Planning and Zoning Commission recognized the need for a major new planning effort to guide the growth and development of the community; and, WHEREAS, sitting as the Action Committee, the Planning and Zoning Commission and City Council appointed a committee composed of themselves and 154 citizens known as the Oversight Committee to assist in the development of the Comprehensive Plan; and, WHEREAS, a citizen's survey was completed and the results were used by the Oversight Committee as a major resource tool in developing the Comprehensive Plan; and, WHEREAS, the Oversight Committee did complete its work and recommended that public hearings be held on the new proposed Comprehensive Plan; and, WHEREAS, public hearings were held on March 5 and 6 at different locations within the city for the purpose of receiving public comments and suggestions and to answer questions; and, WHEREAS, the proposed Comprehensive Plan has received favorable recommendation of the Planning and Zoning Commission; NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF ALLEN, COLLIN COUNTY TEXAS, THAT: Section 1. The attached Comprehensive Plan dated March 1985 is hereby adopted. Section 2. City Council directs that all Boards and Commissions and city staff use the information contained within the plan and disseminate that information to all interested parties. RESOLUTION NO. 593-3-85(R) Page 2 DULY PASSED AND APPROVED BY THE CITY COUNCIL OF THE CITY OF ALLEN, COLLIN COUNTY, TEXAS, ON THIS THE 21st DAY OF MARCH, 1985. APPROVED: ATTEST: Marty Hendrix, CITY SECRETARY J Gs IN S E oP "17 T tf,. R Y Comprehensive Plan 1985 C�o�� off QDOc�� 1 THE COMPREHENSIVE PLAN CITY OF ALLEN, TEXAS Prepared by City of Allen, Texas Technical Consultant Harland Bartholomew & Associates, Inc. Adopted March 21, 1985 CITY OF ALLEN ,CITY COUNCIL Don Rodenbaugh, Mayor Joe Farmer, Mayor Pro Tem J. M. McClure Rex Womack Jim Wolfe G. Ward Paxton Gary Koch OVERSIGHT COMMITTEE Economy/Government Services Subcommittee Joe Farmer, Chairman Jerry Wilson, D.V.M, Vice -Chairman Mariana Acton Sondra Budeaux Raymond Cannon Aaron Clouse LaQuita Diercks Richard Ellis Daniel Fusco J. E. Glass Douglas Johnson Eileen Karlsruher Robert Kurt Robert Manley K. Heidt Matthews Elizabeth Mosely James Nelson Ronald Peterson Mary Lynn Peterson Thalia Pile Charles Williams Frances Williams Frances Woodfin Parks, Recreation and Environmental Subcommittee John Garcia, Chairman Scott Hoover, Vice -Chairman Ella Adams David Bonnett Lucille Brazeal Gary Edstrom Scott Fairchild Jim German Michael Getts Georgie Green David Jellison Cathy Johnson Stephen Lark Andrew Lathem Barbara McAnally Mary McDermott Marilyn McMullin Ann Miller Richard Moore Albert Poulton J. Scott Richards Earl Sandberg William Weaver Robert Willett John Ziesenis Housing Subcommittee Don Rodenbaugh, Chairman Wayne Armand, Vice -Chairman Dian Alexander Harold Biggs Renee Boyer Bill Brombacher Steve Burch David Cecil Debralee Clouse Sharon D.Amalfi Kenneth Fulk Beverly Kernohan Joe King Philip Morris Mike Nichols Dawn Petty Timothy Plover James Rushing Richard Saunders Ray Smith John Sweeney Rick Vogel Perry Waller Susan Wilson Health and Human Services Subcommittee Jim McClure, Chairman Jim Pendleton, Vice -Chairman Terran Ardoin Peggy Armand Carol Bough John Boyle Alyce Brombacher Gretchen Bullock Yvonne Cahill George Chrisman Carol Dismukes Frances Frensley Harold Frensley Cynthia Klesc Emma Lathem Michael Mason Betty Matthews Brenda McGee Jeanette Plover Janice Randolph Beverly Reeser David Rodgers, M.D. Cherlyn Witkowski Don Wolff Urban Design/Community Facilities Subcommittee Rex Womack, Chairman Jack Pennington, Vice -Chairman Barton Black Gayle Boon Troie Burch John Cahill Mrs. Leon Chumbley Harland Downs Paul Drewry Steven Elliot Robert Farmer Ruth Gilliland K. Hamilton Martha Honea John Horn Mary Jones Jane Kass -Wolff Bonita Manley Catherine McMullin Amy Monier Wynelle Petty Izzie Waller Carol Willett Treva Wolfe Land Use Subcommittee Jim Wolfe, Chairman Bobby Glass, Vice -Chairman David Bouldin Tom Brian Keith Buchanan Theodore Cooley Thomas Courtney Lori Fairchild Beverly Geisel Dave Gray Robert Hill William Huber John Karlsruher Paula Koob Vern Lahart Donna Mays Steven Muretta Gary Oistad Steven Rodenbaugh Norma Smith Tracy Smith Frank Snidow Vernon Wood Transportation Subcommittee Gary Koch, Chairman Ward Paxton, Vice -Chairman Roger Adams Gretchen Askew Ed Chumbley Jeff Cole Jack Evans Michael Fucilla Todd Geisel Eilleen German Gloria Glass George Gowan John Green Richard Koepke Doug Mahlum Steve McAuley Marilyn McMullin Charles Moore Peter Mukasa-Magoye Ed Rogan Joseph Rush Fred Winslow Vernon Witkowski Beauton Womack CITY STAFF Jon McCarty, City Manager Bill Petty, Director of Community Development Tom Keener, Development Coordinator Mark Thornton, Director of Parks and Recreation Marty Hendrix, City Secretary Barbara Buehler, Librarian Ernie Hoback, Director of Public Works Brent Lewis, Finance Director Richard Carroll, Chief of Police Ron Gentry, Fire Chief ADOPTING THE COMPREHENSIVE PLAN WHICH SETS FORTH HUMAN SERVICES AND EDUCATION; GOVERNMENT SERVICES AND ECONOMY; AND URBAN DESIGN AND COMMUNITY FACILITIES WHEREAS, the City Council and the Planning and Zoning Commission recognized the need for a major new planning effort to guide the growth and development of the community; and, WHEREAS, a citizen's survey was completed and the results were used by the Oversight Committee as a major resource tool in developing the Comprehensive Plan and many of the highlights are summarized in the appendix of this document; and, WHEREAS, this plan is the culmination of many hours of work on the part of the citizens of Allen, hereforth known as the Oversight Committee which was divided into seven subcommittees including: Transportation; Land Use; Parks; Recreation and Environment; Housing; Health and Human Services and Education; Government Services and Economy; and Urban Design and Community Facilities; and, WHEREAS, with the assistance of the planning firm of Harland Bartholomew and Associates, each subcommittee took responsibility for the development of one or two of the components of the Comprehensive Plan. The subcommittees provided direction to the consultants, reviewed their work and finally recommended approval of their component(s) to the Oversight Committee; and, WHEREAS, the Oversight Committee took action to recommend the enclosed plan to the City Council; and, WHEREAS, the Action Committee held two public hearings duly called and held as required by Texas law on March 5 and 6, and did recommend to the City Council that the interests of the City were best served by adopting the recommended Comprehensive Plan; and, WHEREAS, the proposed Comprehensive Plan has received favorable recommen- dation of the Planning and Zoning Commission; and, WHEREAS, the City Council, after due investigation and consideration, finds and declares that adopting the revised Comprehensive Plan is in the best interest of the City of Allen; and, NOW, THEREFORE, BE IT RESOLVED BY THE COUNCIL FOR THE CITY OF ALLEN: 1. The attached Comprehensive Plan dated March, 1985 is hereby adopted. 2. City Council directs that all Boards and Commissions and City Staff use the information contained within the plan and disseminate that information to all interested parties. DULY PASSED AND APPROVED BY THE CITY COUNCIL OF THE CITY OF ALLEN, COLLIN COUNTY, TEXAS, ON THIS 21st DAY OF MARCH, 1985. APPROVED: Donald P. Rodenbaugh, MAYOR ATTEST: Marty Hendrix, CITY SECRETARY TABLE OF CONTENTS Page EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . i INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . 1 BACKGROUND FOR THE PLAN . . . . . . . . . . . . . . . . . 3 Population. . . . . . . . . . . . . . . . . . . . . . . . 3 Employment . . . . . . . . . . . . . . . . . . . . . 10 Existing and Committed Land Use . . . . . . . . . . . . . . 12 Land Use Fiscal Impact Analysis . . . . . . . . . . . . 18 COMPREHENSIVE PLAN . . . . . . . . . . . . . . . . . . . . 25 LAND USE . . . . . . . . . . . . . . . . . . . . . . . . . 25 Review of Baseline Data . . . . . . . . . . . . . . . . . . 25 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 25 Land Use Plan . . . . . . . . . . . . . . . . . . . . . . 27 TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . 41 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 41 Thoroughfares . . . . . . . . . . . . . . . . . . . . . . 42 Other Modes . . . . . . . . . . . . . . . . . . . . . . . 52 HOUSING . . . . . . . . . . . . . . . . . . . . . . . . . . 55 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 55 Housing Supply . . . . . . . . . . . . . . . . . . . . . . 56 Housing Quality . . . . . . . . . . . . . . . . . . . . . . 60 PARKS AND RECREATION . . . . . . . . . . . . . . . . . . 65 Introduction . . . . . . . . . . . . . . . . . . . . . . . 65 Inventory of Existing Facilities . . . . . . . . . . . . . . . 65 Recreation Interests . . . . . . . . . . . . . . . . . . . . 69 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 70 Parks and Open Space Plan . . . . . . . . . . . . . . . . . 71 COMMUNITY FACILITIES . . . . . . . . . . . . . . . . . . 81 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 81 Planand Program . . . . . . . . . . . . . . . . . . . . . 82 URBAN DESIGN . . . . . . . . . . . . . . . . . . . . . . . 87 Introduction . . . . . . . . . . . . . . . . . . . . . . . 87 Current City Efforts . . . . . . . . . . . . . . . . . . . 87 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 89 Urban Design Plan . . . . . . . . . . . . . . . . . . . . 89 TABLE OF CONTENTS (Continued) APPENDIX A MAJOR FINDINGS OF THE COMMUNITY SURVEY Page COMPREHENSIVE PLAN (Continued) ECONOMIC DEVELOPMENT . . . . . . . . . . . . . . . . . 93 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 93 Economic Development Program . . . . . . . . . . . . . . 94 ENVIRONMENT . . . . . . . . . . . . . . . . . . . . . . . 97 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 97 Environmental Program . . . . . . . . . . . . . . . . . . 98 HEALTH AND HUMAN SERVICES . . . . . . . . . . . . . . . 101 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 101 Health Facilities . . . . . . . . . . . . . . . . . . . . . 102 Health Inspection . . . . . . . . . . . . . . . . . . . . . 103 Human Services . . . . . . . . . . . . . . . . . . . . . . 103 Educational Facilities . . . . . . . . . . . . . . . . . . . 104 GOVERNMENT SERVICES . . . . . . . . . . . . . . . . . . 107 Existing Services . . . . . . . . . . . . . . . . . . . . . 107 Goals and Policies . . . . . . . . . . . . . . . . . . . . . 108 Government Services Observations and Recommendations . . . . . . . . . . . . 111 IMPLEMENTATION GUIDELINES . . . . . . . . . . . . . . . . . 113 Implementation Groups . . . . . . . . . . . . . . . . . . 113 Goals and Responsibilities . . . . . . . . . . . . . . . . . 114 Implementation Tools . . . . . . . . . . . . . . . . . . . 114 Review and Update of the Comprehensive Plan . . . . . . . . 116 Continuing Planning . . . . . . . . . . . . . . . . . . . . 117 APPENDIX A MAJOR FINDINGS OF THE COMMUNITY SURVEY INDEX TO PLATES Plate Page 1 Regional Growth Considerations . . . . . . . . . . . . . . . 5 2 Development Areas . . . . . . . . . . . . . . . . . . . . 15 3 Development Strategy . . . . . . . . . . . . . . . . . . . 29 4 Neighborhood Planning Areas . . . . . . . . . . . . . . . . 35 5 Major Thoroughfare Plan . . . . . . . . . . . . . . . . . . 47 6 Housing Program . . . . . . . . . . . . . . . . . . . . . . 63 7 Parks and Open Space Plan . . . . . . . . . . . . . . . . . 73 8 Community Facilities Plan . . . . . . . . . . . . . . . . . 83 INDEX TO TABLES Table Page 1 Population Trends - U.S. 75 Corridor . . . . . . . . . . . . . 4 2 Residential Building Permits . . . . . . . . . . . . . . . . . 4 3 Demographic Profile - 1980 . . . . . . . . . . . . . . . . . 7 4 Population Projections . . . . . . . . . . . . . . . I . . . 9 5 Employment - 1984 . . . . . . . . . . . . . . . . . . . . . 10 6 Commercial/Industrial Building Permits . . . . . . . . . . . . 11 7 Commercial/Industrial Buildings . . . . . . . . . . . . . . . 11 8 Projected Employment - NCTCOG . . . . . . . . . . . . . . 13 9 Developed and Zoned Land Areas . . . . . . . . . . . . . . . 13 10 Land Use, 1977-84 . . . . . . . . . . . . . . . . . . . . . 14 11 Range of Housing by Size of Unit . . . . . . . . . . . . . . . 14 12 Land Areas in Planned Districts . . . . . . . . . . . . . . . 16 13 Residential Development - Planned Districts. . . . . . . . . . 17 14 Estimated Population at Build Out . . . . . . . . . . . . 18 15 Taxable Value, FY 1983-84 - City of Allen. . . . . . . . . . . 20 16 Revenues, FY 1983-84 - City of Allen . . . . . . . . . . . . . 20 17 Comparisons of Revenues and Operating Costs, FY 1983-84 - City of Allen . . . . . . . . . . . . . . . . . 20 18 Taxable Value, FY 1983-84 - Allen Independent School District . . . . . . . . . . . . . . 22 19 Comparison of Revenues and Operating Costs, FY 1983-84 - Allen Independent School District . . . . . . . . 22 20 Matrix of Commercial/Industrial Land Use Categories. . . . . . . . . . . . . . . . . . . . . . . . 32 21 Summary of Land Use Allocations . . . . . . . . . . . . . . 36 22 Summary of Dwelling Units, Population andEmployment . . . . . . . . . . . . . . . . . . . . . . 37 23 Relationship of Zoning Districts to Land Use Plan Categories . . . . . . . . . . . . . . . . . . . . . . 39 INDEX TO TABLES (Continued) Table Page 24 Land Use Allocation . . . . . . . . . . . . . . . . . . 40 25 Estimated Fiscal Impact of Comprehensive Plan at Build Out . . . . . . . . . . . . . . . . . . . . . 40 26 Land Use/Traffic Parameters . . . . . . . . . . . . . . . . 44 27 Design Standards - Collin County . . . . . . . . . . . . . . . 49 28 Thoroughfare Plan Traffic on Streets Crossing U.S. 75 . . . . . . . . . . . . . . 50 29 Trends in Housing Types . . . . . . . . . . . . . . . . . . 56 30 Housing Types - Planned Districts . . . . . . . . . . . . . . 57 31 Housing Size . . . . . . . . . . . . . . . . . . . . . . . 57 32 Projected Housing - 1990 . . . . . . . . . . . . . . . . . . 58 33 Projected Age Distribution - 1990 . . . . . . . . . . . . . . 58 34 Projected Household Income - 1990 . . . . . . . . . . . . . . 59 35 Existing Park and Recreation Facilities . . . . . . . . . . . . 66 36 Areas to Be Dedicated or Purchased . . . . . . . . . . . . 67 37 Most Frequently Used Community Facilities . . . . . . . . . . 69 38 Park Land Requirements Based on Policy for Land Acquisition . . . . . . . . . . . . . . . . . . . . . . 71 39 Park Standards and Land Requirements . . . . . . . . . . . . 78 40 Park Lands Provided in the Park Plan . . . . . . . . . . . . . 79 41 Government Services . . . . . . . . . . . . . . . . . . . . 109 EXECUTIVE SUMMARY Introduction Planning for the future of Allen is a continuous process involving citizens, elected and appointed officials, city staff, and private investors and developers. Planning permits Allen to grow in an orderly manner and provides the means to bring about a high quality environment in the city. The current Allen Comprehensive Plan was prepared in 1978. This major update has been accomplished under the direction of the Allen City Council, the Planning and Zoning Commission and the Oversight Committee—a 168 person citizen committee. The Oversight Committee identified issues facing the city, prepared a citizen survey to obtain information on preferences of residents and prepared goals, policies and plans. This summary document highlights the major recommendations for the city. Further information can be obtained in the full plan document available for review at City Hall. Looking Toward the Future Allen is located in the fast growing corridor between the proposed extension of the Dallas Tollway and U.S. 75 north of Dallas. The much publicized Electronic Data Systems Corporation (EDS) complex now beginning development, is projected to increase the considerable development already occurring in Allen. The past decade has been one of significant growth for Allen. From a small town of 1,940 persons in 1970, Allen's population in September 1984 was estimated to be 12,700 persons. Projections made by the North Central Texas Council of Governments (NCTCOG) indicate a population of from 40,000 to 52,000 persons by the year 2000. Because of the rapid growth expected, Allen's plan addresses the full development of the city, a process that could take many years and could result in a population of as many as 130,000 to 140,000 persons. Allen's population today is young, upwardly mobile, family-oriented, new to the community and moderately affluent. As Allen grows, the population characteristics should broaden, with a greater percentage of middle age to older persons, increasing income levels, more single -person households and an increas- ing number of persons with roots in Allen (five years or more). The Comprehensive Plan Land Use Major recommendations for future use of land in Allen include: • Development of Allen as a high quality residential community with traditional residential neighborhoods. These neighborhoods should have a mix of housing densities with the higher densities located along major thoroughfares or in close proximity to commercial centers. • Construction of a major "city center" on the southeast quadrant of U.S. 75 and FM 2170, which will provide an identity for Allen with a unique architectural character and serve as a center for major city activities. • Development of the U.S. 75 corridor for high intensity offices, light industry, retail and services. • Future development of the SH 121 corridor from Custer Road to Watters Creek for high quality, low-rise offices and/or high quality light industry in a low intensity campus environment. (See SD -1.) • Development of the SH 121 corridor from Watters Creek to U.S. 75 for high and low intensity offices, retail, services and selected high quality light industry, similar to proposed development along U.S. 75, but with a higher level character of development and environment. (See SD -2.) • Development of two major light industrial areas: one east of U.S. 75 and along Bethany Road, and the other at the intersection of SH 121 and U.S. 75. • Development of a high quality parks and open space system, including preservation of floodplains and wooded areas as a greenbelt system, and development of community, neighborhood and special use parks, oriented to the greenbelt system. All development should be managed by the city in accordance with the city's ability to accommodate traffic at Level of Service C on the thoroughfare system and provide essential public facilities and services at a reasonable cost. Transportation The major efforts of the city will need to be directed at development of a thoroughfare system which will, when linked with the regional system, effec- tively and efficiently carry the anticipated traffic. The present highway and street network will serve as the framework for the Allen thoroughfare system. U.S. 75, eventually improved to three moving lanes in each direction and three -lane frontage roads, will continue to be the major north -south artery. SH 121, improved to freeway standards, will provide good access to the Dallas -Fort Worth International Airport. The major east -west arterials within Allen would continue to be McDermott Drive, Chaparral Road, ii Bethany Road, Rowlett/Exchange Parkway and Stacy Road. North -south arter- ials would be SH 5, Allen Heights Road, Watters Road, Alma Road and Custer Road. Using the land use plan data, computer models were used to estimate the ultimate traffic demand and to assign the resulting traffic to the thoroughfare system. Thoroughfare cross sections were assigned based on estimated future volumes. The city will need to address other modes of the transportation system as well. Although Allen is not a part of the DART system at present, the city should plan for light rail service and seek to have Allen included on the system. Provision for bicycle and pedestrian facilities, both in the linear park system and in neighborhoods, should be sought. Housing The overriding goal of the city is to develop as a high quality residential community. This concept of quality includes a balance of types of housing units, good neighborhoods, services and sufficient tax base. The plan includes city policies on mix of housing types and densities, as well as location. The plan continues the policy of a 70/30 split between single- family and nonsingle-family units. A balance of housing sizes would be continued also with an emphasis on larger homes. Parks and Recreation The Parks and Recreation Department faces many challenges as it seeks to develop the city's park system. High on the list of priorities is the need to identify and acquire park lands --especially large sites for community and special parks --before development precludes their acquisition. The three stream valleys, Rowlett Creek, Watters Creek and Cottonwood Creek, are the framework of the parks and open space system. Major parks will be clustered along the stream valleys and linked by trails utilizing the greenbelt system. East -west linkages should be provided to channel users to, the major parks and the greenbelts. The plan provides for five community parks. Two of the new parks should be located along Rowlett Creek, one along Watters Creek and one along Cottonwood Creek. Ford Park is presently located along Cottonwood Creek. Each park should total 75 acres in size and should serve the active recreation needs of the community. Each residential neighborhood is planned to have a neighborhood park. Some would be located adjacent to a school location. At full development, Allen should have some 15 to 20 neighborhood parks, each of 10 to 15 acres in size. iii The plan also includes a golf course, day camp and athletic complex as special use parks to serve residents. Additional study should be given to the location of the athletic complex and the golf course. Community Facilities r The level of growth projected for Allen will require considerable invest- ment in community facilities if the high quality of services available in Allen today is to continue. Good service area planning and reservation of future sites will yield dividends as the city expands. The city owns 28 acres at U.S. 75 and McDermott Drive and plans to construct a municipal center on the site. Included in the municipal center should be city offices, police and courts building, library and a civic center. The center should be linked with a future DART station. Allen presently has two fire stations: The Central Station located on Main Street and the new Station No. 2 on Exchange Parkway. These two stations provide good coverage on either side of the railroad. At least three additional stations will be required for service to future development areas. Urban Design An appreciation for and attention to the urban design of the community will make it a more desirable community and better place to live. The city's efforts on urban design should be concentrated in the following areas: (1) preservation of creek corridors in their natural state as the city's open space system, (2) continuation of development of major thoroughfares as boulevards with landscaped medians, (3) regulation, through design standards, of the quality of new development, (4) high quality design and location of public buildings, parks and public areas, (5) emphasis on establishing an identity for Allen through the city center proposed for FM 2170 and U.S. 75, and (6) landscape planting throughout the city. Economic Development Recent years have seen the growth of economic development as a legitimate function of city government in partnership with the private sector. Economic development for jobs, for needed goods and services for residents, and for tax base to sustain the community have become so visible and important that communities can no longer afford to leave them to chance. Major recommenda- tions of the plan include an increased role for the city, working with the Chamber of Commerce; a high level of communication with existing business and industry; provision of well located lands for business and industrial development; and the participation of community leaders in the business development process. iv Environment The beauty of the Texas countryside, Cottonwood Creek, the Rowlett Creek Valley, the bluffs along Watters Creek and the wooded areas, make it clear why many Dallasites had their summer places in Allen. This natural environment is a priceless resource and every effort should be -made to preserve its qualities in future development. Also important is to create a man-made environment which will be of high quality and character. The streams, their floodplains and valleys are the principal natural environ- mental resource. The floodplain regulations and the policy of preserving the floodplain for recreation and open space use has focused public interest on the floodplains. It is essential that the planned greenbelt study proceed and the recommendations be adopted as an amendment to this plan. Most of the wooded areas are found along the creeks. Several substantial woodlots still remain. Some of these should be acquired as parks; others can be protected through the development process. Health and Human Services The city's role in three areas—health facilities and services, human services and educational services—will vary greatly. In a city such as Allen, it is unlikely that the city will be or will want to be the chief provider of services; yet each of these areas will play an important part in making Allen a high quality community that meets the needs of its residents. Major recommendations include: (1) research of a paramedic program, (2) research of a satellite or 24-hour emergency care facility, (3) provision of health inspection services, (4) working with the Allen Independent School District, Community Education, to provide necessary human services information and referral services to residents, (5) continued support of and coordination with the Allen Independent School District, and (6) continued support for higher education facilities in the Allen area. Government Services Today Allen is providing a level of services and facilities to the city that far exceeds those provided to a much smaller city in 1970. Both facilities and service needs will continue to increase dramatically in the growth decades ahead and probably will not level out until well into the 21st century. This governmental services section is not to set out a plan for restructuring of city government in Allen. Such a plan is hardly necessary. The city has successfully provided services with modest financial resources and will continue to do so, altering the governmental structure to meet the needs of its residents, as such needs become evident. v Presently, the city should add personnel to assist with development guidance, particularly a staff civil engineer and outside traffic engineering assistance. In addition, the city should add an on -staff health inspector; provide paramedic service, if determined to be feasible; broaden staff skills in most departments; establish a more traditional public works department; and refocus the community development department to a broader planning function. The survey and discussions with city residents has indicated a dissatisfac- tion with present telephone service and a frustration at being unable to influence a change. The telephone company is regulated by the state of Texas. Any strategy the city would pursue should begin with the regulating agency. vi INTRODUCTION Allen, Texas is located north of Dallas along U.S. 75. It was one of the many small towns founded along the railroad to Dallas before the turn of the century. Up to recent years, Allen was a small agricultural town—a center for the transport of cotton and grains. Today, Allen is a rapidly growing community, sharing in the growth of North Dallas and the Metroplex. With these challenges of growth ahead, leaders, businessmen and citizens have been involved for several years in a planning process for the city, the most recent efforts of which are documented in this report. The initial Comprehensive Plan for Allen was prepared in 1970. A major update was prepared in 1977-78, with a partial update in 1981. This major update was begun in 1984. At the direction of the Allen City Council, one of the major goals has been to involve the citizens of Allen in the planning process. To do this, the Council established seven subcommittees to be made up of Allen residents. A series of four