Theme A
INTRO
‘We inhabit a universe that is characterized by diversity’ Desmond Tutu Thriving communities are established through the success of their neighborhoods, which serve as the fundamental building blocks of an appealing community. In Lexington, the neighborhoods and more importantly the neighbors themselves are the very essence of the city. Imagine Lexington 2045 recognizes the importance of developing neighborhoods that are visually appealing and inclusive, catering to individuals of all ages, races, colors, religions, disabilities, sexes, familial statuses, and nationalities. In the planning process for these neighborhoods, it is crucial to consider those who are facing housing insecurity. This approach nurtures a sense of belonging, fosters active community participation, and promotes sustainable growth, thereby cultivating a flourishing community. The long‐term viability and prosperity of these neighborhoods depend on embracing diversity in housing options, affordability, land utilization, transportation alternatives, and recreational amenities. Imagine Lexington 2045 envisions creating welcoming neighborhoods that prioritize the needs of everyone as a paramount objective.
It is imperative to acknowledge the challenges faced by the unhoused population and involve them in the process of community‐building. Meticulous planning, community participation, and ongoing maintenance play crucial roles, with a focus on inclusive housing options and affordability being at the forefront of development endeavors. The success of neighborhoods is pivotal in establishing a desirable community and providing a solid foundation for a comprehensive plan. Ensuring equitable access to a wide range of land use, transportation, and recreational opportunities for all residents, irrespective of their race or socioeconomic status, is also vital.
Lexington is undergoing a period of significant growth, and it is imperative to direct this growth towards fostering a sense of community, especially as the Urban Service Boundary is expanded by 2,700 to 5,000 acres. The continuous urbanization of this once small college town requires careful management, a strong emphasis on enhancing existing neighborhoods, and applying the balance of the recommendations of Imagine Lexington to the expansion process. By conscientiously guiding growth and development, Lexington can reinforce the success of established neighborhoods while creating vibrant new ones that provide housing options for everyone, adhere to exceptional design standards, and prioritize community‐building amenities.
To cultivate a flourishing community, it is crucial to effectively manage Lexington's expansion of the Urban Service Area. This entails a dual approach: improving the quality of existing neighborhoods and addressing past issues such as environmental justice, historical planning practices and policies, as well as segregation and the lingering effects of redlining, race, and socioeconomic disparities. The expansion of the city offers a distinctive opportunity to build upon the progress achieved thus far, but also a sense of urgency to correct the mistakes of the past through regulatory reform ahead of expansion. By embracing deliberate and thoughtful growth and development characterized by exemplary design standards and community‐oriented amenities, Lexington can fortify the current neighborhoods and establish dynamic new ones. Rather than fearing the city's expansion, Lexingtonians should perceive it as an unparalleled opportunity to build upon the existing momentum. This requires careful planning,
Recommended Updates to Theme A – Building Successful Neighborhoods
community involvement, ongoing maintenance, and a commitment to diversity, affordability, land use, transportation, and recreational opportunities.
Summary of Changes:
Added community involvement
Recognized housing insecurity and plight of the unhoused
Recognized the history of environmental justice issues
Recognized a well‐planned expansion
WHERE ARE WE NOW?
Lexington boasts a diverse array of neighborhoods, ranging from historic downtown areas to suburban single‐family neighborhoods and mixed‐use developments. Despite varying opinions on what constitutes a successful neighborhood, a sense of community and belonging remains a shared priority. To foster this, Imagine Lexington 2045 aims to develop quality new projects while building upon the strengths of existing neighborhoods.
Traditionally, Lexington's neighborhood development has followed the Euclidean zoning scheme, a system of zoning whereby a town or community is divided into areas in which specific uses of land are permitted. While this can be beneficial for protecting against pollution risks and separating industrial from residential areas, it has also exacerbated issues such as segregation and urban sprawl, limiting housing supply and increasing affordability challenges. Recognizing these issues, some cities have embraced more flexible zoning policies that encourage mixed‐use development and higher‐density housing. These progressive approaches aim to promote alternative modes of transportation like walking, biking, and public transit. They have gained wide popularity across the board, but specifically among two rapidly expanding age groups in Lexington: young professionals and the aging population.
Lexington has experimented with mixed‐use zoning but faced challenges implementing it on small sites. However, the community conversations that led to the creation of mixed‐use zones paved the way for later adoption of the Form‐Based Neighborhood Business (B‐1) Zone. Successful larger mixed‐use (MU‐2 and MU‐3 zoned) projects have demonstrated their appeal at a neighborhood level, and the inclusion of multi‐family housing in single‐family developments has become more common. Additionally as part of the Imagine Lexington 2018 Comprehensive Plan process, the City addressed mixed‐use on a larger scale within the B‐6P (Commercial Center Zone) by allowing multi‐family residential as part of the development or retrofit of shopping centers. There is more work to be done toward creating complete neighborhoods of all sizes, including a variety of housing types, but also neighborhood supportive uses.
As the public perception changes and the demand for units grows, there are increasingly more residential plans that contain at least two housing types. In many cases, multi‐family residential, and townhouses are being included in single‐family developments. Still, the City must do more to include more middle housing options like duplexes, triplexes, and up to eight‐plexes that fit seamlessly into the neighborhood context. The local demand for multi‐family housing has been strong since the last recession. These new market‐rate apartments help keep rents relatively low, as older units lower their prices to remain competitive. However, it’s not just that increasing supply that works to improve housing affordability. Through a process called ‘filtering’ where housing ages, it becomes relatively more affordable. A significant share of affordable housing is hand‐me‐down housing according to a 2017 study on The Long Term Dynamics of Affordable Rental Housing as much as 45% of units to renters making less than 50% of the area median income, were units which were at one time owner‐occupied or higher rent. In addition to promoting sustainable and affordable housing, Lexington has placed a strong emphasis on addressing housing insecurity. To facilitate this, the city established The Department of Housing Advocacy and Community Development, in response to a recommendation from The Commission for Racial Justice and Equality Housing and Gentrification Subcommittee This department comprises six divisions, one of which is dedicated to Homelessness Prevention and Intervention. The Homelessness
Prevention and Intervention division is committed to assisting individuals facing housing insecurity or those at risk of becoming homeless.
The United States is facing a pressing issue of affordable housing, as indicated by a Pew Research Center survey in October 2021, where 49% of Americans consider it a problem. The housing‐affordability crisis, at its most basic, lies in the insufficient supply to meet the demand for housing, resulting in escalating prices for existing properties. Particularly concerning is the fact that lower‐income households express the highest level of concern at 57%, while Black, Hispanic, and Asian American adults also report significant levels of worry at 57% and 55% respectively. In contrast, fewer White adults, at 44%, perceive it as a major issue. This disparity highlights the urgent need to address housing affordability, especially for marginalized communities. Record housing shortages significantly contribute to the affordability challenges, underscoring the importance of implementing zoning reforms and making new housing investments as crucial solutions. Disturbingly, home prices surged by nearly 20 percent in 2021 alone, accompanied by a sharp rise in rents, raising concerns about a potential increase in homelessness. Previously affordable cities, once shielded from the crisis, are now experiencing unprecedented highs in home prices. Lexington is not exempt from the impact of housing unaffordability, with workers in service and cultural jobs being disproportionately affected due to weaker wage growth compared to other sectors. It is crucial to recognize that the consequences of housing insecurity extend beyond mere housing, as studies indicate its far‐reaching effects on educational attainment, physical and emotional health, and social connectedness for those affected.
To tackle these challenges effectively, Lexington has fostered partnerships with community organizations like the Hope Center. By collaborating with such organizations, the city can offer a range of essential services including housing, addiction recovery assistance, and job training to individuals without stable housing. Through these concerted efforts, Lexington strives to ensure that all its residents have equal access to secure and comfortable housing.
Summary of Changes:
Added long term effects Euclidean zoning has had on Lexington
Added affordable housing
Recognized efforts to address housing insecurity
PILLAR I DESIGN
As Lexington grows and becomes more urbanized, it is essential to develop in a way that fosters community building. Development that achieves infill, density, and utilization of vacant or underutilized property but neglects other design goals of the Comprehensive Plan would be a missed opportunity to enhance the community, particularly with an expansion of the Urban Service Area.
In 2013, the Comprehensive Plan underwent a significant change by excluding the land use map, a significant component of previous plans. Despite concerns expressed by some stakeholders about the map's omission, the Planning Commission recognized the need for flexibility in the planning process to encourage innovative development solutions. In the Placebuilder element of 2018 Imagine Lexington plan further refined the approach by clearly applying the policies of the plan to zone change applications ensuring developments respond to the surrounding context and desired outcomes.
The Imagine Lexington 2045 plan builds on this approach by focusing on policies that will guide future developments and refine the concept of flexible planning. The plan emphasizes the importance of design, particularly in ensuring that new developments are contextually sensitive and incorporate best practices for green and open spaces. This approach of addressing site design will result in successful neighborhoods that will last over time and benefit Lexington as a whole, and can oftentimes be accomplished with no or minimal additional cost to developers.
During the completion of small area plans that were adopted as elements of the 2013 Comprehensive Plan, such as The Armstrong Mill West Small Area Plan, Cardinal Valley Small Area Plan, and Winburn Small Area Plan, it became clear that many neighborhoods were not necessarily opposed to multi‐family housing if the design contributed positively to the overall fabric of the neighborhood. The Winburn Small Area Plan incorporated a series of design standards to enhance the quality of housing in the area, which were intended to be transferable and applicable to multi‐family developments throughout Lexington. These standards emphasized fundamental principles to activate streets and ensure safety for all residents, without imposing restrictions on construction materials or limiting density. Developers who underwent zone changes in the study area found the guidelines useful in allaying concerns of neighboring residents and establishing clear expectations for future development. The Imagine Lexington 2018 plan took this a step further and applied these design standards universally on zone changes as part of the Placebuilder. Imagine Lexington 2045 will build on this design momentum and will look for ways to further codify these design standards so they become the rule rather than the exception.
The American Institute of Architects (AIA) and the American Society of Landscape Architects (ASLA) stress the importance of well‐designed neighborhoods and housing. They recommend that new neighborhoods should be integrated into existing developments in ways that enhance the community, commercial developments should support nearby communities, and multi‐family housing should be designed to complement its surroundings. Streets should prioritize pedestrian safety and accessibility for all users, while minimizing the visual impact of parking, garages and driveways on the streetscape. Additionally, the AIA recommends that new, more compact forms of multi‐family housing be accommodated by the zoning ordinance to reflect the evolving needs of Lexington’s housing strategy.
ASLA also advocates for access to transportation through the implementation of Complete Streets policies, which promote healthier, more sustainable, and more equitable communities.
