Theme
INTRO
At the heart of every discussion regarding Lexington’s future is the balance between urban growth and rural protection and preservation. The earliest negotiation of this balance resulted in the establishment of the Urban Service Area in 1958, which proved essential to creation of the vibrant community that the City has become. Continued smart growth policies that uphold the Urban Service Area concept are prevalent throughout Goals, Objectives, and Policies of Imagine Lexington. The balance between the growth of the urban landscape and the preservation of Lexington’s agricultural assets continues to be necessary, as both plan an important role in the health and welfare of the whole of the community. By growing intelligently through compact, fiscally responsible development patterns, the foundation of the nation’s first urban service boundary will continue to allow the city to prosper.
The development types promoted by Imagine Lexington 2045 reduce infrastructure costs, promote desirable placemaking opportunities, enhance multi-modal transportation options and connectivity, create healthier communities, encourage vibrant neighborhood-serving businesses, and preserve irreplaceable farmland. Smart growth patterns and rural preservation go hand in hand; therefore, growth is not inherently a bad thing. In fact, when accommodated in this way, growth can be a boon to the economy, the environment, and society at large. Vibrant cities have growing economies, competitive housing markets with a diverse housing stock, and amenities that improve the lives of current community members and entice new ones. Declining cities are often representative of struggling economies, insufficient housing options, and limited amenities. Lexington continues to be a vibrant city, but that does not mean the City should not strive for more and better.
During the Urban County Council’s review of the Goals and Objectives, councilmembers determined there was a need to expand the urban service area, citing concerns regarding increased housing costs, low housing stock, needed land for job development, and a deep concern with housing affordability. Whereas the cost of housing in surrounding counties is similar to Lexington, the need for a variety of housing options and a specific focus on providing housing for all community members is essential to the development of an equitable community. By focusing on affordability and the need to provide different housing options, the Council reiterated their support for smart growth that prioritizes socially, fiscally, and environmentally responsible principles and policies.
To achieve the Goals and Objectives adopted by the Council, it is essential that Lexington take a modern approach to jobs, housing, and affordability. These approaches must include transit oriented development (TOD), interspersed housing types, integrated neighborhood businesses, and targeted budgets that promote the development of privately and publicly operated affordable housing. Traditional single family detached housing, which has historically been the primary housing type in Lexington, cannot be the primary housing type for future expansion areas. Single family detached should be developed along with townhouses, duplexes, fourplexes, condos, and apartments.
While the prominent focus of the Council discussion regarding the Goals and Objectives was on the expansion of the Urban Service Area, community members, the Planning Commission, and the Urban County Council continued to stress the need for active infill and redevelopment. Despite the continued support for infill and redevelopment, there remains a myriad of concerns regarding how new development can coexist with and complement existing neighborhoods and historic assets. Some of
these are concerns are addressed through contextually appropriate development; however, there are often misunderstandings or misrepresentations regarding the goals and benefits of new development and their effect on the community. The Division of Planning must increase education and outreach efforts; elected and appointed officials must uphold the vision of this document, even when highly organized, but narrowly focused interests are advocating for a different future. Imagine Lexington calls for the government to be held accountable for upholding the vision, be good stewards of Lexington’s precious agricultural, historic, environmental, economic, and cultural resources, and allow the city to grow and evolve.
Summary of changes:
• Update to include changes to the Urban Service Area and the proposed expansion
• Update to include a focus on sustainability
• Continued focus on TOD and need for infill and redevelopment
WHERE ARE WE NOW?
Since the adoption of the 2018 Comprehensive Plan, Lexington, like many of America’s largest cities, experienced a slight drop in overall population. The Census Bureau reported that between 2020 and 2021 over half of the United States 88 largest cities, which includes Lexington, experienced a drop in population. However, as the impacts of the pandemic begin to subside and the broader national, state, and local economies stabilize, current research suggests that the population within Lexington is likely to rebound and previously anticipated growth trends will continue. To prepare for the continued growth of Lexington, the City must remain committed to the development of a desirable community that supports the current population and attracts future populations.
Part of what makes Lexington a unique and desirable community are the progressive planning practices that have balanced the urban built environment and the protection of the surrounding rural lands. Through the establishment of the Urban Service Area and progressive steps to promote infill and redevelopment, the City has been able to establish policies that are meant to promote environmentally, socially, and fiscally responsible development strategies. These strategies also protect the irreplaceable soils that are located within much of the rural areas, while also promoting the equine and tourist industries. Lexington has received international recognition for its horse industry, and a growing following of visitors who are drawn to the beautiful scenery, historic resources and the variety of amenities and entertainment options. Lexington is a city deeply rooted in history with a thoughtful, consistent planning strategy.
Lexington’s long history is showcased in the many historic properties throughout the city. From Boone Station State Historic Site, where Daniel Boone and his family lived for 10 years in the rural area near Athens, to the historic Lexington Courthouse in the middle of downtown, there are historically significant assets throughout the city. These important assets must be protected as the community continues to grow. Proactively and comprehensively identifying these icons and historically contributing buildings, sites, and districts should be an integral part of the planning process before development applications are proposed. New development should be required to enhance and supplement them, writing the next chapter in Lexington’s storied history.
While the adoption of the Goals and Objectives for Imagine Lexington has set a new direction for growth through the expansion of the Urban Service Area, there is still a need to be progressive with development practices through the City. The previous Comprehensive Plan was explicit regarding the need to promote the removal of exclusionary restrictions, allow for infill and redevelopment, and ensure new development meet the policies of all Themes of the Comprehensive Plan. Infill and redevelopment must continue to be the foremost development strategy for Lexington. Many new developments throughout the urban area can attest to the success of that strategy. Whether through the development of new housing options that allow aging in place or the creation of new commercial opportunities or services which allow residents the ability to walk to amenities in their neighborhood, Lexington has enjoyed the success of infill and redevelopment policies and practices.
The city of Lexington is comprised of 285.5 square miles, 85 squares miles of which are currently included in the Urban Service Area. That means that Lexington’s urban development must generally take place within 30% of the city’s land. With the proposed maximum modification of the Urban Service Area,
the total area of urban development will be approximately 33% of the city’s land. While the expansion is planned, this boundary will continue to keep development patterns relatively compact and minimize sprawling suburban developments that that are common throughout the United States.
Roughly 25% of the Lexington’s 200 square miles of the current Rural Service Area are protected by through the Purchase of Development Rights (PDR) program. This program protects farmland for food security and helps conserve environmentally sensitive lands. Eventually the city hopes to conserve 50,000 acres, or almost 40% of the current Rural Service Area. These protections have largely contributed to the City’s identity as Horse Capital of the World and the relatively fiscally responsible development patterns.
The amount of vacant land available for infill projects throughout the city is roughly ##% of the Urban Service Area. This indicates that there are development opportunities of all types within the current Urban Service Area, though some are perhaps more complicated than others. To promote such development, the Division of Planning, Planning Commission, and Urban County Council have sought to reduce barriers to development, while also providing aid and incentives to the development of projects. There are also significant redevelopment opportunities, primarily on underutilized property concentrated on the city’s major arterial corridors. While Lexington’s commercial and retail sales market has been bolstered by shoppers from surrounding counties, the consumer trends have shifted within the commercial and retail landscape to online sales and deliveries. This has resulted in the reduction in large scale anchor tenants, which were once more prominent along major corridors. This has been a loss for many communities but can be turned into an advantage for cities that are willing to implement smart growth strategies.
There are vacant and/or underutilized sites on almost every major roadway within Lexington that are surrounded by large swaths of parking. These areas can benefit from the inclusion of new uses and substantial increases in floor area. These increases would allow for better utilization of the City’s current land for residential, retail, professional office, and other mixed-use developments. By coupling the redevelopment of these properties with greater transportation options, the City would not only be more efficient, but also more environmentally sustainable and equitable. Utilizing transportation corridors in this way would also promote a broader shift towards transit oriented development and create opportunities for Lexingtonians to live in more accessible spaces.