public meetings were held in June to provide information on the process, and an Oversight Committee of 144 citizens was formed, made up of subcommittee members. An overall Action Committee, made up of City Council and Planning and Zoning Commission members, was designated to monitor the planning process. The first task of the subcommittees was to develop and administer a citizens survey questionnaire. The questionnaire was mailed to approximately 3,700 households in the city. Over 1,200 responses were received, a response rate of almost 33 percent. The survey provided important information to the committee as to the preferences and perceptions of city residents. As such, it has served as one of the key resources of the committee. (See Appendix A for major findings.) Following the survey, the committee (and subcommittees) has reviewed and developed plan proposals for each element. This report contains the recommen- dations of the committee for future development and redevelopment of the city of Allen. -3 - BACKGROUND FOR THE PLAN k The purpose of this chapter is to address the broad questions of growth and development, including population, economics and land use, identifying and analyzing the present level of development, past trends and probable future trends. Population The Dallas -Fort Worth area, of which Allen is a part, is recognized throughout the nation as one of the major growth areas of the United States. Between 1970 and 1980, the area grew 25.1 percent—among the leaders in areas of comparable size. More importantly, the Dallas -Fort Worth area is known for its overall economic stability, its role as a major financial center, its concentra- tion of national and regional corporate headquarters and its emergence as a regional center for the high-tech industries of the future. Allen is located in the fast growing corridor along U.S. 75 north of Dallas. Extending north from I-635, the corridor generally consists of Richardson, Plano, Allen, McKinney and Frisco, which lie between the extension of the Dallas Tollway and U.S. 75, north to beyond SH 121. (See Plate 1.) The much publicized Electronic Data Systems Corporation project, which is under con- struction, is located on the west side of this corridor along the future location of the toll road. The wave of development which spread north in the 1970-80 period made Plano, which grew from 17,872 persons in 1970 to 72,331 persons in 1980, the fourth highest city in percent increase in the Standard Metropolitan Statistical Area (SMSA). (Note: In 1984, the federal guidelines were changed and the Consolidated Metropolitan Statistical Area (CSMA) designation replaces the SMSA designation.) Plano was the only city in this percentage range with a 1970 population base of over 10,000 persons. This rapid growth in Plano has continued, with population as of January 1, 1984 estimated at over 100,000 persons by the North Central Texas Council of Governments (NCTCOG). City of Allen Over the 1970-80 decade, Allen experienced the first stages of its growth, from 1,940 to 8,314 persons—an increase of over 300 percent. (See Table 1.) Yet, all recognize this is only the beginning. Allen's population was estimated at 11,250 persons as of January 1, 1984 (NCTCOG)—an annual compound growth rate of 7.85 percent and an annual average growth rate of 9.41 percent. A review of housing building permit data was made to see if the estimate prepared by the NCTCOG is reasonable for planning purposes. (See Table 2.) In the 1977 to 1983 period, there was an annual average of 317 housing units, representing an average growth in gross population of 1,100 persons per year. However, in the 1980 to 1984 period, housing starts dropped to an annual average -4 - Table 1 POPULATION TRENDS U.S. 75 Corridor 1970 1980 1984 1980-1984 No. AGR CGR Collin County 66,920 144,576 189,000 44,424 8.35 7.04 Allen 1,940 8,314 11,250 2,936 9.41 7.85 Plano 17,872 72,331 99,100 26,769 9.87 8.19 McKinney 15,193 16,256 18,550 2,294 3.76 3.36 Frisco 1,845 31499 4,400 901 6.88 5.90 Subtotal 36,850 100,400 1337300 32,900 8.74 2,484 Remainder of Collin County 30,070 44,176 55,700 11,524 6.96 Dallas County Richardson 48,582 72,496 77,800 5,304 2.03 1.78 Source: U.S. Census and Current Population Trends, NCTCOG, May 1984. Table 2 RESIDENTIAL BUILDING PERMITS City of Allen, Texas Type of Dwelling Single- Townhouse/ Multi - Family Duplex Family Total 1977 421 0 0 421 1978 328 12 0 340 1979 384 0 8 392 1980 222 0 72 294 1981 200 0 8 208 1982 170 22 0 192 1983 337 3 32 372 1984 (September) 422 12 244 678 Total 2,484 49 364 2,897 Average/Year (including 1984) 295 5 17 317 Notes: 1) Recorded as of date building perinit was issued. 2) 1984 through month of September. Source: City of Allen, Department of Community Development. 1 r�)vF CFM E-MT� • - . ► p- .� • PLATE 1 � o PL�•No � E�c7FJ�IsIoN of o NoR114 ToLJ WA, II W � � II II R�c��D�N • - . ► p- .� • PLATE 1 -6 - of 266, or 825 persons per year. This would yield a January 1984 estimate similar to that of the NCTCOG estimate. Data on population characteristics are available both from the U.S. Census (1980) and the Citizens Survey (1984). (See Table 3.) While the two sources represent different data and time periods, together they provide valuable information on Allen and its residents. Based on these data, the residents of Allen can be characterized as follows: 1. Allen is populated predominantly by young, white, good income earning, family households. • A high percent of the population is between the ages of 25 and 44 (Survey). • 93.4 percent of the population is white (Census). • 77 percent of the households earned $30,000 or over in 1980 (Census) and 65 percent of the households earned between $25,000 and $50,000 in 1984 (Survey). • 95 percent of the population was categorized as being part of a family (Census). 2. Most persons in Allen are relatively new residents. • 45 percent had lived in Allen three years or less and 61 percent had lived in Allen five years or less (Survey). • 10 percent had lived in Allen ten years or more (Survey). 3. Most residents of Allen have the potential to move up economically in the future. • The combination of youth, good earnings and education are indicators of potential upward mobility. • 74 percent of the male heads of household and 37 percent of the female heads of household/wives are employed in professional or management positions (Survey). • 38 percent of the households had income from sources such as interest, dividends and rentals (Census). • 49 percent of the male heads of household and 31 percent of the female heads of household/wives are college graduates and 18 percent of the men and 12 percent of the women have done post graduate work or have post graduate degrees (Survey). -7 - Table 3 DEMOGRAPHIC PROFILE - 1980 City of Allen, Texas Population Households Population/ Household Ethnicity White Hispanic Black Other Age 0-17 18-24 25-34 35-44 45-64 65 do Over Family Households Householder Spouse Other Relatives Other Nonrelatives Residence in 1975 County and State 14An (1 474)(1) 8,314 2,676 3.1 90.0% 3.4% 3.0% 3.6% 35.8% 12.4% 27.3% 12.8% 8.3% 3.4% 2,380 2,167 3,289 39 7,875 (95% of total population) Same House 1,521 Same County 1,303 Same State, Different County 2,609 Outside State 1,815 SMSA From Central City 899 me Table 3 (Continued) Household Income by Income Type Wage or Salary 1980 (1979)(1) Household Income 315 Under $15,000 17.0% $15,000 - 19,999 15.9% $20,000 - 24,999 20.8% $25,000 - 29,999 19.1% $30,000 - 34,999 13.8% $35,000 - 39,999 3.9% $40,000 - 49,999 5.8% $50,000 and over 3.6% Median Income $24,053 Household Income by Income Type Wage or Salary 2,577 Nonfarm Self Employment 315 Farm Self Employment 55 Interest, Dividend or Rental 1,017 Social Security 222 Public Assistance 74 Povertv Status (1979) Total Persons Below Poverty Level 272 (White) ( 272 ) Total Under 55 Years of Age 218 Total 65 Years and Older 54 (1)U.S. Bureau of Census t 1 a r 1 1 The population of Allen contains both traditional family units and more contemporary, two income earning families. • 55 percent of the households have two wage earners (Survey). • 29 percent of the spouses are full-time homemakers (Survey). While the majority of residents can be described as above, that is not to say that there are not other groups (although small in number) with special needs. These include the aging (55 and over), 6.6 percent in 1980; minorities, 10 percent in 1980; those earning below the poverty level, 3.3 percent in 1980; and other groups such as the handicapped, for which no data are available. Population Growth Projections While all agree that growth is inevitable, the question of the timing of growth is much more difficult. Timing is influenced by a myriad of factors, which are difficult, if not impossible to accurately predict. Chief among these factors are national and regional economics, availability of money, interest rates, and the decision of property owners to develop or not develop their lands. In previous and in ongoing planning efforts, projections have been made for the city of Allen, each based on assumptions appropriate for that time. (See Table 4 below.) Table 4 POPULATION PROJECTIONS City of Allen, Texas !M-45.6 H-51.9 The most recent projections (OSGOOD and NCTCOG) are quite similar. In the short term to 1985, each projects an increase in population of around 7,000 persons. With a 1984 (September) estimated population of 12,700 persons, it seems unlikely that Allen will reach the initial level of 15,500 until sometime near 1986, based on current trends. From 1985 to 2000, each projects from 10,000 to 15,000 additional population per five-year period. NCTCOG projects Population (000 persons) Source 1970 1980 1985 1990 1995 2000 U.S. Census 1.9 8.3 WYSE Assoc. (1976) 12.5 31.5 54.0 77.0 88.0 OSGOOD Assoc. (1981) 15.0 25.0 45.0 NCTCOG (1984) 15.5 29.1 L-39.9 !M-45.6 H-51.9 The most recent projections (OSGOOD and NCTCOG) are quite similar. In the short term to 1985, each projects an increase in population of around 7,000 persons. With a 1984 (September) estimated population of 12,700 persons, it seems unlikely that Allen will reach the initial level of 15,500 until sometime near 1986, based on current trends. From 1985 to 2000, each projects from 10,000 to 15,000 additional population per five-year period. NCTCOG projects -10 - the largest absolute growth of any of the five-year periods to occur from 1985 to 1990. This could certainly happen if interest rates should decline and timely development of planned developments now approved should occur. The projection by NCTCOG appears reasonable for planning purposes. It also has the advantage of being a point of coordination with regional numbers which will be used in regional transportation planning. Therefore, it should be used by the city for short-range planning, recognizing that continuing monitoring and updating is needed as the future develops. Employment The number of jobs located in Allen has increased markedly since 1980 with the addition of two major industries, DLM and InteCom. From a telephone survey conducted by the city of Allen in spring 1984, a total of 2,482 full-time equivalent jobs were identified, 58 percent in basic industries. (See Table 5 below.) Table 5 EMPLOYMENT City of Allen Construction 300 Industry 1,138 Total Basic 1,438 Retail 259 Service 419 Government 366 Total Other 1,044. Total 2,482 Source: City of Allen, Texas, Telephone Survey, Spring 1984. The present commercial and industrial growth started in the 1978 to 1980 period. Since that time, commercial development has averaged nine permits per year, with an average annual value of $4 to $6 million, with the Belz Mall the largest single commercial project. (See Table 6.) Industrial permits totaled over $14 million for the same period. In terms of square footage of commercial/industrial space, permit activity since 1978 has resulted in 1.3 million square feet of building space, with 67 percent of the total being in the three major projects --the Belz Mall, InteCom and DLM. (See Table 7.) 1 1 1 1 1 1 1 1 1 1 1 -11- Table 6 COMMERCIAL/INDUSTRIAL BUILDING PERMITS City of Allen, Texas Source: City of Allen, Department of Community Development. Table 7 COMMERCIAL/INDUSTRIAL BUILDINGS City of Allen, Texas Total (Sq.Ft.) Major Project (100,000 Sq.Ft. or More) 1978 Commercial Industrial 0 Total Units Value 000) Units Value 000) Units Value 000) 1977 0 0 0 0 0 0 1978 7 381 0 0 7 381 1979 6 183 0 0 6 183 1980 11 2,126 1 2,133 12 4,259 1981 11 1,334 1 6,961 12 8,295 1982 4 252 0 0 4 252 1983 21 12,539 1 5,350 22 17,889 1984 (August) 17 6,606 0 0 17 6,606 Total 77 23,421 3 14,444 80 37,865 Source: City of Allen, Department of Community Development. Table 7 COMMERCIAL/INDUSTRIAL BUILDINGS City of Allen, Texas Total (Sq.Ft.) Major Project (100,000 Sq.Ft. or More) 1978 43,898 1979 0 1980 207,623 142,000 DLM 1981 140,618 111,100 InteCom, Phase I 1982 7,425 1983 694,255 406,177 Belz Shopping Mall 193,102 InteCom, Phase II 1984 (October) 182,758 Total 1,276,577 852,379 (67% of total) Source: City of Allen, Department of Community Development. -12 - Employment projections by NCTCOG for Allen, as a part of the overall region, show the projected relationship between population and employment relative to other cities in the growth corridor. (See Table 8.) The forecasting model used by NCTCOG projects employment for the region and then allocates employment to the individual cities, based on develop- ment assumptions. Residential growth normally proceeds commercial/industrial growth and thus jobs. However, as can be seen in Allen, the addition of several large industries, such as InteCom and DLM, can greatly shift the population to employment relationship. The regional ratio of population to employment was 1.9:1 in 1980 and is projected at 1.8:1 in 2000. Allen, as a developing city, is projected to have residential growth greater than employment growth during this period and thus a higher ratio. Early development of planned PDs, such as Bray Central I, could alter these forecast ratios. The estimate by NCTCOG appears to be highly understated. Existing and Committed Land Use Existing and committed land use includes present land in use, land zoned but undeveloped, and land zoned in Planned Developments (PDs). Over the last eight years, development has increased and zoning and master planning have also. Yet, the city and ETJ are only 15 percent developed and the undeveloped land not zoned is 46 percent of the total. Planned development districts now make up 27 percent of the land area. (See Plate 2 and Table 9.) Land in use has increased by 65 percent since 1977. Increases have occurred in each land use type, with the greatest percent increase occurring in commercial development, where the Belz Mall, offices and shopping centers have increased the total significantly. (See Table 10.) As the city has become more developed, the land in use has decreased from 25 acres per 100 persons to 20. The city has been seeking a balanced housing stock by requiring percent- ages of housing sizes in major new developments. Presently, one-third of the housing units are 1200-1400 square feet and almost two-thirds are 1600 square feet or less. (See Table 11.) Planned developments (PDs) have become a major zoning tool to shape the future Allen. Statistics of the 28 PDs provide a picture of the pattern and scale of much of the development that will occur over the next 20 years. (See Table 12.) 1 1 1 1 1 1 1 1 1 1 1 -13- Table 8 PROJECTED EMPLOYMENT - NCTCOG Acres City of Allen Land in Use - 1984 + 2,540 15 Population/ Employment Employment Ratio Allen 1980 627 13.3:1 1985 3,272 4.7:1 1990 4,288 6.8:1 Low 2000 5,071 7.8:1 Mid 2000 7,672 5.9:1 High 2000 10,555 4.9:1 Table 9 DEVELOPED AND ZONED LAND AREAS City of Allen and ETJ Acres Percent Land in Use - 1984 + 2,540 15 Zoned but Undeveloped Land Other than PDs + 1,960 12 PDs + 4,630 27 Other Undeveloped Land in ETJ + 7,830 46 Subtotal + 16,960 100 Net Boundary Agreements 400 Total 17,360 -14 - Table 10 LAND USE 1977-1984(1) City of Allen, Texas and ETJ (1)Comparisons should be considered approximate only because of differences in the two land use surveys. (2)Wyse & Associates, 1977. (3)Harland Bartholomew & Associates, Inc., September 1984. (4)Estimated 12,700 persons in city and ETJ, September 1984. Table 11 RANGE OF HOUSING BY SIZE OF UNIT City of Allen, Texas No. of Units Percent Under 1200 Sq. Ft. 355 Acres 1984 1,307 1977 2 1984 3 Acres/100 P(4) Residential 500 1,098 8.65 Rural 467 ( 248 ) 2000 Sq. Ft. and Over Low/Moderate 10.8 (806) 3,926 Medium/High (44) Commercial 18 159 1.25 Industrial/ Railroad 61 124 0.98 Public/Semi-Public and Parks 171 272 2.14 Streets and Alleys 796 883 6.95 Total 1,546 + 2,536 19.97 (1)Comparisons should be considered approximate only because of differences in the two land use surveys. (2)Wyse & Associates, 1977. (3)Harland Bartholomew & Associates, Inc., September 1984. (4)Estimated 12,700 persons in city and ETJ, September 1984. Table 11 RANGE OF HOUSING BY SIZE OF UNIT City of Allen, Texas No. of Units Percent Under 1200 Sq. Ft. 355 9.0 1200 to 1400 Sq. Ft. 1,307 33.3 1400 to 1600 Sq. Ft. 787 20.1 1600 to 1800 Sq. Ft. 585 14.9 1800 to 2000 Sq. Ft. 467 11.9 2000 Sq. Ft. and Over 425 10.8 Total 3,926 100.0 Source: City of Allen, Department of Community Development, August 14, 1984. DEVELOPMENT AREAS MAJOR LAND USE - 1984 l , MCKINNEY I AlleiZONED OTHER THAN PD ___� ` of O8 ZONED PD (PD NUMBER) i _ 24 Comprehensive Plan 1985 UNDEVELOPED LAND OUTSIDE THE CITY � Bj BOUNDARY AGREEMENT AREA o• 10-' �000• t�j�/J IIYY��111�11�tI>_�i I - J FRISCO _ - _ FAIRVIEW I _It + - 21 14-J-- n ALLo LUCAS /! 10 t 1)4 - 18 PLANO D- - 4 - - - - -- -- -}__ PARKER + / B. r\J PLANO M -16 - Table 12 LAND AREAS IN PLANNED DISTRICTS Land Use Single -Family A/D Multi -Family Commercial Office Industrial Community Facilities Other Total City of Allen, Texas Land Area (1000 A) Percent 2.6 57 0.2 4 0.8 17 0.3 7 0.3 7 0.2 4 0.2 4 4.6 100 Residential development planned in PDs can be broken down as follows: (See Table 13 for additional details.) Units Estimated Population Single -Family A/D 10, 743 33,300 Multi -Family 3,016 7, 540 Total 13,759 40,840 Looking at residentially planned land in PDs only, single-family represents 93 percent of the land area and 82 percent of the population. Multi -family represents seven percent of the land area and 18 percent of the population. Single-family density in PDs would be +4.1 dwelling units per acre and multi- family + 15.4 units per acre. Overall density would be 4.8 units per acre. The range of housing sizes planned in PDs was so varied from development to development that a summary calculation was not possible. Some standardized process should be utilized so that the city will always know the status of housing size relative to goals and policies. The scale of commercial and industrial development planned in PDs was also difficult to calculate because of overlapping requirements; nevertheless, industrial is probably in the range of 1.0 to 1.5 million square feet and commercial/office in the range of 10 to 15 million square feet (excluding PD 26). Build Out Population Based on Present Trends The future city, when completely developed, will be a product of present land use, committed land use and development of the remaining vacant land. -17 - Table 13 RESIDENTIAL DEVELOPMENT PLANNED DISTRICTS City of Allen, Texas (1)Based on 3.1 persons/unit for all residential except multi -family and 2.5 persons/unit for multi -family Source: City of Allen, September 1984. Total Units Estimated(l) PD Units High Density Population 1 663 — 2,055 2 700 — 2,170 7 213 — 550 10 100 100 250 11 834 185 2,474 12 667 — 2,068 13 1,582 200 4,784 16 239 205 617 18 313 — 970 19 192 192 480 20 2,012 673 5,833 21 28 — 87 22 1,504 254 4,510 23 2,791 648 8,263 25 102 — 316 26 1,229 255 3,657 28 590 304 1,647 Total 13,759 3,016 40,841 (1)Based on 3.1 persons/unit for all residential except multi -family and 2.5 persons/unit for multi -family Source: City of Allen, September 1984. -18 - Assuming the policies for development of vacant land are a continuation of those contained in approved PDs, a future population of around 130,000 to 140,000 persons can be estimated. (See Table 14 below.) Table 14 ESTIMATED POPULATION AT BUILD OUT City of Allen Development 1-1-84 Land Zoned Other Than PDs PDs Undeveloped as of 1-1-84 Vacant Land Developed at Level of Present PDs Total Theory/ Methodology Population Percent 11,250 8.3 + 17,650 13.0 + 39,650 29.1 + 67,480 49.6 + 136,030 100.0 Land Use Fiscal Impact Analysis In the late 1970s, much research was done in developing methods of assessing the direct costs of new development. Chief among these was the work done by the Center for Urban Policy Research at Rutgers University in New Jersey, which authored a textbook that has served as the basis for fiscal impact analysis today. Refinements have been made and new computer models developed, but the basic underlying concepts remain. The purpose of this analysis is to define for Allen the relative revenues and costs for the principal types of land use in the city. Using this, the city can make decisions as to the balance between different land uses for the future city. In this analysis, current development—its revenues and the costs, of providing services, was assumed to be a reasonable measure of the relative balance of revenues and costs for the future. Changes in the revenue structure or changes in services provided will surely occur and these will alter the future balance. Therefore, over the long run, the city should develop a process for measuring fiscal impact and utilize it in reviewing new developments. For the broad general purposes of the Comprehensive Plan, an analysis of current conditions should suffice. The methodology used in preparing the analysis was a variation of the "proportional valuations" method. Where divisions of operating costs or revenues are not normally available in the accounting of the city, the assumption is that the proportion of assessed valuation carried by that particular land use type is representative of the proportion of operational costs assigned to that land use. For Allen only operating costs were capital costs of new development development that the city must pay this analysis. -19 - considered. The developer pays for most and although there are ongoing shares of for, these are considered above and beyond The following sections present revenue and cost calculations for both the city of Allen and Allen Independent School District combined, as well as separate calculations for both the city and for the school district. In the final sections those limitations inherent to this analysis are described. City of Allen/Allen Independent School District The city of Allen and the Allen Independent School District are the two principal jurisdictions providing services to city residents and property owners. While parts of other school districts are located within the city of Allen, the Allen Independent School District was the only district used in this analysis. The following summarizes the findings for both units of government. Land Use Single -Family Attached/Detached Multi -Family Total Residential Commercial Industrial Revenue Generation Per Dollar of Operating Expenditures 0.25:1 0.53:1 0.40:1 3.67:1 1.47:1 Clearly commercial uses and, in this case, retail uses provide the greatest revenues per dollar of services. This is because of the sales tax. Both office and industrial uses generate more revenues than they do costs. This advantage is realized primarily in the school services where neither generates students but both provide revenues to support the school district. Neither residential use, single-family or multi -family pays for itself. However, since multi -family generates fewer students per unit, it has less costs and therefore a higher relationship between revenues and costs. These statistics conform to national findings. City of Allen Revenues and costs for the city of Allen were taken from data for the 1983-84 fiscal year. Total taxable valuation for that fiscal year was approxi- mately $345 million. (See Table 15.) Of that amount, residential development was approximately 66 percent, commercial and industrial 21.4 percent, and the remainder was in other uses which included personal property, nonresidential land, boats, mobile homes, etc. To estimate the relative proportion of taxable property requiring services, both vacant lots subject to development and other -20- 20-Table Table15 TAXABLE VALUE - FY 1983-84 City of Allen, Texas Taxable Value Taxable Value W/O VL, Other ($000,000) Percent ($000,000) Percent Residential 228.1 66.1 212.8 74.2 (SF)3177 (206.0) (71.8) Rental (MF) 77 (6.8) (2.4) Vacant Lots (15.3) Commercial 31.1 9.0 31.1 10.9 Industrial 42.7 12.4 42.7 14.9 Other 43.0 12.5 Total 344.9 100.0 286.6 100.0 Table 16 REVENUES - FY 1983-84(1) City of Allen, Texas Ad Valorem Franchise Sales Tax Tax Tax Total Percent Residential 448 176 — 624 52 (SF) (434) (170) — (604) (51) (MF) (14) (6) — (20) (1) Commercial 66 26 354 446 37 Industrial 90 35 — 125 11 Total 604 237 354 1,195 100 (1)Not including user fees, permits, fines. Table 17 COMPARISON OF REVENUES AND OPERATING COSTS FY 1983-84 City of Allen, Texas Revenues Cost(1) Ratio ($000) ($000) Revenues/Costs Residential 624 1,083 0.58:1 (SF) (604) 1,048 0.58:1 (MF) (20) 35 0.57:1 Commercial 446 159 2.80:1 Industrial 125 217 0.58:1 Total 1,195 1,459 0.82:1 (1)Operatingbudget less tasks paid for by fees, fines, etc., prorated by AV (taxable), prorated to SF -MF by number of units. -21 - uses were deleted. The services required by mobile homes and by farmsteads were considered too small to have a significant impact. Therefore, taxable value of uses requiring services approached approximately $287 million, of which 74 percent was in residential uses. Total revenues for the city in 1983-84 were approximately $2.7 million. Of this, approximately 27.7 percent was in fees, permits, intergovernmental revenue and miscellaneous revenues and approximately 72.3 percent in general taxes. The major user sources of taxes were found to be the general property taxes, the franchise tax, and the sales tax. These were then used as the basis for revenue generation for the city. Permits, fees and other revenues which are user costs were removed from both revenues and operating expenditures. A total of $1.2 million in revenues was generated during the 1983-84 fiscal year by these major land use areas. The breakdown can be seen by percentage in Table 16. Operational costs (excluding capital and user fee costs) for the city were calculated at $1.5 million and allocated to each of the land uses based on valuation. (See Table 17.) Total costs exceed revenues. This is because of the revenues generated by uses not requiring services (such as vacant lots), and revenues generated from revenue, such as interest on investments. All the uses, except commercial, do not pay their own way. Commercial uses generate sufficient sales tax to substantially exceed their operating costs. Allen Independent School District Taxable value within the school district for the 1983-84 fiscal year totaled approximately $376 million. (See Table 18.) Of that, $289 million was within the categories labeled as service requiring, with approximately 74 percent in residential, 10.7 percent in commercial and 15.2 percent in industrial. Based on 44 cents per hundred tax levy for operations, the service requiring uses produced a revenue of $1.27 million to the school district in ad valorem taxes. The largest revenue source to the school district is, of course, the state contribution which is based on a complex formula applied to the school district each year. The operating budget for the school year 1983-84 'approximated $5.4 million. When those items dealing with students from the Lovejoy District, fees, grants for specific purposes and programs were removed, the overall budget was approximately $5 million. A comparison of the revenues and operating costs generated for the school district is shown in Table 19. Commercial and industrial uses which generate no students provide 26 percent of the revenue. The remainder is provided by residential development. Yet, because a large share of the operating budget is from the state, the amount contributed by each household relative to dollar of operating cost is quite small. The proportion of multi -family contribution is considerably larger than that for single-family, due primarily to their considerably lower rate of students generated per housing unit. -22 - Table 18 TAXABLE VALUE, FY 1983-84 Allen Independent School District Table 19 COMPARISON OF REVENUES AND OPERATING COSTS FY 1983-84 Allen Independent School District Revenues Cost(1) Taxable Value ($000) Taxable Value Revenues/Costs W/O VL, Other 942 5,010 ($000,000) Percent ($000,000) Percent Residential 229.8 61.1 214.1 74.1 (SF - 3210) (207.3) 0 — (71.7) (MF - 77) (6.8) Total (2.4) Vacant Lots (15.7) Commercial 31.1 8.3 31.1 10.7 Industrial 43.9 11.7 43.9 15.2 Other 71.2 18.9 Total 376.0 100.0 289.1 100.0 Table 19 COMPARISON OF REVENUES AND OPERATING COSTS FY 1983-84 Allen Independent School District Revenues Cost(1) Ratio ($000) ($000) Revenues/Costs Residential 942 5,010 0.19:1 (SF) (912) (4,950) 0.18:1 (MF) (30) (60) 0.50:1 Commercial 137 0 — Industrial 193 0 Total 1,272 5,010 -23- T.imitatinne A number of limitations need to be mentioned regarding the preceding analysis and its application to day-to-day development in the city of Allen. These are: 1. Both industrial and multi -family uses represent a small proportion of total uses and assignment of operational costs based on assessed value is difficult in each case. 2. The individual industrial projects which are a part of the overall land use area are quite large (InteCom and DLM) and the cost of services required for each may not be typical. 