CALIFORNIA STATE UNIVERSITY, SACRAMENTO
Graduate Program in Public Policy and Administration

PPA 250 - California Land Use Policy
Fall 2000

Peter M. Detwiler
Tahoe Hall, Room 1027
Monday evenings, 6:00 - 8:50 p.m.


This interdisciplinary graduate course examines how public policies influence land uses. We will learn about the basic tools of land use planning and development. Later we will confront the issues that will dominate California's land use agenda as the new century begins: urban design, the fiscalization of land use, "Smart Growth," and the challenges of social equity. By the end of the semester, you will be prepared to cope with these issues in professional settings.

METHODS. This course offers you several ways to learn and then apply your lessons. Early in the semester, I’ll rely on lectures to explore the weekly topics. As the semester progresses, we’ll engage in seminar discussions to explore the reading assignments. The writing assignments allow you to reflect on what you've read. Three group projects give you the experience of researching, preparing, and presenting professional proposals.

OFFICE HOURS. When you need answers to questions or want some advice, you can arrange to meet me in Tahoe Hall, Room 3029 on Monday afternoons, before class. You can call me at my Capitol office (445-9748) or at home (455-4574). You can also fax material to my office (322-0298) or send me an e-mail message: detwiler@pacbell.net.

ASSIGNMENTS. The reading assignments offer you a variety of formats: journal articles that explore theories, magazine articles that offer opinions, reference works that present frameworks, and books that offer narrative interpretations. Some of these formats will be familiar from other graduate courses; others may be entirely new. Quite frankly, the readings are extensive. Based on students’ experiences in previous semesters, you should plan to spend three hours preparing for every class hour. In other words, you should expect to invest about eight to ten hours a week getting ready for the next class. The readings are always due on the dates listed in this syllabus.

You must keep up with the reading assignments to take advantage of my presentations and to participate in the class discussions. You will contribute to your colleagues by drawing on your own professional experiences, your collateral reading, and your other courses. Please come to class prepared with questions or arguments to share.

Making and implementing land use policy is rarely a solitary experience. Professionals must collaborate with one another to achieve success. That's why this course relies so heavily on group projects and class participation.

There are five writing assignments: a book review, an essay, and three group projects. Besides reviewing the papers' substance, I reward clarity, brevity, and organization. Because I place a premium on clear and lively writing, I strongly encourage you to frequently consult Hacker’s Pocket Style Manual, one of the required books. You must turn in your papers on the dates listed in this syllabus. I will penalize a late paper a full letter grade for each day that it is late.

EXTRA CREDIT. Sometimes an assignment just doesn't turn out the way you wanted: your working group flaked out, you hated the reading assignments, or the plan evaluation was a real struggle. You may write another book review to earn up to 5% extra credit. See Memo H.

COURSE READER. Besides reprinting articles, the Course Reader contains eight memos from me to you, explaining your assignments:

GRADES. Your semester grade will reflect this schedule:
  Assignment A Wye Island book review 20%
  Assignment B Art of the Long View scenario building 20%
  Group Project I Plan evaluation project 10%
  Group Project II Community observation project 10%
  Group Project III Community reinvestment project 20%
  Class participation   20%
  [Extra credit]   [5%]

READING LIST. The semester's readings consist of two texts, a writing resource book, and two other books with very different points of view. The Course Reader contains other articles and the eight advisory memos.

Fulton, William. (1999.) Guide to California Planning (2nd Edition). Point Arena: Solano Press Books.

Gibbons, Boyd. (1987.) Wye Island. Washington, D.C.: Resources for the Future.

Hacker, Diana. (2000.) A Pocket Style Manual (3rd Edition). Boston: Bedford Books.

Pincetl, Stephanie S. (1999.) Transforming California: A Political History of Land Use and Development. Baltimore: Johns Hopkins University Press.

Schwartz, Peter. (1996.) The Art of the Long View: Planning for the Future in an Uncertain World. New York: Doubleday.

The Hornet Bookstore stocks these books, with a good supply of used books in decent condition. They’re also available from local bookstores and even www.amazon.com. At our first class meeting on August 28, I will explain how you can obtain the Course Reader.

