A comprehensive plan is created by communities through a multi-year process involving research, public input, discussion and decision-making. During a planning process, communities analyze the social, economic and physical factors affecting their community and project changes expected to occur within 10 to 20 years. Based on this knowledge, communities prepare goals and detailed objectives, and recommend policies, programs and actions allowing them to proactively respond to changes. The comprehensive planning process, in and of itself, is only one phase in a larger process. An effective planning process is preceded by a �plan-for-planning� phase (Kaiser, 1995) and culminates with an �implementation, monitoring and revision� phase.

In the last edition of the Land Use Tracker, the article Comprehensive Planning: Ready, Set, Go? described the steps necessary for a community to prepare for comprehensive planning. This article continues that discussion, by describing remaining steps in the plan-for-planning phase. After reading this article, communities will be able to design a planning process, prepare a detailed workplan and budget, and prepare a planning contract. Specific planning tools necessary to complete the planning process, including public participation techniques, planning methods, and a geographic information system will be discussed in the next edition of the Land Use Tracker.

Design the planning process

Designing a planning process involves identifying a series of work products, elements, tasks, meetings and opportunities for public participation that are completed by an identifiable party, in a given period of time, following specific budget constraints. To design a planning process, developing an organizational framework to help organize and brainstorm project details is a necessary task. Major work products and milestones, such as an analysis of current data, a compilation of community issues, or a set of goals and objectives, form logical and manageable segments of work. You can use these segments to create a framework of �planning stages,� each of which can be completed in a discrete period of time. Figure 1 (pgs 8-9) illustrates a generic planning process organized using this method.

Figure 1 (click image for larger view)

Next, consider how planning elements can be included in the process. Planning elements, much like chapters in a book, provide the substantive content for a comprehensive plan. In Wisconsin, nine planning elements are required, including: 1) issues and opportunities, 2) housing, 3) transportation, 4) utilities and community facilities, 5) agricultural, natural and cultural resources, 6) economic development, 7) intergovernmental cooperation, 8) land use, and 9) implementation. Some communities also include elements such as: community design, energy, air quality, natural hazards, growth management, and human services (APA, 1999). The Wisconsin comprehensive planning law does not dictate the content of the required planning elements or how they should be included in a planning process. However, the law does require that communities complete certain tasks for each, including identifying relevant planning issues, analyzing background information, preparing goals and objectives, and recommending implementation strategies. Planning stages I-IV, shown in the planning diagram on pages 8-9, are included to satisfy these requirements.

With the exception of the issues and opportunities element and the implementation element, you should complete planning stages I-IV for each of the seven �core� elements. The content of the remaining two elements can be developed and compiled by analyzing background information, identifying issues, and developing implementation strategies, respectively, for all of the core elements. To save time and money, consider working on two or more elements during each planning stage. To develop all of the planning elements, you will need to repeat some of the planning stages. For gathering and analyzing data, it may be most efficient to address all seven planning elements at one time.

When grouping planning elements, carefully consider which elements are grouped together and the order in which they are completed. Grouping related elements helps communities identify and explore the interrelationship between planning issues. New housing, for example, can impact a community�s agricultural and natural resources, alter the transportation network or necessitate additional public services. The location of new housing may also be impacted by existing land uses or economic development goals. Obviously, all of the core elements are related in some fashion. Group those that logically overlap or conflict with each other. If you decide not to group related elements, you can build in opportunities to analyze the relationship between elements and correct inconsistencies. Finally, select the order in which planning elements will be developed during the planning process. Consider the visibility and ease of addressing each element or group of elements. Most communities consciously decide to address relatively non-contentious elements first so they can ease into the planning process or highly visible or contentious elements to attract and maintain public involvement.

After identifying major planning stages and incorporating the planning elements, identify detailed planning tasks to be completed during each stage. A typical �data collection and analysis� stage requires that communities inventory and collect available data, confirm data accuracy, derive current and future patterns and trends, interpret information in light of local issues, and distribute analyses in a form useful to planning participants. Using the suggestions included in Figure 1, identify similar planning tasks for the stages included in your planning process. Much like the planning elements, the relationship and timing of planning tasks is crucial. Some can be completed concurrently, while others must be done in specific sequence. Make note of these requirements by numbering the planning tasks. Also record possible data or material requirements and prioritize the planning tasks. If faced with time or budget constraints, modify or eliminate the least essential tasks (Anderson, 1995).