Designing well‐functioning neighborhoods must extend beyond individual living spaces and incorporate strong design principles into a range of community amenities. Convenient access to amenities is essential, and new developments should include green spaces that are thoughtfully designed for both residents and the wider community. These green spaces should be safe, visible, and integrated into neighborhoods, serving as important focal points where residents can congregate and socialize. The COVID‐19 pandemic has highlighted the significance of open space in neighborhoods as people sought outdoor areas for physical activity and socializing while minimizing the risk of infection. In addition to providing physical and social benefits, open space in neighborhoods also promotes environmental health by mitigating urban heat island effect, reducing stormwater runoff, and supporting biodiversity. The Urban Institute’s report A Framework for Assessing Equitable Health Outcomes of Parks from 2022 details ways the integration of open space into neighborhood design is crucial for promoting the health and resilience of communities.
There are many examples of cities that have created vibrant urban centers that integrate residential, commercial, and entertainment spaces together to generate a distinct and thriving place. The development of the Arena District in Columbus, Ohio is one such example that has inspired similar projects across the United States. The Arena District, initiated by Nationwide Realty Investors, has become a flourishing destination with various recreational amenities. It features retail, dining, and entertainment venues centered around Nationwide Arena, home to the Columbus Blue Jackets and the Columbus Clippers. Over time, the district has expanded to include offices, residential units, and hotels, catering to both local residents and tourists visiting the nearby Columbus Convention Center. In a similar vein, the Rupp Arena, Arts & Entertainment District in Lexington, has seen significant transformation efforts, with plans for further multiuse development on the High Street lot and Town Branch Park. Such developments should be encouraged, and they should prioritize community input and utilize data from surrounding neighborhoods to drive thoughtful and inclusive growth and design.
The availability of community facilities is an important aspect of building strong neighborhoods. However, it's not enough to simply have facilities; they also need to be utilized in a way that benefits the residents. Parks may have facilities, but lack programming, while the library has programming but may lack a way to deliver it to those in need. Schools have ample space but lack after‐hours programming. To address these issues, representatives from various organizations, including Parks and Recreation, Lexington Public Library, and Fayette County Public Schools, have shown a willingness to explore sharing facilities and programming to better serve a wider range of constituents and share costs. These partnerships should be encouraged and supported.
In addition to providing amenities, it's crucial to consider transportation options that allow residents to access them. Pedestrian and bicyclist facilities need to be improved to be on par with those available for vehicle drivers. Creating walkable neighborhoods with wider sidewalks and bike facilities is something many people look for when deciding where to live. While self‐preservation is important, building strong communities requires a more collective mindset. By investing in accessible community facilities and transportation options, Lexington can create neighborhoods that benefit everyone. It's time to prioritize
the needs of the many over the needs of the few and explore innovative solutions that serve all residents.
Summary of Changes
Added community involvement
Recognized housing insecurity and plight of the unhoused
Recognized the impact of COVID
Added exploring a civic district
DESIGN POLICY #1
UTILIZE A PEOPLE‐FIRST DESIGN, ENSURING THAT ROADWAYS ARE MOVING PEOPLE EFFICIENTLY & PROVIDING EQUITABLE PEDESTRIAN INFRASTRUCTURE.
Adopting a people‐first design for neighborhoods is crucial to achieving a balanced, multimodal transportation system and accommodating future growth while promoting open spaces in Lexington. This shift from focusing solely on vehicular transportation to including pedestrians, bicycle riders and mass transit users on the same level as automobiles will reclaim more of the city for walkable solutions and opportunities for enhancing the human experience.
To achieve this goal, it is essential to provide transit and transportation infrastructure that caters to the needs of all users. Mass transit infrastructure should be considered essential, and proposed developments on current transit lines or future expected routes should enhance existing infrastructure to accommodate the new or increased ridership. This includes accessibility, scaling, adding or improving shelters and seating options and providing direct pedestrian and bicycle linkages to transit.
Pedestrian infrastructure should include wide sidewalks on both sides of streets and separated bike lanes wherever possible. Further, a people‐first design should ensure that pedestrian and bicycle users’ safety is assured by the incorporation of traffic calming measures that slows traffic and increases driver awareness, and physical separation between the modes.
It is important to prioritize the most vulnerable users of our transportation network, in addition to addressing vehicular safety. This entails giving precedence to the wellbeing of individuals over vehicles and devising accessible, efficient, and fair transportation alternatives that cater to everyone. It is imperative for the design standards for public transportation amenities to meet minimum requirements in all neighborhoods, ensuring safety, sustainability, and visual appeal. Moreover, these standards should harmonize with the surrounding amenities, whether already existing or proposed. These improvements to Lexington’s multimodal network not only have benefits to the users who choose or need to use these other methods of transportation, but they have the added benefit of implementing impactful and efficient climate solutions. By adopting a people‐centric approach, the city can reduce its carbon footprint by making other modes of transportation viable and attractive.
Summary of Changes:
Added climate change, accessibility, and equity, language
Added multimodal transportation
Added design standards for public transportation amenities
DESIGN POLICY #2
ENSURE PROPER ROAD CONNECTIONS ARE IN PLACE TO ENHANCE SERVICE TIMES & ACCESS TO PUBLIC SAFETY, WASTE MANAGEMENT AND DELIVERY SERVICES FOR ALL RESIDENTS.
There is often opposition to connecting roads between developments, as residents believe that the increased traffic will negatively affect their property. However, it is important to note that there are many benefits to the increased connectivity that further the health, safety, and welfare of the community, as well as benefit the individual residents themselves. Additional connections result in reduced public safety response times that can save lives. These same connections can also save taxpayer dollars as waste management operations become more efficient, and have positive climate impacts by reducing vehicle miles traveled and reducing delivery routes for goods and services.
Additionally, the adoption of LFUCG Complete Streets Policy by the Urban County Council on December 6, 2022, represents a significant step towards creating a more connected, safe, sustainable, and efficient road transportation system. Complete Streets is an approach to road design that considers the needs of all users, including pedestrians, cyclists, public transit riders, and motorists, regardless of age or ability. The policy aims to ensure that streets are safe and accessible for everyone, regardless of their mode of transportation, and that they contribute to the overall livability and economic vitality of communities. By adopting the policy, Lexington is committing to prioritize the needs of all road users and to consider a range of mobility options in future road projects. This approach can lead to improved health outcomes, reduced transportation costs, and increased economic activity. The policy can also foster a sense of community and promote social equity by ensuring that all residents have access to safe and convenient transportation options.
“Providing a strong connected network of roads and pedestrian facilities can help distribute traffic, reduce travel distances and times, improve routing for transit and reduce walking distances. Good connectivity also provides better routing opportunities for emergency and delivery (solid waste, recycling, mail) vehicles. All of these effects can play a positive role in reducing congestion on the street network.” ‐ Kentucky Transportation Cabinet
Summary of Changes:
Recognized the whole Public Safety Department, Waste Management, and delivery services
Added climate change
DESIGN POLICY #3
MULTI‐FAMILY RESIDENTIAL DEVELOPMENTS SHOULD COMPLY WITH THE MULTI‐FAMILY DESIGN STANDARDS IN APPENDIX
A.
In the Winburn Small Area plan, design standards were created to address neighborhood concerns and to ensure that many of the problems historically created through poor design would not be repeated in the future. Special attention was paid during the creation of the standards to ensure that new multi‐family developments will be properly oriented for pedestrians and site safety and will create a strong sense of place.
The design standards were developed with the intention of being portable for inclusion in the 2018 Comprehensive Plan. The same design principles that were established to create desirable multi‐family development in Winburn, are also applicable throughout Lexington. They were included as a component of the Placebuilder in the 2018 Plan, and have helped shape successful multi‐family developments over the past five years. They are carried forward in Imagine Lexington 2045 and will continue to be instrumental in the future. The Urban County Council and Planning Commission should find ways to codify them through additional Zoning Ordinance text amendments.
These design standards were shaped with public involvement during the development of the Winburn plan, and involving residents, housing advocates, and community stakeholders in the planning and design process ensures that housing solutions are responsive to local needs and preferences, fostering more inclusive and equitable outcomes. Additional ways to incorporate this input should be sought out.
Summary of Changes:
Updated to reflect inclusion of design standards in 2018 Plan
Added desire to codify design standards
Added emphasis on inclusion of residents, housing advocates, and community stakeholders in the planning and design process
DESIGN POLICY #4 PROVIDE DEVELOPMENT THAT IS SENSITIVE TO THE SURROUNDING CONTEXT.
Context‐sensitive development is an approach that focuses on aligning new developments with the existing fabric of neighboring communities and environmental compatibility. It recognizes the importance of considering the surrounding built and natural environments to enhance the overall quality of life for residents. Rather than promoting uniformity or segregated land uses, this approach emphasizes meaningful connections between new and existing neighborhoods and environment. These connections can be established through the inclusion of complementary features like retail spaces, job opportunities, community greenspaces, and physical multimodal connections. It is crucial to ensure that these connections are appropriately scaled, accessible, and in harmony with the surrounding context to avoid intrusiveness. The goal is to design new buildings that seamlessly blend into the existing neighborhoods, respecting the overall scale, character, and placement on the site, and preserving as much of the natural environment as possible. By engaging with the community and valuing its traditions and diversity, development efforts can bring about positive change that aligns with the neighborhood's distinctive characteristics, preserving its identity and vegetation, promoting inclusivity, and incorporating sustainable practices.
Context‐sensitive development also takes into account the presence of existing vegetation. The National Capital Planning Commission emphasizes the importance of preserving and enhancing tree canopy cover. It details some of the principles that drive the implementation of strategies that minimize tree removal during the planning and design phases. Trees offer numerous environmental, health, and community benefits, including wildlife habitat, groundwater filtration, erosion prevention, energy conservation through shading, aesthetic outdoor spaces, improved air quality, and carbon sequestration. Consequently, safeguarding and restoring the tree canopy impacted by development becomes paramount. An effective policy must guide new development to prevent and mitigate tree loss, prioritize tree preservation, and propose alternatives when preservation is unfeasible due to development constraints. This policy should encompass both tree preservation and replacement practices. The policies governing tree preservation and replacement should address the conservation and replacement of both individual trees and forests. To determine the number of replacement trees for individual specimens, a formula based on size, species rating, and condition rating should be employed. Regarding forested areas, a ratio based on the number of acres cleared should inform the replacement efforts. When replanting, the size of the new tree should be appropriate for its specific type, such as shade trees, evergreens, or ornamental trees.
Guidelines related to massing and design can be utilized to ensure a seamless fit within the context. By considering the unique social, cultural, economic, and environmental aspects of each community, context‐sensitive development provides a targeted and thoughtful approach to neighborhood development. Active community engagement is crucial for garnering support for new development projects. Involving residents in the decision‐making process and valuing their input allows for tailored development efforts that meet their needs and aspirations. Furthermore, the integration of sustainable practices enhances the overall wellbeing, cohesion, and resilience of the community. Through context‐sensitive development, new developments can integrate harmoniously with neighboring communities,
Recommended Updates to Theme A – Building Successful Neighborhoods
enhancing the quality of life for all residents while respecting the neighborhood's identity and built characteristics.
