City of Heath
2008 Comprehensive Plan
Communities thrive
because they have reason
for being…When the reason
to exist endures, a
community can change and
adapt to the societal
evolution that inevitably
occurs…Regardless of their
founders’ reasons for
creating them, the great
places (e.g., cities,
communities) of the world
have survived because they
fulfill the commercial, social,
and psychological needs of
their citizens.
Source: Kenneth B Hall & Gerald A. Porterfield –
Community By Design, What Is Community Design
Anyway?, page 5
Chapter 5
Land Use Strategy
City of Heath
2008 Comprehensive Plan
Table of Contents
Introduction ....................................................................... 5-1
Existing Land Use Characteristics ....................................... 5-3
Summary from The Snapshot of the City .............................................................................................. 5-3
Figure 5-1: Percentages of Total Land for Generalized Land Use Types in 2001 and 2007 ...............5-3
Land Use Plan – Categories & Map ..................................... 5-5
Land Use Categories ............................................................................................................................ 5-5
Table 5-1: Land Use Types & Descriptions .........................................................................................5-5
Town Center ......................................................................................................................................................5-7
Mixed Use Park .................................................................................................................................................5-7
Plate 5-1: Land Use Plan Map ................................................................................................. 5-8
Mixed Use Residential.......................................................................................................................................5-9
Mixed Use Non-Residential ...............................................................................................................................5-9
Land Use Categories & Related Calculations..................................................................................... 5-10
Table 5-2: Land Use Types & Calculations .......................................................................................5-10
Population Growth & Capacity ............................................. 5-11
Population Projections ........................................................................................................................ 5-11
Table 5-3: Heath Population Estimates & Growth Rates ...................................................................5-11
Table 5-4: Permits Issued Annually...................................................................................................5-11
Table 5-5: Population Projections .....................................................................................................5-12
Population Capacity – City Limits & ETJ.............................................................................................. 5-12
Table 5-6: Ultimate Population Capacity – Heath Current City Limits & ETJ......................................5-13
Land Use Policies .............................................................. 5-15
Non-Residential Land Uses ................................................................................................................ 5-15
Retail Uses ......................................................................................................................................................5-15
Residential Uses ................................................................................................................................. 5-17
Residential Diversity ........................................................................................................................................5-17
Residential Density..........................................................................................................................................5-17
Existing Neighborhoods...................................................................................................................................5-19
Chapter 5: Land Use Strategy
Page 5-i
City of Heath
2008 Comprehensive Plan
Mixed Use Development ..................................................................................................................... 5-19
Town Center Concept ..................................................................................................................................... 5-19
Mixed Use Land Uses on the Land Use Plan Map .......................................................................................... 5-20
Lakefront Access/Redevelopment ...................................................................................................... 5-22
Procedural Land Use Policies ............................................................................................................. 5-23
Rezoning Decisions ........................................................................................................................................ 5-23
Effective Use of the Land Use Plan Map......................................................................................................... 5-24
Ultimate Population Capacity.......................................................................................................................... 5-24
Chapter 5: Land Use Strategy
Page 5-ii
City of Heath
2008 Comprehensive Plan
Introduction
The right of a municipality to coordinate growth is rooted in its need to protect the health, safety and
welfare of local citizens. An important part of establishing the guidelines for such responsibility is the
Land Use Strategy, which establishes an overall framework for the preferred pattern of development
within Heath. Specifically, the Land Use Strategy designates various areas within the City for particular
land uses, based principally on current land uses and the community’s vision for its future.
The Land Use Strategy is graphically depicted for use during the development plan review process with
the Land Use Plan Map (Plate 5-1, page 5-8), the Land Use Strategy should ultimately be reflected
through the City’s policies and land development decisions. It is important to note that the Land Use Plan
Map is not a zoning map, which deals with specific development requirements on individual parcels. The
zoning map and changes in zoning should, however, be based on the Land Use Plan Map and the related
policies within this Land Use Strategy. In general, the Land Use Strategy is intended to be a
comprehensive blueprint of Heath’s vision for its future land use pattern.
Heath has become known as one of the premier cities in the Metroplex in which to live. The City has
experienced much residential development in the last ten to 15 years. However, a balance of land uses is
needed, as are policies to ensure that Heath remains a highly livable and sought-after community. The
opportunity to make Heath a unique and sustainable community is now, when a significant amount of land
remains such that it can be developed in a more unique and innovative way than land previously
developed. This Land Use Strategy has been written to achieve the following:
™ Address the needs of the City as a whole.
™ Address the concerns and issues raised by the Comprehensive Plan Advisory Committee and
the general public throughout this planning process, but particularly during the visioning
process.
™ Provide policy guidance in keeping with established goals and objectives (within Chapter 2).
™ Ensure that Heath is a unique and sustainable community that ages well and gracefully.
Chapter 5: Land Use Strategy
Page 5-1
City of Heath
2008 Comprehensive Plan
{This page is left intentionally blank for two-sided printing.}
Chapter 5: Land Use Strategy
Page 5-2
City of Heath
2008 Comprehensive Plan
Existing Land Use Characteristics
Summary from The Snapshot of the City
An analysis of present land use patterns within Heath is presented in Chapter 1, The Snapshot of the City.
Land uses were documented through a windshield survey5-1 during which each parcel of land in the City
and ETJ was coded as a certain land use type, such as single-family residential, multiple-family, retail,
and public/semi-public. The Existing Land Use Map, Plate 1-2, can be found on page 1-20 of The
Snapshot.
As a result of this analysis, it was calculated that approximately three-fourths of the developed land within
the City is consumed by residential land uses, primarily single-family residential. Roadways also account
for a large amount of the developed land. Single-Family land uses and rights-of-way together account for
approximately 86.5 percent of the City’s developed acreage.