3. Incremental costs of expanding a community service (such as the need for a ladder company for the fire department to serve higher and more expensive development) have not been considered. When applied to future individual projects, incremental costs will need to be considered. 4. Capital costs were not included. They also should be included in individual project analysis. 5. The city and school district boundaries are not coterminous. However, because of the large portion of the total area of each which is in both jurisdictions and the similarity in number of housing units in each, they were combined without adjustment for the analysis. Despite these limitations, the analysis clearly shows the relationship between each of the land use types and their ability to "pay for themselves." -25 - COMPREHENSIVE PLAN LAND USE The Land Use Plan is one of the most significant elements of the Comprehensive Plan. It presents an arrangement for future development which should remain valid far beyond the traditional 20 -year time period. For a suburban community such as Allen where the present rate of growth is very rapid, it is advisable to plan for the full development of the city, with short- range growth areas predicated by provision of facilities and services. Review of Baseline Data The major goal for future land use development is to provide for the development of Allen as a high quality residential community. Land use policies of the city have been based on that overriding goal, as can be seen by the existing and committed pattern of development to date. This pattern empha- sizes a neighborhood residential pattern, predominantly single-family, with clusters of high and medium density residential at commercial centers or along major streets. Creeks and their floodplains flow from north to south and provide a linear pattern through the city. Industrial uses are located along the major highways, as are the strip commercial areas. Residential areas are often buffered from commercial areas. Recent planned developments along the U.S. 75 corridor are for intense commercial or light industrial, with office development buffering residential areas from the commercial_ and industrial areas. Local retail and services are located at intersections of major streets at approximately one -mile intervals, although some strip commercial is located along SH 5 and FM 2170. These existing and committed land uses represent almost one-half of the land area of Allen and have already established the basic land use pattern for the future city. Since Allen is surrounded by three major cities and three other communi- ties, the plan for Allen should be compatible with adjacent land uses and major street extensions of these other cities, where such is possible. Goals and Policies Goals and policies for Allen were prepared by each subcommittee and consolidated by the Oversight Committee. A number of sources were used by the committees including research findings, personal observations and findings, and the results of the community survey. 1.000 General Goal: Provide for the development of Allen as a high quality residential community. -26- 1.010 Specific Goal: Provide for high quality residential neighborhoods 1.011 PAS: Develop guidelines for densities and land uses to assure high quality neighborhoods. 1.020 Specific Goal: Develop a well balanced community. 1.021 P/IS: Plan for a diversity of ages and income levels in the city. 1.022 P/IS: Emphasize desire for larger lot/house size. 1.030 Specific Goal: Provide adequate retail and commercial services for the shopping needs of Allen. 1.031 PAS: Determine measures of demand and design land use plan to meet those needs. 1.040 Specific Goal: Provide a strong tax base capable of supporting the high quality residential community desired. 1.041 PAS: Provide sufficient offices, commercial and light industrial for local jobs and tax base. 1.042 PAS: Develop a public land use plan. 1.043 PAS: Plan multiple industrial parks. 1.050 Specific Goal: Provide open space throughout Allen, preserving the natural resources. 1.051 PAS: Develop floodplain as open space, if feasible. 1.052 PAS: Preserve major woodlots and trees in all developments. (See Environment.) 1.060 Specific Goal: Establish land use pattern. 1.061 P/IS: Prepare comprehensive plan for land use. 1.062 PAS: Evaluate land use compatibility with neighboring cities. 1.063 P/IS: Coordinate land use development with extension of utilities and public services. 1.064 PAS: Establish and administer density levels for future residential development and intensity levels for future nonresidential development. -27- 1.070 Specific Goal: Redevelop the Central Business District. 1.071 P/IS: Incorporate the Main Street Study into redevelopment planning for the CBD. 1.072 PAS: Encourage retail and commercial services and office develop- ment in the CBD. Land Use Plan Development Strategy The development strategy for Allen is focused on eight key areas. (See Plate 1.) 1. Preservation of the floodplains as open space and recreation corridors. 2. Reducing U.S. 75 as a development barrier. 3. Development of a high quality office and commercial environment along SH 121. 4. Taking advantage of the key location of city property at McDermott Drive and U.S. 75 to create a major image node for the city. 5. Redevelopment of the CBD and north side of FM 2170 (LIM Area) to complement key areas above. 6. Provision of high quality residential neighborhoods throughout the city. 7. Concentrate local retail commercial in nodes, rather than in strip commercial areas. 8. Develop two areas of the city for high quality light industry, one located at the intersection of U.S. 75 and SH 121, the other the present industrial area east of U.S. 75, south of the proposed city center. Concept of the Plan The Land Use Plan provides for the complete development of Allen, a process that may take 20 to 50 years. The following are the long-range strategies for the plan. (The Land Use and Major Thoroughfare Plan map is located at the back of this report.) 1. The city should encourage construction of a major "city center" on the southeast quadrant of the intersection of U.S. 75 and FM 2170, which will provide an identity for Allen and a center for major city -28 - activities. The development should fall within the category of high intensity mixed use, and should consist of a unique architectural character. Uses might include high rise offices, first level retail, a hotel, entertainment, city offices and city civic center facilities. The city should limit its participation to development of its 33 acres and should manage development on the other parcels to provide an overall high quality and compatible development. High priority should be given to site planning the area and establishing permanent zoning. 2. Redevelopment of the downtown, as presently envisioned in the CBD district, should be accomplished as a low intensity mixed use center. Relocation of FM 2170 for McDermott Drive will provide economic incentives for new development along it. Offices, retail, public uses, restaurants and other services—all in an attractive, pedestrian envi- ronment --should be the redevelopment goal. 3. Existing development on the northeast corner of U.S. 75 and FM 2170 presently consists of small lots with single-family, multi -family and some offices. Future development of this tract will be hindered by multiple ownerships, high utility replacement costs and high land costs. This area should be planned for moderate intensity mixed use, consisting of offices, some retail at key locations and multi -family on a block/half-block scale. Some incentives may be required to bring about the quality and scale of development appropriate at this location. 4. The U.S. 75 corridor should be developed for high intensity offices, retail and services. Tall buildings should be clustered at the major node points, with intense but not tall development in the intervening section. Residential areas should be separated from the corridor, with low intensity office uses. 5. SH 121 is planned for future development as a freeway facility. The SH 121 corridor from the west city limits to Watters Creek should be developed as high quality, low-rise offices and/or high quality light industry in a low intensity campus -type environment. Locations adjacent to interchanges should be developed as commercial. This is identified as SD -1 on the plan. 6. The SH 121 corridor from Watters Creek to U.S. 75 should be devel- oped for high and low intensity offices, retail and services, and selected high quality light industry, similar to proposed development along U.S. 75, but with a higher level environment and character of development. This is identified as SD -2 on the plan. 7. Community level retail, offices and services should be located at three key locations --Alma Road and FM 2170, SH 5 and FM 2170 and Row- lett and Watters Roads. Local retail and services should be clustered DEVELOPMENT STRATEGY MAJOR REGIONAL LOCATION of -- ---------- r ----- - - ✓ Comprehensive Plan 1985 ,l ^ -' 4-0 - CANPUS OFFICE -'-- DEVELOPMENT --- -S - ALONG � i.l 1�I I SH 121 P\0-IhNna STRIAL �o - 1 i ESTATE 77 o COQ RESIDENTIAL j -,' ' 3 A. 41 CONNE T CITY- �) OPV CORRIDOR // MAJOR FUTURE MMERCIAL INDUSTRIALS ALONG US'75'_ I ' V 8,� °(*• COMMERCIAL I' `-'------�+8 u o\ o• INDUSTRIAL CENTER I PROBABLE TRANSITI} � .�o� OFFICE=AND MULTI -FAMILY I ,• I � k� O �° HOUSING IMPROVEMENT AREA FUTURE! i HIGH QUALITY_ ar il qge NEIGHBORHOO 'dALLEN ------ �` .c• ti 0 0 e,0 + q. ao -� ...:•1 r . . EXISTING AND FUTURE ( HIGH QUALITY RESIDENTIAL NEIGHBORHOODS ck f COMMUNITY CITY GENT�F�t�- { '4 { RETAIL -CENTERS p� / ° �_` v — AVOID STRIP,__) DEVELOPMENT• �� • COMA;UNITY ALONG 2170 `IL CEN�FERee --------- °9�Q� • NUUSTRIAq1.-'- G ------ 8U: Ce - y0 „ w CONCENTRATE EFFORTS I TO MAKE QUALITY! PARTS -OF COMMUNITY } ? FLOODPLAINS AND WOOALOTS 1 I TO BE PRESERVED ALONG o b' AVO ST STRIP I It t _ p %t DEy LOP r ' MAJOR STREAMS :1 :,--,ALONG_SH 5 CA) f -30 - at intersections of most major streets. These would provide services to the residential neighborhoods. Strip commercial should be dis- couraged, particularly on SH 5 and FM 2170, as should commercial uses at intersections of minor arterial or collector streets. 8. The area identified as SD -3 is an unusual area. It is located between the two high intensity corridors and is a difficult configuration because of the converging streets. It is primarily in the McKinney ISD. A number of possible future uses should be considered including NR -Neighborhood Residential or an institutional use, such as a college or hospital. With the proper development plan, garden offices could be permitted as well. 9. Floodplains and large wooded areas should be preserved as open space or for public recreation. 10. Two major light industrial areas should be developed. The first should be the present industrial area in the south including DLM and InteCom. The second should be in the triangle formed between SH 121 and U.S. 75, where good vehicular access and visibility would be available. Industrial areas fronting on U.S. 75 and SH 121 would be high visibility and high quality, campus -type development. 11. The residential area along the northeastern edge of Allen is presently very low density residential. These areas should be continued. 12. Most of the remainder of the residential areas should be developed in a traditional neighborhood arrangement. Each should have a mix of housing densities, with the higher densities located along major thoroughfares or in close proximity to commercial centers. These are shown as NR. Land Use Categories 1. Very Low Density Residential (VLDR) This land use category is intended for development of estate residences and neighborhoods on large lots of one acre or more. 2. Low Density Residential (LDR) This land use category provides for development of neighbor- hoods with traditional single-family homes having densities of two to five units per acre. 3. 4. 5. VM -31- Medium Density Residential (MDR) This land use category is intended for development of nontradi- tional single-family, residences including duplexes, townhomes, patio homes and garden homes with densities ranging from six to eleven units per acre. Huh Density Residential (HDR) This land use category is intended for development of apart- ment/condominium residences with densities ranging from 12 to 24 units per acre. City policy is to permit groupings of no greater than 200 units. Neighborhood Residential (NR) This land use category is intended for development of mixed density residential neighborhoods. It provides for flexibility of specific locations and uses within the neighborhood provided that design principles and development policies of the city are maintained and provided uses fall within the maximum levels of the control totals and are acceptable density levels to the city. Corridor Commercial (CC) This land use category provides for high intensity retail, offices and light industrial uses in selected locations along the U.S. 75 highway corridor. Additional characteristics of the category and possible uses are shown on Table 20. Adjacent residential neighbor- hoods should be carefully buffered from uses in this district. Retail, Offices and Services Commercial (C) This land use category provides for local retail, offices and services to residential neighborhoods of the city. These can be located in neighborhood or convenience shopping centers or be developed as separate uses. Because of their close relationship to the residential neighborhoods they serve, good design and interrelation- ship to the neighborhoods is important. 8. Offices (0) This land use category provides for concentrations of major offices, some with light industrial uses as part of the overall use. Supplemental retail in the buildings or in limited amounts to serve the complex should be encouraged. Table 20 MATRIX OF COMMERCIAL/INDUSTRIAL LAND USE CATEGORIES City of Allen, Texas Compatibility to Residen- ial Uses Low High Typical Floor Area Ratio (FAR) 1:1 .75:1 Principal Location N/A N/A Low to Very Low Moderate High 1:1 .7:1 .3:1 Along major Corridor Corridor thoroughfares Retail Low/ Light Services Industry Local retail High Moderate Industry Offices with no Shopping Intensity Intensity storage and Convenience campus en- Mixed Mixed Corridor Garden Use Use Commercial Office Office Major Uses Retail and Offices Retail and Offices Offices Services Retail and Services Supplemental Offices Services Shopping Retail Entertainment Medium to Centers Restaurants City Complex High Density Lodging Some light Civic Center Residential (Hotels) industry Lodging Public Offices (Hotels) Buildings Entertainment Condominiums Some heavy Lac apartments commercial (high density) Some light industrial _ Height 1-20 stories 1-3 stories 1-15 stories 1-15 stories 1-3 stories Employment High Moderate High High Moderate Traffic Low/ Moderate/ Generation High Moderate Very High High Moderate Service, Low/ Trucks Moderate Moderate Moderate Moderate Compatibility to Residen- ial Uses Low High Typical Floor Area Ratio (FAR) 1:1 .75:1 Principal Location N/A N/A Low to Very Low Moderate High 1:1 .7:1 .3:1 Along major Corridor Corridor thoroughfares Retail Office do Light Services Industry Local retail Office/ do Services Industry Offices with no Shopping outside Center storage and Convenience campus en- vironment 1-2 stories High High Moderate 1-3 stories Mod/High High Low -High Moderate Moderate .25:1 .5:1 Intersections Industrial of major Park arterials -33- 9. Garden Offices (GO) This land use category is designed for low-rise, garden type offices in a high quality environment. These areas will often serve a transitional function of buffering the more intense corridor commer- cial or office areas from adjacent residential areas. 10. Light Industry (LI) This land use category provides for high quality light industrial uses having no outside storage and in a high quality environment. 11. Low Intensity Mixed Use (LIM) This land use category provides for a mixed use area of offices, retail, services, medium to high density residences and public build- ings. Low rise in character, the area should be oriented to the pedestrian, where possible, and should provide an atmosphere and character conducive to attracting customers and residents to the area. 12. High Intensity Mixed Use (HIM) The HIM category provides for a wide range of intense land uses—offices, entertainment, hotels, retail and high density residen- ces—into a mixed use complex. 13. Public and Semi -Public (P) This land use category includes public and private parks, public uses such as schools and city buildings, and other uses such as churches. 14. Special Development Areas (SD) These special development areas are areas for which the city has identified a specific type, character and use of land. Three areas have been designated, each different and with different land use purposes. (See previous section for description of each.) Others could be added at the discretion of the city. Details of the Plan The plan follows existing and committed development as currently zoned. This accounts for approximately 50 percent of the land area of the future city. The remaining one-half of the city is presently uncommitted and the plan provides general direction for development of these areas. -34 - Residential Development. Residential development in Allen should con- tinue to be based on the neighborhood concept. In this concept a residential neighborhood is assumed to be bounded by major arterial streets, and may consist of a number of properties or subdivisions. Development should occur as follows: retail commercial or office at the intersections of the major streets, based on economic need to serve the neighborhood, and multi -family units, retirement housing or housing for the elderly in close proximity to the commercial area where services and facilities are conveniently available. School/park facilities should be centrally located to the neighborhood, with residential uses designed around the facilities. Both medium density and high-density uses should be carefully located in groupings along the major thoroughfare and adjacent to commercial or office uses. For each neighborhood, public and semipublic uses such as churches would locate along the major thoroughfares. Market Demand and Timing of New Development. Studies prepared for the city of Plano show that market demand for commercial/industrial land over the next 20 years will be far less than is presently zoned or planned in Plano, Allen, Frisco, McKinney and other U.S. 75-Tollway Corridor cities. Competition for new development will be high and land absorption could be slow. The timing of new development will be important to the cities ability to provide facilities and services. Allen should consider some method of managing the rate of new development to minimize adverse cost and impact to the city. Using the Plan. The land use plan is not intended as an inflexible straitjacket for the city. For good development to occur, some flexibility must be built into it. The question arises then, how should the plan be used and what adjustments can be made short of amending it? The plan is designed to be used at the neighborhood level. Land use, dwelling units, employment and population which will serve as the basic units for sizing of streets, sewers, water facilities and other community facilities are calculated for the neighborhood unit. If these facilities are to be adequate/effi- ciently sized, the control totals should not be exceeded. These should be considered maximums for which the city may choose to approve less than the control totals. Neighborhood planning units in Allen are shown on Plate 4. Development should be reviewed based on design standards for neighborhoods and control totals given on Tables 21 and 22. The neighborhood will normally consist of several subdivisions or planned developments. They should not exceed the control totals, but development may be so designed internally that it will be the best land use pattern and the highest quality possible development. Clustering of residential development to preserve woodlots would be a good application of this. Since the control totals do not include all land for parks or for public uses, the area used or reserved for new public uses should be subtracted from the neighborhood area and the control totals adjusted each time an application is considered. NEIGHBORHOOD PLANNING AREAS -- BOUNDARY ONUMBER / of - _ ------ + -- - + � i j ®-_ / Comprehensive Plan 1985 _ � �� to • // II ----% ///\ - iii �i�\O �\�'� '/O ///' I• .//// //�- ��./// � _ � /// -1 �' •-lJi \�� I - �y' IIS--- - y/� 13,' /� 14 �L�/ ---- tTl J I A , 1 `' I - ✓ I 17 / i �'`ie9:' + 31 ALLEN r i :. ' 115 i I 16' I / ----- J -----I-- I lil• -36 - Table 21 SUMMARY OF LAND USE ALLOCATIONS City of Allen, Texas Neighbor- Residential hood LDR/ Com- Indus- Total Units VLDR MDR HDR Total mercial Office trial PSP Acres 1 — 20 — 20 40 302 — 90 452 2 — — -- — 80 95 — 35 210 3 — — — — 104 90 — — 194 4 — — -- — 74 100 — 35 209 5 — — — -- 157 67 47 6 277 6 1,151 51 20 1,222 20 — — 170 1,412 7 484 46 52 582 37 21 — 15 655 8 70 30 20 120 — — — -- 120 9 551 7 40 598 41 36 — 82 757 10 146 60 55 261 38 116 — 41 456 11 — — -- — 22 — 285 71 378 12 — 69 72 141 174 — 89 74 478 13 398 16 15 429 62 88 — 33 612 14 402 23 28 453 37 2 — 18 510 15 906 5 — 911 14 14 — 2 941 16 210 158 61 429 70 108 — 21 628 17 — -- -- — 155 47 25 3 230 18 443 — — 443 72 2 — 62 579 19 722 45 27 794 44 16 — 14 868 20 684 54 15 753 40 — — 142 935 21 111 — 12 123 30 — — -- 153 22 209 49 15 273 23 46 — 48 390 23 — -- -- — 90 — — 5 95 24 129 — 15 144 21 80 156 6 407 25 421 109 51 581 56 14 14 100 765 26 718 50 25 793 32 — — 71 896 27 264 32 — 296 35 15 — 208 554 28 — — -- -- — -- 369 16 385 29 718 98 52 868 108 — — 76 1,052 30 313 12 13 338 20 — — -- 358 31 359 41 59 459 54 62 35 610 Total 9,409 975 647 11,031 1,750 1,321 985 1,479 16,566 Note: 1. All measurements are in gross acres. 2. Does not include public and semi-public uses, such as churches, schools, other institutions, golf courses or athletic complexes. -37 - Table 2 2 SUMMARY OF DWELLING UNITS, POPULATION AND EMPLOYMENT City of Allen, Texas Neighbor- Dwelling Units hood Total LDR/ Units Acres VLDR MDR HDR Total 1 432 - 128 - 128 2 210 - - -- -- 3 194 - - -- -- 4 209 - - -- -- 5 277 - - -- -- 6 1,432 3,683 326 360 4,369 7 655 1,455 250 936 2,641 8 120 224 192 360 776 9 757 1,763 45 720 2,528 10 456 467 384 990 1,841 11 378 - - -- -- 12 478 - 442 1,296 1,738 13 612 1,313 141 270 1,724 14 510 1,282 142 504 1,928 15 941 1,982 25 -- 2,007 16 628 971 850 1,098 2,919 17 230 - - -- -- 18 579 1,417 - - 1,417 19 868 2,162 308 486 2,956 20 935 2,188 346 270 2,804 21 153 395 - 216 611 22 390 702 344 270 1,316 23 95 - - -- -- 24 407 413 - 270 683 25 765 1,347 698 674 2,719 26 896 2,298 360 450 3,108 27 554 845 205 - 1,050 28 385 - - - -- 29 1,052 2,853 604 936 4,393 30 294 1,001 77 252 1,281 31 610 1,149 262 998 2,409 Total 16,989 31,639 Popu- lation 320 13,132 7,475 2,074 7,378 4,882 4,345 5,098 5,589 6,225 7,880 4,392 8,687 8,493 1,765 3,711 1,955 7,605 9,149 3,133 12,694 3,926 6,713 6,482 8,820 46,941 136,383 Employ- ment 5,676 2,735 2,986 2,736 3,920 200 727 1,022 2,352 4,902 3,627 2,116 404 378 2,536 3,873 844 712 230 300 1,012 2,260 4,039 1,032 320 745 8,797 1,110 160 1,594 63,345 Note: Population estimated at 2.5 persons per dwelling unit for MDR and HDR; 3.1 persons per dwelling unit for LDR and VLDR. -38 - Similarly the location of commercial/office development should be appro- priate to the major arterial streets, but the design permits many variations which will improve the quality of development. Most important to the success of this system will be the setting up of an easy to administer system for keeping up with development in each neighborhood and for recording the final agreements on each new development. Since the control totals are so important, reverification of the acreage of neighborhoods should be undertaken at an early date. There is an interrelationship between designated categories on the land use plan and districts of the zoning ordinance. The interrelationship is not exact and permits considerable choice, depending upon the specific type of development the city wishes within the category. (See Table 23.) The majority of new areas would be Planned Districts (PDs) when zoning is finally accomplished. Scaling the Plan In order to test the land allocation for the plan, acres per 100 persons were calculated for existing development 1984 and for build -out. (See Table 24.) As the area develops, it will be more urban. This is reflected in the total density and the allocation of total land area (12.80 acres per 100 persons). The table shows a reasonable balance of land uses, particularly residential uses. Commer- cial is high because of the amount of corridor commercial and office land allocated along U.S. 75 and SH 121. The numbers in Table 3 are not intended to be applied as quotas to individual developments. Overall, from a land use standpoint, the plan provides a reasonable allocation of the various land use categories to permit balanced development. Fiscal Impact. Fiscal characteristics of the future plan based on existing relationships and forecast trends in revenues and cost were prepared. Results showed the plan able to generate the revenues needed to provide essential services for the future community. (See Table 25.) -39 - Table 23 RELATIONSHIP OF ZONING DISTRICTS TO LAND USE PLAN CATEGORIES City of Allen, Texas Land Use Plan Category Zoning District or Districts VLDR A-0 LDR R-2 (18,000) R-3 (12,000) R-4 (9,000) R-5 (7,500) MDR 2 -Family 9.6 DU/A Townhouse 10.8 DU/A HDR Multifamily -1 12.1 DU/A Multifamily -2 24.0 DU/A NR PD C Local Retail Shopping Center General Business GO Office LI Light Industrial LIM and HIM PD CC PD SD -1, SD -2, SD -3 PD O PD (0) Residential LDR/VLDR MDR HDR Commercial and Office Industrial PSP and Parks Streets and Alleys Total -40 - Table 24 LAND USE ALLOCATION City of Allen, Texas 1984(1) Acres Acres 100 1,098 8.65 159 1.25 124 0.98 272 2.14 883 6.95 2,536 19.97 Build-Out(2) Acres Acres/100 9,136 6.82 7,839 5.85 849 0.63 448 0.34 2,344 1.75 810 0.60(4) 1,280 (3) 0.96 (3) 3,908 2.92 17,478 13.05 (1)12,700 Persons (2)134,000 Persons (3)Does not include future schools, public, semi-public and some major parklands (4)Does not include light industrial which may be permitted under PD regulations in corridor commercial areas. Source: Harland Bartholomew do Associates, Inc. Table 25 ESTIMATED FISCAL IMPACT OF COMPREHENSIVE PLAN AT BUILD OUT City of Allen, Texas Estimated Annual Revenues Less Cost ($000,000) Residential -9.2 Commercial +7.6 Industrial +2.0 Total +0.4 Source: Harland Bartholomew & Associates, Inc. -41 - TRANSPORTATION The transportation analysis and plan focuses principally on the thorough- fare system. While transit, bicycle and pedestrian improvements are addressed, the major efforts of the city will need to be directed at development of a thoroughfare system which will, when linked with the regional system, effec- tively and efficiently carry the anticipated traffic. Goals and Policies As part of the initial activities on the study, a series of statements on goals and policies or implementation issues were developed by the committee. These took into consideration the results of the citizen survey as well as knowledge of committee members on existing conditions throughout Allen. It is pertinent to note that the first specific goal relates to details of the planning effort in the current study regarding development of a thoroughfare system and provision for potential relationships with the mass transit or light rail line to be provided by DART. The second specific goal, which emphasizes safety on the system, is primarily a matter of detailing the programmed improvements to the system in future years. 