SCHEDULE AND ASSIGNMENTS. Here is our weekly schedule and the specific assignments for the Fall 2000 semester.

 

August 28: Introductions. Who are these other people? And what does he really expect from us this semester? What are we going to do between now and December 11? Our first evening begins with self-introductions and descriptions of the assignments. There’s even a slide show to introduce the "Ahwahnee Principles." Be sure to ask lots of questions tonight.

 

September 4: No Class. Enjoy your Labor Day holiday but use this opportunity to read ahead!

 

September 11: Making Policies, Making Plans. How do policy advisors and decision-makers think about land use policy? We compare the rational model that most planners favor to the policy-makers' garbage can model and the free-market model. To prepare for the class, you read:
  Fulton, Chapter 1, "Introduction: How Planning in California Really Works."
Chapter 2, "The Californias."
Chapter 3, "The Emergence of Urban Planning and Land Use Regulation."
  Course Reader: "Memo A: Coping With Your Reading Assignments."
Detwiler, "Jello Without The Mold."
Richardson & Gordon, "Market Planning."
Banerjee, "Market Planning, Planners, and Planned Markets."
Campbell, "Green Cities, Growing Cities, Just Cities?"

Also, you must watch the video, "The Social Life of Small Urban Spaces" (video #2925) which is available in the Library Media Center.

 

September 18: The General Plan. Why do the courts call a general plan the "constitution" for local development? What goes into a general plan? What about the other requirements besides the mandated elements? How can we tell if a general plan is any good? To prepare for tonight’s class, you read:
  Fulton,

Chapter 4, "The Structure of Planning Decision-Making – Part 1."
Chapter 5, "The Structure of Planning Decision-Making – Part 2."
Chapter 6, "The Basic Tools – Part 1, The General Plan."

 

September 25: Urban Design. How do people use their communities? What makes cities exciting? What condemns some suburbs to mind-numbing mediocrity? We'll discuss the concepts behind the Ahwahnee Principles. To prepare for this class, you read:
  Fulton, Chapter 16, "Urban and Environmental Design."
 

Pincetl,

Introduction.
Chapter 1, "The Formative Years."
Chapter 2, "Reformers Ascend to Power."
  Course Reader:

Southworth, "Walkable Suburbs?"
Corbett & Velasquez, "The Ahwahnee Principles."

 

October 2: Environmental Review. Why is the California Environmental Quality Act (CEQA) one of the most potent land use laws? Where did CEQA come from? Why is it so controversial? What do its defenders say? To prepare for the class, you read:
  Fulton, Chapter 9, "The California Environmental Quality Act."
Chapter 20, "Structure of Natural Resources Protection."
Chapter 21, "Endangered Species: A Case Study in Natural Resource Protection."
  Pincetl, Chapter 3, "Transitional Interwar Years."
 

Course Reader:

Olshansky, "CEQA and Local Planning."

 

October 9: Regulating Land Uses. Where do governments get their power to regulate the use of private property? Among the most traditional methods of regulating land use are zoning and use permits. Why is there so much litigation? To prepare for the class, you read:
  Fulton, Chapter 7, "The Basic Tools – Part 2: Zoning and Development Codes."
  Pincetl,

Chapter 4, "The Problems and Politics of Growth."
Chapter 5, "Unfilled Visions: The Jerry Brown Years."

 

October 16: Developing Land. For many, land is not a resource to be conserved but a com-modity that’s bought and sold. How do large parcels become smaller, marketable lots? To prepare for the class, you read:
  Fulton, Chapter 8, "The Basic Tools – Part 3: The Subdivision Map Act."
Chapter 12, "Doing The Big Deals: Specific Plans & Development Agreements."
 

Course Reader:

"Memo E: Plan Evaluation Project."

Also DUE ON THIS DATE is Group Project I, "Plan Evaluation Project."

 

October 23: Wye Island. An intense study of James Rouse's plan to develop a Chesapeake Bay island, Wye Island is a modern classic of land use literature. Set in Maryland in the early 1970s, this true story can teach us a lot about California at the start of the 21st Century. In tonight’s seminar, we'll explore the differences between Maryland and California; between 1972 and 2000. To prepare for our seminar, you read:
  Gibbons, Wye Island (the entire book).
 