Perhaps most interesting is the small percentage of land that is developed as non-residential. Although
the percentages of Office, Retail, and Commercial uses have increased since 2001, they are still
extremely low, especially compared to the amount of residential development and the related number of
people (approximately 6,900) who live in Heath. This information is important in establishing how much
retail land use the City might be able to support in the future, given that there is a desire among citizens
and City leaders to create a more balanced land use pattern in terms of residential and non-residential
land uses.
Figure 5-1: Percentages of Total Land for Generalized Land Use Types in 2001 and 2007
2001
2007
62.0%
45.7%
38.0%
25.7%
Residential
Public/Semi-Public
Nonresidential
Rights-of-Way
Vacant
5.9%
5.7%
0.6%
6.4%
1.1%
8.8%
5-1
A windshield survey is a type of field survey in which every roadway within a community is driven with the intent to document (i.e., survey) the land
uses (and/or other characteristics) of all properties within a community.
Chapter 5: Land Use Strategy
Page 5-3
City of Heath
2008 Comprehensive Plan
Another significant fact is that approximately 46 percent of the total acreage within Heath is Vacant (or
undeveloped) land. This percentage amounts to over 2,800 acres that have the potential to be developed
in the future. The importance of the calculation of undeveloped land lies in the fact that it is this land,
along with annexed areas, that will allow the City to grow in population in the coming years. It is also
significant because, at almost 50 percent of the City, if it is developed in keeping with the policies outlined
within this Comprehensive Plan - with increased connectivity, open space, use diversity, etc. – Heath will
be a highly sustainable and livable community.
Another method of analyzing land use is by examining current land use densities – that is, establishing
how much land is being consumed for each type of land use by the current population. The density of
single-family residential land use is 33.8 acres per 100 persons, which indicates a relatively low density
residential development pattern. Also important is the ratio of Retail uses to the population. An average
ratio is 0.5 retail acres per 100 persons; less than 0.4 generally indicates that citizens are going elsewhere
for goods and services, and greater than 0.6 usually indicates that citizens from elsewhere are coming
into the community to buy goods and services. Heath’s ratio is 0.1 acres per 100 persons, which is
relatively low and means that people who live in the City are going to other areas, such as Rockwall or
Dallas, to meet their retail needs. The need for a better balance of residential and non-residential uses is
discussed further in later sections of this chapter.
In summary, important facts about Heath’s existing land uses include the following:
™ Approximately three-fourths of the developed land within the City is consumed by single-family
land uses or rights-of-way.
™ The percentages of non-residential land uses – retail, commercial, and industrial – have increased
over the years. However, they are still extremely low, especially compared to the amount of
residential development and number of people who live in Heath.
™ Much of Heath is currently vacant, even with the increased acres of developed land since 2001.
This allows for much more development within the City, development which could further
contribute to the quality for which Heath is known.
™ The percentage of Parks & Open Space land use has also increased over the years, and is at a
ratio that is high compared to what the National Recreation & Park Association recommends. This
is a significant quality of life feature that is very positive for Heath.
™ Heath’s ratio of retail-acres-to-population is 0.1 acres per 100 persons. This is a low ratio and
indicates that citizens are traveling outside of the City to buy goods and services.
Chapter 5: Land Use Strategy
Page 5-4
City of Heath
2008 Comprehensive Plan
Land Use Plan – Categories & Map
The Land Use Plan Map, Plate 5-1 (page 5-8), has been drafted as the result of numerous meetings with
the public, the Comprehensive Plan Advisory Committee (CPAC), and City staff. The Land Use Plan is
not a Zoning Map, and it does not directly affect the regulation of land within Heath or the ETJ. The Land
Use Plan Map provides a graphic depiction of Heath’s ideal land use pattern. It should be used by the
City to guide decisions on proposed zoning and development standards in the future. It should be noted
that while the Land Use Plan Map itself is an integral part of the Land Use Strategy; the land use policies
that support the Land Use Plan Map are also important. These policies begin on page 5-15 of this
chapter.
Land Use Categories
Table 5-1 below outlines descriptions of the various land use types on the Land Use Plan Map. Also
shown are related map colors and example images. Following the table, certain land use types (shown
with an asterisk within the table) in need of further clarification are discussed in detail.
Table 5-1: Land Use Types & Descriptions
Land Use Type &
Approximate Map Color
Description
Density
Corresponding
Zoning District
Rural Estate
Large-lot,
single-family
residential
development
Minimum
1 acre
lots
Agriculture, SF-43
Low Density
Residential
Medium-sized,
single-family
residential
development
Minimum
½ acre
lots
SF-22
Medium Density
Residential
Smaller-lot,
single-family
residential
development
Minimum
¼ acre
lots
SF-15
Townhouse
Two-family
residential
development
Maximum
of 8 units
per acre
Townhouse (TH),
Duplex (D),
Medium-density
(MF-8)
Example Image
Chapter 5: Land Use Strategy
Page 5-5
City of Heath
2008 Comprehensive Plan
Land Use Type &
Approximate Map Color
Description
Density
Corresponding
Zoning District
Public/Semi-Public
Civic uses, schools,
churches, cemeteries
Any zoning district
allows this use
Parks & Open
Space
Existing park and open
space areas
Any zoning district
allows this use
Private Recreation
Local golf courses (e.g.