Overall, Lexington is a growing and vibrant community that has historically provided a very healthy balance between urban development and rural interests. The result is a desirable community with a much more fiscally responsible development pattern than is typical of other Kentucky counties and suburban areas throughout the United States.
Summary of changes:
• Update of data
• Included information regarding the impact of Covid-19 pandemic
• Updated language
PILLAR I ACCOUNTABILITY
Imagine Lexington is a product of and for the people of Lexington. The implementation of this plan must reflect the best interests of those same community members. Ensuring the outlined vision is followed is crucial to the success of Lexington and placing safeguards and checks to make the needs and desires of Lexingtonians a reality is important to protecting the integrity of the Plan. The responsibility of upholding the vision lies with the Division of Planning, the Planning Commission, and the Urban County Council. Imagine Lexington is designed to be transparent regarding the expectations of this policy -based plan. If followed, even when difficult decisions are necessary, the plan will result in a desirable and livable community that is progressive and sustainable.
The ultimate source of accountability for this plan is the citizens of Lexington, who should have an active role in its development. It is no secret that the City is rapidly growing and changing, and public participation is essential to help guide this change as this occurs. Creating a citizen advisory panel to provide input into its implementation, to contribute educated and informed opinions from diverse backgrounds, demographics, and geographies, is of the utmost importance. As an extension of the massive 2022 public input mechanism, On the Table, this panel will provide the input, buy-in, education, and advocates this city needs.
In addition to direct citizen involvement, increased accessibility of information and continued education regarding the planning process and practice is key to this Plan. The Imagine Lexington website serves as a clearinghouse for all information related to the comprehensive plan, growth and development metrics, public information and input opportunities, and all other data. It will provide a singular resource for information on the planning process for citizens, developers, and public officials. This informational resource coupled with community outreach are meant to reduce barriers to involvement. This regularly updated resource should be easy to find, interpret, and use for all interested parties.
This information will be of great interest as development changes occur throughout the city, but also as the Division of Planning undertakes one of the more significant projects since the development of the nation’s first urban service boundary in 1958 – the creation of a new process for determining long term land use decisions involving that boundary. Currently the state-mandated comprehensive planning process, which takes place every five years, is heavily dominated by the question of whether or not to modify the existing growth boundary that has kept the city relatively compact in its development patterns. This current model is inefficient, unsustainable long-term, and short-sighted. A true long-range plan and process is required to ensure future smart growth patterns, efficient infrastructure use, and the preservation of farmland. This is a bedrock policy of this comprehensive plan.
Another cornerstone of Imagine Lexington is the Placebuilder, which includes criteria for zone change applications to ensure compliance with all applicable portions of the comprehensive plan. Feedback from neighbors, the Planning Commission, and even Planning staff indicated that there was a need to more explicitly spell out what it means to be “in agreement with the adopted comprehensive plan,” as required by state statute. The criteria included in this plan focuses on building places, rather than separating land uses. Through context-sensitive design and appropriate placemaking, these standards will build upon the well-documented momentum that shows Lexington nationally trending as a desirable
location. The Placebuilder, paired with intentional and incremental text amendments that set the regulatory boundaries for development, will further reflect the Imagine Lexington vision.
Summary of changes:
• Moderate rewording
7 Imagine Lexington 2045’s Recommended Updates to Theme E – Urban and Rural Balance
ACCOUNTABILITY POLICY #1
COMPLETE THE NEW PROCESS FOR DETERMINING LONGTERM LAND USE DECISIONS INVOLVING THE URBAN SERVICE BOUNDARY (USB) AND RURAL ACTIVITY CENTERS.
The Urban Service Area concept, while instrumental in retaining Lexington’s compact form and preserving farmland, is not without its drawbacks. Throughout the years, there have been many contentious debates about the size and location of the boundary. The same conversations have been occurring for years, with development interests insisting there is not enough land to develop, while others advocate for preserving farmland and halting suburban sprawl. In fact, the debate begins anew every five years with the state statute-required update to the Comprehensive Plan. Increasingly, these deliberations dominate the proceedings, and, though vitally important, they distract from many of the other crucial issues that face a city with steady growth and trending desirability. The conversations turn from how Lexington should grow, to whether or not the USB should be modified, with each interested property owner in the Rural Service Area making their individual pitch. The resulting plans are not as robust as they could otherwise be if additional time were dedicated to other important topics and issues. It also increases the overall time required to spend on the update. Now, staff spends roughly two years updating the plan, leaving only three years to implement.
Additional difficulties exist with expanding the Urban Service Boundary through the current five-year structure. There is uncertainty on all sides of the issue, and therefore a heightened sense of anxiety and concern. Also, given that several major landholdings within the USB are currently held by a few large developers, some of the development interests believe that expanding the USB could provide additional opportunities for the smaller developers or builders to work. However, there is no indication that simply adding new land to the USB would alleviate this concern, as many of the same large landholders would have the means to acquire those properties as well.
However, the primary issue with the current system of determining whether or not to modify the USB is the unsustainability of the method long-term. This system will eventually lead to consuming all land in Lexington for development, even if that is decades or centuries in the future. It is crucial to create a long-range plan now; if Lexington continues to make ad hoc decisions about whether or not to alter the boundary without such a plan in place, city leaders and citizens might not realize the potential negative impacts of additional development until it is too late. Instead, a controlled release of smaller amounts of land as truly needed to meet the Comprehensive Plan goals and objectives, understanding ahead of time which land can be used and which land is off limits, will create a much more intentional development pattern. Infrastructure can be more efficiently planned, and everyone will understand what the future of Lexington development is to look like.
In 1958, Lexington created the nation’s first Urban Service Boundary. Throughout the years, this boundary has seen many evolutions; it has been expanded, it has been contracted, and it has been effectively maintained for decades at a time. The American Planning Association designated the Urban Service Boundary as a “National Planning Landmark” in 1991, an award for projects at least 25 years old that are “historically significant, initiated a new direction in planning or impacted American planning, cities or regions over a broad range of time or space.” Fewer than 100 of these landmark awards have
been granted nationwide, illustrating the significance of the boundary and the impact it has had nationwide, as well as locally.
The Urban Service Boundary has served Lexington well and has provided a number of benefits over the years. Most people immediately recognize the role it has played in preserving the signature horse farmland for which Lexington is internationally known; however, it has, first and foremost, provided for more compact development patterns that reduced suburban sprawl, created infrastructure efficiencies and budgetary savings, and resulted in more sustainable development overall. For these reasons, this mechanism has been replicated in areas all over the United States and is one of the urban planning profession’s standard growth management tools. Improving how Lexington addresses such a critical part of what defines the community is one of the most important policy goals of Imagine Lexington.
The 2018 Goals & Objectives for Imagine Lexington called for creating a new process for determining the when, where, why, and how of future USB modifications. This advocacy for a new way of looking at the USB is the cornerstone of this Comprehensive Plan, and is intended to be the next evolution of the nation’s first urban service boundary. It should be a revolutionary take on the concept, which could create a nationally replicable model. It should also separate the question of whether or not to modify the USB from the Comprehensive Plan, and will create a long-term plan for Lexington’s sustainability.
Work began in December 2019 with the Mayor’s Sustainable Growth Task Force producing a set of annually replicable ongoing growth trends to assist in future land use decisions. It further produced a draft evaluation framework to help identify methods and criteria for expansion decisions by developing multiple growth scenarios to consider. While this product was not formally adopted by either the Planning Commission of the Urban County Council, it did inform a follow up project.