Summary of Changes:
Added community engagement to the design process
Added environmental considerations and tree preservation
Added promoting inclusivity
Recommended integration of sustainable practices enhances
13 Imagine Lexington 2045’s Recommended Updates to Theme A – Building Successful Neighborhoods
DESIGN POLICY #5
PROVIDE
PEDESTRIAN‐FRIENDLY STREET PATTERNS & WALKABLE BLOCKS TO CREATE INVITING STREETSCAPES.
Prior to the Covid‐19 pandemic, the 2018 Comprehensive Plan had already addressed the correlation between walkable communities and public health. The pandemic has further emphasized the significance of astute space and street design. Creating a welcoming and secure neighborhood environment is of importance, fostering the freedom for individuals to move effortlessly between different locations on foot. Studies have demonstrated that walkable streets not only facilitate movement, but also promote exercise, contributing to the overall health of the community. To accomplish this walkable transportation network, Dangerous by Design, a 2016 report from Smart Growth America, suggests that when designing street facilities, developers should, “consider how to keep people walking separate from people driving vehicles; keep traffic speeds low; ensure sidewalks and curb ramps are accessible to people with disabilities; and clarify where each road user should be expected to travel.”
Traffic speeds have a profound impact on both the actual and perceived safety of pedestrians, as well as the overall quality of life in communities. The same 2016 publication indicates that pedestrians struck by a motor vehicle traveling at 40 miles per hour face a staggering fatality rate of 65 percent. However, when vehicle speeds are reduced to 30 mph, the risk of death decreases to 18 percent. Moreover, the fatality rate further drops to just 6 percent when vehicles are traveling at 20 mph.
Given these findings, it is crucial to prioritize the reduction of vehicle speeds in areas with high pedestrian activity, such as neighborhoods, commercial areas, schools, and parks. According to a 2022 update of Dangerous by Design, the number of pedestrians being struck and killed while walking has reached a disturbing new high. In 2020 alone, over 6,500 individuals lost their lives in pedestrian accidents—an average of nearly 18 fatalities per day, representing a 4.5 percent increase compared to 2019.
This alarming trend persists because our nation's streets are designed in a manner that prioritizes the quick movement of cars, often at the expense of pedestrian safety. Even with reduced driving during the pandemic, the year 2020 witnessed a significant rise in overall traffic fatalities, highlighting the dangerous nature of our street designs.
Vehicle speeds are heavily influenced by roadway design, regardless of the posted speed limit. Narrow, curvilinear streets with on‐street parking and street trees help to slow traffic and create a pedestrian‐friendly atmosphere. Bicycle lanes and sidewalks should be physically separated from vehicle traffic by trees, bollards, buffers, parked cars, or curbs wherever possible. Research has shown that physically separated bike lanes yield the greatest safety gains for cyclists and, as a highly visible piece of infrastructure, even have the potential to attract new cyclists. The Environmental Protection Agency’s (EPA) Green Streets Handbook from 2021 also states that vegetated buffers can further protect cyclists from harmful air pollution and should be incorporated whenever possible. Residential streets that are overly wide and straight and lack a vertical edge, such as trees or buildings, enable fast‐moving traffic. It is also important to consider land uses and their relationship to the streets within the neighborhood.
Thoughtful attention should be given to ensuring there is a people‐first building orientation, and pedestrian‐oriented uses activating the ground level.
Placemaking and walkability are important to the success of Lexington and its neighborhoods. A variety of best‐practice reviews show that property values tend to be higher in more walkable neighborhoods that contain a mix of nearby destinations connected by pedestrian friendly streets.
To ensure accessibility for all members of the community, including those with mobility limitations, public spaces should be designed with careful consideration of how people interact with them. Combining pedestrian‐oriented design with affordable housing can also maximize the benefits of this approach by providing accessible destinations for low‐income households.
Summary of Changes:
Added Covid‐19 impact and stats
Added walkable design promotes exercise
Added traffic separation methods
Added accessibility for all members of the community
DESIGN POLICY #6 ADHERE TO THE RECOMMENDATIONS OF THE LEXINGTON AREA MPO BIKE/ PEDESTRIAN MASTER PLAN, ADOPTED IN 2018.
The 2018 Bike/Pedestrian Plan, called ConnectLex, envisions “a network of high quality walkways and bikeways that connects communities and fosters economic growth and regional collaboration. People of all ages and abilities will have access to comfortable and convenient walking and biking routes, resulting in true mobility choice, improved economic opportunity, and healthier lifestyles. Across the region, a culture of safety and respect is cultivated for people traveling by foot or bike, whether for transportation or recreation.” The plan identifies a multitude of bicycle and pedestrian projects that should be addressed throughout the duration of this Comprehensive Plan.
To enhance connectivity, ConnectLex aims to create a comprehensive network of streets that prioritize walkability and bicycle‐friendliness, catering to individuals of all ages and abilities, thus ensuring their safe and convenient access to various destinations. By recognizing the economic benefits associated with communities that encourage walking and cycling, Lexington can leverage the potential rise in property values and redevelopment opportunities. Moreover, the initiative places a strong emphasis on promoting fairness and inclusivity by focusing on providing walking and biking infrastructure in areas with the greatest need, thus fostering accessibility and equity in these modes of transportation. ConnectLex strives to improve public health by expanding the availability of active transportation options and outdoor recreational spaces, thereby contributing to the overall wellbeing of individuals. Additionally, addressing the safety concerns of the most vulnerable users remains a top priority, as Lexington aims to achieve zero fatalities and serious injuries among pedestrians and cyclists. Ultimately, by enhancing mobility, Lexington can offer a diverse range of active transportation choices that facilitate the creation of healthy, safe, and walkable/bikeable neighborhoods, irrespective of whether they are situated in rural, urban, or suburban settings.
Summary of Changes:
Added details from ConnectLex
DESIGN POLICY #7
DESIGN CAR PARKING LOTS AND VEHICULAR USE AREAS TO ENHANCE WALKABILITY AND BIKABILITY.
Regardless of whether a development is commercial or residential, larger, more expansive surface parking areas should be kept to a minimum. When a larger capacity is required, several smaller lots that help break up the mass of the parking surface are preferable to one large lot. Multiple smaller lots are advantageous because they are more readily incorporated into sites with significant grade changes, provide easier access to the buildings they serve, and minimizes stormwater runoff.
These discrete parking lots within larger developments should be connected via access easements and vehicular use areas that substantively address Lexington’s Complete Streets policies and where possible, public street standards for sidewalk widths and the provision of bicycle infrastructure. When access easements are utilized in lieu of a public street, there should be no degradation of access or safety for pedestrians or bike riders.
Summary of Changes:
Recommended reviewing current parking lot designs guidelines
Added complete streets and public street standards
DESIGN POLICY #8
PROVIDE VARIED HOUSING CHOICE.
To cater to the diverse needs of modern households, it is important to have a variety of housing options available. This is an essential element of any intelligent growth strategy that strives to provide quality housing for people at all income levels. When there is an increase in the overall supply of housing and access to affordable options within a neighborhood, residents have greater flexibility in choosing where to live. Factors such as access to transportation, job opportunities, schools, affordability, and housing type all contribute to the overall housing choice.
It is crucial to diversify the housing stock to meet the needs of people from different income levels, abilities, ages, and lifestyles, including those who require supportive services such as people experiencing housing insecurity. Creating diverse neighborhoods that offer a mix of housing types such as townhomes, apartments, condominiums, duplexes, and single‐family homes can foster personal interactions and enhance security. The increased population from higher‐density residential development can also promote neighborhood‐serving commercial development with a larger, built‐in customer base. Adding housing can be an economic stimulus for commercial centers that are vibrant during the workday but suffer from a lack of foot traffic and consumers during evenings or weekends.
Summary of Changes:
Added diversifying the housing stock to meet the needs of all people
Recognized people experiencing housing insecurity
Added commercial impact of varied housing
DESIGN POLICY #9
PROVIDE NEIGHBORHOOD‐FOCUSED OPEN SPACES OR PARKS WITHIN WALKING DISTANCE OF RESIDENTIAL USES.
Access to active and engaging neighborhood‐focused open spaces, such as parks or other intentionally designed outdoor gathering places, are crucial for the wellbeing of individuals and communities. Well‐designed and easily accessible open spaces within neighborhoods promote frequent physical activity, such as walking and biking, which can reduce the risk of chronic diseases like heart disease and hypertension, improve mental health, and combat social isolation. Additionally, numerous studies have shown the economic advantages of neighborhood‐focused open spaces, ranging from direct job creation to increased property values. When companies decide where to locate, quality of life factors, such as the availability of open spaces, are often considered.
Neighborhood open spaces can also offer key environmental benefits, especially when designed to integrate natural features such as tree preservation areas and stream corridors with amenities for active and passive recreation. Environmental benefits can include reduced heat island effect, improved air quality, and better stormwater infiltration. In addition, locating open spaces within walking distance of homes reduces vehicle traffic, leading to fewer vehicle miles traveled and lower greenhouse gas emissions.
Residents of Lexington are aware of these benefits and have expressed a desire for more walkable, neighborhood‐focused open spaces. In the 2022 On the Table survey data, the most discussed topic was "walking, biking, and access," and the sixth most popular topic was "urban greenspaces." A survey conducted as part of the 2018 Parks and Recreation Master Plan also highlighted the community's desire for improved walking and biking trails that connect urban areas, emphasizing the need for more accessible open spaces and amenities.
However, in many Lexington neighborhoods, residents lack access to appropriately located, sized, and designed open spaces that meet their needs. Even when such spaces are within walking distance, barriers such as busy road crossings, lack of pedestrian infrastructure, undefined entrance points, lack of engaging amenities, or poor visibility (such as open spaces located behind private homes) hinder or prevent use.
In the 2018 Parks Master Plan, Lexington’s Division of Parks and Recreation set a goal of increasing the population served within a ten‐minute walk of a neighborhood park. In 2021, Lexington further committed to this goal by joining the Trust for Public Land's national 10‐Minute Walk Campaign, aiming to ensure that everyone in the city can reach a park or neighborhood‐focused open space within a ten‐minute walk by 2050. As Lexington continues to grow, the inclusion of neighborhood‐focused open spaces in new residential developments will be essential to meet the city's goal.
To address this issue, Lexington should conduct a comprehensive review and update of plans, regulations, and policies, with the aim of establishing consistent level of service standards for neighborhood‐focused open spaces. In areas where these open spaces are currently lacking, it is imperative that they are incorporated into new development projects. These developments should
adhere to level of service standards regarding size, location, access, and amenities for the neighborhood‐focused open spaces.
