CHAPTER 3
LAND USE
The Land Use Element for Harlingen's Vision 2020 Comprehensive Plan
addresses the interrelated goals, objectives and policies that guide the future
physical development of the city. This chapter documents the results of data
collection, analysis, findings and recommendations relating to land use in the
City and its extraterritorial jurisdiction (ETJ). The Land Use Chapter includes the
Existing and Future Land Use Plans. The Existing Land Use Plan is the map
indicating current land usage and the Future Land Use Plan is the general plan for
guiding future land use and development.
The development of the Land Use Chapter involved the compilation of an
extensive amount of data including previous plans and studies, analyses of
existing conditions, and development of projections and forecasts for future
development within the city and the planning area. Land use analyses were
coordinated with other elements of the Comprehensive Plan, recognizing the
important interrelationships of land use with transportation, public utilities,
recreation, and other elements.
Comprehensive Planning Study Area
The City Limits and Study Area boundary are shown in Figure 1-1 in Chapter 1 Introduction. The City of Harlingen encompasses a total area amounting to
approximately 24,957 acres or 39.0 square miles. This is an increase of 3,197
acres in five years or approximately 14.7% land area. The area outside the City's
corporate limits that is included in the study area is approximately 191.8 square
miles of unincorporated Cameron County. The study area excludes the corporate
limits and ETJ of other municipalities located within the Harlingen area. These
other cities are identified on Figure 1-1. For purposes of the subdivision controls,
the ETJ of the City of Harlingen extends 5 miles beyond the city limits, except
where another ETJ boundary has been mutually agreed upon by the City of
Harlingen and another municipality. For annexation purposes, the ETJ of
Harlingen increased from two miles to three and one half when the 2000 Census
figures indicated population exceeding 50,000.
Previously Prepared Land Use Plans
Lon C. Hill Plan
Harlingen's original townsite was developed by Lon C. Hill, Sr. in 1911. This
early plan for Harlingen established a uniform grid pattern of 300 foot square
blocks separated by 80 foot wide avenues running east-west and 60-foot streets
running north-south. The intersection of the St. Louis, Brownsville & Mexico
Railroad lines dominated the townsite with the 200 foot wide rail right-of-way
transecting the town from northwest to southeast.
Harland Bartholomew Plan
In 1968-69, the City of Harlingen retained the planning consulting firm of
Harland Bartholomew and Associates to develop a Comprehensive Plan for
Harlingen, Texas. The major goals of the plan were to reduce out-migration of
population, attract new industries, and stimulate growth of tourism and
recreation. The land use plan envisioned a compact and efficient urban area and
called for new technical education facilities, highways, major streets, and
community facilities. In the downtown area, the plan proposed a new lake
expanding the existing water storage reservoir, auto and pedestrian oriented
shopping areas, new parks, and a major tourism convention complex. Many of
the proposals made in the Harland Bartholomew plan have become reality in the
last 30 years.
Wayne W. Snyder Plan
More recently, Wayne W. Snyder Associates prepared a Comprehensive Plan
Update for the City of Harlingen in 1982. The land use plan reflected established
and emerging development patterns of intensive commercial uses concentrated
downtown and in the Valley Vista and Sun Valley mall areas, and industrial uses
located along the railroad and northwest areas.
Existing Land Use Inventory
An updated inventory of the generalized existing land uses in the City of
Harlingen and its extraterritorial jurisdiction (ETJ) was conducted in JulyNovember, 2000. The land use inventory was performed by driving and
reviewing areas known to have changed significantly in the last five years. The
current zoning map was also reviewed extensively for compatibility with the
future land use map. The land use inventory was revised on the previously
adopted land use map to show a generalized map of existing land use for the
study area. The level of detail and accuracy is appropriate for the purpose of
determining the generalized pattern and location of existing land uses within the
city and ETJ.