Buffalo Creek as shown in
image to the right)
Any zoning district
allows this use;
usually occurs
through Planned
Development (PD)
zoning
Office
Small-scale offices - one- or
two-story, resembling homes
- such as doctors’, lawyers’,
and realtors’ offices
Local Retail
Retail
Small shops, shopping
centers, restaurants, cafes
Local Retail
Town Center*
Special area with civic,
office, park, cultural, retail,
and residential uses;
Discussed in detail within the
Town Center Concept,
Chapter 6
No current zoning
district – possibly
achieved through
PD zoning
Mixed Use Park*
A combination of residential,
office and retail uses with a
large amount of park/open
space
No current zoning
district – possibly
achieved through
PD zoning
Mixed Use
Residential*
Primarily residential
development, with a small
amount of retail or office;
residential would be smalllot, townhomes, or loft
spaces above retail or office
No current zoning
district – possibly
achieved through
PD zoning
NOTE: Source for Buffalo Creek Golf Course picture is www.americangolf.com
Chapter 5: Land Use Strategy
Page 5-6
Example Image
City of Heath
2008 Comprehensive Plan
Land Use Type &
Approximate Map Color
Mixed Use NonResidential*
Description
Density
Primarily retail or office, with
a small amount of
residential; residential would
be small-lot, townhomes, or
loft spaces above retail or
office
Corresponding
Zoning District
Example Image
No current zoning
district – possibly
achieved through
PD zoning
Town Center
The need for a Town Center has been discussed for years by the leadership and citizens of Heath.
In the 2001 Comprehensive Plan, the location for a Town Center was recommended in the vicinity of
the current City Hall. However, after an in-depth analysis was completed as part of this comprehensive
planning process, two other sites were determined to be better situated to serve as Heath’s Town
Examples of Town Centers – The Marketplace at Cascades Town Center in Loudoun County, Virginia (Left) and
Winter Park Village in Winter Park, Florida (Right)
Source: Charles C. Bohl – Placemaking, pages 87 & 115, respectively
Center. These sites are shown on the Land Use Plan Map. They were each recommended because
they have numerous attributes that make them appropriate for a Town Center location, although only
one such site should ultimately be chosen. The ideal program elements and characteristics of the
Town Center are outlined and explained in detail within the Town Center Concept, Chapter 6 of this
Comprehensive Plan.
Mixed Use Park
This area (a 75-acre tract) is
owned by the City of Heath
and
the
Economic
Development
Corporation
(EDC). The concept of the (Left) Active Recreation Near Homes
Mixed Use Park land use type Represent the Another Type of Development
for Mixed Use Park (Rowlett
is to provide primarily for a Desired
Community Park in Waterview Area)
residential community along
with areas for a cultural center and athletic fields for recreation. There
should be an emphasis on active recreation in this area.
(Right) Open Space & Trails
Near Homes Represent the
Another Type of Development
Desired for Mixed Use Park
(NOTE: This was a high-scoring
VCS Image.)
Chapter 5: Land Use Strategy
Page 5-7
City of Heath
2008 Comprehensive Plan
Plate 5-1: Land Use Plan Map
Chapter 5: Land Use Strategy
Page 5-8
City of Heath
2008 Comprehensive Plan
Mixed Use Residential
This land use type is envisioned to be comprised of development generally known as Traditional
Neighborhood Design (TND). Common characteristics of TND developments include the following:
™ A combination of residential unit types, including single-family, townhomes, and multi-unit homes.
™ Common public open spaces.
Example of Development in Mixed Use Residential (from left to right)- Single-Family Homes with Trail Access; Narrow Streets;
Townhomes & Zero-Lot-Line Homes with Common Open Space; Pedestrian Connectivity
™
™
™
™
Small front setbacks.
Narrow streets with wide sidewalks.
Fronts of houses designed to foster social interaction, such as front porches and no front garages.
Neighborhood-oriented retail, such as a small grocery store, video store, or coffee shop that would
primarily serve the immediate neighborhood.
™ Office uses or live-work units providing some employment in the immediate area for residents.
™ Pedestrian connectivity to surrounding areas (and to the City’s trail system).
This type of land use is characterized as mixed use because of the small amount of retail and/or
office uses. However, these areas would primarily be residential.
Mixed Use Non-Residential
The land use type is recommended as a mechanism for current retail uses to either 1) be bolstered
by residential and office development or 2) transition to residential and office development. As
discussed later within this chapter as part of Policy #5.1, current retail development would benefit
from a built-in residential market that would be able to patronize it through pedestrian access.
Retail
Office
Residential (Townhomes)
Pedestrian Amenities
Examples of Development in Mixed Use Non-Residential
Chapter 5: Land Use Strategy
Page 5-9
City of Heath
2008 Comprehensive Plan
Establishing a small amount of residential uses in a variety of unit types would provide such a
market. Also, existing retail that is not viable should be able to transition to office uses.
Land Use Categories & Related Calculations
Table 5-2 lists the categories of land use by acreage for the City limits of Heath and its ETJ. This
information represents the calculations from the recommended, graphic pattern of land use shown on the
Land Use Plan Map (Plate 5-1, page 5-8). Although municipalities in Texas do not have much land use
control in the ETJ, land uses have been recommended within the ETJ for primarily two purposes. One, if
and when the City annexes an area, the recommended use of the land is known and it can be zoned or
planned for accordingly. Second, it is important to know the intended land use when various types of
studies are conducted by the City or other public entities; examples include population projections,
engineering studies, site location studies (i.e., for retail or traffic), and school enrollment projections.
Table 5-2: Land Use Types & Calculations
City
ETJ
Total
Acres
Percent
Acres
Percent
Acres
Percent
Acres Per
100
Persons(1)
3,601
55.8%
3,209
93.8%
6,810
68.9%
18.7
Low Density Residential
612
9.5%
0
0.0%
612
6.2%
3.2
Medium Density Residential
415
6.4%
48
1.4%
463
4.7%
2.2
Townhouse
18
0.3%
0
0.0%
18
0.2%
0.1
Public/Semi-Public
208
3.2%
0
0.0%
208
2.1%
1.1
Parks & Open Space
180
2.8%
0
0.0%
180
1.8%
0.9
Private Recreation
619
9.6%
0
0.0%
619
6.3%
3.2
Office
33
0.5%
0
0.0%
33
0.3%
0.2
31
0.5%
0
0.0%
31
0.3%
0.2
80
1.2%
90
2.6%
170
1.7%
0.4
Mixed Use Park
75
1.2%
0
0.0%
75
0.8%
0.4
Mixed Use Residential
113
1.7%
0
0.0%
113
1.1%
0.6
Mixed Use Non-Residential
63
1.0%
7
0.2%
70
0.7%
0.3
Rights-of-Way
410
6.3%
67.5
2.0%
477
4.8%
2.1
Total Acreage
6,457
100.0%
3,422
100.0%
9,878
100.0%
n/a
Land Use Category
Rural Estate
Retail
Town Center
(2)
(1)
4.2
Acres Per 100 Persons based on the ultimate population of 19,296 from Table 5-6.
