Developing a comprehensive plan framework for the United States Virgin Islands VI2000

[From the U.S. Government Printing Office, www.gpo.gov]

oastal Zone
Information
Center J

SEP z 3 1975

V%. p,,OIDS
S%4 ISV
0,0001, .4 %se %I%
0.0 Ats
slo sl
Z
Os
Of %C,*-
%sl- 00s

HD
450.3
263
D4
1974

0(0 (1Z.

GOVERNMENT OF
THE VIRGIN ISLAN-DS- PIANNING OEngZ
0----
OFFICE OF THE GOVERNOR
VIRGIN ISLANDS PLANNING OFFICE
P.O. Box 26o6
Charlotte Amalie, St. Thomas, V.I. 00801

To the People of the Virgin Islands:

We sincerely hope you will take a few minutes out and read
the attached report. It represents our best thinking about
how comprehensive planning should be done in the Virgin Islands.

Our purpose in writing this document is to promote a broad
discussion of the future course of these islands. It is an
opening sentence in what we hope will become a vigorous community
dialogue entitled "Where Are We Going,`

Many of us, and I include myself., don't often stop to consi-
der what life will be like in the year 2000 A.D. Yet,, it is
only twenty five years-awayl Presumi-hg that there are no majoT.
catastrophes between now and then.,we@ estimate that the popula-
-,tion of the Virgin Ialanda could reach 200,000 persons more than
double today's population. Now that is s=ething to ponder.
Where will people live and at what will, they@work?

Comprehensive planning won't give us any exact answers,, but
it will provide us with a.way of anticipating some of the more
confounding issues.

The time is upon us to take a long hard look at whatla in
store for the Virgin Islands during the next quarter century,
It is in this spirit that we offer V12000 for your consfderation.

Sincerely,

Thomas R. Blake
Director of Planning

NC:TRB:sbdp

DEVELOPING A COMPREHENSIVE PLAN
FRAMEWORK'FOR THE
UNITED STATES VIRGIN ISLANDS-*
V12000

Prepared by staff of
the Virgin Islands Planning Office

Edward A. Phillips, Assistant Director of Planning

Norman V..Cassell.s., Associate Planner

Myron W. Samuel, Draftsman

Thomas R. Blake
Director of Planning

Property of CSC Library

This study was financed in part with a Planning
Assistance Grant from the Department of Housing and
Urban Development under the provisions of Section 701
of the Housing Act a:s amended.

Virgin Is lands Planning Office, Go vernment of
the Virgin Islands., Charlotte Amalie.,
Virgin Islands, May, 1974.

U DEPARTMENT OF COMMERCE NOAA
COASIAL SERVICES CENTER
2234 SOUTH HOBSON A,VENUE
CHARLESTON , SC 29405-2413

TABLE
OF
'CONTENTS

CHAPTER PAGE

Why Comprehensive PlanningQ ......
2 Reviewing Previous Plans ............ 4

3 Current Planning Law ................ 15
4 Planning OfficeQluestj.ons .......... 19

5 Charting a New 25

WHY
COMPREHENSIVE
PLANNING?

It would be fair to say that comprehensive planning is

one of the most difficult and. yet most essential endeavors

that a people can undertake. It is difficult because planning

attempts to preview the future. Yet no one, including plan-

ners, knows for sure what surprises the future holds,

In some ways, previewing the future is like watching a

series of slides where each succeeding image is fuzzier than

the one before it. It is the work of comprehensive planning to

unscramble and to make sense out of the blurred images. At its

most fundamental le vel, comprehensive planning is the organized
CD

process of making informed guesses about the possible future

of a society.

This document., VI2000, suggests how we might begin the work

of looking at the future of the Virgin Islands in a systematic

way. The report begins by reviewing and. evaluating those

comprehensive plans that have already been written for the

Territory. This is followed by a short analysis of current

Virgin Islands law related to comprehensive planning. Taken

together, these two sections constitute a backward glance at

what comprehensive planning has been in the past and the--Degal

basis for its present accomplishment.

The next section of the report describes the feelings,

ideas J
., and visions of the staff of the V,.rgin Islands Planning

Office regarding comprehensive planning. It is primarily the

result of a one-day seminar in which all members of the

Planning Office staf f participated, This material is augmented

by comments from planners in other government agencies.

Finally, V12000 lays out a suggested work program for doing

comprehensive planning. The program is not an exact blueprint

to be rigidly followed but rather a broad outline of the more

important tasks of the planning process and how they mesh

with each other.

We began by saying that comprehensive planning is both a

difficult and an essential task. But what makes planning

essential? Why is it so important to think about the future

"in a systematic way"9 And more to the point, what is the

value of comprehensive planning to the people of the

Virgin Islands?

In a word, the value of planning is COMMITMENT.