2.000 General Goal: Develop an efficient and safe transportation system. 2.010 Specific Goal: Develop a thoroughfare system with sufficient capacity and including provision for mass transit and light rail (DART). 2.011 P/IS: Base thoroughfare planning on Level of Service C. 2.012 P/IS: Design collector streets for Level of Service C on `thorough- fares. 2.013 PAS: Maintain parallel thoroughfares for land use corridors on U.S. 75 -SH 121. 2.014 PAS: Work with the responsible government agency(s) to improve signalization and maintenance of FM 2170 and SH 5, as well as all major thoroughfares. 2.015 PAS: Plan for grade separation at railroad crossing. 2.020 Specific Goal: Emphasize safety on the major thoroughfares. 2.021 P/IS: Coordinate the major street system with existing and projected adjacent land use. 2.022 PAS: School/park sites should be located on collector streets (not arterial streets). -42- 2.023 PAS: Where schools are adjacent to existing collector streets, side- walks and painted safety zones shall be required. 2.024 PAS: All existing major intersections should be updated with painted safety zones and sidewalks. 2.015 P/IS: Designate streets to limit truck traffic and movement of hazardous materials. 2.030 Specific Goal: Seek mass transit and inclusion in the DART light rail system. 2.031 PAS: Work with proper agencies to obtain services needed. Thoroughfares Current Plans and Planning The current transportation plan for the city of Allen was developed in 1983 as a West Side Update of the previously adopted plan. Some elements of that update are the same as the 1977 plan. Modifications were made primarily in the western and northwestern portions of the area. The West Side Thoroughfare Plan for the city of Allen is the most recent plan and was used as one of the bases for development of alternatives for testing in this current study. The West Side plan is similar to the July, 1983 Collin County Thoroughfare Plan which has been adopted for guidance on a countywide basis. The primary differences between the city and county plan relate to the Watters Road crossing of SH 121, extension of Bethany Road as a major thoroughfare (four lanes), and the spacing of interchanges on SH 121. Of primary importance for this analysis relative to the county plan are the designation of Bethany Road eastward from U.S. 75 and the designation of Custer Road (FM 2478) as portions of the proposed county primary system. These variations from the county plan were taken into consideration during the analyses of the alternatives for the city of Allen and the development of recommendations. Another recent development of primary interest and concern for the city is the planning for additional improvements along U.S. 75. At the time of this writing, plans are underway to make improvements to U.S. 75 through the city of Allen that will result in a four -lane, divided cross section with allowance for two additional lanes in the future. Thus, the long-range cross section being contemplated involves three lanes in each direction plus the frontage roads. However, immediate improvement plans would only produce two lanes in each direction but would require adjustments to the slip ramps and the frontage roads. In addition, widenings for improvements to the existing grade separations of cross streets with U.S. 75 would be involved. -43 - Existing Thoroughfare System The existing major street system in the city of Allen primarily consists of a two-lane network of designated major streets. SH 121 and SH 5 are two-lane state highways serving the area. U.S. 75 currently is a four -lane, divided freeway with frontage roads on each side. The frontage roads are two lanes each with two-way operation on each and are discontinuous in some sections where the facility crosses creeks. Interchanges between the main line of U.S. 75 and the frontage roads are provided by a series of slip ramps at a number of locations—notably near Bethany Road, McDermott/Main Street, Lynge Drive, Stacy Road and Ridgeview. Current plans in the city of Allen involve a realignment of FM 2170 near the town center to provide a more direct connection between U.S. 75 and SH 5. Plans are already underway for this development. Other planning is underway to develop a relocation for Rowlett Road across U.S. 75 and involving a new or relocated set of slip ramps for the frontage roads. Considerable planning is underway for the development of SH 121 as a freeway that would involve a main line of four or six lanes with frontage roads. Current plans are also underway to improve U.S. 75, as discussed previously. A number of planned developments have been approved in the city of Allen. Each of these has included some consideration for street improvements based upon previously adopted street and highway plans for the city. These provide guidance on both street right-of-way and cross-section requirements, as well as specifics on these matters that have been agreed upon by both the city and the developers involved. Thoroughfare Options In the early stages of the planning options, a major evaluation was made of each option, which included the projection of future traffic volumes for the ultimate development of land. The approach in this analysis was to use computer models to estimate the ultimate traffic demand for each option and to assign the resulting traffic to the test thoroughfare system. Information was obtained from NCTCOG, the Department of Highways and Public Transportation, and the county to assist in this evaluation. Planning data and trip generation rates used to determine future traffic levels in the Allen study were checked against data from other areas. The decision of the subcommittee was to modify Option C and this recommendation has been carried through into this chapter as the recommended thoroughfare plan. Traffic Model Overview For the purposes of modeling, the internal study area was considered to be the city of Allen and was limited by SH 121 on the north, County Road 719 on -44 - the east, Chaparral Road on the south, and SH 2478 on the west. Vehicles traveling inside this area were classified into three different types of trips: (1) internal trips made by local residents, (2) through trips which do not stop in the area, and (3) internal-external trips. Table 26 provides data used for the selected land use option and includes the land use data, trip by trip purpose, and the resulting peak -hour trips per dwelling unit. Table 26 LAND USE/TRAFFIC PARAMETERS (1) City of Allen, Texas Item Plan 1. Total Dwelling Units 46,269 2. Total Employment 62,335 3. Vehicle Trips a. Home Based Work 21,111 b. Other Home Based 23,835 c. Non -Home Based 12,698 d. Total 57,644 4. Daily Trips per Dwelling Unit 10.4 (1)Represents data used on selected land use option. Final selection by the city altered these data slightly. (See Land Use.) Of the three types of vehicular trips in the study area, forecasts of through trips are the most difficult. Reliance has been placed on using data developed by NCTCOG for through trips, but such estimates have been based on the year 2010 rather than an ultimate level. Thus, through traffic, which would be primarily located on SH 121, SH 5 and U.S. 75, may be higher than projected. The traffic tests conducted were based on peak hour trips in order to make comparisons between traffic demand and capacity for each street segment. Peak -hour trips are typically about 10 percent of the average daily traffic. Thus, the data indicate that the build -out level of traffic for each land use option results in approximately 10 trips per dwelling unit during a typical day. These are comparable to the NCTCOG estimates for the Allen area. Traffic assignments were necessarily based on a given point in time or "design year." In a comprehensive plan study, the land use plan is developed on a full build -out concept, while traffic data are more dependent upon the point in time being studied. Traffic estimates for the full build -out of the study area thus incorporated the following limitations: -45- 1. Traffic for areas other than Allen were based on volumes expected in 20 to 30 years - say, by the year 2010. 2. The full build -out in Allen may not take place before 2025 (or later). 3. Trips per dwelling unit have historically increased over time, thus trip generation rates applicable in 2010 may be too low for the full build -out in Allen. Through volumes (those passing through the Allen area) are the weakest estimates in this analysis. They are primarily oriented to U.S. 75, SH 5 and SH 121. Thus, through lanes on U.S. 75 and SH 121 have been assumed as three in each direction for analysis purposes, based on discussions with state, county and NCTCOG representatives. Assignments have shown that this cross section may not be adequate through Allen for long-range planning, particularly on U.S. 75. However, more detailed evaluations are needed based on regional traffic data (as compared with the local traffic details developed in this project). Internal-external volumes (those with only one trip end in Allen) are highly dependent on what happens outside the Allen study area. However, the projections are developed on sound data assuming the land use options developed for full build -out of Allen. The most significant changes in travel patterns for the land use plan compared with existing land use patterns are: 1. A 12.5 -fold increase in Allen area dwelling units (47,000: 3,757). 2. A 19 -fold increase in Allen area employment (63,000 = 3,272). 3. A 50 percent increase in the employment to dwelling unit ratio (1.34 0.87). The first two items are simple indications of the magnitude of overall traffic increase that should be anticipated. The third factor illustrates that the desires of local residents to change Allen from a 'bedroom community" orienta- tion to a community with a higher employment base is recognized in the land use plan, and this will significantly affect the quantity and distribution of trips made in the Allen area. Travel forecasts made by NCTCOG and reviewed during this study for Allen have used significantly lower population levels than are in the full build- out land use options. For example, NCTCOG has 17,428 households and about 8,000 employees (in the eight traffic zones for Allen). The full build out for all of Allen is based on over 45,000 dwelling units and over 60,000 employees. These compare with 3,757 units in 1984, as estimated by NCTCOG. The change in employment ratio (employment ratio to dwelling units) is much more significant for the full build -out options than for the NCTCOG projections. The plan produces a ratio of 1.35 compared with the NCTCOG ratio -46 - of only 0.46. Local desires to increase the economic -industrial base will increase internal-external traffic. Allen Thoroughfare Plan The land use plan recommended by the committee retains the basic roadway system of the current city plan with only a minor alteration designed to create a parallel roadway from U.S. 75 to Custer Road along SH 121, and the tying in of Alma Road to that parallel roadway. (See Plate 5.) The plan has designated on it the cross-section designations resulting from the analyses of the options. These cross-sections are the adopted standards of Collin County, with modifications for the city of Allen stated below. (See Table 27.) As an overview, roadway type C4U and type C2U should include a modification to require different treatments at intersections with major streets. The proposed modification is to provide a widened cross section at crossings at these two types of collectors with major streets. Roadway type C4U should continue with the four traffic lanes on a 70 -foot right-of-way but should be widened to incorporate left turns in a median. Roadway type C2U should be modified to permit provision of this same cross section, which basically involves changing the right-of-way width for a distance of about 500 feet on each side of a major street to 70 feet instead of the current 60 feet. These modifications will provide good long-term capacity reserve as a sound and defensible planning principle for major streets in the area. Table 28 illustrates an analysis of the cross-section needs for traffic on streets crossing U.S. 75. This indicates for each of the major street facilities the resulting evening peak hour traffic. The minimum lane call for the cross street is provided also. Of the six cross streets, only Lynge Drive is a questionable inclusion as a major street because of current plans to reorient traffic to Rowlett Road in this area. County Road 829 (Alma Road extended to Ridgeview) is shown to need at least four lanes for the U.S. 75 crossing. Stacy Road, Rowlett Road and McDermott Drive can be satisfied with eight -lane cross sections based on the traffic tests reported earlier in this memorandum. Bethany Road will require a ten -lane cross section (including the turn lanes). This is due primarily to the expected growth of InteCom and other new industries to locate in the industrial area. Because of other analyses and the possibility of long-range through traffic increases, McDermott Drive might require more than an eight -lane cross section, although such might not be justified for development of the actual pavement width for a number of years. Based on the goals, the level of service test for the cross -street require- ments at U.S. 75 is Level of Service C. Consideration was given to requirements for both through traffic and turning movements at each of the frontage roads involved. On the basis of this, a general guide of 550 to 600 vehicles per through lane was used for Level of Service C. The resulting cross sections reported the ----------- ------------- J __---_- 3--------- -_ - - -�' !�• i ( I i RIDGEVIEWI D . -II ------- r -- - -, .00 /v", bN 121 j f�►�_ �_ -, _ tiles _ STA ' RD. n N16D j M60 M6 L -^_T' 11 40 %,- 0000, Iil •I/ li ` I'1-+"/ / ' til -1'� iso i �i I ! /" 1 _ _ EXCHANGE: PARKWAY �, i `— _ , * T > r •---j ---- ,-? -r� 6n I F /' ` M64 .mss M 1 T -IIIM_ _ _ ^c '• , Yui + I /{ 'J • tY J—._, y l ALLEN itco r � r i �/ I � l � � ( .•, ._. .\ Y I _ ,--�--- cc f ^`Jill f �F•i� R' \ _ Q J. �Q�U �r--r✓ IPA-? cD .' _ \ „ MCDlEFM6TT / `sem DR , ' - p i:• - A f McPE MOifT ,.DR, ' ; N16D i "1 6D / 8D ' _ _ - I IP n I I M6 �• r-'r';�--_y----=�1 I-'// ,' � WI'�r /•'`:,._..�ti' `�� -��= Ire I 1' LL dIEDGECOXE 1 RD. I - I-- ,' BETHANx ,� RD wi 5 \ 60, , I r i -• M6D ��------�i �J- `r M6D L 43 Lu / CHAPAORAl��-RD� �`�� r.e . 1 i A' M6D ''TT M6D II 1 I Comprehensive Plan 1985 0' 1000, 4000 MAJOR THOROUGHFARE PLAN EXISTING FREEWAY OR EXPRESSWAY MAJOR THOROUGHFARE PROPOSED -- MAJOR THOROUGHFARE O INTERCHANGE M6D CROSS SECTION REFERENCE (SEE TABLE OF STANDARDS) PLATE 5 City .d Al ](,if, lexas RECOMHENl)EI) TIIOIt(111C,111-ARE DESIGN STAWAI(I)S Of SIGN I I I I'1 fill 1160n IONAl ( M',U I AS`.l I It M411 i 4 11' 111)' 1001 2,UIi1l/000/ 22,ImO 35 •10 6-/1 1 ;'n' 011" 21',' 11' inn' 1',' I 6 I'hU ) I 6 CROSS SECTION (A) NIIMM R 0E 1RAF EIC IAtli S (It) LANE NIDIIIS 1?' 12' (f) RIGHT -Of -NAY-NIDIII I /0'- 170' - R2U 700' 1401 (U) AVEIWIF VFIIICtf CAPACITY ),H',O/ 3,0110/ (VEHICLE 110011/VEHICLE DAY) 43,000 33,000 (I) DESIGN SPIIO (11PII) 4045 4U 45 (I) 11AXIM9M GRADE (X) 6-/". 6-1% (I,) MAXIMUM 1101 IONTAL CURVA HIRL I.OF611FES 70' • gin' 60' - oo' ?.CINI1RLI1lE RADIUS Jf:3' 1111' (11) STOPPING. SITE DISTANCE 115' 115' ( I ) MINIInIM MEDIAN MOTH ?4 500' 16' 500' (.1) 11111. SPACING 111.01AN OPEIIING (r) VEPTICAI C(•IAPf.tILL 30-40 30-35 6-8X Table 27 W —�� t1,11 I 6 1?n' 000/ ,000 40 f IAL I II6U IONAl ( M',U I AS`.l I It M411 i 4 11' 111)' 1001 2,UIi1l/000/ 22,ImO 35 •10 6-/1 1 ;'n' 011" 21',' 11' inn' 1',' A f IMI 114(1 C41) C4U C211 R3U R2U II 6 11' J,000/ 33,000 III 4 12' 100' 2,000/ 22,500 II I II II 11 IV 4 11' 10' - ao' 22,500 3U-40 h -7X I1 ?O" ;11111' ?50' 4 11' 4 11' 4 lU' 3 2 10' 12' 70' • gin' 60' - oo' 60' 50' 40' 1,900/ 21,000 1.800/ 21,000 1;000/ 11,000 600/ 7.500 400/ 5,000 .15-40 6-1X 1 15" 3111' ?15' N.A. 15-40 6-7z 7-20" 288 275' 30-40 30-40 30-35 6-8X 25-30 25 -1" 15" 1113' Ili' 00' r;-07. 6-1.1X 6-8X 6-81Y 12-20" 2118' 12-21" 274' 12-21° 274' 12-4.0" 146' 12-a0° 146' 250' 250' 250' 200' 200' (14') N.A, 1',' II.A. 12' fl.A, 1I.A, if. A. II.A. N.A. N.A. 1',' 100' r1.A. N.A. ILA. II.A. 14' 14' 14' 14' 14' L Facility CR 829 Stacy Road Rowlett/Exchange Parkway Lynge Drive McDermott Drive Bethany Road Total -50 - Table 2 8 THOROUGHFAREPLAN TRAFFIC ON STREETS CROSSING U.S. 75 City of Allen, Texas Evening Peak Hour Assignment Lane Call(1) Eastbound Westbound Total 493 702 1,195 1,231 759 1,990 Resulting Lane Call(1) Minimum Total 4lanes 6lanes 6lanes 8lanes 1,452 1,063 2,515 6lanes 8lanes 181 115 296 2lanes 4lanes 1,361 1,400 2,761 6lanes 8lanes 2,094 1,492 3,586 8 lanes 10 lanes 6,812 5,531 12,343 (1)Desirable number of through lanes (two-way) at Level of Service C considering crossing volumes and turning moves at each frontage road. Right-of-way for turn lanes is added on the basis of a minimum of a left -turn lane for each direction to give the total lane call shown. -51 - minimum need if relatively few turns are involved and a total need increased to permit provision of left -turn lanes for each direction. For example, the peak hour assignment at Rowlett Road indicates an eastbound volume of 1,452 vehicles. Based upon the level of service guideline, this requires six lanes of cross section—three through lanes in each direction. The total laneage requirement crossing U.S. 75 when final design is undertaken may need to allow two additional lanes—one in each direction. The total laneage requirement crossing U.S. 75 when final design is undertaken may need to allow two additional lanes—one in each direction for left -turn movements at the frontage roads. Until actual design is undertaken in a preliminary or final phase, the precise treatment of left -turn lanes and through traffic lanes can only be estimated in a general manner. Another critical item relative to developments along U.S. 75 relates to the provisions for eventual needs on the frontage roads. Traffic tests of each of the land use options highlighted the high traffic volumes along the U.S. 75 corridor and the demands for traffic service both on the through roadway and on the frontage roads. The current two-way, two lane frontage roads were designed and constructed for low volume traffic levels, which are no longer appropriate for the city of Allen. For both safety and capacity reasons, at the earliest time these frontage roads should be redesigned for one-way traffic, and necessary modifications to them should be made. Eventual traffic levels will, in many locations, require three lanes on each side for one-way traffic flow. Thus, the city should proceed with establishment of a policy and development guidelines to obtain the necessary rights-of-way and construction of one-way frontage roads on each side of U.S. 75 that would be designed for one-way operation. Frontage roads along SH 121 also will require a long-range consideration at this time to guide developments in the immediate future that area adjacent to these routes. SH 121 connects with U.S. 75 north of Allen, and the frontage road on the southeast side of SH 121 connects directly into the west frontage road for U.S. 75. For these and reasons of consistency, one-way frontage roads should be developed along SH 121, and the frontage roads should be planned for three lanes on each side of SH 121. The cross section for the main line of SH 121 will be highly dependent upon through traffic volumes, as discussed previously. For this reason, regional analyses at a county or greater level are needed to establish appropriate through laneage, but for immediate planning purposes, it is sufficient to consider that three lanes in each direction would be adequate for a number of years for traffic on SH 121. Thus, the cross section for SH 121 for planning purposes in Allen is recommended at six lanes on the main line (three lanes in each direction) plus one-way frontage roads of three lanes each until such time as more detailed analyses can establish a design cross section for the main line. Two other segments of the street network tested at a lower than desired level of service. These were portions of McDermott Drive and portions of Stacy Road. -52 - McDermott Drive - As indicated previously, McDermott Drive will need an eight -lane section for through traffic plus left -turn movements at U.S. 75. Traffic tests further suggest that the proposed six -lane cross section is not adequate between Alma Road and Watters Road. Thus, it is recommended for the long-range plan that an eight -lane cross section be provided on McDermott Drive from Alma Road to the U.S. 75 frontage road. The right-of-way and cross section need to be widened from the previous plan between Alma Road and the east frontage road along U.S. 75 to accommodate through lanes plus turn lanes. A six -lane cross section may then be adequate to the east of U.S. 75. Stacy Road - The traffic testing on Stacy Road indicated that the planned six -lane cross section between Alma Road and Watters Road will not be adequate. An eight -lane cross section is deemed desirable based on the traffic assignments, while additional provisions are likely to be required at the intersec- tions of Stacy Road with Alma Road and with Watters Road. Traffic data indicate that heavy left -turn movements are likely to occur from Watters Road to Stacy Road in the morning, which may require double left turns; and a heavy evening peak hour move was indicated for the southbound traffic on Alma Road to eastbound on Stacy Road for the evening. Double left turns are also likely to be required for this latter movement. Protecting Thoroughfare Capacity Thoroughfares represent a considerable investment on the part of the city and the development community. It is important that the city both plan for and protect the capacity provided in the investment. This thoroughfare plan and the street cross sections identified are predi- cated on a land use arrangement and the traffic loadings it produces. The city requires a traffic impact analysis for each major development proposal. Those submitted have often dealt only with traffic generated by the applicant property when, in fact, traffic on the street will include external traffic plus traffic from other developments. With the work done as a part of this plan, the traffic analyses can include these factors and provide a better determination of impact. After the construction of the street, property owners will request addi- tional service drives, additional density and other such requests that will use up capacity. Policies should be made and adhered to that will preserve this capacity by following prescribed density levels and using design techniques that will accomplish this purpose. Other Modes DART is the operator of the bus system in the Dallas area, as well as the agency responsible for future light rail service. Allen is not a member of DART. Its bus system does not serve Allen, although Allen residents can catch the bus in Plano. Planning for the future light rail system calls for service to Plano, but not to Allen. Allen should plan for light rail service and should work to get Allen included on the light rail system. -53 - At the present time, no separate provision has been made for bicycles in the city. Recreation planning should provide for bicycle use of trails, particular- ly in the linear park system and the east -west linkages. Some planning should be done to provide for bicycles along streets in future high potential ridership routes, linking such facilities/areas as schools, parks and shopping centers with residential areas. Allen currently requires sidewalks as a part of subdivision and site plan review. Sidewalks or pathways should continue to be required. Provision should also be made for sidewalks along arterial and collector streets, so that as development occurs in the future, opportunities for pedestrians will be available. Street crossings at appropriate locations should be marked and pedestrian signals provided where traffic warrants. HOUSING The overriding goal of the city is to develop as a high quality residential community. This concept of quality includes a balance of types of housing units, good neighborhoods, services and sufficient tax base. With the city less than 15 percent developed at present, the city can influence the locations, mix of types, and range of cost levels of housing in the future city through the development process. Land prices, development costs and interest rates in recent years have increased the cost of housing across the nation. These increases in housing costs can be seen in Allen where good housing built 10 years ago has increased markedly in price. Much of the new housing today is too expensive for the young, first time home buyer. The original city has a variety of types of older homes which, depending on the maintenance, vary from standard to substandard. Later subdivisions such as Rolling Hills, Whisenant and Allen Estates are modern, low density subdivisions with moderate to high priced homes. The more recent subdivisions have varied from the smaller, affordable housing of Wind Ridge and Hillside to the larger, more expensive homes in Fountain Park and Willow Creek Estates. The city presently requires a mix of housing within each development and neighborhood and this policy should result in a more integrated and diverse housing supply. Two major topics are addressed in this section—housing supply and housing quality. Goals and Policies 3.000 General Goal: Provide a range of housing to meet the needs of present and future residents which efficiently utilizes land resources and essential city services. 3.010 Specific Goal: Continue the city's role in housing as one of directing, planning and regulating the development and maintenance of housing. 3.011 PAS: Maintain and administer strong zoning and building codes. 3.012 PAS: Continue to regulate lot and house size. 3.013 PAS: Discourage conversion of single-family residences in the CBD to business use. 3.020 Specific Goal: Provide a variety of housing densities. 3.021 P/IS: Prepare standards for desired types of housing in city and coordinate with density standards. -56- 3.022 PAS: Plan for new zoning districts to accommodate new housing types such as patio homes and garden homes. 3.023 PAS: Plan to use apartments and condominiums to buffer single- family areas from intensive development. 3.030 Specific Goal: Encourage each housing development to have a variety of architecture and building materials. 3.031 PAS: Set standards and administer for appearance of housing devel- opments (urban design factors). 3.032 PAS: Encourage use of variety of floor plans. 3.040 Specific Goal: Redevelop blighted areas and areas with potential of becoming blighted. 3.041 PAS: Identify areas and develop strategies for improvement. 3.042 PAS: Encourage owner -occupied residences in single-family develop- ments. 