This acreage represents both site alternatives – the northern site is approximately 74 acres, the central site is approximately 96 acres of
which 90 acres is currently in Heath’s ETJ.
NOTE: Parks/Open Spaces only reflects the current amount of land used; this number will likely increase as development occurs and
therefore will ultimately be higher than the amount shown within this table.
(2)
Chapter 5: Land Use Strategy
Page 5-10
City of Heath
2008 Comprehensive Plan
Population Growth & Capacity
Heath’s population growth is documented in detail in the Snapshot of the City. It is important to consider
this growth in the context of planning for future land uses for several reasons. The principle reason is that
the Land Use Strategy provides a recommended pattern of land uses that inherently affects where
population growth is likely to occur. Also, service provision and roadway infrastructure must be
considered in conjunction with where population increases are anticipated to occur. Another reason is
that the City will, at some point, reach its ultimate capacity for population growth given the fact that only
minimal geographic expansion is possible – the City is surrounded by Lake Ray Hubbard, Rockwall,
McLendon Chisholm, and other developed areas. For these reasons, this section of the Land Use
Strategy is provided to outline the City’s anticipated population growth in the next 20 to 30 years, as well
as its ultimate population capacity and when that capacity might be reached.
Population Projections
The most recent estimated population number was calculated toward the beginning of this comprehensive
planning process in approximately April of 2007. Detailed information on how this was calculated is
contained within The Snapshot of the City. This estimate of 6,900 people has been used here as a basis
from which to project what the population is likely to be in future years. Table 5-3 shows the City’s
population growth and related average annual compounded growth rates since 1970. Table 5-4 contains
the number of residential building permits issued in each year from 2001 to 2006.
Table 5-3: Heath Population Estimates & Growth Rates
Year
1970
1980
1990
2000
2007(1)
Population
Population
Change
Percent
Change
520
1,459
2,108
4,149
6,900
---------939
649
2,041
2,747
---------180.6%
44.5%
96.8%
66.2%
Source: U.S. Census
(1)
Dunkin, Sefko & Associates estimate
Average
Annual
Compounded
Growth Rate
10.9%
3.7%
7.0%
7.5%
Table 5-4: Permits Issued Annually
Year
Permits
Issued
2001
117
2002
105
2003
83
2004
95
2005
119
2006
138
Average
Number
110
Source: City of Heath Public Works Department
Finally, Table 5-5 on the following page shows population
projections based on the information in the previous two tables and the anticipated continued level of
growth. Scenario A shows a growth rate that is slightly below what the City has experienced in the past
few years, but this slow down could occur based on the recent challenges in the housing market.
Scenario B is consistent with the average number of building permits the City has been issuing over the
past several years, while Scenario C is consistent with the average annual compounded growth rate of
Heath between 2000 and 2007.
Chapter 5: Land Use Strategy
Page 5-11
City of Heath
2008 Comprehensive Plan
Table 5-5: Population Projections
Year
Scenario A
3.0%
Scenario B
4.5%
Scenario C
7.0%
2007
6,900
6,900
6,900
2012
8,020
8,600
9,700
2017
9,300
10,720
13,610
19,120
2022
10,800
13,360
2027
12,550
16,650
Average Number of Residential Building Permits
Issued Annually for Next 10 Years
75
120
210
Projected Year to Reach Population Capacity*
2041
2030
For planning purposes, the relatively high growth
rate
represented
by
Scenario
B
is
recommended.
The 4.5 percent annual
compounded growth rate projects a population
growth to approximately 10,720 in 10 years, and
a build-out of the current City and ETJ limits in
about two decades, by 2030. This is a rapid
growth scenario, but it is better to utilize a higher
population growth rate when planning for
adequate infrastructure and roadway capacity.
Planning for a higher rate of growth will enable
Heath to be well-prepared if this population
projection becomes reality, which is better than
the City planning for a lesser rate of growth and
being unprepared to accommodate additional
population when development proposals are
submitted.
2023
It is important to note that the number of building
permits is an average over the next ten years;
*Refer to Table 5-6.
this is not to suggest that the City will issue 120
residential building permits in each of the following ten years. Permits are shown for the next ten-year
period because this type of growth rate increases exponentially as the population grows, so the accuracy
of the average number of building permits decreases as the population increases. The City will need to
revisit these projections in subsequent years to reevaluate them for accuracy.
Heath’s population capacity is discussed in the following section. Capacity is projected to occur in various
years depending on the rate of growth, as shown in Table 5-5.
Population Capacity – City Limits & ETJ
Heath has a large amount of vacant land area (over 50 percent), much of which is designated on the Land
Use Plan Map (Plate 5-1, page 5-8) for residential land use or residentially based mixed use. The City
also has some ETJ area within which the City can grow geographically. Both the vacant area within the
City limits and the ETJ provide developable land for population growth. In order to guide the City in
planning for how many people will ultimately have to be supported, an assessment of Heath’s ultimate
population is provided. Table 5-6 on the following page shows the calculation of ultimate population
capacity within the City limits as they exist today.