Finally, identify specific meetings and tools to complete each of the planning tasks. A range of tools, including public participation techniques, a geographic information system, and planning methods will be discussed in the next edition of the Land Use Tracker.

After the structural design of the planning process is complete, determine who will be responsible for completing each portion of the planning process. Most projects require the combined talent of multiple parties, including citizen plan commission members, a local or county planning department, other local departments, agencies and organizations, a regional planning commission, and professional planning firms. Take stock of the interest and willingness of these parties to contribute to your community�s planning process. Then realistically assess the availability, capacity and experience of each. Assign responsibility for specific planning tasks to individual parties.

To realize cost savings, utilize local resources to the fullest. Aside from the support of a local plan commission or planning department, many other local departments, agencies, and organizations are qualified to assist with certain portions of the planning process. A local economic development corporation, or the county transportation department, for example, can lend expertise when completing specific planning elements. UW-Extension educators may likewise be qualified to facilitate public participation or provide educational assistance. Also consider the cost savings that can also be realized by hiring a public planning agency. Many regional planning commissions, for example, are well-equipped to provide access to land information and GIS services, and may already do so as a part of an ongoing contract. County planning departments can also be contracted with to provide planning services.

For other communities, private planning consultants are an invaluable resource. Although generally more expensive, most consultants have access to more resources, are more experienced and are more likely to complete planning products in a timely fashion. Hiring an outside consultant can also add a sense of credibility and prestige to the project. If you hire external assistance, first prepare and issue a Request for Proposals. An RFP forces a community to articulate why it wants to plan, what it hopes to achieve by planning, and the process that will be used to prepare the plan (Bunnell, 1997). Within the RFP include a detailed description of your community�s proposed planning process and budget, and the products or tasks the consultant is responsible for preparing. Include a specific budget figure, or at least a budget range, so that consultants can describe the services they can provide for that amount of money. It is also easier to compare planning services and select the most competitive proposal if project costs are similar (Haines et al., 2001).

After the details of the planning process have been finalized, prepare a detailed estimate of project costs. The majority of costs can be measured in hours spent conducting planning tasks or facilitating public involvement (Haines et al., 2001). Other costs include travel, materials, technology and related overhead expenses. To the best of your ability, estimate costs for individual planning tasks and meetings. Then prepare a summary of costs for each planning stage, major periods of time (i.e. months, quarters or fiscal years), and major plan components (i.e. public participation) (Anderson, 1995).

To help estimate project expenditures, request a copy of a budget used in a planning project of similar scope and community size. If possible, talk to the person who prepared the budget to understand how each item was derived. Volunteer or �in-kind� support may not be accounted for within the budget. Nor will project management or overhead costs if planning services were provided in-house. An example of proposed expenditures for an actual planning process is provided in Table 1. As an alternate means of estimating project costs, contact a planning consultant. Oftentimes, they are willing to tell prospective clients what other communities spent on similar projects, or conduct a �feasibility study� in which they estimate project costs for a small fee (Kelly, 1993). Remember that your costs will vary depending on the final scope of services requested, and the organization providing those services.

If your community is contemplating a multi-jurisdictional planning project, determine the portion of the project cost each community is responsible for. The State recommends �base funding levels� necessary for a community to prepare a comprehensive plan based on population (see Table 2). Also consider deriving criteria that is relevant locally. Langlade County, for example, recently proposed a joint planning project in which each community�s contribution was based on its total equalized value plus the value of land under managed forest law. Table 3 displays proposed project revenues for the Langlade County process based on these criteria. The County also considered providing a subsidy to communities that had recently contracted with the County to prepare a Land Use Plan. Other criteria or incentives may be appropriate for your community. To allow participating communities a degree of certainty when budgeting for planning, agree upon acceptable criteria and the maximum contribution expected from each community.