This means: first, that the development of a comprehensive

plan requires a broad and substantial public agreement .... a

unified vision of what life ought to be; and second,,,that

adoption of such a plan obligates public decision makers to

stick by the goals and objectives set forth. The main ingre-

dient is mutual trust. It is precisely this quality that is

required for a society to deal effectively with an uncertain

future. In short, the function of a comprehensive plan is to

attempt to preview the future state of the Virgin Islands

and to help create a unified vision of what such a future state

should be.

This report is an invitation to all people seriously com-

mitted to the future of the Virgin Islands. It is an initial

step in the hard task of uniting our ideas and forging a

common vision of V12000.

lo-VIEWIN -0
PREVIOUS
PLANS

There have been four separate,comprehensive plans written

for the Virgin Islands since the early 1940is. Each one of

them is unique. Eachone stresses particular kinds of problems

and offers different solutions. But, as any reader will quickly

note, specific suggestions are sometimes repeated. in two or

more plans; or different authors use the same population pro-

jections for figuring future needs. In short, eacla comprehen-

sive plan stands on its own, but at the same time contains

common ideas or themes linking it to the rest.

In this section we want.first of all to examine each of the

plans close up: What is the main emphasis of the plan; what
2

are the basic assumptions; what planning techniques does the
C)

author use; how does the plan square with reality? In each ca se

our analysis will follow a consistent format. First we present

the basic background facts including plan title, author, and

date of publication, Then follows a summary of the factual

content of the plan; a summary that strives to give, wherever

possible, something of the flavor and texture of the written

document.

After we study the four comprehensive plans as individual

pieces, we compare them together as a group. Our ultimate

purpose is to gather fruitful ideas that may be su ccessfully

employed in the development of a new comprehensive plan. At

the very.least,, this analysis should point up the pitfalls to

be-avoided. Here are the plan summaries:

TITLE: A Development Plan for the Virgin Islands
of the United States

DATED: June, 1943

AUTHOR: Frederic Bartlett., National Resources
Planning Board

PAGES: 53

TIME FRAME: Not specified

SUMMARY:

As the title implies., this is primarily an economic development
proposal. Yet., unlike typical development plans, it is NOT
growth-oriented. In fact,, the plan assumes that "gradually
total (Virgin Islands) population will return at least to its
1930 figure," of 22,000 people.

Having identified the major problem-s- facing the Virgin Islands
as (1) family instability (2) under-utilization of manpower
and (3) overdependance on Federal money., the Development Plan
proposes the initiation of a homestead/artisan economy. The
suggested development strategy is self-sufficiency. The plan
estimates that about 15,000 people can be supported "comfortably
through agriculture, livestock raising., fishing, cottage in-
dustries, and so on. The basic approach of the plan is, first.,
to assume an agricultural/handicraft economy, second, to
survey the extent of resources, third., to calculate the popu-
lation that these resources will support,

What happens if the populationrises above 15,,000 persons?
The language of the Development Plan is clea-r: "There are
several programs which might be undertaken --- one which in past
has been most acceptable is emigration." In other words,
re-settlement of population elsewhere. The plan continues:
"Another program to adjust population is education. Such a
program should include teaching in schools, but not be limited
to formal channels. It would be disseminated through church
and other adult groups ---" In plain English, the reference
here is to birth control methods..

The Development Plan is an island-wide plan. That is to say.,
while urban areas appear on the map of tsuggested land uses".
the detail of those areas is lacking. The reason for this is
fairly obvious: Since the proposals focus on agriculture as
the economic base, the agricultural potential of the islands as
A whole becomes the prime consideration. Urban land is simply
assumed. to remain unchanged..

TITLE: Proposed Master Plans of Urban Areas-
Virgin Islands

DATED: February, 1950

AUTHOR: Frank T. Martocci

PAGES: 27, Including Appendix

TIME FRAME: i-98o

SUMMARY:

The crux of the Martocci Plan is housing. To be sure, it
talks of population growth, thoroughfares, commercial areas,
industrial areas, port development, hospitals and so on. But
the plan is aimed. primarily at identifyi-ng those areas where
ftslum. clearance" a-n-d "redevelopment" --- Federal programs that
were new in 1950 --- may be applied locally.

The plan identifies four major problems in the Virgin Islands:
11poor housing, lack of public facilities and services, a low
income level, and. a low standard, of health." It goes on to
indicate two outstanding resources. They are: The architec-
tural heritage (which presumably attracts tourists) and the
availability of Federal money.

The bulk of the plan is a list of specific opinions and recom-
mendations on land, uses and circulation within the urbanized
areas of Charlotte Amalie, Christiansted, and Frederiksted.
Here is an example: "15. Airports:

The present airport at Manning Bay (now Alexander Hamilton)
is of sufficient size to take care of Christiansted as well
as Frederiksted- A location somewhat closer to Christiansted
would, be desirable, but two airports for St. Croix do not
seem warranted.."