There are several factors considered in the calculation of ultimate population capacity, as well as several
assumptions. These factors include vacant/ agricultural areas (shown on the Existing Land Use map,
Plate 5-1, page 5-4), and areas planned for residential and mixed use development (shown on the Future
Land Use Plan, Plate 5-2, page 5-10). Assumptions include the application of various densities (these are
specifically listed in Table 5-6) in relation to these residential and mixed use areas, occupancy rates,
Chapter 5: Land Use Strategy
Page 5-12
City of Heath
2008 Comprehensive Plan
amount of land used for right-of-way, and average household size numbers. Given these factors and
assumptions, the number of additional population that can be accommodated within current vacant areas
in Heath is approximately 8,460 people. Adding this to the City’s estimated population of 6,900 people, it
can be concluded that Heath’s ultimate population capacity within the existing (as of December 2007) City
limits is approximately 15,360 people.
Table 5-6: Ultimate Population Capacity – Heath Current City Limits & ETJ
Type of Density or Number
of Lots
Acres/Lots
Avg
DUs
Per
Acre
Occupancy
Rate
Average
Household
Size
Percentage
Subtracted
for
Roadways
Estimated
Population in
Currently
Vacant Areas
City Limits
Rural Estate
Low Density Residential
1,153
Acres
1
94.4%
2.59
30%
1,973
7
Acres
2
94.4%
2.59
30%
24
Medium Density Residential
12
Acres
4
94.4%
2.59
30%
82
High Density Residential
11
Acres
8
94.4%
2.59
20%
172
Mixed Use Residential
46
Acres
8
94.4%
2.59
10%
2.59
10%
2.59
10%
2.59
None
58 acres total vacant of Mixed Use Residential - 80% projected to be residential
Mixed Use Non-Residential
10
Acres
8
94.4%
48 acres total vacant of Mixed Use Non-Residential - 20% projected to be residential
Town Center
15
Acres
8
94.4%
74 acres total vacant of Town Center - 20% projected to be residential
Vacant Residential Lots
2,030
Lots
n/a
94.4%
817
169
257
4,963
Population Accommodated Within Existing Vacant Areas of the City
8,458
Estimated Current Population of the City
6,900
Total Population Capacity Within the City
15,358
ETJ
Rural Residential
Vacant Lots
2,156
28
Acres
Lots
1
94.4%
2.59
30%
3,690
n/a
94.4%
2.59
None
68
Population Accommodated Within Existing Vacant Areas of the ETJ
3,758
Estimated Current Population of the ETJ
180
Total Population Capacity Within the ETJ
3,938
Total Population Capacity
19,296
NOTE: (1) Population estimate of the ETJ is based on information within the Snapshot of the City.
(2) DUs - Dwelling Units
(3) The Town Center area has been calculated based on the smaller of the two site options (the northern site) in order to provide a
conservative ultimate population estimate.
Chapter 5: Land Use Strategy
Page 5-13
City of Heath
2008 Comprehensive Plan
Table 5-6 also shows the calculation of ultimate population capacity within vacant areas of the City’s ETJ.
An existing population number within the ETJ of 180 people is based on the land use survey that was
conducted as part of the research for The Snapshot of the City. Population densities in the various land
use categories were estimated to be the same in both the City and ETJ. Approximately 3,758 additional
people could be accommodated within the ETJ, assuming recommended land uses and related densities.
The total number of people that could live within the current ETJ area would therefore be approximately
3,940.
The ultimate capacity of the land area within the existing City limits and ETJ is also provided within Table
5-6. This number is approximately 19,296 people. This is the number of people that the City should plan
on needing to serve with water, wastewater and roadway facilities. This population will also need qualityof-life services, such as parks, retail, and a town center area in which to gather.
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2008 Comprehensive Plan
Land Use Policies
Non-Residential Land Uses
Retail Uses
In discussing retail land uses, sustainability is key. Heath is not in need of extensive retail, primarily
because the needs of its citizenry for goods and services are being met by the retail available in
nearby Rockwall, and to a lesser degree by the retail available
to the south along Highway 80. However, to provide a more
The distinctive layout and design
of Highland Park Village have
balanced land use pattern where some citizens’ needs could be
helped it to survive and prosper
met locally, an appropriate amount of retail land use has been
through seven decades of
recommended as shown on the Land Use Plan Map.
Also, it is important to ensure that any retail uses developed in
Heath are designed to a very high quality – the better designed
and more high quality a retail area is, the more sustainable it
will be over time. In terms of design, it will be important to
connect the retail to surrounding residential areas in order to
provide a “built-in” market.
Key concepts related to the design of retail developments in
Heath include the following.
™ Unique retail areas are more sustainable over time
changes in retailing, and to remain
a highly popular destination for
shopping and dining…Originally
constructed in 1931, the site has
undergone substantial
redevelopment since the mid1970s and now includes an
extensive network of brick paths
and walkways, lush landscaping,
benches, and trees.
Source: Charles C. Bohl. Placemaking:
Developing Town Centers, Main Streets, and
Urban Villages. ULI, 2003. Chapter 2, pg. 42
because they are not easily replaceable. The concept
of uniqueness is not necessarily in the type of retail itself, but in the feeling that a unique
retailing experience evokes. Numerous ways in which retail in Heath can be designed to be
unique are within this Land Use Strategy, as well as the Livability Strategy, Chapter 4.
™ Neighborhood-accessible
The on-site spending patterns of residents of a mixed use
development represent a broad “range of goods and services,
including food service and entertainment (at night and on
weekends), groceries, apparel, personal services, and all the
other retail categories found in shopping centers.” With other
housing units “close by, especially within easy walking distance,
this on-site/local market can start to add up. Capture rates,
however, go down as the distance from the project increases.”
retail areas are sustained by
adjacent residents, who
often feel a sense of
ownership to such areas.
Highland Park Village is a
good example of a retail
Source: Mixed Use Development Handbook. ULI Development Handbook Series.
area that was designed to
Principle Author and Project Director: Dean Schwanke. Urban Land Institute (ULI),
be accessible to adjacent
Washington, D.C., 2005.
residents, and that has
stood the test of time. Heath’s retail development will also be able to stand the test of time if
it is designed to be accessible.