The existing land use map for the City of Harlingen is shown in Figure 3-1. The
categories of land use are identified according to the following classification
system:

Low Density Residential - Primarily single family residential dwellings
and associated uses built no denser than eight (8) units per acre;

Medium Density Residential - Multifamily dwellings such as duplexes,
apartments, townhomes and condominiums built no denser than eighteen






(18) units per acre;
High Density Residential - Multifamily dwellings such as apartments,
rooming and boarding houses, dormitories, residence halls, mobile home
parks and group quarters built denser than 18 units per acre;
Retail- Wholesale and retail trade, services, office uses, hotels and
motels, and other general business uses;
Industrial - Light manufacturing, warehousing uses, heavy
manufacturing and other intensive industrial uses;
Recreational and Public Facilities - Public and private parks, water
areas, outdoor recreation areas, public and semipublic areas including,
community facilities, and governmental uses;
Institutional - Airport, educational facilities and churches;
Vacant Area - Areas that are developed or reserved for transportation
corridors or not yet developed for urban uses.
The estimated total area of existing land uses within the corporate limits of the
City of Harlingen for each category of land use is summarized in Figure 3-2. The
acres for each type of use were estimated using a query method on the land use
inventory map and summing up the estimated acreage for different uses. Each
figure represents the estimated amount of built-up area for each type of use.
The relative amount of each type of existing land use within the City of
Harlingen is graphically illustrated by the pie chart in Figure 3-3. The largest
category of developed land use is single family residential, which occupies
approximately 3,069 acres. All types of residential use including single family,
multi-family and mobile home, amount to a total of approximately 4,249 acres or
17.0 percent of the incorporated area of the city. Medium density residential and
high density residential areas represent approximately 468 acres and 712 acres,
respectively.
The airport area accounts for the relatively large area of public institutional use.
Other institutional uses such as schools, churches and the TSTC campus are
included in the 2,215 acres, or 8.9 percent of the city's corporate area.
Table 3-2
2000 EXISTING LAND USE FOR HARLINGEN, TEXAS
Harlingen's Vision 2020 Comprehensive Plan
EXISTING LAND USE
ESTIMATED
ACRES
PRECENT
3,069
12.3
Medium Density
468
1.9
High Density
712
2.8
TYPE OF USE
Residential:
Low Density
Subtotal - Residential
4,249
17.0
Retail
1,492
6.0
Industrial
418
1.7
Recreation and Public
Facilities
573
2.3
Institutional
2,215
8.9
Vacant Land
9,776
39.2
Other (Streets and
Water)
6,234
24.9
Total
24,957
100.0
SOURCE: Land use inventory performed by city staff in July - Novermber, 2000.
Figure 3-3
Existing Land Use Percentage Pie Chart
Commercial uses account for approximately 1,492 acres or 6.0 percent. These
include retail, wholesale, services and office uses. Recreation areas and public
facilities occupy approximately 573 acres or 2.3 percent of land area.
Industrial land uses include approximately 615 acres or 2.5 percent area. The
Harlingen Industrial Parks are located outside the City Limits and are not
included in the acreage shown in the table and figure, but comprise just over 300
acres of industrial land with all but 60 acres currently developed.
Future Land Use Plan
The Future Land Use Plan for the City of Harlingen is shown in Figure 3-4. This
is the general plan for future development of the city based upon forecast growth
and known infrastructure improvements planned to the year 2020. It shows the
generalized pattern of planned future land use, taking into consideration the
City's land use goals and objectives.
The Future Land Use Plan is not a zoning map, nor should it be used as such. A
comprehensive plan shall not constitute zoning regulations or establish zoning
district boundaries. The detailed pattern and location of land uses on a parcelspecific basis cannot be accurately predicted 20 years into the future. Small area
land use decisions should appropriately be made at the scale of neighborhood,
subarea, and development project planning, which are to be considered in
subsequent zoning and rezoning actions by the City. These decisions should be
based upon consideration of the Future Land Use Plan and should take into
contemplation significant changes in infrastructure and land use patterns since
the adoption of the Plan and should ultimately be consistent with the generalized
land uses shown.