Furthermore, as residential developments are planned, connections to other public space projects such as parks, shared‐use trails, and greenways should be provided to seamlessly link neighborhoods to the larger network of regional open spaces. Providing guidance and consistency on these strategic connections during development will require a coordinated and comprehensive green infrastructure plan (see Theme B Restoration Policy 2) that addresses connectivity between all open space assets. This approach will promote an active and sustainable lifestyle that benefits new and existing neighborhoods throughout all of Lexington.
Summary of Changes:
Updated to focus on the Mayor’s commitment to walkable access to community‐focused open spaces and parks.
Included reference to walkability, bikeability, accessibility and urban greenspaces as top OTT codes.
Clarified previous policy title: Make recommendations to locate new development within walking distance of existing greenspace / community centers, or create greenspace / community centers within walking distance of residential uses.
DESIGN POLICY #10 (NEW) REINVEST IN NEIGHBORHOODS TO POSITIVELY IMPACT LEXINGTONIANS THROUGH THE ESTABLISHMENT OF COMMUNITY ANCHORS
The promotion of sustainable and smart growth can greatly benefit from the active involvement of community anchors, which encompass the social, economic, and physical dimensions of neighborhoods. Community anchors can take various forms, ranging from sites of historical and cultural significance to everyday locations like local grocery stores or community centers. Regardless of their nature, these anchors provide essential goods and services while supporting the unique identities of neighborhoods.
The synergy among designated community anchors ensures that investments made in one anchor have a broader impact, benefiting a larger portion of the population. This approach includes initiatives such as complete streets, safer intersections, revitalized public spaces, and other enhancements that improve mobility and the overall public realm.
In addition to physical improvements, community anchors focus on promoting various modes of transportation, including biking, walking, public transit, and other multi‐modal options. By investing in transportation infrastructure, the initiative enhances neighborhood aesthetics and emphasizes the historical and cultural value of the community. Complementing these investments, the adoption of an infill housing strategy ensures that neighborhoods surrounding community anchors offer housing options that meet the preferences and demands of residents, while maintaining the character of residential development.
A compelling illustration of this can be found in Memphis, where the Memphis 3.0 Community Anchors initiative has showcased the transformative influence of these anchors. In the revitalization of neighborhoods, community anchors assume a critical role by addressing the social, economic, and physical aspects. By fostering collaboration between city planners and local community members through initiatives such as Small Area Plans, effective planning and optimal utilization of public investments can be achieved. Through empowering neighboring communities and reinforcing their unique identities, community anchors contribute to the creation of walkable environments and ultimately enhance the overall quality of life for residents.
In addition to the anchor facilities themselves, programming is also an essential component in cultivating a vibrant civic commons and fostering a sense of community. Community anchors recognize the significance of providing inclusive programming that promotes a sense of belonging, ensuring that everyone feels embraced and actively involved. This approach not only encourages individuals to explore novel opportunities but also creates lasting and meaningful experiences. This exemplifies the comprehensive approach to community development, which furthers sustainable and intelligent progress, benefiting both local neighborhoods and the wider community. According to the principles outlined in "Anchoring Inclusive Economic and Community Development," community anchors can serve as catalysts for driving sustainable and intelligent growth by implementing strategies that encompass various aspects, including social, economic, and physical dimensions of neighborhoods.
Summary of Changes:
New policy replacing Design Policy #10: Provide neighborhood focal points accessible to all residents
DESIGN POLICY #11 (NEW)
STREET LAYOUTS SHOULD ESTABLISH CLEAR PUBLIC ACCESS TO NEIGHBORHOOD OPEN SPACE AND GREENSPACE.
Most residential areas include some degree of open space and greenspace which serves as a common resource for the community. These spaces could be active or passive in their uses and could include greenways, conservation areas, floodplains, parks, or other shared outdoor gathering places.
Open spaces and greenspaces within a neighborhood should be easily accessible to meet the needs of the community. In order to ensure that these areas are safe, inviting, and beneficial to the maximum number of residents, it is essential that they have clear and visible access from the public right‐of‐way. Visibility and accessibility from the public right‐of‐way is also important for safety, maintenance access, and emergency medical access, if needed.
One way to achieve this is to allow for a significant amount of open space to have frontage on a public street. This type of street layout, where buildings or structures are situated on one side of the road, while the opposite side features a contiguous stretch of greenspace or open area, deliberately positions buildings to face the open space, creating both active and vibrant streetscapes and adjacent open spaces.
Some effective ways to further activate open spaces along streets are to include wider sidewalks, interpretive signage, street furniture, wider planting strips with street trees, and pedestrian scale lighting. By doing so, these spaces become more visually appealing and inviting, and provide a safe and comfortable environment for residents to enjoy the outdoors.
Open spaces and greenspaces are an essential component of healthy urban neighborhoods, but their effectiveness depends on their accessibility and visibility. Lexington should review and update regulations to ensure that neighborhood street layouts actively promote the benefits of clear, visible access to open and greenspaces.
Summary of Changes:
New policy replacing previous Policy #11: Single‐loaded streets should be utilized in order to establish clear public access to neighborhood focal points
DESIGN POLICY #12
SUPPORT NEIGHBORHOOD‐LEVEL COMMERCIAL AREAS.
Repositioning Declining Shopping Centers in Philadelphia (2020) delves into the issue of declining shopping centers in Philadelphia, originally designed for convenient car‐based shopping but now suffering from underutilization and deterioration. Online shopping has posed challenges for stores that rely on quick transactions, necessitating a strategic approach to rejuvenate these centers and restore them as vibrant community focal points. This approach should carefully consider the specific needs of the community, local market conditions, and the distinctive characteristics of each commercial center.
To adapt to changing consumer preferences, the retail industry is embracing technology and reimagining store interiors to prioritize experiential elements over sheer inventory. Some stores are incorporating lockers for efficient package pickups, while others are reducing their store numbers and sizes. Moreover, shopping and strip centers can enhance the shopping experience by integrating public amenities such as well‐designed pathways, comfortable seating areas, proper lighting, and appealing landscaping and community events. Additionally, these centers play a crucial role in catering to the needs of low and moderate‐income residents who rely on physical stores due to limited broadband access or lack of transportation. Therefore, it is imperative to ensure that these centers are inclusive and accessible to consumers of all income levels and mobility limitations, by providing safe pedestrian walkways and reliable transit connections.
Certain shopping centers are undergoing a transformation into lively "lifestyle centers" that resemble bustling town squares. These centers integrate a mix of functions such as offices, housing, hotels, civic buildings, and public amenities. It is crucial for planners, developers, and policymakers to carefully assess the changing nature of these centers and ensure they are well‐connected to the surrounding neighborhoods and the transit network. To minimize displacement of existing businesses during the revitalization process, targeted programs should be implemented to support local community‐serving establishments within the shopping centers. Moreover, as the demand for smaller logistics warehouses in urban areas grows alongside the rise of e‐commerce, shopping centers can serve as suitable locations for such facilities. However, the transportation implications of these uses must be taken into careful consideration.
To encourage economic investment, the government can proactively rezone these shopping center sites from Neighborhood Business (B‐1) to Commercial Center Zone (B‐6P), allowing for increased residential density and commercial activity. Additionally, providing incentives for businesses to establish themselves in these commercial centers and developing a robust marketing strategy to promote them within the local community can further bolster their revitalization efforts. By implementing these proactive measures, shopping centers can reclaim their role as vibrant and essential community spaces. The activation of neighborhood‐level commercial centers can address the community's desire for more local business opportunities, including street vending, as highlighted in the Neighborhood Activation Study conducted by the Safe Places Active Spaces initiative in 2019.
Summary of changes:
Added online shopping effects to brick‐and‐mortar stores
Added ways to reimaging neighborhood‐level commercial areas
Added integrating public amenities into existing neighborhood‐level commercial areas
Acknowledged the importance of some of these areas to catering to the needs of low and moderate‐income residents
Recommended programmed events and street vending in these areas
DESIGN POLICY #13
DEVELOPMENT SHOULD CONNECT TO ADJACENT STUB STREETS & MAXIMIZE THE STREET NETWORK.
A well‐connected street network offers direct, uninterrupted routes and multiple options for travel. By incorporating interconnected roads, traffic is distributed evenly and efficiently, utilizing smaller and slower interconnected roads to avoid congestion points. This approach adds resilience to the road network, enabling efficient dispersal of traffic in case of incidents or construction. The result is reduced response times for public safety vehicles and enhanced accessibility and efficiency for public transit, school buses, service vehicles, and waste management. Creating a robust street system with multiple routes to neighborhood destinations is widely recognized as a best practice in urban planning. By distributing traffic across numerous collector and local streets, every street in a neighborhood becomes desirable without becoming overly burdened.
In February of 2022, the Urban County Council adopted key changes to the Subdivision Regulations to address some of Lexington’s connectivity issues. The maximum block length was reduced from 1,600 feet to 1,000 feet, the minimum block length was abolished, cul‐de‐sac standards were improved, street connections required into adjacent developments in every direction, and single‐loaded streets were required for the majority of frontage on public facilities. These regulations took effect in February of 2023.
To further address connectivity within Lexington’s regulations, it is recommended that Lexington adopt a connectivity index approach for new developments, requiring them to achieve a minimum score on a "connectivity index,” as suggested by The Sustainable Development Code organization This index is calculated by dividing the number of street links by the sum of intersections and culs‐de‐sac also referred to as nodes. In cases where culs‐de‐sac are necessary, the creation of pedestrian and bicycle paths between them or public right of way should be mandatory to ensure a level of connectivity for pedestrians and bicyclists, thus mitigating negative impacts on walkability.
In addition to measuring street connectivity using the connectivity index, it is advisable to incorporate explicit statements of purpose in ordinances to promote walkability. Additional regulations can do more to address the length of dead‐end streets, and establish guidelines for traffic circulation that consider vehicles, bicycles, and pedestrians alike. As part of these measures, planning staff should revise subdivision regulations to mandate signage at all stub streets, informing neighborhood residents about future roadway connections and providing a means for discussion with staff regarding timing and impacts.
Summary of changes:
Recommended that Lexington adopt a connectivity index approach for new developments
Recommended creation of pedestrian and bicycle paths between culs‐de‐sac or public right of way
Recommended to incorporate explicit statements of purpose in ordinances to promote walkability especially in new developments
Added Urban County Council adoption to key changes to the Subdivision Regulations
PILLAR II DENSITY
Throughout Imagine Lexington 2045’s Goals and Objectives extensive public outreach effort, it was clear that the overwhelming opinion of the community is to maintain a strong Urban Service Boundary and continue to pursue strategies for infill and redevelopment. Even though the Urban County Council adopted Goals and Objectives with an expansion of 2,700 – 5,000 acres, no amount of new land for growth will change the market for housing in Lexington’s already developed urban core. The implication is that development within the Urban Service Boundary must continue to become more compact and efficient even as Lexington grows into new areas. With roughly 90% of the area within the current boundary developed, Lexington must make the most of the remaining 10%, as well as maximize redevelopment efforts.