™ Mixed use retail areas have a built-in consumer/patron market, much as neighborhoodaccessible retail areas do. These areas have something that other single-use retail sites
lack—an on-site patronage that is drawn from the development’s other use types (such as
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City of Heath
2008 Comprehensive Plan
offices, residential, civic, etc.). Mixed use developments also retain the types of market
support that single-use retail areas have, such as the nearby neighborhoods and the driveby market. This leads to an increased level of sustainability to the retail component of such
developments.
The following policies for local retail development are recommended based on the concepts outlined
above.
Recommended Policy 5.1:
Require retail development to be designed with characteristics that will provide
sustainability - lasting value over time.
™ Require retail areas to be designed with
sustainable characteristics, such as the
following:
ƒ A mix of uses including residential and/or
office;
ƒ Pedestrian and roadway connections to
adjacent neighborhood areas;
ƒ Internalized parking with buildings out
front (as opposed to large parking lots
located adjacent to the street);
ƒ Separation of parking (to minimize wide
expanses of concrete);
ƒ Increased green space and landscaping;
ƒ Minimized spacing between buildings;
and,
ƒ Reduced setbacks (to increase the
visibility of the buildings).
Recommended Policy 5.2:
Use the Land Use Plan Map as a guide for the
amount and location of future retail uses.
Legacy Town Center (Plano, TX) Includes
Retail, Office & Residential Uses
™ Focus
on
concentrating
new
retail
development within the Town Center area.
™ Limit retail uses by not allowing rezoning to a retail zoning classification in locations
other than those shown on the Land Use Plan Map.
™ To maintain a positive retail balance, reduce or omit retail land uses in another
location, if a rezoning does occur in a location not recommended on the Land Use
Plan Map.
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2008 Comprehensive Plan
™ Recognize in making rezoning decisions that a smaller amount of well-designed
retail development is more beneficial to the City than a larger amount of retail
development that is underutilized and therefore not sustainable.
™ Allow some of the existing areas zoned or used for retail development to transition to
other types of uses (such as residential or office). Some such areas have been
shown as Mixed Use on the Land Use Plan Map. Also see related Policy #5.7.
Residential Uses
Residential Diversity
Quality housing is not a challenge in Heath as it is in many cities – the majority of the local homes
are highly valued and well-designed. However, there are not many choices in terms of housing type
within the City. Residential development primarily consists of single-family homes on large- or
medium-sized lots (refer to the Snapshot, Chapter 1, for further discussion). The lack of housing
variety has likely affected Heath’s demographics—that is, the City has only small percentages of
young, single adults and seniors. The need for some type of senior housing has been mentioned
numerous times during this comprehensive planning process. Also, various types of housing units,
such as townhomes and zero-lot-line homes for example, can be well-designed and are often
sought-after because there are generally not enough of them to meet housing market needs.
Recommended Policy 5.3:
Allow for the development of
housing types other than singlefamily on a limited basis.
™ Permit other housing types in
areas designated as Mixed Use
Residential and Mixed Use NonResidential.
(Also see the
related recommendation within
the Livability Strategy, Chapter
4).
This Multi-Unit Structure Resembles a Large
Single-Family Home
™ Permit alternative housing types
only when associated with high quality development that has amenities for
sustainability and livability as described in the Livability Strategy.
Residential Density
Housing diversity is important to the City in terms of ensuring that it is able to be a place to call
home for a lifetime, which is part of the ideal of Heath’s Vision Statement (see Chapter 2).
However, Heath is known for its large-lot development, and City leaders and stakeholders would
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City of Heath
2008 Comprehensive Plan
like this to be maintained. The following recommended policy supports the continuation of a low
density development pattern.
Recommended Policy 5.4:
Continue the previously established policy of a general residential gross density
of one dwelling unit per acre of land.
™ Allow for park and open space land mitigation, where higher densities could be
developed, but would be offset by parkland or open space provided in another area
of the City. For example, if higher densities are developed in the Town Center, they
could be offset by the purchase of parkland from the publicly owned tract of land
along Smirl Road.
™ Continue to allow a cluster development option, whereby housing units could be
provided on smaller lots, but a single, large park or open space is provided by the
developer to offset the higher density of the small lots. (Also see the related Policy
#3.20 in the Livability Strategy, Chapter 4.)
Use of Clustering in This
Development Secured 45
Acres of Open Space While
Maintaining Large-Lot
Development
Source: Randall Arendt,
Rural By Design, page 252
2-Acre Development Plan
• 17, 2+ acre lots
• 2,250 feet of new roads
• No protected open space
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Open Space Development Plan
• 15, 1+ acre lots
• 2,150 feet of new roads
• 45 acres protected open
City of Heath
2008 Comprehensive Plan
Existing Neighborhoods
Oftentimes, planning documents such as this Comprehensive Plan tend to focus on new
development, and policies addressing existing developed areas are not considered to be important.
However, citizens and stakeholders in this comprehensive planning process have stated that it is
important for the existing neighborhoods in Heath to remain attractive, viable places in which people
will continue to want to live. The sustainability of previously developed neighborhoods is as
important to the future of the City as the need to design new sustainable neighborhoods.
Recommended Policy 5.5:
Ensure the continued sustainability of existing
neighborhoods.
™ Prioritize
existing
assistance
for
improvement.
areas that may need
maintenance
and/or
™ Identify capital improvements that can be made
within existing areas, such as street trees,
sidewalks, medians, and landscaping. Other
major capital improvements could be 1) the
purchase of a lot within a neighborhood where a
neighborhood park could be created and 2) the
purchase of a lot or easement that would provide
public access to Lake Ray Hubbard. (See
discussion of value-added parks and open
space within the Livability Strategy, Chapter 4.)