In contrast to the National Resources Board Plan, the Martocci
Plan is a "cities-only" plan. It assumes that the remainder
of the islands will stay the same. It does not mention
St. John at alll

Of all the recommendations, those pertaining to housing get
the most detailed elaboration. The plan suggests potential
places for further residential expansion at the urban edges and
it proposes that certain slum areas be cleared to allow new
building within urban areas,

But Martocci goes beyond just designating sites for slum
clearance. He spells out how the projects will be accomplished:
flunder Title III., Public Housing is expected to provide ---
100 acres" In no other instance does the author say how his
recommendations are to be carried out other than "through the
establishment of a Planning agency."

TITLE: The Master Plan for the island, of St. Thomas
and. the town of Charlotte Amalie, Virgin Islands,
United States of America

DATED: JtLnuary, 1958 - (revision of 1954 original)

AUTHOR: Eduardo Baranano

PAGES: 124 with tables plus a separate set of maps
(1'( pages)
TIME FRAME: 1980

SUMMARY:

This is really two separately written plans: One for the
island of St. Thomas and the other for the city of Charlotte
Amalie. The theme, common to both, is Tourism. Or to be
exact: How to encourage the tourist industry through land use
planning.
Starting with the a-s-eumption that "the tourist trade --- will
steadily increase ---" Baranano concludes: "the landscape
constitutes,, indeed, the great asset of St. Thomas." His
plan is a lesson in how to enhance the landscape and create
real estate values.

The author lists about a dozen major recommendations. They are
presented here., refined to their essence:
1. Specify locations for exclusiv *e "tourist residential" uses;
develop tourist estates and hotel areas.

2. Preserve open space; avoid sprawl; build compactly.

3. Provide community facilities in new urban areas in pro-
portion to population.

4. Undertake a general road construction program - build a
by-pass road. around. Charlotte Amalie at the 200 ft. level.

5. Improve public utilities throughout the island.
6. Prepare a soil conservation program.

7. Promote reforestation and terrace agriculture practices.

8. Zone the island in compliance with the Master Plan
(Rural Zoning)

9. Prepare construction program for hotels and guest houses.

10. Encourage local and continental financial institutions in
investing (real estate and housing) in St. Thomas,

11. Prepare six-year Capital Expenditures Program.

12. Protect architecture of downtown area.

13. Rehabilitate and redevelop "obsolete" areas.

Baranano uses population growth estimates that are roughly the
same as those found in the Martocci Plan: A 1960 estimate of
32,200 people in the whole territory and a 1980 estimate of
23,200 people to be residing in St. Thomas. The plan assumes
the yearly rate of population increase to be 2% between
@95'0 and 1970 and 1% thereafter.

TITLE: General Physical Plans St. Thomas, St. John,
St. Croix, Charlotte Amalie, Cruz Bay,
Christiansted., Frederiksted
DATED: July, 1964

AUTHOR: Garold Raff, Jr.., Planner-in-Charge;
Virgin Islands Planning Board

PAGES: 326 with maps and appendices

TIME FRAME: ig8o

SUMMARY:

"General Physical Plans of the Virgin Islands" contains a
series of technical planning'studies (population projection,
economic survey, community structures description.,land value-
analysis, and so on) along with a number of policy recommen-
dations most of which are graphically summarized in the two
land use maps that accompany the document. It is by far the
most technically elaborate of all the comprehensive plans.

The Overall Outline is as follows:

(1) Historical and Biographical Sketch of the Virgin Islands:

A short history of the Virgin Islands with discussion of
present territorial governmental structure.
(2) Geographical Location:

Physical location of the Virgin Islands, its regional
econ6mic and social links to other Carribean Islands and
to the United. States.

(3) Characteristics of Population with Projections of Total
Number:

A detailed breakdown of population into various categories
(nativity., sex., age groups., location by island, etc.);
and. projection of total population to the year 1980,
(4) The Virgin Islands Economy:

Description of the economic structure of the Virgin Islands;
concludes that growth rate of 5% to 7% a year may be
expected through 1980.

(5) Community Structure Physical:

A. Physiographic Features:
Description of topography and soils on each island.

B. Population Distribution:
Present population is broken down by census quarter
and urban area. Then the projected .1980 population
is apportioned. to each quarter and urban area on
basis of topography and expected future land costs.

C. Systems Analysis Utilities:
Summarizes current location., extent and@,cond;Ltion of
water, sewer, facilities; recommends new facilities
based on 1980 population projections.

D. inter-Island Transportation Traffic and facilities:
Establishes current volumes of air and sea traffic
(passenger and cargo) and projects traffic to year
198o_, apong various recommendations is relocation of
Truman Airport to Lagoon area.

(6) *-Private Sector Investment - Land Us-e and Land Value
=naysis:
Plots 1960 land values per square foot for urbanized
areas; correlates.land. values with types of land use;
suggests distribution of types of land use based on ex-
pected future land values.

Community Facilities:

Specific recommendations as to capacity., extent and, loca-
tion., of education., health, social welfare,, recreation and
public safety facilities.