The Future Land Use Plan was developed based on the following policy
considerations:






Compatibility with existing uses should be maintained;
Transportation access and circulation should be provided for uses that
generate large numbers of trips;
Flood plain areas should not be encroached upon by future development
unless stringent flood plain management practices are complied with;
Airport land use compatibility requires that noise sensitive uses and
height obstructions be avoided in the airport environs, especially within
the 65 dBa noise contour;
Environmentally sensitive areas should be protected, including important
wildlife habitat areas and topographically constrained areas within the
floodplain along the Arroyo Colorado and elsewhere; and
Certificated services areas for water and wastewater services will affect
the rate of urbanization for the city.
In addition, four public hearings were held to solicit public input. They were held
March 29, 2000 at the public library, April 26, 2000 at Austin Elementary, at the
public library on November 14, 2000, at Harlingen South High School on
November 15, 2000.
Finally, on December 15, 2000, a land use charrette was held by the Planning
Department. A charrette is an intense problem solving session. In this case, the
charrette was held in a limited time frame, 2 ½ hours. While everyone in the
public was invited and the event was advertised several times, a number of
participants were particularly sought. These participants were carefully chosen to
represent a broad range of community interests in six categories: homeowners
who have demonstrated neighborhood leadership ability, social service
representatives, engineers, real estate agents, large landowner/developers and
public representatives like chamber of commerce, schools, waterworks, and
Planning & Zoning officials. The actual attendance was a good representative
mixture of those groups.
The group was welcomed and the procedure and ground rules were explained to
them before breaking them into six groups. Each group received several large
maps illustrating existing land use, city limits and significant water features.
They were also given a set of markers and asked to show what they believed
would be the future use of the vacant land in and around the existing city limits.
It sounds simple, but given the divergent interests and backgrounds present in
each group, proved challenging for all. City staff members participated
minimally, serving only as moderators for the groups, to answer technical
questions and give a little push if the groups got stuck. At the end of the session,
each group was asked to present their results to the overall group. While there
were variations between the group's maps, there were amazing similarities among
the six final products. These maps, along with the justifications provided by the
presenters as to why certain land uses were allocated to certain spaces provided
valuable input into the final product provided here.
Many thanks are owed to the participants in this session representing the
Harlingen citizenry. They include the following:
Judy Adams, homeowner
Wayne Beneke, Harlingen Industrial Foundation, Inc. chair
Jack Brown, enginee
Michael Browning, Valley International Airport Director
Kevin Campbell, developer
Teri Carmona, real estate agent
Arnie Clark, developer
J.R. Cocke, developer
Carlos Cortez, homeowner
Bill DeBrooke, commercial property owner
Armando Elizarde, Planning & Zoning Commission member
Ernestina Espinoza, homeowner
Mike Fennegan, developer
Lupita Garza, real estate agent
Gloria Golden, real estate agent
Tip Johnston, Zoning Board of Adjustments chair, real estate agent
B.J. Joseph, Planning & Zoning Commission chair
Cheryl LaBerge, Chamber of Commerce
Tom Mason, Planning & Zoning Commission member
Pastor Ralph Morales, homeless shelter/church representative
Tony Ramirez, HISSO
Dennis Raymond, Harlingen Waterworks
Dan Reyna, Zoning Board of Adjustments member
Rosalyn Robinson, citizen advocate
Judy Sparks, homeowner
Susan Steffner, homeowner
Jarvis Thormahlen, church representative
Nazario Villarreal, developer
Henry Willms, engineer
Eric Ziehe, real estate agent
Staff moderators included:
Roy Rodriguez, City Manager
Tom Wilson, Parks Director
Julio Cerda, Engineering Assistant
Michelle McCoy, Planning Director
Curtis Hill, Senior Planner
Gloria Berlanga, Planning Coordinator
Joel Olivo, Planning Technician
Valarie Germany, GIS Technician
Maria Valencia, Code Enforcement Technician
Goals and Objectives
Goal 3.1 Improve and Maintain the High Quality of Life for Harlingen's
residents.