™ Allocate monetary resources on an annual,
prioritized basis toward the betterment of
existing neighborhoods.
These Heath neighborhoods could
benefit from the integration of street
trees and sidewalks.
Mixed Use Development
There are several different types of mixed use development recommended for Heath. The Town Center
is anticipated to be a mixed use area, with civic, retail, office, park, and residential areas. The Mixed Use
Residential and Mixed Use Non-Residential categories are anticipated to include residential, office and
retail uses, with more residential in the first, and more non-residential in the latter. The following policies
relate to these recommended mixed use land use types and areas.
Town Center Concept
The Town Center is discussed at length within the Town Center Concept, Chapter 6. However, it is
important to mention from a land use standpoint, primarily since it must be supported by other land
uses within Heath, such as minimizing retail development elsewhere. It also must be supported
with pedestrian connectivity within the development and to adjacent areas.
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City of Heath
2008 Comprehensive Plan
Recommended Policy 5.6:
Continue to pursue a Town Center for Heath.
™ Use the Town Center Concept chapter of this Comprehensive Plan as a basis for the
creation of a mixed use area that is full of unique atmosphere and characteristics – a
special place that will be identified with Heath.
™ Support the Town Center as the major location for retail development within Heath.
As part of this policy, carefully consider permitting retail development in other
locations within the City; allowing retailing in other locations also might cause the
local retail development to be too dispersed to be successful and sustainable.
™ Require pedestrian connectivity between the Town Center and adjacent land uses.
™ Refer to the Town Center Concept, Chapter 6 of this Comprehensive Plan, for
additional related policies.
Mixed Use Land Uses on the Land Use Plan Map
The Land Use Plan Map shows several of the areas that are currently developed with retail uses or
are currently zoned for retail development as Mixed Use Residential and as Mixed Use NonResidential. (Refer to the descriptions of these land use
categories on pages 5-9 of this chapter for more information.)
The reasoning for this is consistent with the discussion of retail
uses within Heath – the existing retail areas may need to
transition in the future from retail to office or residential uses.
There may not be enough of a critical mass of retail in the area
to make the existing retail development viable in the long-term.
Also, residential uses developed in the Mixed Use Residential
areas may provide the built-in market for the remaining retail to
be more viable.
Recommended Policy 5.7:
Allow residential and office uses in areas
currently developed with retail uses or in
areas designated as Mixed Use
Residential and Mixed Use NonResidential on the Land Use Plan Map.
™ Consider rezoning proposals in these
areas to allow for a broader range of
These Uses Are Envisioned Within Mixed
uses. Areas designated as Mixed Use
Use Non-Residential Areas
Residential should have primarily residential
uses, with a small amount of office and/or retail.
Areas designated as Mixed Use Non-Residential should have primarily retail or
office uses, with a small amount of residential.
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2008 Comprehensive Plan
™ Require any redevelopment within these areas to be designed with characteristics
that will increase sustainability in the future, such as pedestrian accessibility within
the development and to adjacent areas, small parks, and well-designed structures
(and parking areas if applicable).
The Land Use Plan Map also shows an area labeled as Mixed Use Park, which is the 75-acre area
owned by the City of Heath and the Economic Development Corporation (EDC). The Mixed Use
Park land use type provides an area for various residential, cultural, retail, and office uses, but with
an emphasis active recreation, parks and open space areas.
The fact that the City and EDC own this land is beneficial in
that the land can be left undeveloped until a really special,
unique development proposal is created. The area should
be a cohesively planned complement of residential and
active recreational uses.
Recommended Policy 5.8:
Carefully consider all options associated with
the development of the area labeled as Mixed
Use Park on the Land Use Plan Map.
™ Continue public ownership of the 75-acre tract
until such time as a developer submits a
proposal for a unique development that would
provide something special to the City of
Heath.
™ Develop a plan for a formal park area of the
75-acre tract; this plan can then be used as a
basis for the creation of a park in future years,
if and when the City and the EDC decide that
a park area is the best use of the property. As
a park area, this land could be used to offset
some higher density residential development
provided in mixed use areas (refer to Policy
#5.4 within this chapter).
This Type of Development Is Envisioned
Within the Mixed Use Park Area
™ Ensure that cultural uses, such as art
galleries, lecture/discussion meeting areas (such as lectures by authors, artists,
etc.), and art studios are part of the programming elements of the plan for the site
(discussed above).
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City of Heath
2008 Comprehensive Plan
Lakefront Access/Redevelopment
As the western boundary of the City of Heath, Lake Ray Hubbard plays an integral part in the City’s
identity and planning process. The Lake currently provides recreational and scenic amenities that
enhance Heath’s desirability as a hometown. A significant issue identified during the visioning process for
this Comprehensive Plan was the desire, of both community leaders and citizens, to have access to Lake
Ray Hubbard.
The City of Dallas, which owns the Lake and shoreline, and the City of Heath are parties to an Interlocal
Lease and Agreement providing for use of the take area, leased to Heath and potentially available for
sublease to adjacent property owners. The City of Heath has adopted Zoning Guides for development
within the leased areas. Residential development along the shoreline of the Lake provides certain
limitations to access points for public use.
Recommended Policy 5.9:
Proactively pursue opportunities along the shoreline of Lake Ray Hubbard to create, improve
and protect access to the Lake for the citizens of Heath.
NOTE: This policy does not include the use of eminent domain for this purpose.
™ Redesign and develop Terry Park, a shoreline park located at the end of Terry Lane,
utilizing park land dedication fees and developer contributions to enhance the lake
area.
™ Work with Rush Creek Yacht Club to improve private access to the Lake and to
promote sailing programs available to the general public.
™ Facilitate the implementation of the Take
Area Zoning Guides and evaluate the
guides
periodically
for
possible
improvements
to
regulations
or
processes.