While the title seems to imply a collection of plans or at
least more than one plan, really the document is a single unit.
Specific recommendations pertaini-ng,,.to, geographical areas
(each island for example) occur within every chapter, Unlike
Barananofs approach which clearl-y- =Hs inguishes islands and
urban areas and. provides separate plans for each, General
Physical Plans conglomerates various geographical areas under
a single topic. If anything, the last..chaptex of the plan
might be considered as a general plan element (the community
facilities element). Or the sub-chapter on utilities might also
be considered as an element. But the document as a whole is
written as a single integrated plan.

CONCLUSIONS

So much for the individual plan summaries. Now what

lessons do these past plans teach and how can we apply them

in producing a brand new plan? What appears to be the major

short-comings and strengths of these documents when we view

them collectively in retrospect?

Perhaps the most obvious feature of the plans is that
(with the exception of the most recent one) they are the work

of outside consultants. Of course,, the consultants had to

study the local situation and familiarize themselves with

local problems. Naturally., they had to discuss these problems

with local people and they had to make numerous site visits.

Yet it is very apparent that the orientation of the resulting

document depended on who it was written for. In short., each

consultant had a specific audience toward whom he focused his

ideas.

With Bartlett, the audience was the National Resources

Planning Board, a wartime creation whose primary objective

was the efficient use of natural resourc es and manpower.

Accordingly, Bartlett's major concern was that the

Virgin Islands should not be a drain on the United States

Treasury. Similarly Martocci and Baranano have audiences too.

Martocci the Housing Authority., and Barana-no a newly formed
Planning Board., eager to develop the (tourist trade) economy

of the territory. The point is that whenever outside consul-

tants are relied upon., the scope of their final document tends

to coincide with the interests of the agency that hired them,

A second feature common to all the plans (except for
Bartlett) is that they are "growth-accommodating" or Irgrowth-
inducing" plans. The presumption in all cases is that the

Virgin Islands will experience a substantial rate of economic

and population growth in the future and that it must be

accommodated.. The purpose of the plans- centered on how to

physically accommodate all the activities with the least amount

of friction. Nowhere are any concepts of limitations to growth

introduced. The only plan which does not presume future growth

is the Bartlett Plan. Its aim is to show how to stabiliz'o@

the population relative to the land resources. In this se'nse_,

the Bartlett plan is the only one that directly addresses the

question of envir.onment-population balance.

Thirdly., each of the comprehensive plans had to grapple

with both regional and local issues simultaneously. Generally.,

the authors chose to emphasize one over the other. For

example., Bartlett is really a regional plan. He gives no detail

about what specific urban areas would contain or how they

would be arranged physically. Martocci., on the other hand,,

deals only with urban areas.

One of the better characteristics of the Baranano Plan is

that the author divided it into separate regional and local

plans. This has a couple of important consequences:

First_, it makes the plan easier to comprehend by the reader.

Those features that are of territory-wide interest are placed

together and those of purely local interest are together.

Second, it makes updating and changing the plan a lot simpler.

It is possible for instance to make minor adjustments in

specific local plans without altering the basic regional plan.

It is difficult, if not impossible to evaluate the total

impact of these previous comprehensive plans on the

Virgin Islands. Many of the recommendations have been carried

out. But just as many have not. And, of course, it is not

possible to say with certainty that a particular recommendation

was accomplished, because of the plan. In other words, there is

often"no direct way to interpret cause And. and effect relation-

ships.

Perhaps what can be said. is tha@t,, taken altogether, these
plans form a "tradition" of comprehensive planning in the

Virgin Islands. By coincidence, plans have been prepared
every ten years: To be exact 1943,1954, and 1964. Most

important., their preparation required the involvement and

cooperation of numerous Virgin Islanders coming together to

reflect on the future of the Territory. It is primarily in

this sense that these previous comprehensive plans have set

a long-range pattern.

ICURRENT
PLANNING
LAWS

One of,the most important results that can be attributed

to the previous comprehensive plans has been the codification of

r7
the planning process, This was accomplished in 1970 by Act 27(4

which added a new Chapter to Title 3 of Virgin Islands Code.

In its entirety, the added chapter creates the Virgin Islands

Planning Office and specifies its organizational structure. It

also provides broad guidelines for the preparation of compre-

hensive plans and development programs.

Regarding the authority and responsibility of the Planning

Office, the Code is quite explicit, In particular, the

comprehensive planning function is outlined in detail, Rather

than attempt to paraphrase the law, we will simply present it
as itappears (3 V.I.C. Chapter 2):
3

935@ Virgin Islands Comprehensive Plan

(a) The Governor, through the Planning Office, shall
prepare, and upon legislative approval, -i-ssue and have in-
continuous process of revision., the long-range comprehensive
plan based. on studies, plans., needs and operations of -every
department_, agency and institution of the Government of the
Virgin Islands, and, the Federal Government, taking into account
the existing and prpspectiVe resources and capabilities of
the territorial goy'iernment-.- The comprehensive plan shall.
identify and stress island-wide goals, objectives and, oppor-
.tunities.