In the 2012 article "Smart Growth and Economic Success: Benefits for Real Estate Developers, Investors, Businesses, And Local Governments", it is highlighted that compact development patterns offer a wide range of benefits that extend beyond preserving agricultural land. These benefits include reduced environmental impact, enhanced economic vitality, and improved public health outcomes. Compact development promotes sustainable and livable communities by optimizing land use, lowering transportation costs, and fostering better public health. Additionally, high‐density development attracts businesses and residents, stimulating the local economy and increasing property values. The article emphasizes the importance of preserving natural habitats and open spaces through efficient land use practices, recommending targeted redevelopment and infill efforts in commercial corridors, downtown areas, and transitional zones while respecting stable single‐family neighborhoods. By adhering to these principles and practices, Lexington can create a completer and more sustainable environment for its residents. Compact development brings economic advantages to real estate developers, investors, businesses, and local governments. It maximizes land usage, reduces project costs, and minimizes expenses for public amenities. Compact development also boosts economic productivity and investment, lowers building and infrastructure costs, enhances emergency services, increases tax revenue through higher property values, and promotes alternative modes of transportation. Additionally, it stimulates local economic activity, job creation, and improved access to goods and services through vibrant mixed‐use neighborhoods. Imagine Lexington 2045 embraces compact development and the density and intensity it brings.
A complete community is one that meets people’s needs for everyday living, to include a mix of housing (with regard to type and affordability), local services, community infrastructure, jobs, schools, and recreation/open space for the residents. Complete communities are often designed with sustainability in mind, incorporating green spaces, energy‐efficient buildings, and alternative transportation options to reduce the community's carbon footprint and promote a healthy lifestyle. The goal is to create a vibrant, resilient community that can adapt to changing needs and circumstances over time. Complete streets, efficiency of land use, livability and sustainability are its main characteristics. A complete community is, in effect, a mixed‐use development on a community‐wide scale that helps to create a sense of place.
Research has shown that, in the future projected population increase, the largest demographics represented will be young professionals and the aging population. It is important to note that national data suggests that these two age groups prefer housing options that are walkable and require minimal
maintenance. Providing developments that support these land use patterns will ensure Lexington remains responsive to the future needs of these populations.
It is crucial for the Lexington community to recognize the importance of implementing compact development, particularly in the wake of the first expansion of the Urban Service Area in twenty seven years. While infill development may face opposition from some residents, it is important for the community to consider the long‐term benefits of such development, including reduced urban sprawl, preservation of natural areas, and improved access to services and amenities. Through thoughtful design and community engagement, infill development can enhance existing neighborhoods and help to create a more sustainable and livable city.
Summary of Changes:
Added Urban Service Area expansion
Added Expansion Area Master Plan
Added more benefits of compact development
Added climate change
Added educating the public on benefits of infill development and Urban Service Area Expansion
DENSITY POLICY #1
LOCATE HIGH DENSITY AREAS OF DEVELOPMENT ALONG HIGHER CAPACITY ROADWAYS (MINOR ARTERIAL, COLLECTOR), MAJOR CORRIDORS & DOWNTOWN TO FACILITATE FUTURE TRANSIT ENHANCEMENTS
Given Lexington’s historically increasing population, the community’s expressed desire to create exciting walkable places, and the goal of preserving valuable agricultural land, the importance of density cannot be overstated. By reducing dependence on vehicles, Lexington can actively contribute to the global fight against climate change. Additionally, by reducing the number of car trips on local streets, not only does the city promote sustainability, but it also lowers the costs associated with maintaining infrastructure. To ensure optimal access to community gathering places such as parks and schools, higher density units, which may have limited private open spaces, should be strategically positioned along collector streets and minor arterials. However, high density development is not appropriate in every context. As stressed within the “Design” vision and policies, density should address the context of its surroundings.
In 2009, the Environmental Protection Agency (EPA), the U.S. Department of Housing and Urban Development (HUD), and the U.S. Department of Transportation (DOT) established the Partnership for Sustainable Communities with the objective of assisting communities in improving access to affordable housing, offering diverse transportation options, and reducing transportation costs. It was inspired by a vision of building economically competitive, environmentally sustainable, and opportunity‐rich communities. The partnership works to ensure that development, housing, energy, and transportation policies are interconnected. The partnership's "Livability Principles" were subsequently adopted by the Transportation Policy Committee in 2011, with the Metropolitan Transportation Plan (MTP) 2045 upholding a commitment to these principles, and this comprehensive plan supports them as well. Imagine Lexington 2045 recommends concentrating the highest density/intensity development along major corridors and in the downtown area to facilitate transit‐oriented development, which would pave the way for Bus Rapid Transit opportunities.
Studies such as Imagine Nicholasville Road and Imagine New Circle Road have concluded that increasing the intensity of land use along these corridors, particularly for residential purposes, is necessary to accommodate population growth through more efficient land utilization. Doing so also ensures that the bulk of the highest density residential development occurs outside of existing thriving neighborhoods. Similarly, in cases where high density apartment development takes place beyond these areas, it should primarily focus on minor arterials and collectors for easier access to future transit services. Where corridor development and thriving neighborhoods merge, transitions and step‐downs should mitigate intrusion. Corridor development should also include multimodal connections to adjacent developments and neighborhoods, incorporating them into the context of the neighborhood.
Summary of Changes:
Combined density policy #1 & #4
Added climate change
Added livability principles
Added imagine Nicholasville/New Circle Road studies
DENSITY POLICY #2
INFILL RESIDENTIAL CAN & SHOULD AIM TO INCREASE DENSITY WHILE ENHANCING EXISTING NEIGHBORHOODS THROUGH CONTEXT SENSITIVE DESIGN.
In areas where the preservation of existing neighborhood design characteristics is of high importance, infill residential should apply the recurring building patterns of the area. It is wholly possible to add residential units while matching the consistent rhythm of existing development, so that the new seamlessly blends in with the old. Significant contrasts in scale, massing and design should be minimized while attempting to not impact the density of a proposed development.
Summary of Changes:
No change
DENSITY POLICY #3
PROVIDE OPPORTUNITIES TO RETROFIT INCOMPLETE SUBURBAN DEVELOPMENTS WITH SERVICES AND AMENITIES TO IMPROVE QUALITY OF LIFE AND MEET CLIMATE GOALS.
For decades, Lexington has embraced a form of zoning that was targeted at separating different land uses categories (commercial, residential) and isolating incompatible land uses (industrial, warehousing). While the essential purpose of such separation was to limit the negative impact of more intense land uses on lesser intense land uses, what evolved was a highly segmented built environment. One that was drastically different than the way cities were intertwined historically. While this separation of land uses had positive effects, ensuring that industrial development did not expose residents to the toxic effects of production and manufacturing, it also created a stratified community and disparaged denser development or different forms of housing than single family detached structures. Mixed residential development that included a blend of townhomes, duplexes, single family detached dwellings, and low‐level multi‐family structures, which allow for aging in place and access to more affordable housing for first time owners, were harder to construct. The incorporation of neighborhood businesses, like a corner store, grocery, or restaurant, were also harder to establish, pushing them to the larger regional development and arterial roadways.
Over the course of the last twenty years, and as represented by the comments made during the public outreach, the market has seen a significant shift in residential consumer preferences, to which Lexington must respond and address with more modern zoning regulations. Primarily, Lexington’s economy, like the national economy, has shifted away from many of the most incompatible land uses (heavy industrial land uses), while at the same time, there has been a boom in the services and retail sectors. Today, people are seeking to live in areas where they can get all their needs met without being forced to drive as far, or in some cases, at all. A complete neighborhood should contain residential, employment, commercial, recreational and civic uses that serve the overall needs of the area, are within a walkable distance, and serve as neighborhood focal points. Improving our neighborhoods to include everything people need for their daily live reduces their required vehicular trips and will be a key way for Lexington to meet its lofty carbon neutrality goals. Where these community needs do not exist within existing neighborhoods and developments, Imagine Lexington 2045 advocates for complementary infill and development to meet those needs. New neighborhoods and developments should incorporate these from the outset to avoid having to retrofit them after the fact.
Summary of Changes:
Shifted from Placemaking Policy #2 to replace Density Policy #3
Added climate change
DENSITY POLICY #4
ALLOW & ENCOURAGE NEW COMPACT SINGLE FAMILY HOUSING TYPES.
The market demand for new single‐family housing is often in opposition with the efficient use of Lexington’s finite and expensive land. However, there are numerous zoning reforms that are allowing emerging single family housing types to be developed in other cities. According to an April 2023 report from the Mercatus Center at George Mason University, in the late 1990s, the City of Houston made significant changes to their minimum lot size restriction that resulted in tens of thousands of new single family residential homes. While the rest of the United States has seen significant increases in home prices, Houston has grown ever more affordable due to the steady addition of new, desirable homes. Lexington needs more housing of all types as its population continues to grow. The 2017 Housing Demand Study indicated that single‐family residential options continue to be popular and will be for the foreseeable future. However, the paradigm for providing these single‐family homes is shifting from the larger suburban model lots to a more compact and urban form of single‐family home, such as townhomes, fourplexes, and others.
One way to provide for this type of development would be amending the regulations to allow group residential developments that include single‐family housing. This compact type of development allows for shared common space and reduced maintenance, which are ideal for the senior and young professional aged populations. Compact lots mean less time and money for maintenance, more opportunities for social interactions in shared open spaces, more economic efficiency for infrastructure services, and safer neighborhoods. Other innovative solutions such as cottage housing courts and cohousing developments, that incorporate efficiently designed single‐family housing as a component of an overall development should be explored as well.
Summary of Changes:
Inclusion of Houston minimum lot size reforms
PILLAR III EQUITY
Equity and equality sound similar but are very different concepts. Equality means sameness, while equity refers to access and opportunity. It is not the goal of the Comprehensive Plan to provide equality in housing, such that all residents would have the same size house or purchase a home instead of renting. However, the Comprehensive Plan recognizes that housing insecurity is a serious issue, and that public policy can help to address this gap for those who are underprivileged in Lexington. It is important to acknowledge that the private market may not always accommodate that need, unless incentivized or regulated. Inequity in communities exists for numerous reasons, many of which are outside of Planning’s regulatory sphere. There is much that can be done, however, through day‐to‐day review of zoning applications, if equity is given as much weight as design and density. Equitable development and housing can help to reduce disparities and improve outcomes for low‐income communities.