After estimating project costs and the portion of those costs each community is responsible for, identify available funding sources. Most communities allocate money for comprehensive planning from general purpose revenue funds. This revenue is procured using a variety of financing tools, including grants, bonds, taxes and loans. A description of these and other financing tools is described in the EPA�s Guidebook of Financial Tools (1999). To further offset the costs of comprehensive planning, investigate the use of external grants. The Wisconsin comprehensive planning grant program provides a primary source of funding for many community planning projects. Under this competitive grant program, communities are eligible to receive up to one-half the cost of preparing a comprehensive plan. Multi-jurisdictional applicants are rewarded with additional financial incentives (OLIS, 2003). Assistance programs, which provide support for specific portions of comprehensive planning and plan implementation, such as transportation, economic development, housing, historic preservation, lakes protection and a host of other community issues, are listed in the Wisconsin Catalogue of Community Assistance (WI DOA, 2003) and the Catalogue of Federal Domestic Assistance (U.S. GSA, 2003). After identifying adequate funding sources, make arrangements with the appropriate organizations for disbursement of funds and project accounting.

Before planning commences, Anderson recommends preparing a detailed workplan to describe how the planning process will operate (1995). A workplan is an important management tool, particularly for projects involving multiple jurisdictions, organizations and participants. By spelling out what is expected of whom at each step of the effort, a workplan helps keep projects on schedule, allows participants to understand how the project will be accomplished, and provides a degree of certainty for all parties involved. A workplan is also useful to clarify a consultant scope of services, negotiate a consultant contract, or internally allocate planning staff time.

Within the workplan, describe the planning process, including major work products, planning elements, tasks, specific meetings, responsibilities of planning participants, and opportunities to involve the public. Also prepare a timeline, budget and graphic illustration of the planning process (Anderson, 1995). Consider preparing two versions of the workplan. Distribute a detailed version to each of the communities, local government officials and major organizations participating in the planning process. Use a simplified version to educate community residents and keep them informed of ongoing opportunities to become involved in the process. Citizens and local government officials should formally approve the proposed workplan and budget before the community agrees to participate in the process.

The design of the planning process and the preparation of a workplan should culminate with the signing of a planning contract by each party involved in the process. At a minimum, obtain a contract from any group who will be providing a major planning service, such as a consultant, regional planning commission, or other department or agency. Also, prepare a joint contract for each community involved in a multi-jurisdictional project. Within this contract, provide a detailed description of the planning process, timeline, budget, expected products and participant responsibilities. A sample joint planning contract between multiple jurisdictions is provided as an example (see Box 1).

American Planning Association. 1999. Planning Communities for the 21^st Century. Chicago: American Planning Association.

Anderson, Larz T. 1995. Guidelines for Preparing Urban Plans. Chicago: APA.

Bunnell, Gene. 1997. To Produce an Effective Plan You Need a Plan for Planning. University of Wisconsin-Madison, Department of Urban and Regional Planning. Extension Report 97-2.

Haines, Anna, Merritt Bussiere, Kassandra Walbrun and Jonquil Wegmann Johnston. June 2001. University of Wisconsin-Extension and Wisconsin Department of Administration. How to Hire a Planning Consultant: A Guide to Preparing a Request for Proposals.

Kaiser, Edward J., David R. Godschalk, and F. Stuart Chapin, Jr. 1995. Urban Land Use Planning, 4^th Edition. Urbana: University of Illinois Press.

Kelly, Eric Damian. February 1993. Selecting and Retaining a Planning Consultant: RFPs, RFQs, Contracts, and Project Management. Planning Advisory Service Report No. 443. American Planning Association.

State of Wisconsin, Department of Administration, Office of Land Information Services. 2003. Comprehensive Planning. Available online: http://www.doa.state.wi.us/section_detail.asp?linkcatid=224.

State of Wisconsin, Department of Administration. 2003. Wisconsin Catalog of Community Assistance. Available online: http://www.doa.state.wi.us/dhir/wcca_catalog_all.asp.

University of Wisconsin-Extension, Cooperative Extension Citizen Participation Team. March 21-22, 2001. Citizen Participation and Smart Growth: Inservice Resources.

U.S. Environmental Protection Agency. 2003. A Guidebook of Financial Tools: Paying for Sustainable Environmental Systems. April 1999 revision. Available online: http://www.epa.gov/efinpage/guidebook/guidebooktp.htm.

U.S. General Services Administration. 2003. Catalogue of Federal Domestic Assistance. Available online: http://www.cfda.gov/.

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