(b) The comprehensive plan shall provide long-range
guidance for the physical, economic and social development
of the Virgin Islands and shall include, but not be limited
to the following:
(1) population and, economic analysis with pro-
jections for each Island and major population area
of the Virgin Islands;

(2) general land use policies for urban deve-
lopment, agriculture, industry., recreation, beaches
and shorelines, sand. removal, open space., and other
purposes;
(3) policy and goals for housing and urban
renewal;
(4) policy for the balanced development of air-
port, highway., and. public transportation facilities;
(5) policy for health services, manpower plan-
ning, employment opportunities,, education,, elimina-
tion of poverty., law enforcement,, and other programs;
(6) projection of needs for public facilities.,
including but not limited to., headquarters and
Island office buildings, colleges, health and welfare,
and correctional institutions;
(7) recreation and open spaces for government
facilities, major local facilities., and Federal
recreation areas;
(8) inventory and appraisal of the Virgin Islands
natural resources setting forth policy for their pru-
dent exploitation, conservation, and replenishment; and
(9) policies for intragovernmental relations and
governmental structure.

(�35 Conit.)

(c) The comprehensive plan and revisions thereof shall
be transmitted to the Legislature for its consideration and
action. They shall be referred to committee as provided in
section 39 of this chapter. The plan and revision thereof., when-
approved by the Legislature., shall become effective as governmen-
tal policy.

936. Long-Range Functional Plans
(a) The Planning Office may prepare, or cause to
be prepared, and issue on behalf of the Governor, a series of
long-range functional development plans relating., but not
necessarily limited to outdoor recreation., water resources.,
transportation, housing., education., economic development,
health services and facilities,, employment,, poverty, manpower
planning., and other broad areas of governmental responsibility.
(b) To assist in the development of plans and'pro-
grams of the Government., the Governor., through the Planning
Office., may direct each department., agency., and institution
of the Government to designate from among its employees and
officers., a planning officer or representative who shall be--
responsible for the planning and coordination of the activi-
ties and responsibilities of the department., agency or
institution. Such planning officer or representative shall
coordinate program plans prepared for each area of program
responsibility within his agency.
(c) Long-range functional plans and revisions there-
of shall be transmitted to the Legislature for its considera-
tion and action. They shall be referred to committee as pro-
vid6d in section 39 of this chapter. The plans and revisions
thereof, when approved by the Legislature., shall become ef-
fective as governmental policy.

Now what are the major implications of this law?

They may be summarized as follows:
FIRST: The Planning Office is expected to collaborate fully

with all branches and all levels of government. The law re-

cognizes that it is virtually impossible to plan without a

firm knowledge of the practical difficulties encountered by
other government agencies. To do so would be to operate in a

vacuum and thus render any planning efforts less than adequate.
"Keep in touchl" that is the first message.

3.8

SECOND: The Law plainly emphasizes the role of the Planning

Office to suggest and'promote public policies. It is expected

that analysis of existing trends in population size..'social

interaction_, and economic conditions will lead toward clear-cut

policy guidelines,, and that such guidelines will serve to give

direction to both the executive branch and to the Legislature.

Above all, the policies must fairly reflect the goals of

Virgin Islanders on the one hand and the potentials of the

.environment setting on the other.

THIRD: The language of the code emphasizes a functionally-

oriented approach to comprehensive planning. It stresses the

importance of identifying the inter-relationships between, say,

community heeUth needs and transportation services. In addi-

tion., an island-wide perspective is encouraged. The comprehen-

sive plan is a regional as well as a local plan.

TO SUM
UP: The legal mandate for comprehensive planning in the

Virgin Islands is broad and far-reaching. It recognizes the

necessity for collaborative effort in its accomplishment; it

stresses the role of the Planning Office as a policy-formulating

and policy-evaluating instrument; and it emphasizes the need to

approach planning organically--seeing the parts in relation to

the whole.

3.9

PLANNING
OFFtCE
QUESTIONS

Since the completion of General Physical Plans in 1964.,

the focus of the Virgin Islands Planning Office has been

concentrated on practical measures designed. to implement the

major recommendations of the plan. In particular, the Planning

Office was responsible for writing and recommending the present

Zoning Law and for preparing various land use planning reports.

These reports include a vehicle parking study for the town of

Frederiksted.., St. Croix and development plans for Estate

Bordeaux and Estate Nazareth on St. Thomas.

In the last ten years, the Virgin Islands have experienced

rapid growth in both population and economic activity. It is

.generally felt by the Planning Office and by various citizens
4

groups that the time is nbw ripe to update the 1964 plan.

Moreover, the revision of the Virgin Islands Code (referred, to
in the preceding section) provides a clear mandate to the

Planning Office to take the lead. in updating and otherwise

revising the comprehensive plan.