In June of 2022, Vice Mayor Steve Kay convened a workgroup to build upon the work of the Sustainable Growth Task Force by developing a set of recommendations to complete the rest of the identified tasks in Theme E, Goal 4 of the 2018 Comprehensive Plan Goals and Objectives. This Goal 4 Workgroup specifically set about to establish the procedures for how future expansion land is identified, where land is to be permanently preserved, and how decisions will be made for including newly identified land intended to meet specified growth needs. The recommendations included in the final report were presented to the Urban County Council and Planning Commission with no formal action to implement taken.
With the adoption of the Imagine Lexington 2045 Goals and Objectives, the Council once again affirmed a commitment to the Planning Commission adopting a new process for making future expansion decisions by setting a new completion date of August 1, 2026. This will require building on the work of both previous efforts while also continuing to build needed consensus with a broad coalition of community stakeholders.
Summary of changes:
• Inclusion of Sustainable Growth Task Force and Goal 4 Work Group outcomes
• Previous title: Create a new process for determining long-term land use decisions involving the Urban Service Boundary (USB) and Rural Activity Centers.
ACCOUNTABILITY POLICY #2
DEVELOP GROWTH BENCHMARKS AND DETERMINE BEST MEASURABLE METHODS TO MONITOR THEM AND REPORT PROGRESS ON A REGULAR BASIS.
Plans are only as good as their ability to gauge measurable results in a timely fashion. To know if a plan is reaching desired outcomes, it is imperative to track the successes and failures so future adjustments can be made and successes replicated. Imagine Lexington is crafted as a policy-based plan with very specific goals in mind. Basic metrics are included as a component of this comprehensive plan but should be supplemented by additional benchmarks identified in the process discussed in Accountability Policy #1.
The city of Denver Colorado has created a simple but insightful set of metrics called “Comprehensive Plan Measuring Success”, which emphasizes the careful and deliberate tracking of key indicators. Denver's plan encompasses six metrics that the city commits to measuring on an annual basis. These metrics are:
• Equitable, Affordable, and Inclusive: This metric focuses on reducing the number of households burdened by high housing costs.
• Strong and Authentic Neighborhoods: The aim is to increase the number of neighborhoods that have convenient access to transit, jobs, and retail, thereby fostering vibrant local communities.
• Connected, Safe, and Accessible Places: This metric seeks to reduce the reliance on singleoccupancy vehicle use, promoting alternative transportation options and enhancing safety and accessibility.
• Economically Diverse and Vibrant: The goal is to increase the proportion of jobs that contribute to a diverse and innovative economy, ensuring economic vitality for the city.
• Environmentally Resilient: This metric measures the city's progress in reducing its impact on climate change and fostering sustainability.
• Healthy and Active: This metric aims to reduce health inequities across different neighborhoods within the city.
While each metric alone may not capture the entirety of a specific vision element, collectively they form a helpful framework for evaluating progress over time. By utilizing the annual data and trends analysis from the ongoing Sustainable Growth Task Force as well as developing a set of similar metrics based on the priorities set forth in Imagine Lexington 2045, Lexington can gain a yearly snapshot of its implementation progress and determine whether it aligns with the goals outlined in the Imagine Lexington 2045 visions.
Summary of changes:
• Added an example of how Denver has developed a set of metrics to track growth benchmarks
• Inclusion of Sustainable Growth Task Force annual data and trend analysis updates
• Previously listed as Accountability Policy 4, moved for clarity
ACCOUNTABILITY POLICY #3 IMPLEMENT THE PLACEBUILDER TO ENSURE DEVELOPMENT COMPLIANCE WITH THE GOALS, OBJECTIVES, AND POLICIES OF THE COMPREHENSIVE PLAN.
While traditional comprehensive plans set the stage for the location of land uses within the community, there is often little to no discussion as to how a proposed development will meet the Goals, Objectives, and Policies that provide the framework for the needs and desires of a community. Lexington’s shift to a policy-based plan allowed for greater flexibility in the zone change process, and it alleviated some of the issues surrounding historical roots of segregation inherent in a land use map.
The addition of the Placebuilder element to the Comprehensive Plan in 2018 provided greater transparency and guidance during the planning process to ensure adjacent property owners and community stakeholders were aware of which policies were being considered for a particular application, and what types of development they could expect. The Placebuilder is a primary component of Imagine Lexington. It was designed to initiate conversations regarding how proposals further urban planning best practices and meet the needs and desires of community members. In essence, the Placebuilder provides a transparent process by which an applicant can show the community, the Planning Commission, and the Urban County Council that they are “in agreement with the adopted comprehensive plan,” per state statute.
As a distillation of the Goals, Objectives, and Policies of the plan, The Placebuilder illustrates the types of development that are appropriate in various contexts. The element offers a menu of Place-Type options that are meant to describe the context of the area of proposed development, while recommending suitable Development Types that fit that context. This differs from a traditional land use map because the goal is no longer focused on the separation of land uses, but instead the building of integrated and complementary places. Each type of development has associated criteria that represent the generalized needs and desires of community members and relate back to specific Themes and Policies. These criteria should be addressed or shown to be inapplicable, to illustrate how proposals will meet the Comprehensive Plan. Imagine Lexington acknowledges that different parts of the City have their own unique contexts. Every site has its own unique opportunities, constraints, and challenges, and not every criterion will be applicable. The Placebuilder element is not a checklist for developers to satisfy, rather it provides guidance and a process to ensure conversations occur regarding the policies present throughout Imagine Lexington.
Since the adoption of the 2018 Comprehensive Plan, the Placebuilder element has been an essential tool to enhance public engagement, clarify the zone change process, modernize regulations, and streamline discussions regarding future development. The majority of discussions regarding development within Lexington since the inclusion of the Placebuilder have become more focused on the development of places that are in context, which in turn leads to greater agreement with the Comprehensive Plan. This update to the Comprehensive Plan is reflective of the current context of the City, incorporates the changing perspectives of the public, and promotes modern planning solutions.
Summary of changes:
• Updated to discuss the advantages and successes of the Placebuilder
and Rural Balance 12 Imagine Lexington 2045’s Recommended Updates to Theme E – Urban and Rural Balance
• Previous title: Implement the Placebuilder, which includes criteria for zone change applications, based upon the goals and objectives, to ensure development compliance with the Comprehensive Plan.
ACCOUNTABILITY POLICY #4 MODERNIZE THE ZONING ORDINANCE TO REFLECT THE DIRECTION OF THE 2045 COMPREHENSIVE PLAN.
Since the adoption of the 2018 Comprehensive Plan, it has been the Goal of the Division of Planning and the Planning Commission to modernize the Zoning Ordinance. The last major overhaul of Lexington’s Zoning Ordinance was in 1983, which also included significant revisions to the Land Subdivision Regulations. Despite various changes that have been made since 1983, the Zoning Ordinance is still reflective of many of the best practices and philosophies from the 1980s. Future changes to the Ordinance must be reflective of a much larger city with different needs, while raising the bar for future development and ensuring that public infrastructure be built to standards that address modern public health and safety.
Imagine Lexington 2045 is continuing a significant shift in Lexington’s planning direction. These are steps that promote facilitating urban growth, enhancing existing places, and creating new desirable spaces. Realizing these goals will require updating regulations within the Zoning Ordinance to make new projects feasible. Creating abundant new opportunities for varied housing types in order to attract new residents and businesses is critical and will require a top to bottom review of every section of the Ordinance. Many of the past iterations need to be evaluated for efficacy, as well as reviewing the Ordinance considering Imagine Lexington’s emphasis on equity and affordability.
