These examples of incompatibility fall into several broad categories: 1. Conflicts in overall development objectives and policies among governments or agencies resulting from no clear policies being formed.

2. Development policy conflicts resulting from disagreement. 3. Conflicts resulting from maldistribution of information concerning the plans and actions of other agencies or jurisdictions. 4. Conflicts due to an inadequate understanding of the impacts of various public actions.

5. Conflicting projections engendering separate actions. Several ameliorative actions other than metropolitan planning have been attempted for some of these areas of conflict. These actions, including special State study groups, and functional districts, have had varying degrees of success. But because most of them are either ad hoc undertakings or only directed at specific functional conflicts, complete coverage of all facets of metropolitan development has not occurred on a continuing basis. While metropolitan planning probably will not be able to enforce its recommendations regarding conflicts of this nature, review over local government and operating agency plans should eliminate some of the policy inconsistencies. The agency's provision of a long-range educational program and reports analyzing the consequences of uncoordinated actions and the way in which they might hinder the attainment of area objectives, can guide authorized decisionmakers in selecting more effective policy. The planning body can also make a substantial contribution through its function as coordinating analyst and disseminator of pertinent information.

D. Misapplication of funds based on faulty assumptions.-Inaccurate population and economic growth projections followed by anticipatory public investments may not only be an inadvisable public expenditure, but might yield unanticipated, adverse consequences for local jurisdictions as well as the metropolitan area. These inaccuracies can be avoided at least partly by using properly trained personnel utilizing sufficient information; however, this is a condition which usually cannot be met by local governments or operating agencies which are often so involved with short-range action projects that they do not have the time to properly devote to these studies. A metropolitan agency would be a more suitable recipient for such studies and would guarantee the necessary continuity for such studies which must be continually revised to facilitate flexible action programs.

MISLOCATION OF INDUSTRIAL DEVELOPMENTS

The adverse consequences of industrial mislocation may be assayed from several viewpoints: that of the entrepreneur, the local governments, and the metropolitan area. The competition for industry between the center city and the suburbs is quite common in many metropolitan areas. The property tax obtained from this development, after all, contributes heavily to meeting local expenses. While the movement of industry within the metropolitan area does not change the overall sum of employment, ratables, and investment, it can have substantial repercussion for local units and even for the larger area. The pattern of industrial dispersal affects residential and commercial patterns as well as trip generation throughout the area.

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Finally, the satisfaction of industrial demands is extremely important because metropolitan areas must compete with each other for these industries.

Industries choose inappropriate locations because of:

1. Inadequate or improper information.

2. Short-run distortions in the market, i.e., unsettled labor conditions at preferred locations, which create opportunities for large, short-run profits.

3. Business complicity for a tax loss or unfair competition.

4. Special inducements by local or State governments to so alter the location calculus that unwise choices are made, e.g., writedown on land, tax incentives, etc.

Metropolitan planning can specifically aid in (1) and (2) by supplying a necessary analysis and a statement of the consequences of such action, to guide both local authorities and the entrepreneur. Of course, (3) and (4) can only be analyzed as to their consequences to overall development objectives-and such reports can be brought to the attention of proper government authorities for their consideration.

THE NEED TO FORMULATE REALISTIC GOALS

The most significant contribution metropolitan planning can make is to assist in the formulation of realistic objectives. Metropolitan research and analysis is essential to recognizing realistic aims for the total area and its several components. The agency's feedback studies of existing public programs and the effect that they may have in determining the possibility of goal achievement can serve decisionmakers in selecting more effective programs. The ultimate value of metropolitan planning will be measurable only after it has been given an opportunity to operate effectively over a reasonable period of time.

APPENDIX C

SUGGESTED LEGISLATION FOR METROPOLITAN AREA PLANNING BODIES, DRAFTED BY THE COUNCIL OF STATE GOVERNMENTS

[Title should conform to state requirements. The following is a suggestion: "An act providing for the establishment of metropolitan area planning bodies."]

(Be it enacted, etc.)

Section 1. Purpose. The legislature recognizes the social and economic interdependence of the people residing within metropolitan areas and the common interest they share in its future development. The legislature further recognizes that plans and decisions made by local governments within metropolitan areas with respect to land use, circulation patterns, capital improvements and the like, affect the welfare of neighboring jurisdictions and therefore should be developed jointly. It is, therefore, the purpose of this act to provide a means for: (1) formulation and execution of objectives and policies necessary for the orderly growth and development of the metropolitan area as a whole; and (2) coordination of the objectives, plans and policies of the separate units of government comprising the area.

Section 2. Creation of a Metropolitan Area Planning Commission. A metropolitan area planning commission may be established pursuant to the following procedures:

(a) Two or more adjacent incorporated municipalities, two or more adjacent counties, or one or more counties and a city or cities within or adjacent to the county or counties may, by agreement among their respective governing bodies, create a metropolitan area planning commission, provided (1) that in the case of municipalities and cities, the largest one within the metropolitan planning area, as defined in Section 3, shall be party to the agreement; and (2) that the number of counties, cities, other municipalities, townships, school and other special districts or independent governmental bodies party to the agreement shall equal 60 percent or more of the total number of such counties, cities and other local units of government within the metropolitan area, as defined in Section 3. The agreement shall be effected through the adoption by each governing body concerned, acting individually, of an appropriate resolution. A copy of such agreement shall be filed with the [chief state records officer], [state office of local affairs] and [state planning agency].