3.050 Specific Goal: Plan for quality housing for all income and age.groups. Housing Supply Inventory of Housing Allen's housing is and has been predominantly single-family detached dwell- ings. (See Table 29.) While the number of multi -family units (apartments) has doubled since 1980, the percentage increase has been slight. Table 29 TRENDS IN HOUSING TYPES City of Allen, Texas (1)U.S. Census (2)NCTCOG 1970(1) 1980(1) 1984 (2) Housing Type No. Percent No. Percent No. Percent Single-family 579 94.5 2,685 95.9 3,522 93.7 Multi -family 27 4.4 108 3.9 228 6.1 Mobile Home 7 1.1 7 0.2 7- 0.2 Total 613 100.0 2,800 100.0 3,757 100.0 (1)U.S. Census (2)NCTCOG -57 - Approvals for development in the 28 Planned Districts demonstrate the policy of the city to provide a greater balance between single-family and multi- family units. (See Table 30.) Table 30 HOUSING TYPES - PLANNED DISTRICTS City of Allen, Texas (1)NCTCOG (2)HB&A The housing units presently in the city represent a variety of sizes. (See Table 31.) A policy of providing different housing sizes in each development has been followed by the city in recent years and the present housing stock compared to city policy is shown below. This comparison shows: (1) fewer very small units (under 1200 square feet) than desired, probably because of the small number of apartment units in the overall housing stock; (2) a proportional excess of units in the 1200-1600 square foot range, such as in Wind Ridge and Hillside subdivisions; and (3) a proportional deficiency in the 1800-2000 square foot range. Housing Size Under 1200 sq. ft. 1200-1400 sq. ft. 1400-1600 sq. ft. 1600-1800 sq. ft. 1800-2000 sq. ft. 2000-2500 sq. ft. and over 2500 sq. ft. Source: City of Allen Table 31 HOUSING SIZE City of Allen, Texas 1984 1984(1) Planned Districts (2) Housing Type No. Percent No. Percent Single-family 3,522 93.7' 10,743 78.1 Multi -family 228 6.1 3,016 21.9 Mobile Homes 7 0.2 0 0.0 Total 3,757 100.0 13,759 100.0 (1)NCTCOG (2)HB&A The housing units presently in the city represent a variety of sizes. (See Table 31.) A policy of providing different housing sizes in each development has been followed by the city in recent years and the present housing stock compared to city policy is shown below. This comparison shows: (1) fewer very small units (under 1200 square feet) than desired, probably because of the small number of apartment units in the overall housing stock; (2) a proportional excess of units in the 1200-1600 square foot range, such as in Wind Ridge and Hillside subdivisions; and (3) a proportional deficiency in the 1800-2000 square foot range. Housing Size Under 1200 sq. ft. 1200-1400 sq. ft. 1400-1600 sq. ft. 1600-1800 sq. ft. 1800-2000 sq. ft. 2000-2500 sq. ft. and over 2500 sq. ft. Source: City of Allen Table 31 HOUSING SIZE City of Allen, Texas 1984 Policy Percent Percent +/- 9.0 15.0 -6.0 33.3 25.0 +8.3 20.1 15.0 +5.1 14.9 15.0 -0.1 11.9 20.0 -8.1 10.8 10.0 +0.8 100.0 100.0 The past six months (April -September 1984) has shown balance in housing construction with approximately 51 percent of starts 1600 square feet and over, and 49 percent under 1600 square feet. The market trend to larger homes was evidenced by homes over 2000 square feet being the largest category (22 percent). Housing Needs Using the projection of +29,000 persons by 1990, an estimated 10,740 housing units will be needed by 1990 to house the population. (See Table 32.) This represents a need to more than double the 4,430 existing units estimated as of October 1, 1984. This could be accomplished if one-half of the units approved in planned districts were developed in the period. Table 32 PROJECTED HOUSING - 1990 1980(1) City of Allen, Texas 1980(1) 1990(2) Population 8,314 29,000 Occupied Units 2,647 10,740 Persons/Household 3.14 2.7 Percent Occupancy 94.5% 95.0% (1)U.S. Census (2)HB&A The current population of Allen is young, with over 75 percent of the population under 35 in 1980. Allen should continue to attract the young family. In addition, as the cost of housing continues to increase, Allen should attract more persons in the 35 to 50 age bracket, with sufficient income to purchase large homes, if such are available. (See Table 33.) Table 33 PROJECTED AGE DISTRIBUTION - 1990 City of Allen, Texas (1)U.S. Census (2)HB&A 1980(1) 1990 (2) Age No. Percent No. Percent 0-17 2,975 35.8 8,178 28.2 18-24 1,030 12.4 3,538 12.0 25-34 2,271 27.3 5,858 20.2 35-44 1,067 12.8 5,218 18.2 45-64 686 8.3 4,524 15.6 65+ 285 3.4 1,682 5.8 Total 8,314 100.0 29,000 100.0 (1)U.S. Census (2)HB&A -59 - Household income should increase steadily. Responses to the citizens survey reinforced these conclusions. Median household income for 1990 is projected to be $34,600. Continuing attraction of professional and managerial families, some with two breadwinners, will increase significantly the number of households earning greater than $25,000. (See Table 34.) Table 34 $25,000-$49,999 $50,000 and over Total Median (1)U.S. Census (2)HB&A 1,141 42.6 97 3.6 2,676 $24,053 6,340 59.0 1,070 10.0 10,740 Future housing should be directed at meeting the needs of each of the population and income levels. Affordability will continue to be a key question. Using a standard rule of thumb of 25 percent of household income devoted to housing, approximately 1,200 households will not be able to afford rentals or purchase requiring $300 per month rent or payment. Maintenance of existing housing stock, as well as moderately priced rental apartments, will be needed. While the elderly will continue to represent a small percentage of the population, approximately 1,000 to 1,500 senior citizen households can be expected by 1990. Special attention will need to be given to their needs. The land use plan provides for full development of the city of Allen to meet the goal of a balanced community and some reasonable provision of all housing types will be important. The plan provides for a 72 percent/28 percent split between traditional single-family and moderate or high density units (apartments, townhouses, patio homes, etc.). This ratio is slightly less than that presently approved in planned districts. PROJECTED HOUSEHOLD INCOME - 1990 City of Allen, Texas 1980(1) 1990 (2) Income No. Percent No. Percent Less than $10,000 183 6.8 220 2.0 $10,000-$14,999 273 10.2 660 6.2 $15,000-$19,999 426 15.9 1,080 10.0 $20,000-$25,000 556 20.8 12370 12.8 1,255 46.9 3,100 29.0 $25,000-$49,999 $50,000 and over Total Median (1)U.S. Census (2)HB&A 1,141 42.6 97 3.6 2,676 $24,053 6,340 59.0 1,070 10.0 10,740 Future housing should be directed at meeting the needs of each of the population and income levels. Affordability will continue to be a key question. Using a standard rule of thumb of 25 percent of household income devoted to housing, approximately 1,200 households will not be able to afford rentals or purchase requiring $300 per month rent or payment. Maintenance of existing housing stock, as well as moderately priced rental apartments, will be needed. While the elderly will continue to represent a small percentage of the population, approximately 1,000 to 1,500 senior citizen households can be expected by 1990. Special attention will need to be given to their needs. The land use plan provides for full development of the city of Allen to meet the goal of a balanced community and some reasonable provision of all housing types will be important. The plan provides for a 72 percent/28 percent split between traditional single-family and moderate or high density units (apartments, townhouses, patio homes, etc.). This ratio is slightly less than that presently approved in planned districts. -60 - The plan provides for a 72/10.5/17.5 split in units. Future cost of land will lead to a greater interest in building and buying the medium density unit (10.5 percent), such as townhouses, garden homes, patio homes and similar attached units. Selectively located in small concentrations on the edges of neighborhoods, these will greatly help the housing supply and will be highly desired by residents. These units can be of a variety of price levels --some being more expensive and desirable than a single-family home. The percentages of units recommended above should not be confused with percentage of area of land. The 28 approved planned districts, which have a 78 to 28 percent split between low and medium density, and high density, is split 93 to 7 percent in land area. The percentage of units also should not be used as quotas, with strict application to each neighborhood. Rather, they should be used as guides, with each neighborhood looked at individually, and the proper ratio assigned. To provide balanced neighborhoods with a diversity of age groups and income levels, the present policy of requiring a range of housing types and sizes for each neighborhood is supported by residents and should be continued. Neighborhoods are larger units than a subdivision and the requirements should be spread across the entire neighborhood. The present bulge of housing in the 1200-1600 square foot groups should not be increased. A higher number of houses in the upper levels should be approved until a percentage balance is reached. The zoning ordinance does not provide for the range of housing types needed by the city, except in planned districts. The ordinance should be amended to permit new housing types, including patio homes and garden homes. Housing Quality At the time of the land use survey, condition of housing units was checked and substandard structures identified. The number of substandard units is very small relative to the total housing stock. The only grouping of substandard housing units occurs in the Old Donation subdivision, primarily in the St. Mary's area. Roads are unpaved and warehousing and other incompatible industry are located nearby. This same area was identified as substandard in the 1977 plan. Since that time, the city has acquired St. Mary's Park and next year's capital improvements program calls for street improvements to be made. Continuing public improvements will help the area; however, it is unlikely that any material improvements in the housing will be made without a housing assistance program to help homeowners in improving their property. These federal programs are not presently available to cities such as Allen, and they are not likely to be reinstated by the new administration. The best approach in the St. Mary's area is to continue to upgrade public improvements as is presently being done, discour- aging further incompatible uses. If federal or state housing programs should become available, the city should explore them for use in this area. -61 - There are parts of three other areas of the city which need attention. They are Wind Ridge subdivision, Hillside subdivision and, to a lesser extent, a part of High Meadow subdivision. (See Plate 6.) Each is a single-family subdivision of smaller homes. From observations by city staff and from our survey, the following conditions appear to exist: (1) growing change from totally owner occupied to a substantial percentage of rental units, (2) probability of more than one family per unit (overcrowding) in some units, (3) decreasing maintenance on some of the properties, and (4) substantial on -street parking as the number of occupants, and thus vehicles grows. These characteristics are a product of the high cost of housing relative to income level and the lack of affordable alternatives. It should be noted that most of the homes in each range decisions will be made which will affect the future quality of life are in civil engineering and traffic engineering. Fortunately, all three subdivisions are in the early stages of transition and can be brought back to normal with remedial action by the city. This action should be directed to three major areas: eliminate overcrowding, restore maintenance and provide alternative housing, as described below: 1. Review existing city ordinances to determine if the necessary author- ities are available to deal with rental housing, overcrowding, lack of home maintenance and environmental conditions. 2. Contact adjacent municipalities to ascertain what problems they have and how they have addressed the problems. 3. If other alternatives are not available, the city should adopt an interim (or permanent) housing ordinance which would control over- crowding and required maintenance. 4. The designated areas should then be surveyed to locate rentals and overcrowding and the ordinance enforced in accordance with steps delineated by the city attorney. The first step should be notification and persuasion. 5. A certificate of occupancy should be required for each house at the time of sale or new rental, and future enforcement coordinated with housing turnover. 6. A systematic survey of homes in each area requiring maintenance and/or environmental cleanup (outside storage, junk, litter, etc.) should also be made and maintenance requirements enforced. This will often result in a schedule of improvements the homeowner and city can agree to. 7. More alternative housing is needed for these affected income groups. The city has set as its goal to provide a balance of housing types and cost levels. Apartments and homes for lower income groups need to -62 - be provided, but not all in one location. They are better located in a variety of areas, where the overall pattern of higher quality housing will support them. When sufficient alternative housing is available, pressures on present neighborhoods should decline. HOUSING PROGRAM ' REDEVELOPMENT/ REHABILITATION �" REHABILITATION '---------- -`_--- - i City�of Alle ® - , CONCENTRATED CONSERVATION -•----- - ® CONSERVATION _ _.___-__ -' _ ; - _= _ (Comprehensive Plan 1985 - 1 --__---_--- W o' 1000, 4000' DEVELOPMENT GUIDANCE i T- \NC' DO _ r r t_ -------. -- ST. MA Y 'HIGH MEADOW ALLEN i % ' '� �-:�. -- ,•fit` - _ HI E /. WIND RIDGE D i�•, M rn -65 - PARKS AND RECREATION Introduction The Parks and Recreation Department faces many challenges as the city of Allen begins its rapid growth. Demand for some activities already exceeds the city's abilities to provide them. The city must be prepared to identify and acquire park lands --especially large sites for community and special parks --be- fore development precludes their acquisition. The citizens have made it clear that they want a balanced system of neighborhood, community and linear parks along floodplains. The city can provide facilities for its existing neighborhoods but must balance the expendi- tures with the need to purchase many acres of new park land. Making this system affordable should be the goal of this plan. Finally, if the floodplains are to become a significant part of the city's park and open space system, they must be correctly identified, protected from insensitive development, erosion and attempts to straighten or cover them, and managed so that they are not a drain on the financial resources of the Parks Department. Inventory of Existing Facilities The existing park and recreation system provides a total of 95.2 acres or 8.4 acres per 1,000 persons in the city. (See Table 35.) Of this total, six parks having a total acreage of 36.3 (acres/1000) are developed. The Policy for Land Acquisition identifies that an optimum level of 8.5 acres of active/passive park facilities would be provided for each 1,000 persons living in Allen. At today's population of 11,250, this would require 95.6 acres. Therefore, the city presently has adequate land area in its system, although development of the system is lagging behind the growth of the city. An additional 300 acres have been zoned CF and are to be dedicated to or purchased by the city for park land. This includes approximately 56 acres to be used for neighborhood parks and 244 acres of floodplain land for greenbelts and linear parks. (See Table 36.) Table 35 EXISTING PARK AND RECREATION FACILITIES City of Allen, Texas (')Fields vary in size for age groups. Note: Current acreage equals 8.4 acres 1,000 persons based on population of 11,250 persons. I H I U o W Q Z Wz U U O O Q w V) F E -O .. V) . a n O I v) a H w O -:4 .a a Q a d d a a U z E� U .aa V) E� rx cC w 0 ... i -i U E" a H¢ � a H z E~ z Qa' LQ a z s w u � "NATURAL' w o H ov Cn v°") U) = m SPECIAL FEATURES, HILLSIDE PARK 1 9.2 2L 2UL NONE JUPITER PARK 8.4 1L 1 ADJ.TO COTTON WOOD CREEK REED PARK 10.0 3 1 1UL 1 2L NONE ROLLING HILLS PARK 0.3 2 1 NONE MC DERMOTT SOCCER 8.0 COMPLEX 8�1� TEMPORARY ST. MARY'S PARK 8.6 UNDEVELOPED WALDEN PARK 0.3 UNDEVELOPED FORD PARK 50.0 3 3 4 2 1 UNDEVELOPED 3UL HILLSIDE PLAYGROUND 0.4 2 1 (')Fields vary in size for age groups. Note: Current acreage equals 8.4 acres 1,000 persons based on population of 11,250 persons. -67 - Table 36 AREAS TO BE DEDICATED OR PURCHASED (Presently Zoned CF) City of Allen, Texas Development Acres Country Meadows 8.5 Omni 4.7 Green Gate 9.8 Collin Square/Glen Hollow (F&J) 8.5 Folsom 15.4 Tompkin 48.0 Baker 183.0 Bass 22.1 Total 300.0 The city of Allen is served by six parks: Hillside, Jupiter, Reed, Rolling Hills playground, Hillside playground and the McDermott Soccer Complex. The city has acquired three other sites: St. Mary's, Walden and Ford. Engineering plans are currently being prepared for the first phase improvements at Ford Park. Reed Park is functioning as both a neighborhood and a community park. Rolling Hills and Hillside (playground) are classified as playgrounds serving only the immediate neighborhoods adjacent to the park. Jupiter, Hillside and the McDermott Soccer Complex provide athletic fields used on a communitywide basis. All of the parks are located in the eastern half of the city where residential development to date has taken place. Neither Collin County nor the state of Texas provides facilities in the city of Allen. Hillside Park This 9.2 -acre park is located at the southwest corner of Allen Heights Drive and FM 2170 in the eastern part of the city. An elevated water tank occupies about one acre of the tract. The site contains two lighted (regulation) and two unlighted ballfields and an unpaved parking area. The park is not as attractive as it could be and, combined with the active uses and lighting, has a negative impact on the adjacent residential areas. It should be phased out once alternate facilities are available at other locations. -68 - Jupiter Park This 8.4 -acre park, located south of Cottonwood Creek along the west side of Jupiter Road, is the site of the abandoned sewage treatment plant. The park contains one lighted softball field and one football/soccer field, as well as the city's animal shelter and a storage building for materials. A number of alternative uses exist for this site, such as a park maintenance service center once other parks are developed and in service. Reed School Park This is a new ten -acre park and shares the site with Reed Elementary School. The park contains a playground, one unlighted softball field, one soccer field, two lighted tennis courts and a picnic area. The improvements are relatively new and well maintained. The layout of the park facilities is separated by the school building which blurs the identity of the park and possibly makes grounds maintenance more difficult. Rolling Hills Park This .3 -acre park provides playground equipment and picnic tables. The park fills a need for the neighborhood, but the site is very small. Hillside Playground This 0.4 -acre park provides playground equipment and picnic tables. The park fills a neighborhood need, but the site is very small. McDermott Soccer Complex The complex consists of eight acres and is located adjacent to the city government facilities on McDermott Drive, east of U.S. 75. Eight soccer fields of various sizes (related to age groups) are located on the site. No other facilities are provided. As this is the proposed site of the city's proposed municipal complex, the long-term use of the soccer complex should not be planned. Ford Park Ford Park will contain a total of 50 acres. The master plan calls for the park to have three ballfields, three soccer fields, three multipurpose courts, four tennis courts, handball/racquetball courts, an exercise trail, picnic facilities and a 25 -meter swimming pool. All facilities will be lighted. The first phase improvements are budgeted at one million dollars and will include the swimming pool and support facilities. -69 - Recreation Interests As a part of the citizen survey respondents were asked, "How often would you and/or other members of your household use each of these community facilities." This information on park facilities can be used to measure the interest of the general population but should not be used analytically to determine the required facilities of the future park system. The survey measured the interests of those presently living in Allen. The population is estimated to increase from 11,250 to over 100,000, and it should not be assumed that we can predict the future desires of these persons. In addition, recreation interests may change. As the city develops, a proportion of the recreational facilities will be provided by the private sector. For example, racquet and swim clubs or some residential developments may offer private recreational areas for residents. Predicting the exact number of needed facilities, i.e., swimming pools or tennis courts, should not be the goal of this plan. Rather identifying the elements of the system and charting the path to implement the system is what is important at this time. While the facility requirements of the future population of Allen cannot be precisely determined, the city can try to meet the interests of its existing population while planning the basic components of its system --neighborhood, community and special parks --and proceed with identifying and acquiring park sites. The survey did measure a strong interest in a swimming pool and recreation center. These are two facilities that are lacking in the city's present system, although there are plans to construct a swimming pool at the new Ford Park, now under construction. Other facilities showing a high response include open space, bike paths, ballfields and jogging paths. (See Table 37.) Table 37 MOST FREQUENTLY USED COMMUNITY FACILITIES City of Allen, Texas Often Occasionally (Percent) Percent Parks 50.9 38.1 Swimming Pools 46.7 30.7 Recreation Center 36.0 43.2 Open Space 30.0 35.7 Bicycle Paths 28.5 35.3 Ballfields 25.1 30.0 Jogging Paths 24.1 27.5 Golf Course 23.6 20.9 Tennis Courts 17.3 28.1 Basketball Courts 11.5 23.1 Equestrian Paths 8.0 13.2 Source: Allen Citizen Survey. -70 - The Parks and Recreation Department has prepared a Land Acquisition Policy that has been formally adopted by the city as Resolution 508-5-84(R)). The policy identifies goals for the overall system, defines standards for park types, outlines planning procedures for implementation and describes methods for land acquisition. The policy provides excellent direction for the Parks Department to follow. As part of this plan, the policy will be reviewed and, where required, recommendations for changes to the policy suggested. Goals and Policies 4.000 General Goal: Provide optimum park lands and facilities, recreation programs and open spaces to meet the needs of Allen's residents. 4.010 Specific Goal: Plan for public and private natural open space in the development of Allen. 4.011 P/IS: Provide strict guidelines for floodplain development and empha- size recreational use. 4.012 PAS: Proceed with floodplain/recreation plan for Rowlett and Cot- tonwood Creeks and their tributaries., 4.013 PAS: Retain major wooded areas, both within and outside of flood - plains, and preserve major woodlots and trees in all develop- ments. (See Environment.) 4.020 Specific Goal: Provide for development of a parks system with a full range of facilities and programs for residents. 4.021 P/IS: Evaluate and proceed with park land acquisition program. 4.022 PAS: Utilize current data to compute demand for park facilities and programs. 4.023 PAS: Develop standards for all types of parks and include the relationship between parks and adjacent lands in those stan- dards. 4.024 PAS: Provide organized community recreation for youths, adults and senior citizens. 4.025 PAS: Provide for development of acquired park lands to meet de- mand, while acquiring new park lands in advance of need. 4.030 Specific Goal: Provide a high level of park maintenance of park lands and facilities. 4.031 PAS: Include operation and maintenance costs in all consideration of facilities. -71- 4.032 PAS: Provide adequate staff, equipment and budget for maintenance. 4.040 Specific Goal: Provide safety and security in parks. 4.041 PAS: Use safety and security standards in the design of parks and open space areas. 4.042 PAS: Develop a program for park security in coordination with other city departments. These goals should be used to provide the overall direction of the park and recreation plan. They exist within the qualitative goals for many other aspects of community life. The park and open space system must, therefore, be viewed as an integral element of the quality of life in the city of Allen. Parks and Open Space Plan Land Acquisition Policy Based on the city's adopted park land acquisition policy, Resolution 508-5- 84(R), and assuming the city will have an ultimate population of approximately 140,000 persons, a total of 1,190 acres of park land would be desirable for the total system. In addition, the city contains 1,350 acres of land in the stream valley floodplains, of which approximately 75 percent is considered desirable by the Parks Department. If all desirable floodplain land was acquired, the city's park and open space system would contain approximately 2,190 acres. (See Table 38.) Table 38 PARK LAND REQUIREMENTS BASED ON POLICY FOR LAND ACQUISITION City of Allen, Texas Facility Type Acreage Requirement Neighborhood Parks @ 2.0 acres/1,000 persons 280 Community Parks @. 2.5 acres/1,000 persons 350 Special Parks @ 4.0 acres/1,000 persons 560 Floodplain 11000 Subtotal 2,190 Minus Community & Special Park Acres in Floodplain -300 Total Acreage Requirement 1,890 -72 - These landholdings would provide an excellent park and open space system for the residents of Allen. Unfortunately, it would also be an expensive system to implement and maintain. The floodplain, where suitable, should be used for a portion of both the community and special parks. If as much as 300 acres for these parks were located in the floodplain, the total needed land would be 1,890 acres. Parks and Open Space System The concept of the future park system takes into consideration the stream valleys, the woodlots, the present park system and future needs of the city as it grows to the west. The three stream valleys—Rowlett Creek, Watters Creek and Cottonwood Creek—should be the framework of the parks and open space system. Where possible, major parks should be clustered along the stream valleys and linked by trails utilizing the greenbelt system. East -west linkages should be provided to channel users to the major parks and the greenbelts. (See Plate 7.) Community Parks. The plan provides for five community parks. Two of the new parks should be located along Rowlett Creek, one along Watters Creek and one along Cottonwood Creek. Ford Park is presently located along Cottonwood Creek. Each park should total 75 acres in size (25 acres in the floodplain). Community parks should provide active uses. Each might contain a swimming pool, a recreation center, several baseball/softball and football/soccer fields, tennis courts, multipurpose courts, picnic areas, possibly a running track, and open space. The park should serve the active recreation needs of the commun- ity. Neighborhood Parks. Each residential neighborhood is planned to have a neighborhood park. Some should be located adjacent to a school location. At full development, Allen should have some 15 to 20 neighborhood parks, each 10 to 15 acres in size. The number will vary somewhat with development to the west and the number of future residential neighborhoods. Neighborhood parks should be central to the entire neighborhood. They should not be located adjacent to major thoroughfares or commercial areas. The neighborhood parks should serve the walk-in, recreational needs of the adjacent residential area, i.e., the area within a one-half mile radius. Special Use Parks. Special use parks should provide for the specific recreation needs of the citywide population. Based on the current interest of Allen's residents specifically and the recreation interests of the general popula- tion, three possible uses for the large special parks would be an 18 -hole golf course, an athletic complex and a day camp. The total requirements of these three facilities are estimated at 280 acres. - ------------ --- i I I i I RIDGEVIEW D --- - r�2N i i.. ^. 