Lexington is currently facing a severe affordable housing crisis, as highlighted in the National Low Income Housing Coalition's 2021 Out of Reach report for Kentucky. The report reveals that the fair market rent for a two‐bedroom apartment requires a household to earn $17.50 per hour, which is more than double the state's minimum wage of $7.25 per hour. Consequently, many families in Lexington are struggling to meet their basic needs due to the exorbitant cost of housing. Moreover, the city's housing supply is predominantly comprised of single‐family detached homes, 58.7%, which are the most expensive housing option available, further exacerbating the issue of housing insecurity. Racial disparities in homeownership rates are also evident, with significantly lower rates for Black (35.3%) and Hispanic (16.3%) residents compared to their White (59.4%) counterparts. To address these challenges, it is crucial for Lexington to prioritize the implementation of policies and incentives that promote affordable housing and homeownership among marginalized communities.
To tackle the affordable housing crisis, an equitable housing policy is essential to provide safe, affordable, and stable housing for all residents in Lexington. This policy should focus on creating a regulatory framework that ensures an adequate supply of affordable housing units in all parts of the city, mitigating the effects of market‐driven gentrification. Additionally, in 2018, the city established a "Neighborhoods in Transition" task force to address the impacts of neighborhood redevelopment on existing residents. This task force worked towards minimizing the negative consequences of such transformations and promoting a more inclusive approach to neighborhood development. By implementing these measures, Lexington can begin to address the housing crisis, reduce disparities, and create a more equitable and accessible housing market for its residents.
Lexington’s proportion of single‐family detached homes relative to the overall mix of housing is larger than in other urbanized cities of similar size. In these areas, the suburbs outside of the city limits have absorbed more and more of the single‐family detached homes, and the city itself has provided less new housing of this type relative to the overall mix. This is not unlike the single‐family developments appearing in Jessamine, Scott, and Lexington’s other adjacent counties. Fayette County’s proportion of overall residential building permits has remained consistent over the years, yet the proportion of single‐family building permits has decreased. This trend is expected to continue, as Lexington is just beginning to see increased densification of its urban core and arterials. It is important to note that this does not indicate a cessation in the production of single‐family detached housing, but rather there has been a
deliberate focus on constructing alternative housing options as the city undergoes densification. To foster balanced growth in Lexington, it is crucial for the city to offer a diverse range of housing types, expand its housing inventory, and increase the number of available units. This approach will contribute to enhanced affordability and provide choices for both present and future residents.
Providing this mix of housing types, diversifying housing stock, and producing more units will result in greater housing affordability across the board as Lexington evolves and matures as a city. This will require that townhouses, condominiums, and multi‐family dwelling units replace single‐family detached units as the primary housing type of new construction. This shift signifies a responsible stance towards urbanization, accommodating the evolving needs of the city while encouraging a more sustainable development pattern. Furthermore, addressing the requirements of those facing housing insecurity should be a top priority for Lexington, necessitating investment in programs that furnish secure and stable housing solutions. By formulating policies that uphold fairness and cater to the needs of all residents, Lexington can ensure its continued growth and prosperity in a manner that is sustainable, inclusive, and equitable. Lexington’s urbanization is the sign of a vibrant, attractive city that is growing responsibly and in a manner that the local government can afford to provide adequate public infrastructure. Providing options for residents, both current and future, will address equity in Lexington and ensure it continues to grow and prosper.
The aim of equity policies extends beyond housing and encompasses transit and code enforcement as well. These policy areas have the potential to generate significant impact through public investment. Equity also includes the ability of the community to provide at‐risk citizens with access to the services they need such as essential community facilities, age‐friendly residential options, and walkable commercial areas. Unfortunately, many residents are unable to enjoy these everyday community assets that others take for granted. It is essential for planning policies to address these issues whenever possible. In other cases, where groups like the Community Land Trust and Office of Homelessness are better equipped to make a meaningful impact, this plan seeks to create policies that will support and call attention to their respective missions.
To truly prioritize equity, it is necessary for Lexington to adopt additional measures that establish a comprehensive, well‐funded, and sustainable framework for documenting, tracking, and monitoring equity initiatives. It is crucial to establish a centralized authority responsible for overseeing all equity‐related efforts within the community. This authority would coordinate the implementation of programs, promote community advocacy, disseminate information, and foster collaboration with relevant departments and partners. By taking these steps, Lexington can ensure that equity is at the forefront of its planning and development endeavors.
Summary of Changes:
Added affordable housing crisis with stats
Added challenges in implementation of policies and incentives that promote affordable housing and homeownership among marginalized communities.
Added addressing the requirements of those facing housing insecurity should be a top priority
Added extent of equity in the community
Recommended additional measures to establish a comprehensive, well‐funded, and sustainable framework for documenting, tracking, and monitoring equity initiatives
EQUITY POLICY #1 (NEW)
ENSURE EQUITABLE DEVELOPMENT AND ADDRESS LEXINGTON’S SEGREGATION RESULTING FROM HISTORIC PLANNING PRACTICES AND POLICIES: RECTIFY THE IMPACT OF REDLINING, AND DISCRIMINATION BASED ON RACE AND SOCIOECONOMIC STATUS.
Kenneth T. Jackson defined Redlining as a discriminatory practice in financial and insurance markets based on location, race, and socioeconomic status, often associated with historical maps created by federal agencies like the Federal Housing Administration (FHA) and Home Owners' Loan Corporation (HOLC) during the Great Depression. These maps color‐coded neighborhoods, assigning red to those deemed the highest credit risk. Despite the implementation of the Community Reinvestment Act (CRA) in 1977 to combat Redlining, neighborhoods labeled as "declining" or "hazardous" in the 1930s still face enduring economic challenges, perpetuating racial and socioeconomic disparities. While the CRA encourages lending to lower‐income borrowers, a 2019 Penn Institute for Urban Research article suggests there is no significant difference in the market share of CRA‐regulated lenders in lower‐income neighborhoods, and they actually lag behind the market in historically redlined areas. In Lexington, the impact of redlining is evident through an interactive map showcasing redlined neighborhoods based on a 1940 map, highlighting the systematic exclusion of historically black neighborhoods that have disproportionately borne the brunt of gentrification.
The Housing and Gentrification Subcommittee of the Commission for Racial Justice and Equality in 2020 defined gentrification as a process where wealthier, primarily white individuals move into marginalized communities, displacing long‐standing, predominantly lower‐income, minority residents, as evidenced by Lexington’s East End. After the Civil War, the East End experienced segregation and economic decline, rendering it susceptible to gentrification. The lack of investments in these areas over time has contributed to their deterioration, ultimately facilitating the influx of wealthier newcomers. A significant indicator of gentrification is the decline in long‐term residents, who often face forced displacement due to escalating living costs and changes in employment prospects. Historical factors, such as discriminatory lending practices during the Jim Crow era, have further exacerbated property devaluation in redlined neighborhoods. As recommended by the Housing and Gentrification Subcommittee, the city should allocate financial resources to gentrifying and at‐risk neighborhoods, particularly those affected by disinvestment and displacement and the City should implement a program encouraging minority business inclusion in the gentrifying neighborhoods in the city.
Adopting the recommendations put forth by the Housing and Gentrification Subcommittee is crucial for promoting equitable development and addressing the historical segregation in Lexington resulting from planning practices and policies. These recommendations aim to rectify the impacts of redlining, race, and socioeconomic status. Notable recommendations from the report include:
• Recommendation #1 calls for the establishment of an Office of the Housing Advocate, supported by an ordinance and permanent funding. This Office was established by the City as the Department of Housing Advocacy & Community Development in early 2022 as an implementation of the Report.
• Recommendation #2 emphasizes the need for changes in the Division of Code Enforcement, particularly the revision of Lexington's housing code. The focus should shift towards prioritizing
health and safety rather than aesthetics and revenue generation. The current housing code, largely based on the International Property Maintenance Code of 1998, aims to protect public health, safety, and welfare without increasing construction costs or favoring specific materials or methods.
• Recommendation #3 highlights the importance of implementing mechanisms to maintain housing affordability. Historic zoning practices have artificially separated residents based on race, class, and income, resulting in neighborhoods with concentrated poverty or affluence and limited racial and economic integration. The report calls for adjusting zoning requirements that discourage density and affordability, and looking at existing single‐family R‐1 zones for possible conversion to R‐3 zones, which allow single‐family detached homes, but also include other housing types.
• Recommendation #8 calls for actions to be taken to curb predatory investors in the city's housing market.
It is crucial for Lexingtonians to be educated about the history of redlining and its lasting effects. The impact of redlining is evident in the systematic exclusion and disproportionate burden faced by historically black neighborhoods that have experienced gentrification. Gentrification further exacerbates the displacement of long‐standing residents and reinforces property devaluation in redlined areas.
Furthermore, it is imperative to ensure that the planning process includes the participation and input of all community members, especially those who have been historically marginalized, in order to foster a truly inclusive and representative approach to equitable development in Lexington. By adopting the recommendations put forth by the Commission for Racial Justice and Equality, which aim to rectify the impacts of redlining, gentrification and promote equitable development, the city can work towards addressing the historical segregation resulting from planning practices and policies. Educating the community about this history and its consequences is an essential step in fostering understanding, promoting inclusivity, and implementing effective strategies to create a more equitable and integrated Lexington.
Summary of Changes:
New policy covering the history of Lexington including redlining and gentrification
Policy covers work by Commission For Racial Justice and Equality Housing And Gentrification Subcommittee (2020)
EQUITY POLICY #2 (NEW)
PROVIDE AN ONGOING AND CONTEXTUALIZED EDUCATIONAL CURRICULUM ON HISTORICAL PLANNING PRACTICES AND POLICIES ACKNOWLEDGING THEIR IMPACT ON MARGINALIZED NEIGHBORHOODS IN LEXINGTON.
The decisions made by the community through urban and regional planning can have both immediate and long‐lasting impacts. The location and the provision of housing, employment, and services are guided by the Comprehensive Plan and regulated by the Zoning Ordinance. While these documents receive significant interest during updates or when there is a zone change in a neighborhood, there is often a lack of engagement or knowledge regarding planning policies or the responsibilities of the Division of Planning as a whole. To ensure enhanced comprehension of Lexington's planning practices and policies, the Division of Planning must provide ongoing public outreach and expanded educational opportunities, accessible both in‐person and online.
Additionally, while the goal of urban and regional planning is to ensure that the health, safety, and welfare of all community members is protected and enhanced, the history of the field and the impact on the community indicates that some members of the community have been disregarded. The implementation of urban planning practices and policies are representative of the civic and social perspectives of those who guide change from the government (Councilmembers, Planning Commissioners, Planning Staff, etc.), as well as those who are allowed to engage in or are typically heard from during the planning process. The voices heard during the planning process are traditionally White, wealthy, and older in age. The limited input combined with established planning practices that preference separated land uses and sprawl have advantaged certain members of Lexington’s community more than others. This has resulted in the development of communities that have desperate resources and exclude some from entry. While there are broader structural impacts that marginalize communities in Lexington, the field of urban planning must be reflective of the negative impacts that have been promoted and seek to change those practices and policies to create a more equitable and just community. These changes must be done in collaboration with and support from the broader community.
