draw up a comprehensive action?

Hello!
I am not sure what the following sentences mean, especailly the underlined parts. can anybody help me?

In the early seventieis, a group of students got together to draw up a comprehensive environmental and social plan of action to steer their town Davis away from the terminal urban sprawl that afflicts so many other American cities.

1 make a plan that covered these issues in depth
2 stop the town growing outwards (in the suburbs) uncontrollably