1— I I i— � i • �.v p -� I ----------- STACY RD. 4 t ' cwpr5-�_ --� -- NF ----- __ EQ�JP Iri- �; -- ---- v-, -- }-- --------i- - -r ` --- EXCHAtNGE PAR WAY -- t ----I % ��j i n' NP NP i cr 1Lu� NP I Np, cDERMOTT - DR. , r Ii ^I I iT- � I NP �r-� - E 1-- co co B THANY P = -RD. Q 1 ----- ; T T SP � 1 HED tCOXE ! RQ . '��p I ETHAfVY _ RD NP ONP INP% -- � �-----t-7 CNP FCHAPA JJ .F ---- y. , •� �•; I Lr r J Jt, - i II i •. Comprehensive Plan 1985 O, 1000 4000 i I PARKS AND OPEN SPACE PLAN NP NEIGHBORHOOD PARK CP COMMUNITY PARK SP SPECIAL USE PARK ED FLOOD PLAIN / WOODS / GREEN BELTS PUBLIC, SEMI-PUBLIC PLATE 7 -75 - Several options exist for the location of a municipal golf course. An important consideration is the privately built municipal golf course now being planned by the city of Plano, at Allen's southwest city limit. A municipal golf course in Allen will be competing with this course. Therefore, it would be logical to locate Allen's golf course somewhere in the city's northeast section. Another option would be to develop the Baker Tract floodplain into a municipal golf course. Each has advantages and disadvantages. Because of competitive facilities and the high cost of development, operation and maintenance of this type of a facility, there should be strong support from the citizens before beginning such a project. The summer day camp program is one of the most popular activities now being programmed by the Parks and Recreation Department. A site, located in the southeast quadrant of the city, would make an excellent day camp. Other uses may be provided on the site as well, but provisions for the day camp should take top priority. Acquisition of the site appears to be an outstanding opportunity. The third special park might be an athletic field complex. By grouping a majority of the lighted fields used for organized baseball, softball and soccer in one location, the Parks Department will be able to more efficiently manage and maintain these facilities. The location of the sports athletic complex is somewhat flexible, although care should be taken to locate the facility for easy access, but where night lighting and traffic will not negatively impact residential areas. Additional site investigation should take place before the final decision on location is made. Greenbelts and Linear Parks should provide unencumbered floodways and pleasant pedestrian, equestrian and bicycle routes throughout the city. Green- belts and linear parks are proposed along the city's three major creeks. The character of each of the creek corridors provides different opportunities within each. For this greenbelt/linear park program to be successful, the floodplain land must be protected. No development should occur within the 100 -year flood line until the greenbelt study identifies the long-range use of the floodplains. Tree cover abutting the creeks and floodplains should be preserved. The creeks should not be paved, straightened or "improved" to increase their capacity to handle stormwater. No sooner than this type of improvement is completed, new problems are created downstream requiring the "supposed solution" to be used again. The quality of the corridors must also be protected from another hazard of development --sedimentation. The city should develop an erosion control ordi- nance that prevents soil erosion both during and after construction. The ordinance might also require on-site detention of stormwater in order to regulate the great quantities of runoff that the creeks will be required to handle when the city is fully developed. -76 - There appears to be (based on topography) several opportunities to dam the creeks in order to create water features. If this can be handled and still provide for drainage and flooding, it would greatly increase the attractiveness of some of the proposed community and special parks. This should be explored further in the Floodplain Study, soon to be undertaken by the city. Past experience in other cities proves that the ongoing management of the linear parks is also a key to their success. The city will simply not be able to afford, nor is it desirable, to keep the linear parks mowed or maintained, as would a neighborhood or even a community park. The mowed areas should be kept to a minimum --along pathways and trails. Lastly, to be truly successful as linear parks, the city must coordinate the design of future streets and bridges to allow uninterrupted pedestrian and equestrian travel under vehicular routes. This can be accomplished by providing adequate headroom between the path and support structure where bridges are used or by using box culverts large enough for pedestrians where roads are built on fill. The Rowlett Creek corridor traverses a varied topography, is fairly wide in sections, and contains many excellent tree stands. Topographically it appears possible to create several water bodies (by damming the creek) along the creek. The corridor will provide an excellent linear park connecting three of the proposed community parks and the Connemara located in Plano. The greenbelt will also help buffer and protect the tranquil environment of Connemara from residential development to its north. Watters Creek has a narrower floodplain than Rowlett Creek and fewer significant tree stands. In addition to being a linear connection of various neighborhood and community parks, the greenbelt corridor will provide an important buffer between planned office/commercial uses and residential devel- opment. Vehicular parkways are proposed as routes parallel to both the Rowlett and Watters Creek corridors. Cottonwood Creek is similar in character to Watters Creek. The primary function of this greenbelt will be to link the various neighborhood and community parks together with the residential area. That section of Cottonwood Creek north of U.S. 75 would not serve or link any residential areas and for that reason is not suggested for use as a linear park. However, the city should still protect the floodplain. The design for east -west linkages between parks and linear parks along the three stream corridors has been expressed by members of the Oversight Committee. This is easier said than done. There are no easements or utility corridors in Allen running in an east -west direction. In addition, to be a true "link," it would have to cross U.S. 75. The most logical means of creating these linkages are along major thoroughfares. This has been done along parts of McDermott Drive, west of U.S. 75, where the city has a 20 foot additional -77 - easement. This should be continued across the city on Rowlett/Exchange Parkway, Stacy Road and Bethany Road as well. These areas should be used for pedestrian paths or sidewalks connecting to the floodplain/greenbelts. In some instances where no easement. is possible, a hike/bike path will have to be provided in the existing right-of-way. The Scale of the Future Park and Open Space System In order to check the size of the future park system, standards for recreation facilities for Allen were developed and used as the base for allocation of future park lands. A need for 618 acres of land for community and neighborhood parks was identified. (See Table 39.) The plan provides 650 acres for these parks. Together with special use parks, the plan provides for 960 acres of park land and 700 acres of greenbelt open space, a total of 1,665 acres. (See Table 40.) This land allocation should be adequate to provide a high quality parks and open space system for Allen. Standards and Criteria Neighborhood parks should be designed to the following criteria: 1. At least 10 acres in size, when adjacent to an elementary school or greenbelt, otherwise 15 acres. 2. No more than one-third of the site occupied by active recreational uses; one-third would be buffer area around the park and one-third landscaped natural areas. 3. No lighted courts or fields. 4. Facilities provided to serve only neighborhood needs. 5. Located adjacent to an elementary school, if possible. 6. Include a childrens' play area, picnic tables and benches. 7. Include open lawn areas for informal play. 8. Not used for organized athletic activities. 9. Located adjacent to a greenbelt, if at all possible. Community parks should be designed to the following criteria: 1. Serve residential areas within a 1i to 2 mile radius. 2. Include between 50 and 75 acres and be on a high, well drained site. -78 - Table 39 PARK STANDARDS AND LAND REQUIREMENTS City of Allen, Texas Swimming Pool Picnic Sites Hiking/Nature Trails Golf Course Tennis Multi -Use Softball/Baseball Lighted Unlighted Football Soccer Running Track Outdoor Theater Recreation Center Playgrounds Archery/Shooting *Not included in park acreage requirement. Either located in greenbelt or a special use park. Minimum Allen's Acres Total Standard Requirement Required Acres 7 5 2.0 10 350 350 0.2 70* 14 mi 14mi — 6* 3 1 180.0 180* 70 50 0.3 15 98 30 0.3 9 19 25 3.0 75 42 28 3.0 84 7 5 2.0 10 14 (56) 20 2.0 40 7 2 2.5 5 — 1 3.0 3 5 5 2.0 10 3 1 5.0 5 Subtotal 206 Parking, Buffers, Open Space 412 Minimum Acres Required for Community and Neighborhood Parks 618 *Not included in park acreage requirement. Either located in greenbelt or a special use park. -79 - Table 40 PARK LANDS PROVIDED IN THE PARK PLAN City of Allen, Texas Allocation Totals ( Acres) ( Acres) A. Community Parks 375 (125 FP) 375 B. Neighborhood Parks 275 (0 FP) 275 C. Special Use Parks Golf Course 180 (150 FP) Day Camp 75 (25 FP) Athletic Complex 60 (0 FP) 315 (175 FP) 315 D. Greenbelt 1000 Acres Less 300 FP for Park Use 700 700 Total 1,665 Population + 140,000 Acres/1000 Pop. 11.89 -80- 3. Located adjacent to a senior high school or greenbelt, if possible. 4. Provide adequate on-site parking areas. 5. Have no more than one-third of the site occupied by active recrea- tional uses; one-third would be buffer area; and one-third landscape natural areas. Special use parks should be designed to the following criteria: 1. Serve the citywide population. 2. Include at least 50 acres and preferably 100 acres. 3. Include necessary development pertaining to the needs of special activities including athletic complexes, golf courses, historical/ar- chaeological and natural preserves, and botanical gardens. 4. Include lakes or water bodies. 5. Depending on use, at least one-half of the park area may be contained in the floodplain. Greenbelts and linear parks should be designed to the following criteria: 1. Occupy land within the 100 -year floodline. 2. Provide a trail, walk or bicycle path. 3. By proper management reduce area requiring mowing and labor- intensive maintenance. 4. Provide links to other recreational areas. T -81- COMMUNITY FACILITIES Both public buildings and utilities fall within the scope of the community ' facilities element. Public buildings include the full range of buildings necessary to provide services to the city including city offices, police and courts building, library, fire protection facilities, animal control facilities and a civic/cultural ' center. Community centers are covered under parks and recreation. Water, sewer and storm drainage facilities are included. ment The level of growth projected for Allen will require considerable invest- in community facilities if the high quality of services available in Allen today is to continue. Good service area planning and reservation of future sites will yield dividends as the city expands. Goals and Policies 5.000 General Goal: Provide community facilities and utilities in the most efficient and high quality manner. 5.010 Specific Goal: Centralize the municipal complex on acreage presently owned by the city, to include library, police and courts building, city hall, civic center and service center. 5.011 PAS: Develop strategy, timing and funding options for municipal center. ' 5.020 Specific Goal: Plan for fire stations to allow for adequate fire protection in all districts. planning 5.021 PAS: Develop strategy, timing and funding options. 5.030 Specific Goal: Provide efficient animal control services for the city. 5.031 P/IS: Expand and improve animal control center at present location. 5.032 PAS: Investigate need for additional personnel or split work hours. 5.040 Specific Goal: Provide adequate and efficient water and sewer facili- ties. 5.041 P/IS: Work closely with NTMWD in planning for water and sewer. 5.042 PAS: Minimize the use of lift stations and maximize the use of ' gravity flow in the sewer system. 5.043 PAS Locate water storage in most efficient locations. -82- , 5.044 PAS: Interrelate land use planning and utility planning to assure ' sufficient capacities over the long term. 5.050 Specific Goal: When practical, schools and other public buildings should be designed for public access and multiple use. ' 5.051 P/IS: Encourage public access and multiple use in planning for and design review of schools and other public buildings. , Plan and Program the following ' Based on the above goals and policies, plan and program outlines public building needs and improvements for the city. (See Plate 8.) Municipal Complex , The city owns 28 acres at U.S. 75 and McDermott Drive and plans to construct a centralized municipal center. City offices and service center are ' currently located in one building opposite a similar facility of the Allen School District. When new city offices are needed, city staff will move to a new building and the service center will be used exclusively for that purpose. With the upcoming construction of McDermott Drive, the city should -- through unique zoning, platting and development standards—control as much of the land as possible south of FM 2170. ' City offices or facilities to be included in the municipal complex include: ' 1. City Offices. The city staff presently occupies the service center building. The building functions well and additional space is available for some staff expansion. It is oriented to the east with storage areas not visible from U.S. 75. New city offices should be designed as a part of the total complex and with a prominent location. 2. Police and Courts. The police department is located at the corner of , Butler and Main. Its quarters are small and parking is on -street. As the department continues to grow, larger facilities will be needed. These should be located in the municipal complex with good access to the thoroughfare system. I Planning for this facility, as a part of the municipal complex should be initiated. Presently the city uses a holding cell to keep prisoners until they are ' transported to the Collin County jail. The Texas Legislature is currently considering legislation which would require the city to provide facilities meeting the standards for jails rather than holding facilities. If this legislation is approved, the city will have to make a considerable expenditure for upgrading of ' facilities. Long-range development in the SH 121 section of the city may make it advantageous to maintain a small police substation in the area. The substation could be in leased office or commercial facilities. I COMMUNITY FACILITIES PLAN ------ o Alle --- �city f ---------- + - + -i -- _� Comprehensive Plan 1985 O, 1000 4000 --1-� NNG O '1 FIRE, STATION I i _ ALLEN _ 1 ,I FIRE STATION J NO. 4 ER A �C Rgp� — rT,RA TIC�J r` � r/ !./ - f � ` it •i - ',� � �' - I„� I i i I '— Nyatr _ - I- - M IPArGO� _X' _ _• • CI OFFICES - ~\ —�� •PGLICE Alj "IT •LIBRARY C CENTER �� FIRE STATION_-_ - _- _-- - D OD r I it . -84- 3. Library. The library is located beside the Central Fire Station in a converted residence. The Library Board has adopted a policy of providing a single, centrally located library facility to serve • the city, rather than a decentralized system. The central library would be located in the municipal complex and would be supplemented by mobile libraries. The consultant to the Library Board has completed the study to determine the future library facility and the board is presently studying the report. It will, be summarized in this section when adopted. 4. Civic Center. A major facility where meetings, cultural events, exhibits, social events and other civic activities could be held would be a highly desirable long-range facility. This should be planned for in the municipal complex and could be a privately -funded facility. 5. Service Center. The service center location is presently well located and should be good for the next twenty years. However, over the long run it will conflict with the mixed use center planned nearby, will put industrial traffic on the central traffic artery and, if light rail becomes a reality, would be poorly located relative to a future DART station. The heavy equipment, storage of materials and repair shops should be relocated to a site more appropriate to the industrial nature of the use. Development on the west will eventually create the need for a second service center. This should be located on the west side, in a central location, adjacent to a commercial or industrial area which can be effectively screened from the street and adjacent uses. With the planning presently being done for the library, and with facility planning needed for a future police and courts building, it is important that an overall site plan for the municipal complex be agreed upon as soon as possible. That will permit the new library, as well as other buildings, to be properly located in the complex. Fire Protection Facilities Allen presently has two fire stations: the Central Station located on Main Street and the New Station No. 2 on Exchange Parkway. These two stations provide good coverage on either side of the railroad. In addition, the city maintains mutual aid agreements with Plano, McKinney, Frisco, Lucas and Fairview. The city has a key rate of $0.27. The key rate is determined by an evaluation of a wide range of factors such as manpower, equipment, ability to provide water, building code and fire prevention education, and is the basis for fire insurance. The city is evaluated yearly and should continue to work to improve the present rating. The 1977 plan provided for six stations to serve the future city. Since the plan, the city has constructed Station No. 2 and has selected a site for Station No. 4. It appears that, because of the locations of No. 2 and No. 4, the city could possibly provide adequate fire protection with five stations rather than six. Fire station location standards call for a three to five minute response time -85 - (shown hypothetically as one mile and one and one-half mile service radii). With five stations, there will be edges of the city with a lower level of service. One of these areas will be the west section of SH 121. Despite these weaknesses, the coverage will be quite good—equal to or better than that provided at neighboring cities. Cost of construction, equipment and operation of a station is high and if a similar level of service can be provided with fewer stations, it will be advantageous to the city. In addition to stations, a drill tower for training purposes will be needed when the city reaches 15,000 persons. Present equipment includes two 750 gpm pumpers, one 500 gpm pumper, two monitor nozzles and two ambulances. For fire protection purposes, the city requires sprinklers in some buildings. In addition, both DLM and InteCom have installed fire pumps. Park Maintenance and Animal Control The present animal control shelter is located in Jupiter Park. The shelter location is good. Expansion will be needed in the future to meet city needs. Expansion will impact the park and its use; therefore, as new parks are completed, Jupiter Park should be phased out and used for park maintenance. As growth to the west takes place, a second park maintenance area should be developed in a central location. Water and Wastewater Services Water. Allen contracts with the North Texas Municipal Water District (NTMWD) for water and for wastewater treatment. The city retains a consulting engineer to advise them on water and sewer matters and to review developer submittals on behalf of the city. The NTMWD provides treated water to a ground storage facility at Lucas. From there, the city has responsibility for distribution to its customers. The city of Allen has reserved and pays for a second delivery point at U.S. 75 and Spring Creek in Plano. The city has the option of purchasing four acres, constructing a storage facility and a pump station, constructing a transmission line to Allen and hooking up to the system. The agreement calls for a maximum of 10 MGD. The cost of these improvements is significant. An option of a third delivery point exists in conjunction with future extension by NTMWD of a transmission line to McKinney. They would bring in a 42 -inch line following Malone to Stacy, across U.S. 75, then turning north to McKinney. Allen could tie into this line and a maximum of 5 MGD could be obtained. In addition, when Plano contracts for water to West Plano, it may be possible for Allen to obtain water from this extension. Since none of the options available can by itself provide enough water for ultimate development, the city has some hard choices to make regarding access to water supply. -86 - As development occurs, the city provides the water and storage facilities. Mains and service lines are provided by the developer. Thus, the system expands as development occurs. This land use plan has assumed that sufficient water will be available in the future for full development. Planning for this growth will be important and the city anticipates development of a plan for water facilities following completion of this comprehensive plan. Wastewater. The city of Allen also contracts with the NTMWD for wastewater treatment. The city takes responsibility for collection of waste- water and delivery to NTMWD. There are no contractual limits on volumes to be accepted at the treatment facility. Presently, wastewater is conveyed by the city's collection system to the treatment facility at Plano along Cottonwood Creek. NTMWD is presently constructing a new major wastewater treatment facility at Wilson Creek to serve Plano, Richardson, McKinney and Allen. A new interceptor will be constructed by NTMWD at the south city limits which will convey wastewater to the new plant. These improvements are scheduled to be on line in the first quarter of 1987. The interceptor will permit the city to phase out several lift stations and convert to a gravity system. Some uses, primarily large lot residences, are on septic tanks. There are no known problems from this at present. When sewer lines are available to these uses, they must hook up. When development occurs, collection sewers are put in by the developer. In some future instances, when parallel trunk lines are required, the city may bear the cost for these facilities. Otherwise, full costs of the sewer system are borne by the developer. If a developer wishes to build beyond existing sewer lines, he must then build the collecting trunk line, as was done for the Belz Mall. He may then recoup his costs as development hooks on to the trunk. As with water, this land use plan is predicated on the assumption that sufficient wastewater facilities can be provided for full development and that no weak- nesses exist in the system which would require reduced wastewater generation to avoid unreasonable public cost. Following completion of this comprehensive plan, the city will undertake a wastewater planning study to identify needed wastewater improvements. Stormwater. The stormwater system for Allen consists primarily of creeks and their floodplains, curb and gutter, storm sewer, bridges and culverts. Since most of the planning area is undeveloped, creeks and their floodplains carry most of the stormwater. As development occurs, runoff will increase. Preservation of floodplains, as is current policy in the city, will be of considerable importance for stormwater needs, as well as for other reasons. For urban development, full conformance with the city's standards for stormwater systems should also be maintained. Finally, the city should follow the water and sewer studies with a comprehensive storm drainage study, to identify overall system needs and alternative methods of stormwater control, such as retention/detention, and where these alternatives would be appropriate. -87 - URBAN DESIGN Introduction In the late 1960s, the city of Allen was considered a small, rural community. In the 1980s, it is a growing city, rapidly preparing for the coming expansion. By the year 2000, the city as we know it today will not be recognizable. An appreciation for and attention to the urban design of the community will make it a more desirable community and better place to live. Not too long ago, Allen was considered a small north Dallas rural community. Many elements of this past remain including the central business district, several potential historic buildings, several adjacent residential areas, and the farms and ranches in the outlying countryside. The 1960s and early 1970s saw Allen begin to grow as a bedroom community. This growth has accelerated into the 1980s. The quality and character of this growth has met with mixed judgment. While some residential developments are of a high quality, others are criticized for being unimaginative and repetitive. Much of the commercial development is not of the quality one would have hoped for. Industrial development, particularly the InteCom and DLM facilities, has been carried out with much greater care and attention to architectural and landscape detail. While the analysis of existing development is mixed, the character and quality of the city is really yet to be determined. Through 1984, only 2,500 acres or 15 percent of the total land area in the city had been developed. Nearly 15,000 acres or 22.5 square miles of the city is yet to see development for the first time. The key to the quality of the urban design in Allen lies ahead of the city, not behind it. The city of Allen has an excellent opportunity to positively affect the quality of development within the city if it so desires. In order to achieve the desired quality, considerable thought must be given to the city's role in urban design. How strict should regulations be? What issues should the government regulate? How is the cost of regulation calculated and how important is it? Current City Efforts The urban design of Allen is being influenced by decisions and policies that the city government has already made. The most important policy that will affect the quality of the city is the preservation of the creek corridors and floodplains in their natural state. Careful management of the creeks and stormwater will provide the city with both an important element of its park system as well as preserving the most significant natural open spaces within the city. The protection of these natural corridors will provide positive visual and environmental benefits to the entire city. Overall land development densities will be reduced, existing vegetation saved, and pedestrian linkages connecting neighborhoods created. A Floodplain Management Study has been proposed but has not yet been started. A decision to construct major thoroughfares as boulevards with landscaped medians will also have an outstanding effect on the appearance of the city. The boulevards completed to date have landscape planting and are irrigated, although the landscaping has yet to mature. Sharing construction costs with developers appears to be equitable to the development community. This is an excellent example of an improvement being attractive, functional and affordable. The recently revised zoning ordinance represents the third government action aimed at improving the quality of the city. The ordinance includes sections regarding densities, floor area ratios (FAR), setbacks, landscape plant- ing, parking and screening. The plan development process appears to allow for better design but sometimes denser development through a process of site plan submittals and review. This process is acceptable, as long as it truly results in a higher quality of development within the city. While the zoning ordinance covers many areas, it is not particularly strong in regulations for quality development. As the city continues to grow, many other issues will become important. One of the most important will be the redevelopment of the central business district (CBD) and the development of a municipal complex/civic center. While these are two different projects, their physical relationship requires they be discussed together. At this time the CBD does not make a positive contribution to the urban design of Allen or provide an identity for the community. Is it not possible to utilize the proposed municipal complex/civic center to encourage development and create an identity for Allen? Another issue affecting both the actual character and the perception of Allen will be the development of the U.S. 75 and SH 121 corridors. The density, height and setback of the buildings will have a tremendous effect on the appearance of the city. Also important will be the care in site design, selection of building materials, landscape treatment and signing. The quality of the development will become more apparent in 30 or 40 years. Therefore, each project should be a positive community factor—both visually and as a contributor to the city's tax base. The design of other commercial/office areas (not seen by those passing through Allen on U.S. 75 or SH 121) is also important to the quality of Allen. Commercial nodes should be restricted to the intersection of the major thor- oughfares rather than the ugly strip commercial areas seen in too many cities. While these are major issues that affect the urban environment, other "details" are also important and should be recognized. Attention to overhead wires and utility poles, parking setbacks and buffers, maintenance of right-of- ways, signing and landscape planting of major thoroughfares will combine to make Allen an attractive city. -89 - Goals and Policies 6.000 General Goal: Maintain a high quality of urban design and appearance in Allen. 