To do so, the Division of Planning, in cooperation with other divisions and civic organizations, should continue to produce better educational documentation regarding the historic and current urban planning practices. In addition to the creation of greater published information, there must also be an increase in virtual and in‐person engagement with community members of all ages. While the Uncommon Commons digital outreach initiative of Imagine Lexington 2018 aid the groundwork for this outreach through the production of educational materials accessible to all levels of comprehension and ages, the Division of Planning should build upon this foundation to create a greater knowledgebase to create a more diverse curriculum that meets the needs of Lexingtonians.
Summary of Changes:
New Policy seeking to enhance education regarding urban planning policies and practices.
EQUITY POLICY #3
MEET THE DEMAND FOR HOUSING ACROSS ALL INCOME LEVELS.
This Comprehensive Plan does not seek to be antagonistic toward growth and new residential development; on the contrary, continued growth is vitally important and Lexington should encourage intense (re)development in the most appropriate areas to provide housing for all. In Public/Private Partnerships Are Crucial To Meet The Demand For Affordable Housing, Shimon Shkury recognizes the pressing requirement for additional housing, particularly affordable housing, the Comprehensive Plan acknowledges that the collaboration of various stakeholders is crucial in creating and preserving affordable housing. It emphasizes the importance of coordinating efforts and providing incentives and benefits from all sides. Both the city and state levels of government, along with their respective economic policies, play a critical role in competing for and retaining private capital for affordable housing.
There are numerous steps Lexington must take to improve overall housing affordability. A significant portion of households, as indicated by the 2022 State of the Nation's Housing Report, currently face "unaffordable" rent or mortgage payments exceeding 30% of their monthly income. The community also perceives the availability of affordable housing as a major concern. The Comprehensive Plan recognizes that housing affordability can be achieved through an increased supply of new construction that puts a downward pressure on rents of existing units.
To overcome the housing shortage, an urgent response is necessary. A multitude of labor and materials constraints at the national level have led to years of insufficient construction that have resulted in a record shortage of homes for sale and a scarcity of affordable rentals across the country. A Pew Research Center article, Key Facts About Housing Affordability in the U.S., discusses the surge in home buying during the COVID‐19 pandemic, driven by historically low mortgage interest rates and speculation by investors, has further exacerbated the available supply of home for purchase and the rise in rents. The 2022 State of the Nation’s Housing Report states that addressing this shortage requires a concerted effort to improve local zoning codes, allowing for a greater diversity of housing types and enabling the supply to meet demand. Innovative approaches such as "gentle density" zoning, which permits the construction of small‐scale housing units like duplexes, triplexes, and accessory dwelling units, show promise.
Imagine Lexington 2045 implementation calls for a top‐down review of the Zoning Ordinance and Subdivision Regulations in an attempt to create new housing opportunities, as well as to streamline permitting and review processes. This process began in 2017 with the amendments to the Commercial Center (B‐6P) zone, as well as changes to how Final Record Plats are reviewed.
Summary of Changes:
Recommended the need for collaboration between government and private sector
Added some of the factors contributing to housing shortage
Recommended increase in multi‐family housing
EQUITY POLICY #4
PROVIDE AFFORDABLE HOUSING ACROSS ALL AREAS, AFFIRMATIVELY FURTHERING FAIR HOUSING, COMPLYING WITH HUD GUIDANCE.
Over the course of changing federal administrations there have been various modification in policy recommendations. One modification, which directly changed how fair housing and regulations regarding housing were perceived was the replacement of the Affirmatively Furthering Fair Housing (AFFH) rule with the Preservice Community and Neighborhood Choice (PCNC) rule in 2020. Following concerns and disappointment raised by numerous business groups, like the National Association of Realtors, and non‐profit organizations the PCNC rules were rescinded in 2021 and replaced with an interim rule that reestablished the AFFH model. The interim AFFH rule is in the process of review and is anticipated to be adopted within the year.
According to the Department of Housing and Urban Development, the interim Affirmatively Furthering Fair Housing (AFFH) is a legal requirement that federal agencies and federal grantees further the purposes of the Fair Housing Act. HUD's interim AFFH rule provides an effective planning approach to aid program participants in taking meaningful actions to overcome historic patterns of segregation, promote fair housing choice, and foster inclusive communities that are free from discrimination.
Specifically, affirmatively furthering fair housing means taking meaningful actions that, taken together, address significant disparities in housing needs and in access to opportunity, replacing segregated living patterns with truly integrated and balanced living patterns, transforming racially and ethnically concentrated areas of poverty into areas of opportunity, and fostering and maintaining compliance with civil rights and fair housing laws. The duty to affirmatively further fair housing extends to all housing and urban development activities and programs.
Specifically, Lexington will seek to promote affordable housing throughout the community. Access to safe, affordable housing should exist in all neighborhoods. However, this plan shall also continue to support significant investment in existing low‐income areas so as not to shut out distressed areas from further public investment or speed up the economic displacement of low‐income residents due to traditional market forces.
Summary of Changes:
Added a summary of the change Affirmatively Furthering Fair Housing (AFFH) to Preservice Community and Neighborhood Choice (PCNC) rule in 2020.
EQUITY POLICY #5
ADD RESIDENTIAL OPPORTUNITIES BY PROACTIVELY UP‐ZONING AREAS NEAR TRANSIT FOR POPULATIONS WHO RELY SOLELY ON PUBLIC TRANSPORTATION.
In the late 1990s and early 2000s, Lexington’s oldest areas were concerned with the impacts of off‐campus student housing and how the modification of buildings was changing the character of these areas. In response to these concerns, the City enacted various regulation changes, established historic overlays, and down‐zoned certain portions of Lexington. During those periods of down‐zoning, the intent of the City was to review other areas for potential up‐zonings, which could provide a greater access to transit, services, and goods for larger populations. Those up‐zoning efforts never came to fruition, yet the University of Kentucky’s enrollment continued to grow without adequate changes in zoning capacity to meet that need. At the same time, downtown residential has become more desirable and the space between what has been traditionally considered the urban core and the university has shrunk so as to be almost indistinguishable. There is a critical need to complete the task started in the 1990s by up‐zoning areas throughout the City, while also allowing greater flexibility in the regulations, which have restricted the construction of different types of housing and have limited density.
In transit opportunity areas identified in current and future corridor studies (Imagine Nicholasville Road, Imagine New Circle Road), the government should consider up‐zoning properties to allow and encourage more intense uses that support transit, allow for various housing options, and allow for the inclusion of neighborhood serving commercial opportunities. Where neighborhoods already exist along these corridors, appropriate transitions and step‐downs should be used, but should not otherwise deter development of additional housing. To avoid adverse effects on low and medium density neighborhoods, transit‐oriented development should be accommodated as much as possible on commercially zoned land along major arterials. Commercial Center (B‐6P) zoning should be considered along major arterials.
Summary of Changes:
Added recommendations from Imagine Nicholasville Road and Imagine New Circle Road
Added why there is a need to complete the up‐zoning task started in the 1990s
EQUITY POLICY #6
PRESERVE & ENHANCE EXISTING AFFORDABLE HOUSING THROUGH THE LAND BANK, COMMUNITY LAND TRUST & VACANT LAND COMMISSION.
Previous Comprehensive Plans laid the groundwork for the currently existing program infrastructure to serve our affordable housing needs. Subsequent steps need to address the ongoing funding and identify methods for making sure these programs reach the critical mass of assets needed to become self‐sufficient.
The development of affordable housing within the City is a central focus of the Comprehensive Plan. When reviewing the mechanisms for affordable housing, there are regulatory changes that can allow or incentivize affordable options. However, more active, and long‐standing solutions are available through the development, utilization, and expansion of land banks, community land trusts, and a vacant land commission. Each of these entities can provide potential options for the development and maintenance of affordable housing options throughout Lexington.
Summary of Changes:
Added affordable housing
Added review process
EQUITY POLICY #7
PROTECT AFFORDABLE HOUSING TENANTS THROUGH IMPROVED CODE ENFORCEMENT POLICIES.
Streamlining communications and automating interactions between city agencies and housing providers in an efficient manner plays a crucial role in cultivating a vibrant rental housing industry that benefits the community. A rental property registration program to proactively address substandard housing conditions would help alleviate the current culture where residents are wary of contacting Code Enforcement to report violations for fear that they may lose the roof over their head. Louisville, Covington, and Erlanger have all taken this proactive approach to this serious issue.
The goal of this approach is to establish a licensing program that creates a procedure for the enforcement of codes and regulations. The registration will identify problem properties and utilize random inspections to keep landlords from delaying maintenance or poorly managing their units. Cities both large and small across the country use rental registration programs and their tangible successes are well documented. As Lexington moves towards becoming a larger metropolitan city, it is incumbent upon the government to ensure all residents are afforded the opportunity to live in safe, code compliant homes. A comprehensive, equitable housing policy must address existing housing as well as new construction. Scott McGill in the article Everyone & Why We Need Them, discusses how rental registry also offers housing providers the means to update important emergency information such as property manager and owner contact information, access their government‐issued notices and forms, report rental vacancy rates, and pay fees online. There are additional benefits on the landlord/property owner side as well. In preliminary meetings with housing stakeholders, developers with a proven track record of strong property management indicated that the most important factor in their decision to make a purchase in a given area was the upkeep and maintenance of that neighborhood by other landlords. They felt it was impossible to overcome the inertia of neighborhood decline without other good faith actors. A proactive approach to code enforcement, driven by random inspections, will ensure that it is possible to invest in all areas where a return can be achieved by making all neighborhoods more desirable.
Lexington has the opportunity to establish an effective landlord/rental registration program by adopting and incorporating key features from other cities like the Louisville's Rental Registry and the Baltimore County Government The program should include elements like a publicly accessible landlord registry with information on evictions, code enforcement violations, and tenant complaints. It should also consider mandating annual inspections for rental properties and establishing a mandatory registration process for all rental units, including short‐term rentals. Non‐compliance with the registration requirements could result in penalties, such as license denial, suspension, revocation, or non‐renewal, along with civil fines for violations and failure to comply with correction notices. Additionally, provisions should be included that benefit those who have consistently demonstrated compliance over time, by relaxing inspection and fee requirements for these “good actors”. By implementing these measures, Lexington can more effectively track property ownership, enforce tenant protections, and improve rental conditions throughout the city. To ensure ease of use for the public, a user‐friendly registration account should be developed to offer comprehensive information and instructions regarding the registration requirements, ensuring accessibility for all stakeholders.