Course Reader:

 

"Memo F: Observe and Record Project."
October 30: Exactions, Dedications, and Takings. The Constitution protects property rights but governments can regulate private property. When landowners propose development, what can public officials ask of them? What does the Constitution allow and what do the statutes permit? How do public officials and landowners put these rules into practice? To prepare for the class, you read:
  Fulton: Chapter 10, "Exactions."
Chapter 13, "The Consequences of Regulation."
Chapter 19, "School Facilities Planning."
  Course Reader: Sohagi, "Authority for and Limitations on Exactions."
Strong, et al., "Property Rights and Takings."
"Memo C: Writing A Book Review."

Also DUE ON THIS DATE is your book review of Wye Island.

 

November 6: Drawing Boundaries. More than just an exercise in cartographic neatness, drawing local boundaries determines who gets public services and who regulates land use. How these decisions affect development patterns is tonight’s focus. To prepare for the class, you read:
  Fulton, Chapter 14, "Economic Development."
  Pincetl, Chapter 6, "Years of Malign Neglect: The Real Era of Limits."
  Course Reader: Executive Summary and Chapters 1 and 2 from Growth Within Limits.
"Memo F, Observe and Record Project."

Also DUE ON THIS DATE is Group Project II, "Observe and Record Project."

 

November 13: The Fiscalization of Land Use. In the first part of tonight’s class we’ll discuss The Art of the Long View. During the second part of the evening, we’ll ask about the fiscal consequences of land use decisions and the land use consequences of fiscal decisions. How have redevelopment agencies changed the way that California looks? To prepare, you read:
  Schwartz, The Art of the Long View (entire book).
  Fulton, Chapter 15, "Redevelopment."
Chapter 17, "Infrastructure and Infrastructure Finance."
  Course Reader:

Detwiler, "Introduction" to Exactions and Impact Fees in California.

 

November 20: Smart Growth. Because demography drives policy, what can policy-makers do about population growth? The only thing that we hate more than urban sprawl is higher densities! How can state and local leaders manage growth? To prepare for the class, you read:
  Fulton,

Chapter 11, "Growth Management and Growth Control."

  Course Reader: Gordon & Richardson, "Are Compact Cities a Desirable Planning Goal?"
Ewing, "Is Los Angeles-Style Sprawl Desirable?"
"Memo B: Recommendations For Successful Writing."
"Memo D: Scenario Building With The Art of the Long View."

Also DUE ON THIS DATE is your scenario building assignment.

 

November 27: Planning For Whom? Planning involves choices and choices invoke values. What will California look like in the new century? How will private firms and public agencies shape land use patterns in the early part of the 21st Century? Who benefits? Who bears the costs? To prepare for the class, you read:
  Fulton, Chapter 23, "Making Planning Work in California."
  Pincetl, Chapter 7, "Conclusion: Reconstructing California’s Public Sphere."
  Course Reader:

Buntz & Sherry, "A Continuum of Dispute Resolution Approaches."
Ball, "Facilitating Consensus Building."
Innes, "Planning Through Consensus Building."
Neuman, "Does Planning Need the Plan?"
Bullard, "Examining the Evidence of Environmental Racism."

 

December 4: Community Reinvestment. The working groups present the results of their Group Project III, "Community Reinvestment Project" which is DUE ON THIS DATE. Each Working Group recommends a proposal for community reinvestment in a specific local neighborhood. A panel of local experts responds with constructive criticism on both the proposal's content and your presentation skills. We'll videotape the working groups' presentations. To prepare for this assignment, you read:
   

"Memo B: Recommendations For Successful Writing."
"Memo G: Community Reinvestment Project."

 

December 11: Concluding Thoughts. In our final class meeting, we’ll review last week’s "Community Reinvestment" projects by focusing on what worked well and what needed im-provement. Everyone completes the University's formal "Teaching Performance Survey." You also have a chance to provide more detailed reactions by filling out my own less formal question-naire. It's optional but still confidential. At your option, the extra credit book review is DUE ON THIS DATE (see Memo H).

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