6.010 Specific Goal: Preserve the scenic natural beauty of the creeks and aesthetic value of the floodplains. 6.011 P/IS: All floodplains should be used as: (1) recreation, (2) open space, or (3) reclaimed for development if not used for (1) or (2). 6.020 Specific Goal: Emphasize design standards in review of development projects. 6.021 P/IS: Prepare design standards for development. 6.022 P/IS: Require underground utilities. 6.023 PAS: Enforce sign ordinances and encourage good sign graphics. 6.030 Specific Goal: Identify for historic preservation any historic sites or structures. 6.031 PAS: Research historic sites and structures and determine means of preservation. 6.040 Specific Goal: Emphasize design standards for public projects and public lands. 6.041 PAS: Develop design standards for public projects and public land holdings, including rights-of-way. 6.042 PAS: Include standards to minimize visual impact of water storage and pump facilities. 6.043 PAS: Include standards to minimize adverse impacts of sewer proj- ects on the environment. 6.050 Specific Goal: Control visual pollution with ordinances and regulations including signs, poles, structures, drainageways and lighting. Urban Design Plan The city of Allen is in the position to provide direction to the quality of urban design in the city. Wise decisions regarding communitywide systems have been made for the future benefit of all. Other decisions will be required to insure that new development provides the desired image for the city. These include the greater issues of density and scale, as well as detailed issues such as -90 - landscape planting and signing. Overall the city must work to elevate the quality of both planning and design. Floodplains A key element of this comprehensive plan is the preservation of creek corridors and their use for recreation and open space. The city must be sure that the proposed Floodplain Management Study is completed. For the preservation of the creek corridors to be successful, all development except utilities must be kept out of the 100 -year floodplain. To accomplish this, the city first needs to accurately know the limits of the floodplain at ultimate development of the watershed. Secondly, the study should provide a carefully thought-out develop- ment strategy for the floodplain that considers initial development and ongoing maintenance costs. In order to maintain the environmental quality of the creek corridors, the city should implement ordinances to control sedimentation. An erosion control ordinance, with guidelines for projects under construction as well as completed projects, should be enacted. Detention ponds, sediment traps, diversion ditches, silt fences, sodding of drainage swales/slopes, and site vegetation are all important factors controlling erosion. Without such an ordinance, the city might find itself preserving creek corridors that are no longer desirable. Development Design Standards The zoning ordinance provides for general control of development within the city. In order to aid the city in better understanding plan submittals and their physical and visual impact, additional information could be added to the ordinance requirements. This includes a preliminary grading plan, erosion control measures, the location and retention of existing tree cover, architectural elevations, and street tree planting. The ordinance's requirements for fence, screen walls, landscape planting, and open storage are good and these require- ments should be equally enforced on all projects. The allowance of artificial landscaping is unacceptable and should be removed immediately. Those projects with the highest visibility along U.S. 75 and SH 121 should be of high quality and density. Strict ordinances and regulations of signs, poles, overhead wires and drainageways in these areas would not be unreasonable. Some regulation of these same factors in other parts of the city would also be expected. The city must also evaluate a development proposal on the quality of its design and not just if it meets the requirements of the zoning ordinance. Public Project Design Standards The design of public buildings and facilities in Allen should make a positive statement regarding the city's position on quality development. The design of various city buildings including the proposed municipal complex, libraries, fire stations and parks are excellent opportunities to show leadership. -91 - The city of Allen needs a center and an identity if it desires to become more than another suburban community. This identity should be the central business district rather the commercial and office developments along U.S. 75. The city center can and should be anchored by the city's civic center complex. The design should be integrated into the overall redevelopment of the central business district. The city must also show sensitivity in the location, design and maintenance of rights-of-way, utility corridors, water storage and pump facilities. Visual impact should be a major factor in the consideration of these facilities. The use of landscape medians for the city's major thoroughfares is an excellent begin- ning. The initial improvements and the ongoing maintenance of the median are important in maintaining the desired quality. The medians can change in character in different areas of the city. For example, a median in a residential area should be planted with canopy and flowering trees, ground covers and grasses. Medians in office or commercial areas should use decorative paving for the groundplain rather than grasses and ground covers. Landscape planting in other areas of the city are equally important. One of the simplest and most valuable requirements the city could implement would be to require mandatory street tree planting in all residential subdivisions. -93 - ECONOMIC DEVELOPMENT Recent years have seen the growth of economic development as a legitimate function of city government in partnership with the private sector. Economic development for jobs, for needed goods and services for residents, and for tax base to sustain the community have become so visible and important that communities can no longer afford to leave them to chance. As an important part of the North Dallas area growth corridor, Allen's efforts can be directed more toward influencing the quality, mix and level of economic units, rather than offering incentives to lure industry or commerce into Allen. Still, the market becomes continually more competitive and Allen will have to market itself and its advantages if it is to meet its long-range goals. This chapter addresses economic areas of business and industry, as well as those institutions having an economic impact, such as hospitals and colleges, and what steps Allen should be taking to maximize its economic future. Goals and Policies 7.000 General Goal: Develop an economy that will generate jobs, provide shopping and service opportunities and a strong financial base for Allen. 7.010 Specific Goal: The city should establish and maintain an aggressive posture in quality economic development. 7.011 P/IS: Prepare an economic development strategy. 7.012 P/IS: Support and assist the Chamber of Commerce and Industrial Development Committee in their efforts. 7.020 Specific Goal: Encourage diversity in economic development. 7.021 PAS: Provide for a variety of commercial, office and industrial land uses that will encourage diversity in the economic base. 7.030 Specific Goal: Expand the tax base in order to achieve and maintain a balanced tax base among residential, commercial, industrial and other land uses. 7.031 PAS: Encourage retail near residential areas. 7.032 P/IS: Encourage office development in the CBD. 7.033 PAS: Establish industrial parks. -94 - Economic Development Program The Allen Chamber of Commerce has an important role for economic development in Allen. The chamber opened a part-time office in 1981 and in 1985 will be open full time. The chamber is directed by a 12 -member board and in 1984 had 130 members. The number of calls received and services provided by the chamber has grown steadily. To serve industrial clients, the chamber has an Industrial Committee made up of a small number of community leaders and representatives from the school district and the city. This committee provides personal assistance to a potential business or industry, once a prospect has been identified. The chamber also sponsors the Allen Industrial Foundation. The Industrial Foundation is presently beginning development of the Cottonwood Business Park, the first such endeavor in Allen. The city plays the major role in economic development, both as a part of the Chamber of Commerce and on its own. Often the first contact with a prospective business occurs when that business approaches the city. The city can then refer the prospective business to the Chamber of Commerce, the Industrial Committee, or assist them in the normal development process. The Economic Development Organization The Chamber of Commerce and the city are the proper organizations to take the lead in economic development. The city should continue to be a strong supporting partner in all facets—leadership, technical assistance, financial assistance and program development. Program The major factors which will influence business and industry to locate in Allen will be: market demand for business quality of life available land good support in the form of infrastructure and services labor force availability unions/labor relations access to education resources While these are not necessarily all the factors that may weigh on a business locational decision, they provide the city with a list, some of which can be influenced by community policies. Allen has indicated in its policies the desire to attract high quality retail, offices and light industry, particularly the high-tech sought for Bray Central and other such developments. Competition within the region and outside the region -95 - will be strong and much will depend on the perception of Allen from without and the ability of the development community, with the city's assistance, to market Allen. Based on this, the following targets are recommended for the city and Chamber of Commerce: City 1. Work diligently to communicate with existing business and industry and to provide assistance when needed. 2. Provide adequate industrial and commercial/office land for develop- ment. 3. Emphasize infrastructure development (streets, water, sewer, storm drainage, etc.) and services provision as an economic development goal. 4. Emphasize quality and appearance factors in development (site planning and architectural quality). 5. Emphasize support of recreation and education as important quality of life factors. 6. Develop a fast-track development review process as an incentive for high quality business and industry. 7. Consider incentives for redevelopment of the area north of FM 2170 and east of U.S. 75, and for the City Center area. 8. Develop better information on the marketplace and what specific targets the city should be pursuing. 9. Project a positive stance in all dealings for the location of quality businesses and industry in Allen. 10. Continue to work towards a balanced community to assure a range of available labor force to prospective industry. Chamber of Commerce 1. Continue to expand financial resources and services to prospective business and industry. 2. Move to continue seeking desired business and industry and continue the present reactive role. -96- 3. Continue to involve the full range of community leaders and resour- ces in seeking business and industry. 4. Using community and industry leaders, strengthen Allen's contacts in the marketplace. -97 - ENVIRONMENT The beauty of the Texas countryside, Cottonwood Creek, the Rowlett Creek Valley, the bluffs along Watters Creek and the wooded areas, make it clear why many Dallasites had their summer places in Allen. This natural environment is a priceless resource and every effort should be made to preserve its qualities in future development. Also important is to create a man-made environment which will be of high quality and character. This chapter deals primarily with the natural environment. Elements addressed include: stream valleys, floodplains, wooded areas, air, noise, and actions—such as solid waste disposal and hazardous wastes—which would pollute the environment. Goals and Policies 8.000 General Goal: Preserve natural resources and preserve a high quality environment in Allen. 8.010 Specific Goal: Encourage conservation of natural resources. 8.011 PAS: Encourage conservation of trees, vegetation and water resour- ces in all development. 8.012 P/IS: Provide guidelines to preserve and conserve natural vegetation and water resources. 8.020 Specific Goal: Minimize pollution in Allen including visual, air, noise and water. 8.021 PAS: Develop land beautification and maintenance plan to maximize visual appearance. 8.022 PAS: Preserve a low level of noise through regulations, setbacks from major thoroughfares, good site planning and building materials. 8.023 PAS: Maintain high air quality standards in Allen. 8.030 Specific Goal: Provide flood and drainage control. 8.031 P/IS: Continue to emphasize floodplain regulations and policies. 8.032 P/IS: Continue storm drainage emphasis in site planning and con- struction projects. 8.040 Specific Goal: Prevent storage and generation of hazardous materials and waste. 8.041 PAS: Develop regulations concerning hazardous waste. -98- 8.050 Specific Goal: Develop organizational structure for environmental pro- tection. 8.051 PAS: Research role and character of such an organization and prepare recommendation. 8.060 Specific Goal: Provide for solid waste disposal. 8.061 PAS: Work with proper authorities to ensure adequate methods and locations for disposal of solid waste. Environmental Program Allen regulates many of the environmental elements through its devel- opment regulations or through other general ordinances. Presently, responsibil- ity in city government for environmental elements is spread throughout the departments and no one department has responsibility for the environment. Specific discussion and recommendations for each element are provided below. 1. Stream Valleys. The streams, their floodplains and valleys are the principal natural environmental resource. The floodplain regulations and the policy of preserving the floodplain for recreation and open space use has focused public interest on the floodplains. It is essential that the planned Rowlett Creek Study (actually all the stream valleys are included) proceed and the recom- mendations adopted as an amendment to this plan. This will pin down the public's intent in the valleys and eliminate the present uncertainties. The 100 - year floodplain should be observed until the study is adopted. Also, important is the development and passage of an erosion and sedimentation ordinance to preserve the creeks. 2. Wooded Areas. Most of the wooded areas are found along the creeks. Several substantial woodlots still remain throughout the city jurisdiction, princi- pally on the McDermott and Williams ranches. Some of these should be acquired as parks. Others can be protected through the development process. Wooded areas should be clearly and accurately located on each zoning or subdivision application, or on site and plot plans. Developments should preserve the trees and tract grading should not be permitted. A small lot single-family subdivision in a major wooded area cannot preserve the trees. Techniques, such as clustering large lot residences or incentives (in additional units given), should be used instead. 3. Air. Air quality is a regional issue in the Dallas area. The Environmental Protection Agency sets standards on emissions and a plan to meet EPA standards has not yet been approved by the EPA. In Allen, no air quality problems exist. Present policies do not permit heavy industry which would contribute to degradation of air quality. Probably the greatest contribution to good air quality the city can make will be to control automobile traffic congestion and thus reduce auto emissions. -99- 4. Noise. Noise is a difficult problem in our urban society. It takes so many different forms: an airplane on approach, a rock group practicing in their garage, internal noise inside a house. Federal noise standards must be met for projects which are federally funded; however, most communities do little to control noise. The major (or at least the most obvious) noise problems that Allen will face in the future will be in those residential areas located along U.S. 75. While acoustical barriers or berms have been used to control vehicle noise in such situations, some find them more objectionable than the noise. The city will need to work with the property owners and the state to see if some solution can be reached. For new development, the land use plan provides for future residential areas to be located away from the major highway corridors. Strict adherence to this policy is important. Over the long run, Allen may wish to pass and enforce a comprehensive noise control ordinance. This has been done by many cities. It requires setting of acceptable ambient noise levels and enforcement of those levels using scientific noise testing equipment. We do not presently recommend such an ordinance for Allen. Reliance on public nuisance regulations should be satisfac- tory for some years to come. 5. Lighting. Night lighting of ballfields, commercial outlets and other such uses can be among the most objectionable conflicts with the environment to a residential neighborhood. In the development review process, uses requiring major lighting should only be permitted where they will not adversely impact residences. Lights for parking areas and buildings should be at a reasonable level and shielded so that they do not impact residential areas. This is particularly true of residential subdivisions which back up to commercial parking lots. 6. Hazardous Wastes. EPA regulates disposal of hazardous wastes. Some regulation of routes of hazardous waste carriers is done by the state. Allen has no regulations other than in the broad public health and safety authority. The city has emergency procedures for a spill or other such crisis. The city should prepare a plan to cover routing and procedures and emergency response and procedures. Since some of the high tech industries desired by the city have hazardous wastes as a by-product of their process, the city will need to develop a policy for industry and, where permitted, work closely with the industry to insure safe storage and transport. 7. Solid Waste. The city contracts with a private firm for trash collec- tion. The solid waste is then transported to a landfill near McKinney. The remaining life of this landfill is short (5 to 10 years) and the city needs to explore the options for a long-term site. This can be done in concert with several cities or at the county level. -101 -- HEALTH AND HUMAN SERVICES Three areas—health facilities and services, human services and educational services—are addressed in this chapter. The city's role in each of these areas will vary greatly. In a city such as Allen, it is unlikely that the city will be or will want to be the chief provider of services; yet each of these areas will play an important part in making Allen a high quality community that meets the needs of its residents. Goals and Policies 9.000 General Goal: Make high quality health care and needed human services available to residents of the city. 9.010 Specific Goal: Provide access to a community college/junior college. 9.011 P/IS: Support county efforts on site location and development of a community college/junior college. 9.020 Specific Goal: Provide needed continuing education to the community. 9.021 PAS: Seek coordination of the junior college and school district continuing education programs. 9.030 Specific Goal: Establish best approach to provide city paramedic services immediately. 9.031 PAS: Research city options and select strategy for immediate imple- mentation. 9.040 Specific Goal: Strive to provide a city free of chemical dependency and abuse. 9.041 PAS: Research options to the city and public/private groups in achieving this goal. 9.050 Specific Goal: Encourage the provision of child care services by churches and other public institutions, or by private industry. 9.051 PAS: Research child care needs and develop program to accomplish this goal. 9.060 Specific Goal: Establish health and human services office in city government. 9.061 PAS: Determine options for this office and identify program struc- ture. -102- 9.062 PAS: Provide authority for this office to conduct health inspections 9.070 Specific Goal: Encourage the selection/reservation of a site for a future full service community hospital. 9.071 PAS: Conduct feasibility study to establish need, full or limited service, and provide implementation schedule. Health Facilities Collin County has four hospitals: Plano General in West Plano, Wysong Hospital and North Texas Medical Center Hospital in McKinney, and Wylie Community Hospital in Wylie. Plano General Hospital considers Allen within its service area and has a member of its hospital board from Allen. Several doctors maintain offices in Allen and a private medical clinic providing extended hours and weekend service is available. Ambulance service is available from the city, manned by the fire department personnel, with all but one of the fire department staff having received EMT training. Health care today is tied closely to the medical insurance industry. Changes are occurring quickly and even those in the field are uncertain what the health care industry will look like twenty years from now. The major trends which are visible today include greater use of small, conveniently located diagnostic/ambulatory care centers and private medical clinics to supplement hospital facilities, falling use rates and thus less need for hospital beds but greater need for hospital outpatient facilities, increased emphasis on emergency service with around-the-clock, full time medical staffing and increased use of paramedic services by cities as an extension of the hospital. Any new hospital or expansion of an existing hospital must first meet the test of economic feasibility and second, receive a Certificate of Need from the Texas Health Facilities Commission, following public hearing. Applications are fiercely contested by competing hospitals. The Colony was denied a Certificate of Need for a new hospital recently and Plano General was turned down on a proposed 59 -bed addition last year. Also important to the success of planning for immediate and future health facilities is the full support of the Allen medical community. While any potential for a hospital, or whatever form a traditional hospital takes in the future, appears to be long range at this stage, the potential for meeting short-term goals for emergency medical service and for paramedic service should be pursued. A program for moving in this direction is described below: 1. Decision by the Council to pursue 24-hour emergency medical service and/or paramedic service. -103- 2. Coordination with the medical community. 3. Study by the staff of the economic feasibility and the opportunities for each. 4. Approval by the Council of recommendations of the staff. 5. Work with Plano General Hospital, or an appropriate hospital facility, to reach contractual agreement and implement system(s). Plano uses paramedics in its fire department for emergency services. Until several years ago, Plano used EMTs as Allen is presently doing. Plano General Hospital serves as the bay station control under contract with the city of Plano. Training of paramedic personnel is provided by Parkland Hospital. The lead time necessary to contract, train, fund and start a paramedic program is substantial. Nor will the program be inexpensive. Strong community support with a willingness to pay for this high level of service will be needed. When the population of Allen reaches the 50,000 to 75,000 level, the city should reinvestigate the potential for its own hospital, evaluating the level of services provided by existing hospitals and the options available to the city. By that time, the trends in health services and hospitals, in particular, may be clearer and the city's opportunities easier to delineate. If it is feasible to have a hospital in Allen and if a Certificate of Need can be obtained, a site will be needed. It should be around 40 to 60 acres in size, with ample area for medical offices tied into the hospital, centrally located to the community and with good access to U.S. 75, SH 121, and the major street system. Health Inspection The city has been using a county inspector for health inspections. This arrangement has not worked satisfactorily. The city should employ its own health inspector to provide the needed food and food service inspections. Human Services Human services include the broad range of health services and social services needed by the citizenry. These needs vary greatly from city to city. As a suburban community, Allen is unlikely, for at least several generations, to have to deal with the problems of an inner city such as Dallas. That is not to say that there will not be needs—simply that they will be different. In the United States, human services have been traditionally been provided by other than city governments—usually nonprofit institutions financed through voluntary support methods, such as the United Way program, with some of the critical needs handled by the state and county. Churches have continued to play a strong role within the network and recently schools have taken a leadership role as the needs of youth have come to the forefront. The strength of the -104 - health and social services network comes from the multitude of groups having the financial resources to do the job. The major providers of human services in Allen are the churches, the school system, a small number of nonprofit organizations and some local professionals. The Allen Independent School District sponsors a Community Education branch which is very involved in identification and assistance in the social services field. For assistance from state or county agencies, Allen residents must go to McKinney. A wide range of assistance is available from nonprofit organizations in the Dallas area, Plano and McKinney. A Community Resource Directory was prepared in January 1983, under the sponsorship of the Allen ISD, the Allen Chamber of Commerce and The Allen American. This directory provides a listing of activities and services in the Plano, Allen and McKinney area. The city of Plano provides an information and referral service and this service is available to Allen residents as well. From study of the projected demographics of Allen and the national, state and local trends, some projections can be made of the general areas where need is most likely to be. Over the next decade, Allen will continue to be a city of young to middle age, upwardly mobile families—many having two income earners. To this demographic profile will be added an increasing number of low - to moderate -income families, single adults, single parents and senior citizens. The most likely areas of need appear to be: (1) alcohol and chemical abuse programs, (2) teenage need programs, (3) single adult programs, (4) family counseling, (5) child care and latch key programs, (6) single parent programs, (7) senior citizen programs, and (8) abuse -assault crisis help. The needs described above and others that are certain to emerge will probably be provided by many groups. What then should be the role of the city in the human services area? The city's first step should be to coordinate with the Community Education branch of the Allen Independent School District what the city can do to support the program. An information and referral service is presently being developed by them. Regardless of what coordination is possible, the major function of the city should be no more than an information and referral role. This can