Additionally, over the last 30 years, changes to the Zoning Ordinance have taken on a more designbased approach, which raises the bar for future growth. Residents are increasingly more concerned with the quality of the place where they live. Revisions to the Zoning Ordinance will focus on creating great new places for people to live, work and experience. These text amendments are called for throughout the adopted 2045 Comprehensive Plan. To facilitate the comprehensive and imposing effort required to amend these ordinances in a meaningful way over the coming years, text amendments emanating from Imagine Lexington will first be presented for formal consideration at the Planning Commission committees. The text amendments will follow the remainder of the process as directed by KRS 100 and the Zoning Ordinance, including mailed notice, a public hearing with the Planning Commission, and final adoption by the Urban County Council.
Whereas the 2018 Comprehensive Plan stressed the need for consistent incremental change, the adoption of Goals and Objectives that expand the Urban Service Area necessitates that the modernization of the Zoning Ordinance be prioritized. Whereas previous changes were focused on the right sizing of the Ordinance, while removing restrictive or exclusionary elements, many of the changes resulting from the 2045 Comprehensive Plan must be reactive to the existing Urban Service Area, while ensuring best practices for the future areas of expansion. The Division of Planning staff, Planning Commission, and Urban County Council must work to create an Ordinance that ensures transit oriented development, prioritizes higher density developments and a mixture of housing types, incentivizes affordable housing, and promotes employment opportunities.
Summary of changes:
• Updated to discuss expansion of Urban Service Area
• Moderate rewording
• Previously listed as Accountability Policy 2, moved for clarity
• Previous title: Modernize the Zoning Ordinance to reflect the direction of the 2018 Comprehensive Plan, proactively planning for the next 20 years of growth.
Imagine Lexington 2045’s Recommended Updates to Theme E – Urban and Rural Balance
ACCOUNTABILITY POLICY #5 REDESIGN AND RETROFIT THE LEXINGTON ROADWAY NETWORK TO SAFELY AND COMFORTABLY ACCOMMODATE ALL USERS SO AS TO ENCOURAGE WALKING, BICYCLING AND TRANSIT USAGE.
Since World War II, most transportation infrastructure has been designed to encourage the use of single-occupancy vehicles. This resulted in abundant wide lanes of pavement to address peak hour congestion, but made walking, bicycling and transit usage undesirable and potentially unsafe. In some areas choices made to promote automotive movement eliminated other modes of transportation all together. Additionally, these wide highways are underutilized during off-peak periods encouraging excessive speeds and aggressive driving, which further decreases walking, bicycling and transit use even when sidewalks or bike lanes are present. Despite the historic decisions, an increasing number of people utilize these streets in different ways. Some users make the personal choice to step outside of cars, but many others have no other choice due to the of car ownership or a restriction that bars them from physically operating a motor vehicle.
The Lexington Area MPO has estimated that approximately 1/3rd of Lexingtonians do not operate an automobile either due to age, physical limitations, cost, legal reasons or personal choice. The Lexington Area Bicycle & Pedestrian Master Plan 2018 showed that 30% of all car trips could be easily covered by a 10-minute bike ride or a 30-minute walk. In addition, nearly the entire population within the Urban Service Area resides within the Federal Transit Administration’s (FTA) defined walking distance of the Lextran bus route. As a result, a combined effort to construct new roadways along with a comprehensive effort to retrofit the existing roadway network to meet complete streets design standards would provide mobility equity to all Lexington residents regardless of their income, age or abilities. Additionally, since the best design practices for complete streets incorporate the ‘Safe Systems Approach’, as promoted by the Federal Highway Administration, this effort to redesign and retrofit Lexington’s roadways would be an important part of accomplishing the Lexington Area MPO goal of working towards zero traffic fatalities and serious injuries by the year 2050.
Summary of changes:
• Updated to take a holistic approach to road redesign and development
• Inclusion of new programs and safety models
ACCOUNTABILITY POLICY #6
PARTNER WITH OTHER AGENCIES AND ORGANIZATIONS TO CREATE PUBLIC EDUCATION AND OUTREACH OPPORTUNITIES.
Comprehensive planning plays a significant role in shaping the community and impacts various aspects of daily life Given the broad scope of its impact, it is crucial to recognize the importance of including diverse perspectives in the planning process. Engaging as many voices as possible is essential to ensure that the resulting plans truly reflect the needs, aspirations, and concerns of the entire community.
To ensure a comprehensive and inclusive approach to planning, Lexington should actively partner with other agencies, community organizations, and leaders to facilitate public education, outreach, and engagement opportunities. By doing so, the following objectives can be achieved:
1. Represent Diverse Voices: It is essential to ensure that input is heard from voices that are representative of the city's population at large, rather than solely relying on highly organized interests. Collaborating with community organizations and leaders can help reach a broader range of individuals and groups, ensuring a more inclusive and equitable planning process.
2. Develop Future Neighborhood Leaders: Partnering with agencies and organizations provides an opportunity to develop and nurture future neighborhood leaders. By offering educational programs and mentorship initiatives, the city can empower individuals to actively participate in the planning process, fostering a sense of ownership and stewardship within their neighborhoods.
3. Improve Civic Discourse: Through collaborative efforts, the city can improve the level of civic discourse by creating platforms and spaces for constructive dialogue and engagement. Encouraging respectful and informed discussions about community issues and planning decisions contributes to a more vibrant and informed public discourse.
4. Provide Educational Opportunities: Partnering with agencies and organizations allows for the provision of educational opportunities to enhance public understanding and knowledge about planning-related topics. This empowers residents to provide informed input and contribute to the planning process effectively.
A successful example of community engagement that achieved these goals was the On the Table (OTT) event. OTT was a city-wide conversation that facilitated community members getting to know each other better and discussing what is and isn't working in Lexington. OTT was the primary public input source for the 2018 and 2045 Comprehensive Plans. During the 2022 weeklong event, thousands of residents across Lexington gathered in homes, businesses, libraries, and parks to discuss the present and future of the city. Participants not only engaged in conversations but also completed a survey about the future of Lexington and its growth and changes. The data collected through this process played a crucial role in shaping the 2045 Comprehensive Plan, with over 15,000 usable question responses guiding the plan's update.
Incorporating similar public engagement initiatives, on both large and small scales, and partnering with organizations can provide valuable insights and data, ensuring that the planning process reflects the aspirations and needs of the entire community.
Summary of changes:
• Changed title to have a broader focus (not just libraries)
• Previous title: Partner with other agencies like the Lexington Public Library to create a public outreach opportunity that provides decision-makers with input and creates neighborhood leaders across all demographics and geographies.
• Expanded text to include several objectives that future education and outreach initiatives should consider
• Updated information on 2022 On the Table process and outcomes
ACCOUNTABILITY POLICY #7 (NEW)
ESTABLISH A COORDINATING OFFICE TO ADVANCE CLIMATE ACTION AND SUSTAINABILITY PLANNING EFFORTS.
All cities, including Lexington, face significant challenges due to climate change, pollution, resource depletion, and population growth. These issues require long-term planning and coordinated efforts to address the anticipated impacts. Establishing a city agency focused on sustainability demonstrates a commitment to advancing sustainable development goals, encompassing environmental, social, and economic factors.
An office of sustainability serves as a central hub for developing and implementing policies, programs, and initiatives that promote sustainable practices across all sectors of the City. This includes efforts to reduce greenhouse gas emissions, improve energy efficiency, promote renewable energy, minimize waste, enhance transportation systems, and implement sustainable land use planning. Through collaboration with city departments, community organizations, businesses, and residents, an office of sustainability can foster a resilient and equitable city, improving the overall quality of life.
By coordinating and prioritizing sustainability efforts among different departments and initiatives, a sustainability office enables more efficient use of resources, facilitates communication and collaboration among stakeholders, and acts as a single point of contact for residents and businesses seeking information and support for sustainable practices. The engagement of the community helps foster a culture of sustainability throughout the City and can draw more engaged individuals into discussions
Developing an office of sustainability is also crucial to enhancing competitiveness in securing state and federal funding. Dedicated staff can establish partnerships with agencies and seek technical assistance from experts, leveraging existing and future funding programs. Additionally, having dedicated staff enables the collection and utilization of data to measure and report the progress of initiatives, demonstrating their effectiveness and impact to funders.