With these considerations in mind., the staff of the

Planning Office convened in early March of this year to discuss

how to proceed with the task of comprehensive planning. Prior

to the meeting each staff member received the list of questions

that is reproduced here on pages 21 and 22

21 -

DEVELOPING A COMPREHENSIVE PLAN FRAMEWORK
FOR THE UNITED STATES VIRGIN ISLANDS

Questions for Discussion

SCOPE OF THE PLAN:

1. What basic functional content areas should the
Comprehensive Plan include?

2. What time frame is appropriate? Year 2000?

GENERAL APPROACH TO PLANNING:

1. What emphasis should b.e,..gi,v,en to Ejannipg p
_r9cess
and what to concrete documents?

2. How are such non-technical inputs as goals,,
objectives, strategies to be decided upon?

3. How to integrate technical and non-technical inputs?

4. Who are the persons or groups most interested in
doing planning? How should their input be evaluated?
MEW incorporated into the Plan?

5. How can the Planning process be coordinated (especially
among agencies)?

PLAN PURPOSES:

1. Who are the likely Comprehensive Plan users?

2. What purposes may the Plan serve for its various
users?

3. In general, should the Plan propose specific solu-
tions or merely suggest alternatives?

PLAN FORMAT:

1. What is the best method of expressing various kinds
of information or ideas?

2. How does the form of the Plan relate to its purpose(s)?

36 What is relative utility of written document vs three-
dimensional modes or other more visual means of ex-
pression?
4. What role could computers play in providing a useful
format?

5. How fixed or how flexible should. theform be?

CONTENT EMPHASES:

1. Should Plan stress specific problem areas and
potential q9lutions? Or should it, stress larger
societal issues?

2. What problems or issues stand out as most pressing?
3. How can the Plan best express a concern for "Caribbean
Planning?"

4. What emphasis should, be given to regional planning
and what to local?

5. What relative stress should be given to planning
techniques and what to recommendations?
6. Who should handle what content areas? Which persons
or agenciesshould be responsible for what?

LEVEL OF DETAIL:

1. How detailed should. the Comprehensive Plan be?

2. How to treat entire islands and urban areas--simul-
taneously? Separately?

The rest of this section is a summary of the discussion

that occurred. It is structured. to fit the format of the ques-

tion sheet.

SCOPE OF THE PLAN:

It was the general opinion that more than a simple updating

of figures and numerical projections is needed. Instead, the

task should, be viewed as starting afresh.with a new comprehen-

sive plan, retaining the good.,features of previous plans but

ignoring the out-of-date portions. The content areas which the

plan addresses would be those outlined in the law;. namely.,

economic, social, and physical development. However., more

emphasis should be placed. on an integrated presentation of

policies and ideas. The possibility of doing area development

plans as well as functional plans was discussed. Overall_, the

feeling of the staff was that 2000 A.D. as a target date was

not unreasonable, although it should be very clear to anyone

reading the plan that projections for a twenty five.year period

are not very reliable.-

GENERAL APPROACH:

There was unanimous agreement on the fact that comprehensive

planning must include the opinions and ideas of all the people

of the Virgin Islands. Planning that is not in touch with

people is a sterile and useless technical exercise.. The approach

to planning therefore must recognize the importance of citizen

inputs and provide for adequ ate means of their incorporation.

- 24

PLAN PURPOSES:

There are two basic purposes of comprehensive planning.

First, the plan is a vehicle for the expression of citizen

@ideas and second, it is a guideline for use by public officials

in decision making. The comprehensive plan is a public expres-

sion of policy. This means, therefore., that the policies must

be written in.clear, concise, unequivocal language.

PLAN FORMAT:

The format should be easy to use, In particular there

should be ample cross-referencing so that people may find

information rapidly. The entire plan would be contained in a
series of volumes (elements) and the key volume would be a

concise summary of goals, objectives, and policies found in the

other volumes.

CONTENT EMPHASIS:

There was substantial agreement that thecomprehensive plan

should address the problems confronting the Virgin Islands in
the areas of (1),population growth (2) economic dependence
and (3) environmental quality. Problem definition should be

a major part of the planning process. It,is particularly im-

portant that every citizen have the opportunity to give his

input into the definition of problem areas.

!EVEL OF DETAIL:

Since it was suggested that the format of, the comprehensive

plan would be a series of documents, level of detail would.

present no difficulty. A single element could be either very

general or very specific depending on how much information was

available.

CHARTING
A NEW
CDURSE,@.

The main thrust of this-r@@i-pbrt is to siAggest how we can

begin a systematic look at.the future of the Virgin Islands.
So far, we have reviewed the:@-methods that have been used in

the past and essayed their,results. It is time now to chart

a possible future course of action that builds upon both past

experience and present needs.

In this final section_, we wish to develop a preliminary

program design. As we said earlier., this is not to be viewed

as a rigid unalterable blueprint. It is more like a sketch

plan that outlines the major features and. suggests how they

might relate to one another. As the comprehensive planning

process unfolds., the design will be revised. and refined and

revised again. In short, the program design is flexible to
5

meet changing ideas and new demands.

26 -

A central concept used in laying out the design has been

to sepa rate those program components that are mostly technical
from those that are mostly "directional". If the previous

comprehensive plans have demonstrated anything_, it is that

planning technique may be well-suited to developing alternatives,,

but only informed. human judgement can select among alternatives..