™ Through
cooperation with propertyowners
and
developers,
protect
undeveloped take area and optimize
potential use for the enjoyment of Heath
residents.
Examples of Parks and Trails That Could Be
Created Along Lake Ray Hubbard With the
Purchase of a Lot or Easement
(NOTE: This was a high-scoring VCS Image.)
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2008 Comprehensive Plan
Procedural Land Use Policies
The Land Use Plan Map is one of the most significant pieces of this Comprehensive Plan document.
Effective use of the Map will result in Heath attaining its desired land use pattern. The following
discussions address the most valuable ways in which the Map can be used to make positive decisions in
keeping with the ideals of this Plan.
Rezoning Decisions
When a development proposal is submitted, and the tract of land is zoned for a type of land use that
is consistent with the proposed development, the City only has the ability to ensure that the
development is consistent with its subdivision standards. That is, the development must make
provisions for water and wastewater supply, for adequate rights-of-way, for proper ingress and
egress, etc. However, when a development proposal is submitted and involves a rezoning, Heath
has more discretion in whether to approve the rezoning. Therefore, the City has more of an ability
to apply Land Use Strategy concepts to the development proposal prior to approving the proposal.
Also, the impacts of “downzoning” later after granting a requested zoning must be considered.
Several bills introduced during recent State legislative sessions proposed that Texas cities be
required to compensate landowners if a city initiates a “downzoning” of their property. Downzoning
refers to a decrease of the intensity of a zoning district. For instance, a downzoning occurs if a city
initiates a zoning change from a retail zoning district to a single-family zoning district. Although
there are relatively few instances of the City of Heath proactively initiating rezonings, as opposed to
landowner-initiated rezonings, this could be a concern for Heath if this type of law is eventually
adopted by the State legislature.
Recommended Policy 5.10:
Use the Land Use Strategy text and map as a guide to determine whether the
requested rezoning is appropriate and consistent with the City’s ideals of quality
and sustainability.
™ Consider the following questions related to concepts within this Comprehensive Plan
prior to approving rezoning requests.
ƒ Does the development provide something unique for Heath – amenities for each
residential lot, redevelopment of retail uses, a mixture of uses, etc.?
ƒ Is the development within walking distance to retail areas, public uses, parks and
open spaces?
ƒ Does the development provide off-street pedestrian and bicycle connections to
existing and future development?
ƒ How does the development proposal impact the City fiscally – tax revenue, public
considerations (such as parks, schools, etc.)?
ƒ How does the development respect environmentally significant areas like
floodplains – are these areas used as an amenity?
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2008 Comprehensive Plan
™ Ensure that the proposed development is of
a type and quality that will be acceptable for
the long-term, especially if immediate
development of the property is not intended
to occur upon the granting of the proposed
rezoning.
™ Require a Planned Development or a
State law trends are such that it will be
easy to increase the rights related to a
property at a property owner’s request,
but difficult for the City to affect any
future changes related to the zoning of
that property without the permission of
the property owner.
Developers Agreement if the rezoning is requested on a speculative basis (i.e.,
immediate development of the property is not intended). This would allow Heath to
stipulate that future site plans or plats must conform to regulations in existence (in
the future) at the time the site plan or plat is submitted.
Effective Use of the Land Use Plan Map
It is important to recognize that development proposals contrary to land uses recommended on the
Land Use Plan Map could be an improvement over the uses shown within a particular area. This
may be due to changing market, development patterns, and/or economic trends that occur at some
point in the future after the Comprehensive Plan is adopted. If such changes occur, and especially if
there is a significant benefit to the City, then these proposals should be approved, and the Land Use
Plan Map should be amended accordingly. However, State law specifies that zoning must be based
on a plan, and the courts have ruled likewise. Therefore, the following policy is recommended.
Recommended Policy 5.11:
Amend the Land Use Plan Map prior to rezoning land that would result in any
inconsistency between the Land Use Plan Map and the Zoning Map.
™ Place consideration of the amendment to the Land Use Plan Map on the City Council
agenda prior to or immediately following the agenda item to consider the related
rezoning.
™ Engage in regular review of the Land Use Plan Map to further ensure that the City’s
zoning regulations are as consistent as possible with the Land Use Plan Map. The
Land Use Plan Map should reflect all zoning amendments made subsequent to the
initial adoption of the Land Use Plan Map.
Ultimate Population Capacity
Previously within this chapter, the ultimate capacity of the City and ETJ were calculated. This
calculation is not likely to be the exact amount of the population when and if Heath builds out
because of the fact that it is based on 1) current City limit and ETJ lines that will probably be altered
in the future, and 2) current assumptions about residential density that may or may not occur.
However, this calculation is the most accurate that can be established for the City because it is
based on a planning process that has determined what the City’s ideal land use pattern and related
densities should be, resulting in the Land Use Plan Map. Given this discussion, the following policy
is recommended.
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2008 Comprehensive Plan
Recommended Policy 5.12:
Utilize the ultimate population capacity calculation as a tool for planning public
services to provide for the population that is anticipated to be served in the
future.
™ Proactively monitor the capacity of the water and wastewater systems and increase
™
™
™
™
service availability for developable areas. Water is an increasingly scarce resource,
and cities with capacity in the future will be better positioned to accommodate growth
and quality development.
Increase the public’s awareness of the need for water conservation, especially
during high-usage summer months.
Allow new development to contribute to water conservation by allowing droughttolerant plant species and organic mulch to meet landscaping requirements.
Utilize the Land Use Plan to calculate projected traffic counts on roadways based on
recommended land uses. This will allow the City to design roadways for their
ultimate capacity, and to not overbuild roadways. (Also see the Transportation
Strategy for a related discussion on the context-sensitive design of roadways).
Maintain and expand police and fire services to meet the needs of Heath’s future
population, and improve upon such services as funding allows.
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