Furthermore, it is essential to allocate adequate time and resources to ensure that climate action and sustainable development decisions are accompanied by comprehensive equity and inclusivity practices. Equity should be integrated into all decision-making processes, from policy development to program implementation. An equity focus amplifies the voices of marginalized and vulnerable communities and address their concerns. An office of sustainability should regularly track progress towards equity and environmental justice goals and make necessary adjustments along the way.
In 2022, Lexington hired its first Sustainability Program Manager. To effectively meet the challenges and opportunities ahead, the city should continue investing in and advancing these efforts by expanding staffing and allocating more resources to coordinate and advance climate action and sustainability planning.
Summary of changes:
• New policy to support Theme B Goal 2 and Objectives; written with input from Division of Environmental Services
2045 Comprehensive Plan Update
Recommended Updates to Theme E – Urban and Rural Balance
• Replaces former Theme B Sustainability Policy 13: Develop an overarching entity / organization for existing environmentally-focused agencies to collaborate on sustainability programs and follow through on implementation.
19 Imagine Lexington 2045’s Recommended Updates to Theme E – Urban and Rural Balance
ACCOUNTABILITY POLICY #8 (NEW) ESTABLISH A COORDINATING OFFICE TO IMPLEMENT RECOMMENDATIONS OF THE MAYOR’S COMMISSION FOR RACIAL JUSTICE AND EQUALITY.
In June 2020, the Mayor's Commission for Racial Justice & Equality was established and it engaged a diverse range of community members in dialogue and collaborative efforts aimed at dismantling systemic racism. The commission's comprehensive report examined how systematic racism impacted different segments of Lexington including its history, education and economic opportunities, housing and gentrification, health disparities, law enforcement, justice and accountability, and racial e quality. Anchored in the principle of equity, Lexington endeavors to ensure fair and unbiased treatment for all individuals, particularly those from historically marginalized communities. The city should actively embrace and celebrate diversity, encompassing various communities, races, ethnicities, abilities, backgrounds, cultures, nationalities, and beliefs, recognizing the multitude of benefits derived from a diverse population. Committing to fostering a just and inclusive society, Lexington should strive for fairness, civil rights, racial justice, and equal opportunities across all levels of its government structure. Lexington should strive to create a thriving community that uplifts and serves all its residents by cultivating a diverse workforce that appreciates and harnesses the talents and skills of employees from different backgrounds.
State and local governments are increasingly creating offices with a focus on equity, aiming to give priority to equity in government policies and procedures, as well as to support equity initiatives within their communities. It is important for Lexington to acknowledge comprehensive and sustainable equity measures and strive to implement a well-funded framework that can efficiently document, track, and monitor equity initiatives. The Broward County (Florida) Racial Equity Task Force, led by the Senior Advisor for Innovation and Performance and situated within the Mayor's Office, is tasked with identifying and addressing systemic racial inequities through policy recommendations to eradicate racism and foster racial equity. Miami-Dade County in Florida has the Office of Equity and Inclusion, comprising members appointed by County Commissioners for 2-year terms, dedicated to fostering equity and inclusion in the government and beyond. The Office of Diversity and Equity in Multnomah County, Oregon, was created by a county ordinance and is overseen by the Diversity and Equity Manager, who reports directly to the chair of the County Board of Commissioners. Olympia, Washington houses an eleven-member Social Justice and Equity Commission whose mission is to eliminate racism and unlawful discrimination while promoting human rights for all residents through a fair and equitable approach. Lexington should implement comprehensive policy reforms and enhance existing ones to create a well-funded framework to establish a centralized authority within the government that can effectively address equity issues and strive towards building a community that is fair and equitable for all its residents.
Lexington’s Commission For Racial Justice And Equality Housing And Gentrification Subcommittee report had eight recommendations on how to deal with the housing issues in Lexington. Recommendation #1 was for Lexington to create an Office of the Housing Advocate, by ordinance and with permanent funding, to centralize and provide oversight of the full spectrum of housing needs in our community. This office has been helpful to the community as a centralized place for the community to go to for their housing needs. This is an example of how the government can approach issues on equality and diversity.
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 office responsible for overseeing all equity related efforts within the community. This office would coordinate the implementation of programs, promote community advocacy, circulate 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. The office should employ knowledgeable staff who can contribute to key policy speeches, articles, essays, and presentations aiding the mayor and other City officials. By establishing measurable benchmarks based on leading policies and practices, Lexington ensures the effectiveness of its diversity and equity initiatives, cultivating a transparent and equitable environment that values and leverages the strengths of a diverse workforce.
Summary of changes:
• New policy on ways to document and share information on the progress made on diversity, equity, and inclusion
ACCOUNTABILITY POLICY #9 (NEW) ENHANCE DIVERSITY IN LEXINGTON'S BOARDS AND COMMISSIONS.
Local boards and commissions play a vital role in shaping policies, making decisions, and advising the City of Lexington on various matters. The Lexington Boards and Commissions website provides information on 68 boards and commissions, covering crucial areas like land use planning, parks, environment, public safety, and public health As of June 2023, across all boards and commissions, occupied seats were 20% African American, 2% Asian, 3% Hispanic, and 71% White.
While the overall membership generally reflects Lexington's population demographics, it is essential to ensure that each individual board and commission has a diverse membership that truly represents the community they serve. Diversity encompasses more than just race; it includes factors such as age, income, education level, housing tenure, gender, and more. By fostering diversity within boards and commissions, the City of Lexington can incorporate a wide range of perspectives, experiences, and expertise into the decision-making process. This leads to more equitable and inclusive outcomes that benefit all residents.
Board and commission members are entrusted with important responsibilities, including attending regular meetings, actively participating in committee work, reviewing materials, and staying informed about relevant industry developments. Their dedication and time commitment come with opportunity costs as they may forgo other professional or personal pursuits.
Attracting highly qualified candidates to these demanding positions can be challenging. To foster a diverse pool of candidates, it is essential to consider incentives, such as fair compensation. Offering fair compensation recognizes the value of individuals' time, effort, and expertise, making these roles more appealing and accessible to a wide range of qualified candidates.
By providing equitable compensation, Lexington can help remove barriers and create an environment that encourages individuals from diverse backgrounds, particularly those from marginalized communities, to actively participate and contribute their unique perspectives. Fair compensation also addresses potential financial burdens that may limit participation, ensuring that these positions are more accessible and inclusive. This, in turn, leads to more inclusive decision-making processes and ensures that boards and commissions truly reflect the diversity of the community they serve.
Summary of changes:
• New Policy highlighting the need to reduce barriers and incentivize diverse participation on boards and commissions
PILLAR II STEWARDSHIP
Lexington was founded in 1775, meaning there has been almost 250 years of rich history that laid the foundation for the current inhabitants of the City. Each generation of Lexingtonians is tasked with ensuring the prosperity of the community and being good stewards of the available resources. Lexington has a long history of proactive planning, from the first comprehensive plan in 1931 (Imagine Lexington 2045 is the 92-year update), to the nation’s first urban service boundary in 1958. The thoughtfulness that went into the forward-thinking policies of the past should continue as this generation plans for the future.
Sustainable development is perhaps the best way to discuss the stewardship of Lexington’s land and resources. The Goals and Objectives of this Plan call for all future development to be sustainable from an economic, environmental, and social perspective. This means the Lexington must provide for the needs of current community members without compromising the needs of future generations. Development that is economically sustainable promotes fiscally responsible development patterns that do not negatively impact current taxpayers, while also providing various employment opportunities.
Environmentally sustainable development uses the available natural and built environment responsibly and prioritizes compact and sensitive design. It is vital that Lexington ensure the continued availability of clean air, water, and soils, so that we are not depleting our environment for immediate gains.