be handled as a normal city function. While there is a temptation to become a provider of services, this should be avoided. Educational Facilities Allen Independent School District This plan does not include an element on facilities for public schools. (The Allen Independent School District will prepare a schools plan following comple- tion of the comprehensive plan.) Nevertheless, the importance of a high quality public school system to the future of Allen cannot be overstated. -105 - The Allen Independent School District serves most of the city of Allen. A portion of Allen in the northeast is in the McKinney ISD and other small portions in the south are in the Plano ISD. Every effort should be made by the city of Allen to support and assist the Allen ISD in meeting its educational goals. This should consist of: (1) working to strengthen the tax base within the school district, (2) working together with the school district to reserve sites for schools as a part of the development review process, (3) coordinating location of schools and park facilities, and (4) coordi- nation of bond issue proposals. Higher Education Collin County has been studying the potential for a community college for the county. Results of the study show potential for two community college units, probably one in the south and one in central Collin County. Collin County has obtained approval from the state of Texas to hold a referendum election in April 1985. If the referendum is successful, Allen should support the referendum and if the referendum passes, should be prepared with a proposal if it wishes to have one of the colleges located in Allen. At the same time, Allen should continue to offer and expand the graduate level college branch or an undergraduate branch. With the development anticipated, Allen has much to offer a higher education facility. -107 - GOVERNMENT SERVICES Existing Services The City Charter of the city of Allen approved in 1979 provides for a city manager form of government with five basic departments: Police Department, Fire Department, Public Library Department, Public Parks and Recreation Department, and Public Works Department. In addition, the Charter provides for additional departments to be established by ordinance, at the discretion of the Council. The Community Development Department and the Finance Department were formed under this proviso. The changes in population that have occurred since 1970 are reflected in the size and scope of city government. City government has grown in both employees and budget as shown below: 1969-1970(1) 1974-1975(1) 1979-1980(1) 1983-1984(2) Population 1,940 3,500 8,314 11,500 Employees 5 (3) 9 (3) 23 FT/8 PT (3) 70 FT/8 PT Approximate General Fund Expenditures (000) 41 169 743 1,500 (1)Audits for Fiscal Years ended 1970, 1975, 1980 (June -May) (2)Budget for FY 1983-84 (October -September) (3)Estimated Not only do more people need services, but as a city becomes more urban in character, a higher quality and level of services is desired by residents. Traditionally, expansion of facilities and services in response to population growth proceeds in concentrated periods of action followed by periods of catch up, as demand and provision of facilities are balanced. For example, provision of a sanitary sewer trunk line will often follow a period of great need. After the trunk line is constructed, the demand will be met for some time until a new increment of demand spurs the need for additional facilities. Today Allen is providing a level of services and facilities to the city that far exceeds those provided to a much smaller city in 1970. Both facilities and service needs will continue to increase dramatically in the growth decades ahead and probably will not level out until well into the 21st century. Increases in personnel, equipment facilities and the budget necessary to provide facilities and services can be expected. The tradeoffs to Allen are the level of facilities and services the resident is willing to pay for. -108 - In the last full fiscal year (1983-1984), Allen had a full-time staff of 70 persons, an operations budget of $1.5 million, and a total budget of $3.2 million. This represents a minimal staff and budget level for a city of Allen's size, growing at the rapid rate Allen is. (See Table 41.) Typically, the greatest element of the budget is for public safety, particularly police protection. The major capital expenditure areas have been for infrastructure areas and public buildings. The city has started a much needed program to help in maintaining city streets, which is important over the long run. Goals and Policies 10.000 General Goal: Provide a high level of government services in a cost- effective manner and within the financial constraints of the city. 10.010 Specific Goal: Provide quality governmental services in the areas of fire protection and prevention, police, water, emergency ambulance, street maintenance, sewer and wastewater, library and others. 10.011 P/IS: Provide a high level of administrative services and adequate staff to deliver those services. 10.012 PAS: Work with NTMWD to keep ahead of the needs of Allen for water, sewer and wastewater facilities and service. 10.013 P/IS: Provide emergency ambulance service, with full-time para- medics and intensive care ambulances, to keep pace with growth. 10.014 P/IS: Improve substandard streets to a maintainable condition. 10.015 PAS: Provide adequate maintenance for all city streets. 10.016 PAS: Use the Texas Library Standards as guidelines for library facilities and services. 10.017 P/IS: Improve large item pickup services and charge a user fee. 10.018 PAS: Provide a high level of fire protection, with adequate full-time staff, fire fighting equipment and overhead storage, as popula- tion growth requires. 10.019 P/IS: Emphasize fire prevention with a full-time fire marshall and inspections, as needed to keep pace with growth. 10.020 PAS: Provide a high level of police protection, expanding the depart- ment to keep pace with growth. 10.021 P/IS: Expand and improve neighborhood crime watch, public aware- ness, youth education and public involvement. Department General Government Police Department Fire Department Fire Marshall/Civil Defense Water and Sewer Department Parks and Recreation Department Table 41 GOVERNMENT SERVICES City of Allen, Texas 1983 Employees Functions FT PT/T Mayor/City Council (1) 8 City Secretary Legal Elections Police Protection Animal Control Court Clerk Dispatching Municipal Court Fire Protection Emergency Ambulance Fire Prevention Civil Defense High Weed/Grass Enforcement Planning and Maintenance of Sewer System Planning and Maintenance of Water System Planning and Construction of Parks and Facilities Maintenance of Parks and Facilities Recreation Programs and Activities 24 1 8 3 0 2 12 0 7 11 FT Emp. 1983-84 Budget Per Budget Per Percent 1000 P ($000) Pop. Total NA 108.5 $ 9,644 3.4 2.1 763.7 $67,884 0.7 318.4 $28,302 0.0 20.6 $ 1,831 24.0 10.0 0.6 1.1 331.4 $29,458 28.8 584.7 $51,973 0.6 214.3 $19,049 6.7 Table 41 (Continued) Department Functions Community Development Planning Department Code Enforcement 1983-84 Construction and Main- Employees tenance of Streets Budget Construction and Main- FT PT/T tenance of Storm ($000) Drainage 10 Street Lights 168.3 Street Signs (4) Rights -of -Way Library Library Finance Department Management of Financial Resources Utility Collections Municipal Court Court City Administration Management/Administration of City Government Total Population estimate for January 1, 1984 of 11,250 persons. 1983 FT Emp. 1983-84 Budget Employees Per Budget Per Percent FT PT/T 1000 P ($000) Pop. Total 10 0.9 168.3 $14,960 17.3 (4) (0.4) 381.1 $33,876 2 1 0.2 70.8 $ 6,293 2.2 4 0.4 34.7 $ 3,084 4.0 94.4 $ 8,391 3 0.3 92.3 $ 8,204 2.9 70 25 6.2 $3,183.2 $282,950 100.0 -111- 10.030 Specific Goal: Encourage public utilities to provide quality services, including gas, electric, telephone and cable television. 10.031 PAS: Work with each of the above public utilities to identify any problem areas and seek solutions and improved quality. Government Services Observations and Recommendations This governmental services section is not to set out a plan for restructuring of city government in Allen. Such a plan is hardly necessary. The city has successfully provided services with modest financial resources and will continue to do so, altering the governmental structure to meet the needs of its residents, as such needs become evident. Rather, this section is designed to provide a listing of some of the future needs, from the comprehensive plan perspective, to help city officials in planning for the provision of public services in the future. Short- and Medium -Range Needs There is a need for the following: 1. Personnel to help in development guidance. The two major areas where long-range decisions will be made which will affect the future quality of life are in civil engineering and traffic engineering. a. The city should have a civil engineer on staff whose responsibility will be to review and make recommendations on all the submittals from PDs to final subdivision plats. This will not eliminate the need for consulting assistance but will greatly 'strengthen the city's ability to insure that requirements for water, sewer, storm drainage, streets and siting will be met. b. Traffic engineering assistance is needed. Eventually the city will want someone on staff, but over the next five to ten years some arrangement should be made with a highly qualified person or group to represent the city in providing standards for traffic impact submittals and reviewing the submittals made. 2. As Allen continues to grow, it should have on -staff, or shared with another city, a qualified inspector to conduct health code inspections of food and food service outlets. This person could also provide environmental reviews where they fall into his area of expertise. 3. The Health and Human Services subcommittee has recommended upgrading emergency services to include paramedics. Training of present personnel will be required. -112- 4. Broadening of staff skills in most departments to continue to upgrade the level of services to the community. 5. Research the improvement of brush and large item pickup, financing with a user fee. 6. Work with the Allen Independent School District, Community Education, in provision of a health and human services referral system. 7. Provide a higher level of library service by construction of a new library and adequate staff for operation and program development. Delivery of Services As city government expands to meet the needs of a growing Allen, the following should be considered: 1. Establishment of a more traditional Public Works Department, having responsibility for the engineering, maintenance and construction functions for the city, including water, sewer, storm drainage and streets. 2. Refocusing of the Community Development Department to a broader planning (and environmental protection) function. As the Planned Districts move from plan to site plan and to construction, this department will have responsibility of seeing that PDs are planned and constructed in accordance with the wishes of the City Council. Other Dallas area communities have found the need to strengthen this department, particularly during the planning, design and construction period. 3. Consolidation of fire protection and fire prevention. These two activities are closely linked with common goals and can be more efficiently provided together. The Public Utilities The survey and discussions with city residents has indicated a dissatisfac- tion with present telephone service and a frustration at being unable to influence a change. The telephone company is regulated by the state of Texas. Any strategy the city would pursue should begin with the regulating agency. The city, through its legal counsel, should identify the city's options, other jurisdic- tions or private interests which could join Allen in its cause, and develop a long- range strategy to improve service. -113 - IMPLEMENTATION GUIDELINES Like a major private corporation's plan, implementation of a plan for a community involves many groups, many projects and programs to accomplish it. Critical to success is the coordination of all these elements of implementation so that efficiency is built into the entire system. This section provides an overview of the opportunities for implementation, specific implementation steps, and discussion of the planning process, as well as provision for updating. Implementation Groups The plan for Allen consists of actions which involve all elements of the community. Just as the entire community has participated in putting the plan together, so the entire community has a responsibility and an opportunity to truly implement the plan. Listed below are the key groups and comments about their part in the process. • City of Allen - The city government in Allen has the major role in implementation. This implementation is carried out by the City Council, the Planning Commission, the various boards and commissions and the city staff. Actions can vary from regulatory decisions to implementa- tion projects to administration of city policy on behalf of the City Council. • Allen Independent School District - As an autonomous body, the school district has responsibility for actions in the educational field and within its district. Because of the interrelationship between schools and parks and recreation, as well as all community activities, there is a strong role of coordination between the school district and the city in addition to the specific actions for which the district has responsibility. • Chamber of Commerce - The Chamber of Commerce is the chief private economic group in the city. With its subsidiary groups, the Industrial Committee and the Industrial Foundation, it has both a lead and coordinating role in many areas of the plan. • Social Services Network - Many of the human services actions are carried out by the individual organizations which make up the social services network program. These can vary from the services provided by nonprofit organizations to the services provided by the school district. • Residents of Allen - The support of residents of Allen is essential to any successful implementation. • Business Community - As with residents of Allen, the business commun- ity has an important part in the overall implementation program. Full support of the business community will be needed. -114 - Developers in Allen - While most developers are not residents of Allen, because of their role in the building of Allen, they have a very important and far reaching role to play. Goals and Responsibilities The major responsibilities for implementation fall to the city, with primary responsibility falling to the City Council, although in many instances the City Council will delegate the responsibility to either an appointed commission or the city staff in administration of the city's policies. There are several areas where implementation is a primary responsibility of a group outside the city. These areas are: economics, development, schools and public utilities. In economic development the Chamber of Commerce plays a large role, working together with the city government to meet economic development goals. In the areas of schools and public services offered in coordination with schools, this responsibility falls to the school district. In the case of public utilities, the major role again falls to the Chamber of Commerce. As mentioned previously, in the areas of health and human services, many of the responsibilities fall to the various groups that make up the social services network. Implementation Tools The comprehensive plan serves a variety of functions. It serves as a guideline for the land use decisions and the transportation routes recommended. It serves as the basis for delineation of projects needed to bring about the development of the community and it specifies a variety of policies which will need to be followed for the community to obtain the high quality development it desires. Major implementation tools fall into two basic categories: administra- tion and fiscal. Allen presently has a number of regulations in place which govern land development. These include zoning, subdivision regulations, the building code and other miscellaneous ordinances. The design of these regulations to meet the goals of the community and the administration of those regulations by appointed commissions and by city administrative staff is an important part of the overall implementation. At the same time, many of the projects and programs within the plan itself involve funding. The major funding source for programs is the city budget or the budgets of the other participating entities including the school district, the Chamber of Commerce and the social services network. Some actions in the form of projects are too expensive to be funded out of the operating budget and will have to be funded by a capital improvements program. Some can be funded with water revenues or accumulated funds; however, in most instances, some method of financing other than the operating budget is needed. Usually this requires the development and approval of a bond issue program which will -115 - provide funds for major project development. The city has approved bond issues in the past which have been instrumental in the construction of major improve- ments. Development and approval of a bond issue will be needed if this plan is to be implemented successfully. In addition to the public improvements described above, the private development community will participate in the costs for many of the infrastruc- ture improvements for the developing city. The extent to which participation is involved is set in city policies and is administered by city government. Regulatory Recommendations In order to accomplish the goals and policies of the plan, a number of minor revisions to the zoning ordinance or the process should be considered. They are: 1. Add provisions for new housing types including patio homes, garden homes and atrium homes. 2. Extend site plan requirements to include: (a) location of major woodlots and treatment thereof; (b) submittal of grading plans, where such are appropriate (particularly near stream valleys); (c) architec- tural elevations, where appropriate (particularly high visibility areas such as the U.S. 75 and SH 121 corridors and local retail and office areas which will impact neighborhoods); and (d) expansion of site plan to include all major development. (This is presently being done through extensive use of planned district zoning; however, areas presently zoned light industrial or commercial, not shopping center, are not included.) 3. Broader use of certificate of occupancy for changes in use or occupancy. 4. Use of joint public hearing. 5. Some form of administrative or operation policies should be assem- bled in writing by the city for zoning reviews. These could range from policies on required access to such areas as treatment of air conditioning condenser units. A checklist could then be prepared by the staff for the Commission and Council, showing that the applicant has or has not met the policy. 6. With the neighborhood process recommended for use in this plan, the staff should review all submittals, assemble the facts, and submit a recommendation on these facts, as one output to the Planning and Zoning Commission and Council for their consideration. This will reduce the time requirement for officials and will establish the facts of the application for the city. -116 - Consideration should also be given to change of zoning to planned district for the light industrial corridor from Bethany Road to city property and for the future mixed use area at FM 2170 and the frontage road. The subdivision regulations should also be amended to require applicant to show location of wooded areas and treatment of them. The city should provide controls over erosion and sedimentation, particu- larly in close proximity to the stream valleys. An erosion and sedimentation ordinance would provide this needed control. Review and Update of the Comprehensive Plan Preparation of this plan and its implementation are but one step in the continuous planning process employed by the city. The successful activities and actions of the plan must be continually monitored. New detailed studies of areas of the plan should be evaluated and designs prepared, partial updating should be done when the need arises, and the plan redone on at least a ten-year schedule. For Allen, we believe that the general framework adopted by the city in the 1977 plan meets the needs of the city. That plan consisted of four elements: 1. Plan Evaluation Plan evaluation should be done every year. This should be undertaken during the budgeting process. The major activity should be to look at the goals and policies and at the general plan elements themselves and an evaluation made to the extent to which the plan has been carried forward. It may well be that in some of these instances, a recommendation may come forth for amending or adjusting the plan in order to better meet the goals of the community and, in this case, an amendment to the plan should be made. The evaluation can be accomplished by using the responsibilities chart and by some careful thought as to the steps taken by the city in the year that has been completed. Similarly, the budget process should be keyed in upon the goals and policies of the city and careful observance given to providing enough budgetary resources to actually accomplish the plan. 2. Partial Update Given the growth anticipated, a partial update should probably be made every five years. This update would consist of looking at the broad areas the plan has addressed and identifying those areas which should be rethought. This could be done for one area of the city as was done in the 1981 plan update. 3. Major Update Again, given the growth anticipated in the city, a major update should be made at least every ten years. The changes that are occurring in the metropolitan area and the impact of those changes on the city of Allen necessitate rethinking on a regular schedule the directions Allen wishes to go. -117- 4. Continuinz Plannin The Comprehensive Plan has identified a large number of needs for further study and detailed design as a part of the planning process. These are needed to implement projects and programs and are described more fully in the section which follows. Continuing Planning The following should be undertaken over the next five years to more specifically define projects and programs identified in the plan: 1. Plan for water supply and facilities 2. Plan for wastewater collection and treatment 3. Greenbelt study (Rowlett, Watters and Cottonwood Creeks) 4. Master plan for city office complex 5. Plan for police department and courts building 6. Detailed CBD plan (for coordination with Main Street Thoroughfare project) 7. Schools Plan for Allen Independent School District (to be prepared by AISD) 8. Urban design guidelines for U.S. 75 and SH 121 development 9. Research on DART (light rail) service to Allen and station placement 10. Plan for stormwater facilities 11. Research on: coordination of health and human services information and referral system with AISD community education; paramedic service; and satellite hospital/24-hour emergency medical facility. A-1 APPENDIX A MAJOR FINDINGS OF THE COMMUNITY SURVEY A The following are findings, by major element, of the community survey conducted in Fall 1984. Land Use 1. A preference for control of growth. 2. A preference for single-family residential with a strong parks and recreation program. 2. The floodplains should be used for recreation. 3. A strong preference for encouraging: a. Family restaurants (86.5%) b. Local retail (82.6%) c. Light manufacturing (high tech) (74.6%) d. Business offices/operations (62.9%) e. Fine food dinner restaurants with clubs (59.4%) 4. Strong preference for: a. Location of light industry in an industrial park(s) b. Taking action to control growth c. Location of offices along main thoroughfares d. Discouraging polluting industries e. Location of retail businesses in small or large shopping areas near residential areas f. Residential growth in all sectors of the city Transportation 1. Preference for widening existing major thoroughfares and providing more north -south and east -west major street service. 2. Moderately high interest in providing railroad overpasses or under- passes of the Southern Pacific Railroad. 3. Preference for exploring transit service for elderly and handicapped. 4. Preference against local bus service. 5. Preference for joining the DART system. A-2 Housing 1. The preference is for the same or less percentage of land in multi- family than in a typical city. 2. The preference for a lower proportion of house sizes in the 1400 square foot or less range and the same or a higher percentage in house sizes 1600 square feet or greater. 3. The preference for regulation of housing by regulating house and lot size. 4. A moderate preference against using apartments and condominiums to buffer single-family areas from more intensive development. 5. Preference for a concentration of one type or size of housing in each residential area as opposed to a mix in each area. 6. Preference for redeveloping blighted areas. 7. Responses were split as to whether to encourage lower cost housing for young people and subsidized housing for senior citizens and others. Parks and Recreation 1. Strong preference for improvement of the parks system and willing- ness to pay more to realize the improvements. 2. Desire for neighborhood parks within walking distance of residents. 3. Desire for large parks with jogging trails, recreation centers and golf courses. 4. Strong preference for protecting the floodplains and using them for recreational purposes. Community Facilities 1. The city library received strong support for a new library facility, as well as support for more taxes to pay for it. 2. Support was given for a civic center and a city hall. 3. In the evaluation of community facilities and services, provision of fire protection, water and sewer was judged predominately "good." A-3 Urban Design 1. Preference for restoration of historic sites. 2. Preference for more parks and greenbelt areas. 3. Strong preference for controlling the visual impact of signs, billboards, utility poles, etc. Economic Development 1. Preference for more commercial and retail development, and the same industrial development as indicated for a typical city. (This emphasis on more retail is probably because Allen is just expanding its commer- cial uses and residents must often travel to other communities to purchase good and services.) 2. Preference for expanding the tax base by adding commercial and light industrial uses. 3. Preference against industry that pollutes the environment. 4. Preference for locating industry in industrial parks and on the out- skirts of the community. Fn vi rnn m nn t 1. Indicated they would use the open space and natural environment either often or frequently (65.7 percent) and 42.7 percent said they would pay more taxes to use it 2. Gave some support (48 percent) for a department for environmental protection, evidencing that many people consider the environment an important concern 3. Voiced strong objections to actions that would pollute the environment such as solid waste disposal areas, incineration of wastes, heavy and polluting industry, movement of hazardous wastes through the city, and excessive noise from aircraft flight patterns. Health and Human Services 1. A strong preference for: a. a full service hospital, either on its own or in conjunction with adjacent cities b. a city department to deal with health and human service needs A-4 c. provision of child care services by local companies d. paramedic services e. twenty-four hour urgent health care facility Government Services 1. The majority of respondents rated the following services as excellent to good: fire protection, police protection, trash collection, water supply, sewer and wastewater, emergency ambulance and animal control. 2. The majority of respondents evaluated the. following services as fair to poor: street maintenance, brush and large item pickup, parks and recrea- tion, the library and the care and beautification of public lands. 3. The library, street maintenance and parks and recreation areas were identified as needing improvement and some support was given to providing funds for the improvements, either through use of users fees or additional