It is this judgemental quality that we have termed "[email protected]%

In addition to dividing the program components on the basis

of technical and directional inputs.,.,we have also 1ndicated the

approximate time frame in which the components should be

accomplished. The major reason for specifying the time frames
(or phases) is that at certain critical points,,in the comprehen-
sive p@lanning process it is necessary to "coordinate" the two

types of inputs. It is like periodically letting the left

hand know what the right hand is doing.

As we presently envision it, the phasing would be done along

the following lines:

PHASE 1 is the gearing-up time. The technical work

would involve the gathering of information and making of

preliminary projections. Citizen groups and interested.

.individuals as well as official advisory bodies would be

contacted. It is estim&ttd that this start-up period would

last four months.

PHASE 2 represents the first attempt at coordination of

inputs. At that time., the Planning Office will present its

preliminary findings and receive comments from citizen

groups. This phase should take no more than a month to complete.

2-(

PHASE 3 involves the preparation and circulation of a

preliminary comprehensive plan for the VirgLn Islands, It

is anticipated that the proposed plan would receive the

widest possible public exposure. Comments and responses

would be recorded, and where feasible, included in the re-

vised. document. Altogether this phaae would last seven

months.

PHASE 4 is the final revision of the Comprehensive Plan

and its submission to the Governor and Legislature. This can

be accomplished in about six months.

In sum, it is anticipated that the development of a new

Comprehensive Plan for the Virgin Islands will require

eighteen months to complete. Figure 2 on the following two

pages is a diagram showing the overall flow of the comprehen-

sive planning process:. It also indicates the major activities

that must be accomplished within each phase.

The remainder of this section gives a more detailed descrip-

tion of each of the job components of the program. The format

that we use gives: The name of the component and a short

description, the participants' responsibilities, and the expected

product or outcome. The numbers assigned to each job component

are keyed to the flow diagram in Figure I

FT GURE I

PHASE PH A S E 2

.1,3 2rl
Develop,opportuni- Where necessary Identify basic
ties for maximum define structura3l problem areas
citizen participa- and organization- confronting the 2.-D.
tion. al framework for Virgin Islands.
citizen input. FIRST ADJUSTMENT

(a) identify
gaps in data

(b) suggest al.
ternative strat-
lo2 egies
Begin working on, (c) formulate
basic inventories goals and objec-
tives
(a) review of
current plans (d) specify for-
mat of document
(b) inventory
of land use 1.4 2.2
Policies I I
(c) data col- Make prelimj'nary Present prelimi-
lection population and nary findings.
economic projec-
tions, J

'28

FIGURE I (Cbntt.)

PHASf- 3 PHASE 4

3.2 4.2
Maxiinum. possible Legislative action,
public circulation
and comment.

3.3.

SECOND ADJUSTMENT

(a) where nec es-
sary., select al-
ternatives

(b) further re-
fine goals, bb-
jectives, strat-
3.1 egies. 4,1
Prepare and present-
preliminary Compre- Complete final
hensive Plan incor-_ comprehensive
porating ideas and plan document,-----,
suggestions from
FIRST ADJUSTMENT.
Where ideas dif-fer,
prepare alterna-'
__J@tLives

-.30

COMPONENT TITLE: Inviting Citizen Participation

COMPONENT NUMBER: 1.1

DESCRIPTION: There are numerous existing organized

citizens groups that have an interest

in comprehensive planning,, There are also

official advisory commissions and citizens

at large who have an interest. The pur-

pose of this component is to identify all

.interested persons and to extend an invi-

tation to participate.

RESPONSIBILITY: 'At first., the major responsibility will rest

with the Planning Office. At later phases

it will be a joint effort among various

citizens groups.

PRODUCT OR OUTCOME: (1) List of citizen participants.
(2) Accumulation of suggestions and ideas
for organizing the planning process.
(3) News releases and perhaps newsletter.

31 -

COMPONENT TITLE., Basic Inventories

COMPONENT NUMBER: 1.2

DESCRIPTION: Inventories will include policies and plans

as well as factual information. Basic

data will include: population., soils., and

topography., economic data,, transportation,

environmental hazards, and so on. Inven-

tories will then be put-in tabular or

graphic format.

RESPONSIBILITY: Planning Office will coordinate with other

government agencies to gather information

that is not already available.

,PRODUCT OR INCOME: Information will be used as input in compo-

nent 1.4 and 2.2.

- 32

COMPONENT TITLE: Organizational Framework for Citizen
Input

COMPONENT NUMBER: 1.3

DESCRIPTION: The basic purpose of this component is to

encourage communication on a regular basis

among all groups and persons interested in

comprehensive planning. It also involves

the co-ordination of Planning Office staff

work and citizen inputs.

RESPONSIBILITY: Planning Advisory Board and Senate Committee

on Housing., Planning and Consumer Affairs

with assistance of Planning Office Staff.

PRODUCT OR OUTCOME: Regular newsletter, meetings to identify

problems.