The third leg of the sustainability stool is social sustainability, which requires the implementation of equitable land use policies. Ensuring opportunities exist so that all Lexingtonians can thrive is critical to the long-term success of the community. Incentivizing socially responsible development that promotes affordability is necessary to promote an inclusive community that embraces individuals from a wide range of backgrounds.
It is also essential to consider the potential unintended consequences of different policies and land use decisions. The City and development partners should always be evaluating the underlying thoughtprocess or roots of land use decisions and regulations. Exposing unintentional or intentional bias against low income and historically marginalized people will lead to the development of equitable solutions that promote a diverse, sustainable, and resilient community.
While it is easier to promote the development of greenfield sites, infill and redevelopment opportunities are typically the most sustainable locations for future growth. Lexington’s arterial or corridor roadways offer some of the best opportunities for sustainable and equitable development. To ensure that these areas are developed to their fullest and to promote economic vibrancy, Imagine Lexington recommends the revitalization of corridors through thoughtfully designed transit oriented development (TOD). An emphasis on density, increased connectivity, and a mixture of land uses, all within proximity, will help the City utilize the precious land available for development, while also enhancing opportunities for individuals and families to obtain greater access to housing, goods and service.
While much of the Comprehensive Plan is focused on developing a livable community within the Urban Service Area, an equally important element is the preservation of Lexington’s quality agricultural soils and the promotion of the regions historic farming culture. The rural areas play a significant role in the City’s economy, identity, quality of life, and international acclaim. While this plan has identified a need
for expansion, it is important that any expansion be carefully master planned, diligently deliberated, and include robust public input. Steadfast stewardship of Lexington’s rural landscape through compact, efficient, and fiscally responsible growth patterns is one of the key components of this Plan.
Another tool in preserving precious agricultural assets is to make full use of the existing Rural Activity Centers, rural areas that are already slated for urban uses and have defined boundaries. These should be seen as opportunities to accommodate growth in the community. As the Rural Land Management Plan states, the City should “maximize employment potential within the existing boundaries of the Rural Activity Centers while avoiding impacts to surrounding agriculture, Rural Settlements and viewsheds.” Developing these sites fully could relieve development pressure on rural properties, similar to the focus on infill and redevelopment within the Urban Service Boundary.
In addition to the impacts of growth on a local level, regional planning is an important to ensure that Lexington grows with the surrounding communities. Such collaboration can result in improved land stewardship on a larger scale. Collaboration across county lines has been extensively discussed but has not produced long-term execution and tangible results. Recently progress has been made by Bluegrass Tomorrow to connect the Bluegrass Region’s counties through a shared set of goals, but there is still a lot of work to be done.
Summary of changes:
• Updated to discuss historical development of the urban environment
• Updated to stress the importance of TOD
STEWARDSHIP POLICY #1 UPHOLD AND MODERNIZE THE URBAN SERVICE AREA CONCEPT.
In Lexington, the natural boundaries that separated urban and rural land uses remained relatively stable until the period following World War II. Emerging employment opportunities, coupled with the government’s investment into housing and large federal projects, like US highways, allowed people greater freedom to move throughout the country. Lexington, like many other cities was the beneficiary of such development. Between 1940 and 1950, Lexington’s population grew from 78,809 to 100,746. Community leadership saw the problematic trends in the unrestricted growth of the community. Specifically, City officials were concerned with “leapfrog development”, where parcels of land were being skipped over. This practice resulted in large swaths of undeveloped lands separating pockets of development and creating inefficiencies in the construction and supply of sewer infrastructure and utilities. The inefficiencies of irregular development patterns and unregulated growth also resulted in a greater financial burdened on the government and the established populations, who were being taxed at a greater level to pay for the expansion of services (police, sewers, fire, schools, etc.). Finally, leapfrog development and unregulated expansion produced continued pressure on the rural land uses that remained vital to the sustainability of the community.
In 1958, Lexington acknowledged the detrimental impacts of unregulated expansion and established the nation’s first Urban Service Area, effectively changing how development occurred and leading the way for many other communities throughout the United States. This growth management strategy codified the two broad forms of land use and located the areas either within the Urban Service Area or within the Rural Service Area. As with any innovation that impacts private property, the Urban Service Area in Lexington has been tested and modified to ensure that it was legally sound and practically applicable. The establishment of the Urban Service Area was instrumental to Lexington’s growth and continued viability.
Since 1958, the Urban Service Area has expanded and contracted to meet the needs of the community. The boundary of the Urban Service Area has been modified a total of eight times (1962, 1964, 1967, 1973, 1980, 1996, 1998, and 2001), resulting in an increase of just over 17 square miles of urban land uses. With each modification, it has been the responsibility of the Planning Commission to identify the need and appropriate locations of urbanized land uses, which were as elements of the Comprehensive Plan. While Lexington’s built environment has changed dramatically and the City has grown in population by over 190,000 individuals over the course of the last 65 years, the Urban Service Area concept remains a necessary tool to help build a more sustainable, resilient, and viable community. Following the adoption of this Comprehensive Plan, it will again be the duty of the Planning Commission to identify between 2,700 and 5,000 acres for future urban development.
While the Urban Service Area concept remains critical to Lexington’s success, and the previous modifications of the Urban Service Area in Lexington have generally been a success, the process of determining when and where to expand has not changed since the establishment of the Urban Service Area in 1958. It has led to hard conversations that often polarized the community and minimized other elements of the Comprehensive Plan that are equally important. Following the adoption of a master plan for the future areas of expansion, as called for by the Urban County Government, the Planning
Commission and staff must continue efforts to modernize the how Lexington modifies the boundaries of the Urban Service Area and where it is appropriate to expand to in the future.
Summary of changes:
• Replaced a stone fence inventory policy is covered elsewhere by Theme D Placemaking Policy 9 and Theme E Growth Policy 5
• Reiterates the importance to maintain the Urban Service Area concept
• Previous title: Update Lexington’s stone fence inventory, and pursue additional protections for this iconic and historic cultural asset.
STEWARDSHIP POLICY #2
CAPITALIZE ON THE DIVERSE ECONOMIC DEVELOPMENT, HOUSING, AND TOURISM OPPORTUNITIES
THROUGHOUT THE BLUEGRASS REGION AND ENGAGE IN DISCUSSIONS TO FURTHER CONNECT REGIONAL ECONOMIC HUBS.
As Lexington’s economic and social capital grows, there will be impacts on surrounding counties and cities. The latent effects of these successes can change neighboring communities in a variety of ways, including their economies, housing stock, and industrial development. In an effort to produce a regional vision for the future which allows all communities to benefit, a policy of collaboration should be developed with Lexington’s neighboring cities. The initial step toward the development of a comprehensive regional planning initiative can be done by first connecting economic hubs or centers of economic activity, which are generally located in the downtowns of communities.
Connecting economic hubs can be done on two separate levels: economically, through principles of business cooperation and coordination, and physically, through the establishment of transit that provides multimodal opportunities for citizens to move between communities (see Stewardship Policy #3). By linking Lexington with the nearby economic hubs or the downtowns of surrounding communities, the city will be able to better tie the economic interests of the Bluegrass Region and develop a collaborative planning process. Regional perspective has already been initiated within the tourist industry (see Stewardship Policy #4) and through Commerce Lexington’s regional marketing, but there is still room for improvement through additional promotion of other opportunities and industries.
Through partnerships with organizations like the Bluegrass Area Development District and their Bluegrass Regional Planning Council, as well as direct collaboration with surrounding economic hubs like Nicholasville, Paris, Winchester, Versailles and Georgetown, Lexington can begin to develop lasting planning relationships that benefit the region. The development of an inter-city summit, focused on fostering dialogue between communities, can be the first step in such a relationship. The establishment of downtown collaboration between Lexington and surrounding communities can also lead to additional economic development, planning, and infrastructure cooperation in the future.