Summary of Changes:
Recommended automating and streaming communication methods between the government and property owners and renters
Added examples of rental registry
Recommended penalties for non‐compliance and mandate annual inspections
Added benefits to landlords
Recommended a user‐friendly registration account to be developed in collaboration with the Lexington Government
EQUITY POLICY #8 (NEW) IMPROVE ACCESS TO AND PROMOTE ACCESSORY DWELLING UNITS AS A MORE AFFORDABLE HOUSING OPTION IN LEXINGTON.
The 2018 Comprehensive Plan called for the creation and adoption of an Accessory Dwelling Unit (ADU) ordinance to reintroduce a historic housing option that had been made illegal over time. After working extensively with the Senior Services Commission and the American Association of Retired Persons (AARP) for over 2 years, in October of 2021 the Urban County Council adopted Lexington’s first modern ADU ordinance. In early 2022, Lexington and Louisville planning staff worked together to host a statewide ADU virtual conference with over 500 attendees that focused on educating builders, real estate agents, appraisers, and lending agents on national trends and practices on ADU construction. Cultivating a successful ADU program requires ongoing efforts to make these units easier and more affordable to build. Education and awareness in the various building trades and industries that are part of the building and financing process is just one aspect. Further changes to the regulations, as well as the creation of incentives are vital next steps to improving access to ADUs. For the typical homeowner ADU applicant, streamlining the permit process and reducing the administrative cost in order to make ADUs an attractive housing option for homeowners should be addressed. Further, in order to provide more equitable access to ADUs, some cities like Chicago, Illinois or Salem, Massachusetts provide grants or low interest financing options to assist in design or construction costs for some applicants.
Summary of Changes:
New policy replacing: Provide flexibility for senior housing through accessory dwelling units
Added the Urban County Council adaptation of Lexington’s first ADU ordinance
Added the outreach/collaboration done by the planning department
Added educating the public, financers, and developers on ADUs
Added examples of successful projects
EQUITY POLICY #9
COMMUNITY FACILITIES SHOULD BE WELL INTEGRATED INTO THEIR RESPECTIVE NEIGHBORHOODS.
EDUCATION
To foster stronger communities, it is vital to design school sites that are appropriately sized and integrated within the community, rather than isolated and inaccessible. Ensuring neighborhood access to these facilities is crucial, as they can serve as catalysts for community‐building. Schools should be viewed as valuable community assets, and it is essential to prioritize their suitability and safety for hosting diverse community events. This recognition and prioritization can contribute to the development of a culture of community engagement and participation.
Expanding successful after‐school programs across schools in Lexington is another crucial step in building stronger communities. Noteworthy initiatives such as the Extended School Program (ESP) and the Recreation Enrichment and Learning Program (REAL) offer affordable, high‐quality childcare services. While ESP caters to elementary school students, REAL is designed for middle school students. These programs, developed through collaboration between Lexington Parks & Recreation and the Fayette County Public School system, are currently operational in select schools. Expanding the reach of these programs would allow more students and families to benefit from the valuable services they provide, thereby positively impacting community wellbeing.
Additionally, exploring the integration of public healthcare facilities within school buildings can yield significant advantages. This integration would enhance accessibility and convenience in accessing healthcare services for students and the wider community. By transforming schools into multifunctional spaces that encompass education, community events, and healthcare, the overall well‐being and development of the community can be greatly enhanced. This comprehensive approach recognizes the interconnectivity of various community needs and contributes to holistic community development.
LIBRARIES
Libraries have transformed into much more than just a place to borrow books. They have become vital civic infrastructures, serving as centers for productivity, connectivity, and research. In response to the digital age and the effects of the COVID‐19 pandemic, libraries have adapted by providing digital content and services, attracting patrons who value convenience. As remote work becomes increasingly prevalent in the post‐pandemic world, libraries can further appeal to a wider audience by offering diverse spaces to accommodate different working styles. By championing sustainability and embracing change, libraries can continue to play a leadership role in their communities.
Libraries also play a crucial role in supporting creative aging and fostering community enrichment. As the older adult demographic becomes the dominant group in the United States by 2030, libraries are adapting to meet their needs for meaningful engagement and accessible learning. For lower‐income communities and communities of color, libraries hold special significance as community anchors. They serve as places for acquiring job skills, exploring new technologies, and accessing services that cater to their specific needs. Libraries have a longstanding commitment to serving the poor, as recognized by The American Library Association's Policy #61, which aims to enable the participation of economically
disadvantaged individuals in society. While libraries cannot single‐handedly address the complex issue of homelessness, they strive to provide support and resources to unhoused individuals, including access to library cards and non‐judgmental assistance.
Public libraries are essential institutions that act as vital links in diverse communities. A University of Pennsylvania study highlights their importance as socially responsive establishments that offer crucial support to vulnerable individuals. Libraries serve as hubs of diversity, reaching out to the people experiencing homelessness, individuals with mental illness or substance use disorders, recent immigrants, and those affected by trauma. Recognizing the potential of libraries, policymakers and government officials should incorporate them into budgetary plans to maximize their impact. Libraries have the capacity to improve population health, empower civic engagement, and foster active participation in local and global communities. As they continue to evolve and expand their roles, libraries are poised to become even stronger community anchors.
HEALTHCARE, SOCIAL SERVICES
Community‐based healthcare facilities are essential in providing access to healthcare and social services, especially in areas with low levels of automobile ownership. These facilities must also prioritize being good neighbors to the communities they serve. This involves recognizing the unique needs and characteristics of each community and delivering services in a respectful and supportive manner.
Examples of community‐based healthcare facilities that embody this approach include the San Francisco Community Health Center, which serves low‐income and immigrant populations with culturally sensitive care, and the Montefiore School Health Program in New York City, which partners with local schools to provide comprehensive healthcare services to students. A local example is the UK HealthCare Community Engagement Program, which provides healthcare services and resources to communities in Kentucky.
To ensure that these facilities continue to be accessible and provide quality care, it is crucial that the city, service providers, and neighborhoods work together collaboratively. This includes developing and implementing effective transportation options for patients, as well as conducting regular evaluations of public safety concerns. By working together, Lexington can create a more equitable healthcare system that provides support to all members of the community and ensures that everyone has access to the care they need to thrive.
GREENSPACE, FOCAL POINTS ETC.
Providing access to parks, greenspace, and neighborhood focal points are a critical component of establishing a strong and healthy community. However, it is imperative to strive to make these amenities available to all community members, regardless of their housing circumstances. Ensuring equitable access to parks and other communal areas is an essential step towards guaranteeing that every member of the community, including those experiencing housing insecurity, have the opportunity to reap the benefits of these vital resources.
Recognizing the significance of these spaces, actions to guarantee that they are accessible to all community members must be taken. This involves taking measures to ensure adequate access during
the development of new sites, as well as exploring opportunities to retrofit existing locations with improved access. Additionally, Lexington must prioritize the unique needs of those experiencing housing insecurity when designing and maintaining these public spaces. This can foster welcoming and inclusive communities where everyone can enjoy the advantages of nature and social connections.
Summary of Changes:
Expounded on schools as a community asset
Added benefits of library as a hub
Acknowledged existing school programs
Expounded on healthcare and social services
Added comments on spaces for all including those facing housing insecurity
EQUITY POLICY #10
HOUSING DEVELOPMENTS SHOULD IMPLEMENT UNIVERSAL DESIGN PRINCIPLES ON A PORTION OF THEIR UNITS.
Universal design is design that’s usable by all people, to the greatest extent possible, without the need for adaptation or specialized design, as stated by Ron Mace, who is best known for coining the term universal design and for his work advocating for people with disabilities. While public spaces such as parks, plazas, streets, and gardens typically meet the legal requirements of the Americans with Disabilities Act (ADA), it's important to recognize that these standards represent a minimum level of accessibility. However, due to their emphasis on technical aspects rather than experiential quality, ADA standards often result in spaces that remain challenging for people with disabilities to access, leading to a sense of physical and mental disconnection from public.
To address this issue, Lexington should consider surpassing the minimum requirements set by the ADA standards. The American Society of Landscape Architects (ASLA) recommends that with the preference of older Americans to age‐in‐place rather than relocate to retirement communities, neighborhoods must be designed to accommodate individuals of all ages and mobility levels. To support aging in place and recognize the increasing senior housing need, universal design principles should be incorporated into neighborhood developments where possible. Usability for all People recommends guidelines to establishing universal design as the foundation, suggesting it becomes easier and more cost‐effective to incorporate specialized features as needed, catering to those with significant functional needs.
It's important to recognize that everyone interacts with the built environment differently, with abilities changing over the course of a person's lifetime. Given the substantial global population of individuals with physical, auditory, or visual disabilities, autism or neurodevelopmental and/or intellectual disabilities, or neuro‐cognitive disorders, it is of growing importance to extensively implement universal design principles in order to address and alleviate these challenges. Additionally, the creation of an age friendly development plan should be explored to address inequities in both public and private facilities and to raise awareness about the opportunities to improve. The city of Pittsburgh has developed a model program that Lexington should look to emulate.
Summary of Changes:
Recommended need to surpassing the ADA minimum requirements
Added resources to universal design
EQUITY POLICY #11 (NEW)
ENSURE STABLE HOUSING. EMPOWER INDIVIDUALS
THROUGH SHELTER, AND PROVIDE HOUSING SECURITY THROUGH PERMANENT RESIDENCES AND COMPREHENSIVE ASSISTANCE PROGRAMS
The availability of existing affordable housing for both rental and ownership purposes is on the decline, and the construction of new affordable units is failing to keep pace with the growing demand. It is imperative to prioritize concerted efforts towards enhancing housing affordability and security. Specifically, special attention should be given to addressing the housing needs of vulnerable groups including but not limited to groups such as the aging population, individuals with disabilities, and those with incarceration histories. Achieving this objective requires effective coordination at the local and regional levels, leveraging data‐driven solutions.
Preserving affordable rental units in Lexington poses significant challenges due to various factors. These include owners choosing not to accept housing vouchers, converting properties into higher‐priced rentals, escalating rents resulting in tenant displacement, and an overall shortage of affordable alternatives. To tackle these issues, it is crucial to adopt equitable development methods rooted in transparency and community engagement. This entails implementing measures like tenant protections, tax incentives, and housing counseling. Additionally, it is important to address discriminatory practices based on income source, eviction status, credit score, and immigration status, among other factors.
To promote housing stability and advance racial equity, it is essential to undertake efforts to increase homeownership assistance. Racial equity should be embedded into all housing and community development strategies and plans, becoming an institutionalized principle. Removing barriers to funded housing assistance and supporting strategies that facilitate stable housing transitions are of paramount importance. Moreover, rent regulations should strike a delicate balance that considers the needs of both property owners and the overall housing supply.
By implementing these measures, Lexington can actively work towards achieving housing stability and equity for all its residents.
Summary of Changes:
New policy