COMPONENT TITLE: Preliminary projections

COMPONENT NUMBER: 1.4

DESCRIPTION:, This is the point at which the data gathering

by the technical staff is us-ed to project

future patterns. Not only will population

and economic activity be projected, but also

policies with respect to land use will be

projected also. This will allow for an analysis

of conflicting policies.

RESPONSIBILITY: Planning Office Staff.

PRODUCT OR OUTCOME: Material to be used in component 2.2.

33 -

COMPONENT TITLE: Problem Identification

COMPONENT NUMBER: 2.1

DESCRIPTION: This represents the culmination of an

"idea-gathering" campaign where citizens

are encouraged to express what they foresee

as present and future problems in the

Virgin Islands.

RESPONSIBILITY: Planning Advisory Board and/or other citizens

groups*

PRODUCTOR OUTCOME: (1) A written document listing all relevant
comments.

(2) Newspaper coverage.

COMPONENT TITLE: Preliminary findings

COMPONENT NUMBER: 2.2

DESCRIPTION: Presentation by Planning Office Staff to

all interested citizens groups of the
analysis performed in component 1.4..

The format of presentation will depend on

the amount and nature of material to be

covered.

RESPONSIBILITY: Planning Office Staff.

PRODUCT OR OUTCOME: Possible products might include a slide

show or written document.

COMPONENT TITLE: First adjustment

COMPONENT NUMBER 2.3

DESCRIPTION: This is the first point in..the planning pro-,

cess where the citizen groups and technical

staff compare,notes. The purpose of the ad-

justment is to elicit as much comment as

possible concerning the technical work.

Specifically., it is the time when gaps in

data will be identified., alternative planning

strategie's will be discussed., goals and

objectives will be reformulated and the

phy sical format of the do'cument will be

specified.

RESPONSIBILITY: Joint effort of Planning Office and citizen

groups.

PRODUCT OR OUTCOME: The information serves as input into compo-

nent 3.1.

- 35

COMPONENT TITLE: Preliminary Comprehensive Plan

COMPONENT NUMBER: 3.1

DESCRIPTION: Incorporating the inputs from previous

component., Planning Office Staff prepares

a preliminary comprehensive plan document.

The document should be similar in all

respects to the anticipated final document.

RESPONSIBILITY: Planning Office Staff and planners from

other government agencies.

PRODUCT OR OUTCOME: A preliminary comprehensive plan and a

summary of the plan for news releases and

circulation purposes,

COMPONENT TITLE: Circulation of Preliminary Plan

COMPONENT NUMBER: 3.2

DESCRIPTION: The Preliminary Plan and the summary will

be widely publicized in all news media,

including radio., television, newspapers.,

magazines., etc. In addition., the Planning

Office Staff will prepare a presentation

for interested groups.

RESPONSIBILITY: Planning Advisory Boardcitizen groups,

news media.

PRODUCT OR OUTCOME: It is expected that at least-half of the

Virgin Islands residents will be aware

of the preliminary plan and its meaning.

- 36 -

COMPONENT TITLE: Second adjustment

COMPONENT NUMBER: 3.3

DESCRIPTION: If the preliminary plan was in the form of

a comparison of alternative futures, this

adjustment would be the opportunity for

selection of alternatives. Moreover.., it is

anticipated that in the general public

dicussion of the preliminary plan., suggestions

for refining goals and objectives will be

forthcoming.

RESPONSIBILITY: -Planning Advisory Board and citizen groups.

PRODUCT OR OUTCOME: The results of the adjustment serve as in-

puts into the final plan preparation.

COMPONENT TITLE: Final Comprehensive Plan

COMPONENT NUMBER: 4.1

DESCRIPTION: Planning Office Staff assembles all

suggested changes in the preliminary plan

and re-writes document.

RESPONSIBILITY: Planning Office Staff.

PRODUCT OR OUTCOME: Final Comprehensive Plan document plus all,

background documents.

COMPONENT TITLE: Legislative action

COMPONENT NUMBER: 4.2

DESCRIPTION: Plan is formally submitted to the

Virgin Islands Legislature for its review

and consideration. Planning Office Staff

and citizens will be prepared to testify.

RESPONSIBILITY: Planning Advisory Board, Governor's Office.

OUTCOME: An officially adopted ccmprehensive plan

for the Virgin Islands.

SUMMARY:

The possible ways of approaching cDmprehensive planning are

many. In this program design we have outlined one such

approach that appears workable and well-suited to the

Virgin Islands. Pur major emphasis is directed at engaging

the fullest citizen involvement. The concern for ample

citizen input and guidance stems from our review of previous

comprehensive plans and from the general tenor of the present

law pertaining to the planning process.

Basically:.-the program concept invblves successive refinement

of,ideas. Inputs are bounced back and forth between technical

planning staff on the one hand and citizen groups on the other.

As a result, the end product (which we hope can be achieved
within a year and a half)'should reflect a well-rounded and

carefully constructed point of view.

GAYLORD.No. 2333 PRI%'TED @'U S A

3 6668 4107 17 33