Furthermore, by connecting business opportunities, the Bluegrass Region can begin to increase levels of economic security through a diverse economic base, reducing instability caused during periods of downturn. While it is imperative to have a diversity of industries within Lexington, collaborating with surrounding communities can also entice diverse industries that link the communities and utilize the full advantages of the region. By nurturing regionally inclusive initiatives, Lexington and the surrounding communities can also seek to avoid population dislocation and dispersal out of the region through the provision of superior employment opportunities across all skill and education levels.
A regionally comprehensive mass transit system holds immense potential in both inter-county mobility and the ongoing battle against climate change. A successful public transport system is necessary for an effective emissions reduction strategy in the transportation sector. To ensure success, planning for the future of mass transit requires partnerships. Public transit agencies can partner with transportation network companies to enhance service availability, leverage technology, and improve mobility choices. Additionally, expanding the mass transit network to neighboring jurisdictions, such as Georgetown, Danville, Nicholasville, and Frankfort, through cooperation with organizations like Blue Grass Ultra-
Transit Service, would create an interconnected regional transportation system that promotes efficiency and sustainability. The key to a thriving public transport network lies in providing high-quality services that are reliable, frequent, fast, comfortable, accessible, convenient, affordable, and safe, catering to demand-driven routes. Establishing scheduled and dependable connections between public transit systems can bolster a regional vision.
By outlining a well-defined program for future transit investments, cities can rally political support, coordinate various stakeholders involved in planning and implementation, and secure funding from government and private sources. Enhancing the bus transit experience through reliable and userfriendly services and establishing an attractive identity for the public transport system, while embracing new technologies and apps, will contribute to a sustainable and efficient public transport ecosystem.
Summary of changes:
• Included regional mass transit potential in addressing both inter-county mobility and addressing climate change.
• Added the benefits a collaboration between the transit system and employers.
• Added the strategic expansion or establishment of transfer hubs.
STEWARDSHIP POLICY #3 INCREASE REGIONAL TRANSPORTATION COOPERATION AND PURSUE MULTIMODAL TRANSPORTATION OPTIONS TO FACILITATE INTERCOUNTY CONNECTIVITY.
A regional transportation network provides for the movement of goods and people though a multimodal system, which includes aviation, trains, trucks, buses, cars, bikes, and pedestrian options. As of 2020, approximately half of the city’s labor force commutes from outside of Fayette County, a trend that is expected to continue as populations in Clark, Scott, Madison, Jessamine and Woodford Counties grow. As this regional population grows, a connected transportation network providing accessible alternatives becomes important for not just residents and commuters, but also to ensure regional connections to state, national and international networks. This includes complete streets that give consideration to bicycle and pedestrian traffic in addition to cars, trucks, buses, and ride sharing options while utilizing the latest innovative advancements in technology.
As interaction between Lexington and neighboring counties & regions increases, planning coordination on key transportation corridors and facilities should be encouraged along with collaboration with KYTC. This includes services and facilities such as intercity bus services and the growth and development of Bluegrass Airport.
Summary of changes:
• Limited rewording with a greater focus on commuters
STEWARDSHIP POLICY #4 COORDINATE WITH SURROUNDING COUNTIES TO CAPITALIZE ON THE INHERENT TOURISM DRAWS OF THE BLUEGRASS REGION.
The Bluegrass Region, including Lexington and its surrounding counties, is a treasure trove of natural beauty and historical significance that attracts tourists from far and wide. While Lexington is often hailed as the Horse Capital of the World, the neighboring counties have their own distinct cultural and historic attractions that add to the region's allure. From the scenic bluegrass landscape and horse farm tours to the renowned Bourbon Trail and Brewgrass Trail, these attractions transcend county boundaries and create a cohesive regional experience that sets the Bluegrass Region apart. To maximize their impact, it is crucial to market and promote these attractions collectively.
Visit Lex already incorporates regional highlights into their marketing materials showcasing the diverse charms of various counties The counties bordering Lexington and beyond present a rich variety of experiences and attractions that truly capture the essence of the heart of the Bluegrass Region.
Woodford County embodies the essence of Kentucky with its top-tier bourbon distilleries, vineyards, horse farms, breathtaking countryside, and warm communities. Georgetown/Scott County captivates visitors with its picturesque Victorian era downtown, adorned with American flags and hanging flower baskets. This charming community is a true embodiment of small-town America. Bourbon County presents a genuine Kentucky encounter through its picturesque landscapes and equestrian estates. Visitors, whether on day trips or weekend retreats, are captivated by the region's renowned thoroughbred farms and artisanal bourbon distilleries. A substantial portion of the historic corn and grain cultivated in Bourbon County contributes to the production of local whiskies, notably the distinctive blend that eventually became synonymous with the county's name.
Frankfort, a small yet vibrant city, perfectly encapsulates the unique qualities of the state, combining natural beauty, renowned bourbon, a historic state capitol, and warm southern hospitality in one captivating destination. Nicholasville and Wilmore in Jessamine County call out to nature lovers with their breathtaking beauty, and entice connoisseurs with Kentucky wines. Visitors can explore the first commercial vineyard in the US at First Vineyard, cross the Kentucky River on the historic High Bridge, and pay tribute to brave African-American Civil War soldiers at Camp Nelson National Monument. Madison County, one of Kentucky's fastest-growing areas, boasts a rich heritage and history. With the two incorporated cities of Richmond and Berea, this county offers a unique blend of urban, suburban, and rural environments, attracting both residential and industrial growth.
Visitors, particularly those arriving through Bluegrass airport who are drawn to Lexington's urban offerings and desire to explore nearby counties, contribute to the mutual benefits of both Lexington and the surrounding areas. Those traveling for attractions in outlying counties will probably stay and spend a good portion of their tourism money in the city. Additionally, the added visibility and attractiveness of the region creates enhanced livability and amenities for employers in all counties.
Summary of changes:
• Added some of the experiences and attractions found in neighboring counties.
• Added Bluegrass Airport and a point of entry into the Bluegrass Region.
STEWARDSHIP POLICY #5 FULLY REALIZE THE DEVELOPMENT POTENTIAL WITHIN LEXINGTON’S RURAL ACTIVITY CENTERS WHILE AVOIDING NEGATIVE IMPACTS TO SURROUNDING AGRICULTURE, RURAL SETTLEMENTS, AND VIEWSHEDS.
The 2017 Rural Land Management Plan promotes the full development of the Rural Activity Centers (RACs) located within the Rural Service Area. The concept of the Rural Activity Center was initially developed in the 1980 Comprehensive Plan. The four RACs; Blue Sky, Avon (Blue Grass Station), Spindletop, and the Airport, were areas of existing employment that were located outside the Urban Service Area and were in operation or had prior zoning/development commitments prior to the comprehensive rezoning of the City and County in 1969 and the merger of the City and County Governments in 1974.
The 1980 Comprehensive Plan stressed that these areas were planned for non-residential development and were meant for commercial, warehousing, manufacturing, or office land uses. Each RAC was further outlined in the 1999 Rural Service Area Land Management Plan and again within the 2017 Rural Land Management Plan (RLMP) The 2017 RLMP recommends that the City seek to maximize the potential for jobs within each of the RACs while maintaining their boundaries and minimizing impacts to the rural area.
The Blue Sky Industrial Park is the lone privately owned and operated RAC and has been identified as an underutilized site, with much of its area occupied by surface car lots. Its recommended uses are primarily for warehousing, light industrial, and interstate commercial development due to the proximity to the I-75 corridor. There are significant opportunities to more fully realize the potential of this area, and a small area plan should be undertaken for more specific recommendations.