Obj. 3.1.a. Encourage new development to locate in accordance with land
suitability (the usability and adaptability of land) recognizing the need for both
concentration of facilities and activities, and the preservation of open space.
Obj. 3.1.b. In zoning recommendations avoid mixtures of incompatible uses in
close proximity to each other. Encourage use of buffers and transitions of land
uses with intermediate intensity to separate higher intensity uses from lower
intensity uses.
Obj. 3.1.c. Review subdivision and development of land uses for provision of
efficient traffic access and circulation for local access and through traffic
movement, including extension and improvement of thoroughfares and
continuity of local streets consistent with the City's Major Thoroughfare Plan.
Obj. 3.1.d. Relate the intensity of land use to sustainable development, especially
the capability of providing adequate public facilities and services, and utility
systems for water, wastewater and drainage.
Obj. 3.1.e. Provide adequate public services to efficiently serve existing and
planned future development.
Obj. 3.1.f. Promote, develop and maintain public and private open spaces within
the urbanized area to provide scenic amenities and green spaces in appropriate
relation to built-up areas.
Obj. 3.1.g. Protect the airport environs surrounding Rio Grande Valley
International Airport from incompatible land uses and height hazard obstructions
to aviation activity that would limit or tend to limit air operations and air
transport service, especially those areas within the 65 dBa sound level contour
for airport related noise.
Obj. 3.1.h. Promote and encourage development of lodging (hotels, motels, and
bed and breakfast inns), entertainment and cultural activities, sports and
recreation, and other similar facilities and uses to serve tourism and visitation in
Harlingen and the Valley.
Obj. 3.1.i. Consider regional roles and responsibilities to strengthen the
relationship of Harlingen and other communities within the Lower Rio Grande
Valley in land use and development decisions.
Minimize Urban Sprawl
Goal 3.2 Promote development and redevelopment within Harlingen's
existing urbanized area.
Obj. 3.2.a. Provide adequate resources and services to promote and support the
Heart of Harlingen Neighborhood Revitalization Strategy efforts.
Obj. 3.2.b. Provide the basic resources, services and amenities to preserve and
enhance Jackson Street and La Placita Districts as the business, services and
cultural center of the city, providing jobs, access, mobility, parking, arts and
entertainment, community facilities, open space, and pedestrian focus.
Obj. 3.2.c. Encourage development of vacant land and redevelopment of
underutilized land within the existing urbanized area, consistent with available
infrastructure and compatible land uses.
Obj. 3.2.d. Encourage redevelopment and infill development of inner city areas,
which may include higher intensity uses that are compatible with other existing
uses and located in appropriate areas.
Obj. 3.2.e. Manage subdivisions within the Extraterritorial Jurisdiction in
accordance with the City's goals, objectives and policies.
Obj. 3.2.f. Annex urbanizing areas within the Extraterritorial Jurisdiction in a
timely and orderly manner to enhance and preserve community integrity and
economic viability.
Utilize Existing Infrastructure to Maximize Efficiency and CostEffectiveness of Future Growth
Goal 3.3 Promote fiscally responsible growth that can be efficiently and
economically served by existing and planned public infrastructure.
Obj. 3.3.a. Encourage development in areas that will take maximum advantage
of existing water, sewer and street systems, and plans for expansion and
improvement of these systems should recognize and be coordinated with the
City's comprehensive land use and development plan.
Obj. 3.3.b. Development should pay its fair share of costs for extension of public
utilities serving its site, with the City paying the cost of any oversizing or added
capacity needed to serve other future uses, which should be recovered from
impact fees paid by development as it occurs.
Obj. 3.3.c. Coordinate land use planning and development with school plans
prepared by the Harlingen Consolidated Independent School District.
Obj. 3.3.d. Sound floodplain management principles should be applied in
regulating the use of identified flood hazard areas, including elevation of the
lowest habitable floor of structures above the 100 year flood level and
maintaining the flood carrying capacity of the regulatory floodway.