1

(b) Any city, other municipality or county may, by legislative action of its governing body, transfer or delegate any or all of its plan

1 Particular states may find it appropriate and desirable to require fewer kinds of local units of government to be initial parties to the agreement, thereby reducing the total number needed for establishment of a commission under this act.

ning powers and functions to a metropolitan area planning commission; or a county and one or more municipalities may merge their respective planning powers and functions into a metropolitan area planning commission, in accordance with the provisions of this act.

Any additional county, municipality, town, township, school district or special district within the metropolitan planning area, as defined in Section 3, may become party to the agreement.

Section 3. Designation of a Metropolitan Planning Area. "Metropolitan area" as used herein is an area designated as a "standard metropolitan statistical area" by the U.S. Bureau of the Census in the most recent nationwide Census of the Population. The specific geographic area in which a metropolitan area planning commission shall have jurisdiction shall be stipulated in the agreement by which

it is established.

Section 4. Membership and Organization. Except as provided below, membership of the commission shall consist of representatives from each participating government or stipulated combinations thereof, in number and for a term to be specified in the agreement. Such representatives shall consist of elected officials, except that the Commission may appoint not to exceed [ ], members from the general public, such members to have demonstrated outstanding leadership in community affairs. A representative of the state government may be designated by the Governor to attend meetings of the commission. Members of the commission shall serve without compensation, but shall be reimbursed for expenses incurred in pursuit of their duties on the commission. The commission shall elect its own chairman from among its members, and shall establish its own rules and such committees as it deems necessary to carry on its work. Such committees may have as members persons other than members of the commission and other than elected officials. The commission shall meet as often as necessary, but no less than four times a year.

The commission shall adopt an annual budget, to be submitted to the participating governments which shall each contribute to the financing of the commission according to a formula specified in the agreement. Subject to approval of any application therefor by the [appropriate State agency], a metropolitan area planning commission established pursuant to this act may make application for, receive and utilize grants or other aid from the Federal Government or any agency thereof.3

Section 5. Director and Staff. The commission shall appoint a director, who shall be qualified by training and experience and shall serve at the pleasure of the commission. The director shall be the chief administrative and planning officer and regular technical advisor of the commission, and shall appoint and remove the staff of

2 Particular states may find it appropriate and desirable to apply a somewhat different definition from this, tailored to their particular circumstances. For example, a 1961 enactment in Colorado (H.R. 221) defines a metropolitan area as "a contiguous area consisting of one or more counties in their entirety, each of which has a population density of at least 15 persons per square mile." Other quantitative factors may be used in a metropolitan area definition, such as percentage of county residents employed in the central city.

3 Consideration should also be given to providing for state aid either by making such a commission an eligible agency to apply for and receive state aid or by providing that local governmental units party to the agreement may apply for such aid on behalf of the commission.

the commission. The director may make agreements with local planning agencies within the jurisdiction of the metropolitan area planning commission for temporary transfer of joint use of staff employees, and may contract for professional or consultant services from other governmental and private agencies.

Section 6. Powers and Duties. The metropolitan area planning commission shall:

(a) Prepare and from time to time revise, amend, extend or add to a plan or plans for the development of the metropolitan area. Such plans shall be based on studies of physical, social, economic and governmental conditions and trends, and shall aim at the coordinated development of the metropolitan area in order to promote the general health, welfare, convenience and prosperity of its people. The plans shall embody the policy recommendations of the metropolitan area planning commission, and shall include, but not be limited to:

(1) A statement of the objectives, standards and principles sought to be expressed in the plan.

(2) Recommendations for the most desirable pattern and intensity of general land use within the metropolitan area, in the light of the best available information concerning natural environmental factors, the present and prospective economic and demographic bases of the area, and the relation of land use within the area to land use in adjoining areas. The land use pattern shall include provision for open as well as urban, suburban, and rural development.

(3) Recommendations for the general circulation pattern for the area, including land, water and air transportation and communication facilities, whether used for movement within the area or to and from adjoining areas.

(4) Recommendations concerning the need for and proposed general location of public and private works and facilities, which by reason of their function, size, extent or for any other cause are of a metropolitan as distinguished from purely local concern.

(5) Recommendation for the long-range programming and financing of capital projects and facilities.

(6) Such other recommendations as it may deem appropriate concerning current and impending problems as may affect the metropolitan area.

(b) Prepare, and from time to time revise, recommended zoning and subdivision and platting regulations which would implement the metropolitan area plan.

(c) Prepare studies of the area's resources, both natural and human, with respect to existing and emerging problems of industry, commerce, transportation, population, housing, agriculture, public service, local governments and any other matters which are relevant to metropolitan area planning.

(d) Collect, process and analyze at regular intervals, the social and economic statistics for the metropolitan area which are necessary to planning studies, and makes the results of such collection processing and analysis available to the general public.

(e) Participate with other government agencies, educational institutions and private organizations in the coordination of metropolitan research activities defined under (c) and (d).