The Avon RAC is 271 acres and is primarily under the ownership of the Commonwealth of Kentucky, with the exception of 79 acres which are privately owned. This RAC includes several tenants, including Lockheed Martin, which contracts for the U.S. Department of Defense.
Spindletop’s Research Campus is an office park owned by the Commonwealth of Kentucky and includes tenants such as the Council of State Governments and the Asphalt Institute. This RAC is zoned for professional office land uses. While the area is limited and contains no privately owned parcels, there are opportunities for additional professional office developments, which would be well suited for corporate headquarters. Economic development opportunities should be pursued though amendments to the City’s agreement with the Commonwealth of Kentucky regarding the provision of sanitary sewer which would be required.
The Blue Grass Airport is largest of the RACs, containing 707 acres. This RAC includes warehousing and office uses to support the airport facilities, as well as a shooting range for Lexington Police. As the airport has added new facilities, they have acquired new land surrounding the established RAC. The Airport Board acquired 314 acres outside the RAC and constructed an additional runway that allowed expansion of service. However, to avoid complications that could arise through future property sales the boundary was not expanded.
While the RACs make up a relatively small percentage of the RSA, they still provide significant opportunities for economic growth and development, primarily in Lexington’s job-creating industries. Opportunities for industrial and professional office growth are available, and the city should explore creative opportunities to promote the development of employment opportunities. These opportunities should be pursued, but with thorough consideration given to the integrity of the Rural Service Area and the recommendations of the Rural Land Management Plan.
Summary of changes:
• No substantive changes
STEWARDSHIP POLICY #6 IDENTIFY NEW COMPATIBLE RURAL LAND USES THAT WOULD ENHANCE LEXINGTON’S ECONOMY AND PROVIDE ADDITIONAL INCOME-GENERATING POSSIBILITIES FOR LOCAL FARMERS.
The 2017 Agritourism Zoning Ordinance Text Amendment was important in further establishing protections for the horse industry, as well as other agriculture industries. The impact of that text amendment should continue be monitored to identify opportunities to add further complementary uses that expand tourism options without negatively affecting existing industries. There remains considerable rural land that is geographically and topographically unsuitable for standard agricultural uses that should be considered for additional agritourism uses. While the community was not prepared during the last text amendment to make those changes, Imagine Lexington envisions a future where those opportunities will become more acceptable, when coupled with sufficient protections to the rest of the agricultural area.
In addition to the tourism elements of rural communities, there is a need to identify new compatible uses attributed to the ag-tech industry. Ag-tech is defined as any innovation used across the value chain to improve efficiency, profitability and/or sustainability of the agricultural industry. Over the course of the last 20 years, there have been significant advancements in hardware and software, business models, new technologies and new applications targeted at increasing yield, efficiency, and profitability of agricultural operations. Kentucky and, in particular, the Bluegrass Region is poised to attract, develop, and sustain ag-tech companies over the coming decades. It is imperative to promote these advancements to enhance Lexington’s economy and provide additional income-generating possibilities for local farmers.
Summary of changes:
• Inclusion of Ag-tech
• Previous policy title: Identify new compatible agritourism and ecotourism land uses that would enhance Lexington’s economy and provide additional income-generating possibilities for local farmers.
STEWARDSHIP POLICY #7 ENHANCE REGIONAL COLLABORATION FOR COORDINATED PLANNING EFFORTS.
The City of Lexington recognizes the importance of regional collaboration to achieve collective goals and ensure a sustainable and prosperous future for the entire Lexington-Fayette Metropolitan Statistical Area (MSA). The MSA comprises the six counties of Fayette, Bourbon, Clark, Jessamine, Scott, and Woodford Counties. By working together with the planning departments of these adjacent counties, Lexington should foster a unified approach to planning that maximizes resource efficiency, enhances coordination, and promotes the well-being of the region as a whole.
To achieve a coordinated planning approach, Lexington and adjacent counties should work collaboratively to develop and implement coordinated plans, policies, guidelines, and strategies. These efforts will encompass various areas, including land use planning, transportation infrastructure, environmental protection, resource management, and other relevant aspects of planning. Through coordinated policy implementation, the region can achieve consistency, avoid duplication of efforts, and maximize the effectiveness of planning initiatives.
Furthermore, as the largest municipality in the region, Lexington should actively explore opportunities for resource sharing, including the exchange of data, best practices, expertise, and technical resources, with adjacent counties. This collaborative approach will enhance the planning capacities of Lexington and adjacent counties, enabling them to achieve more impactful outcomes. Additionally, Lexington should proactively seek state and federal funding opportunities that support collaborative regional planning efforts, aiming to leverage additional resources for the region's planning initiatives.
For instance, in 2023, Lexington took the initiative to assume a leadership role within the LexingtonFayette Metropolitan Statistical Area (MSA). By garnering support from other jurisdictions, Lexington became the lead organization and opted-in to participate in the EPA Climate Pollution Reduction Grant program. This program will provide funding to develop and implement plans aimed at reducing greenhouse gas emissions and mitigating other harmful air pollutants in the region.
To facilitate effective regional collaboration, Lexington should encourage and participate in regular communication, coordination, and information sharing among the planning departments of adjacent counties. This collaborative framework can serve as a platform for shared decision-making, policy development, and the implementation of coordinated planning efforts. By identifying shared priorities, Lexington and adjacent counties can develop a cohesive vision and a unified planning approach that transcends jurisdictional boundaries.
Summary of changes:
• Updated text to describe Metropolitan Statistical Area as region for collaboration
• Added actionable items
• Referenced example of recent regional collaboration on the EPA Climate Pollution Reduction Grant
• Previous policy title: Consult with planning departments of adjacent counties to find common Comprehensive Plan goals, objectives and implementation items where shared benefits could be gained by working together.
STEWARDSHIP POLICY #8
ENSURE FUTURE DEVELOPMENT IS ECONOMICALLY, ENVIRONMENTALLY, AND SOCIALLY SUSTAINABLE.
Lexington recognizes the importance of sustainable development for the well-being of its residents, the environment, and the local economy. Sustainable development refers to a holistic approach that seeks to raise the standard of living for current residents while ensuring the same opportunity for future generations. This policy aims to guide future development in a manner that is economically, environmentally, and socially sustainable, ensuring a balance between growth, conservation, and community well-being.
In terms of economic sustainability, reducing the fiscal impact of growth is a key consideration Lexington must promote and implement policies and regulations that yield development patterns aimed at saving taxpayer dollars. This involves strategies such as encouraging infill development, promoting compact and mixed-use development, and prioritizing the efficient use of existing infrastructure. Economically sustainable development must also ensure that goods and services are equitably distributed and that there are sufficient job opportunities to support the provision of government services. By focusing on cost-effective development practices and job creation, the city can optimize resources, enhance fiscal resilience, and ensure the long-term financial sustainability of the community.
Lexington is also committed to environmentally sustainable land development patterns that support the goal of reaching net zero greenhouse gas emissions by 2050. Recognizing the crucial role of land use in carbon reduction, Lexington must prioritize strategies that promote compact and mixed-use development, encourage infill development, and prioritize the efficient use of existing infrastructure. Greenfield development in new development areas will have to incorporate sustainable design principles, such as energy-efficient building practices, green infrastructure, and the preservation of natural areas, to contribute to the city's sustainability goals. By integrating these practices, the city aims to ensure that future development minimizes its environmental impact and advances the overall sustainability objectives of the community.
Lexington also recognizes that social sustainability is vital in creating equitable and inclusive communities. Building upon the principles of Imagine Lexington, the city prioritizes the development of land use policies that promote access to social and economic resources for all residents. This includes addressing public transportation needs, implementing initiatives to support the homeless population, ensuring access to healthcare and mental wellness programs, and promoting inclusivity through additional zone change criteria. A commitment to sustainability requires both the private sector and the government to rethink their approaches to community issues, understanding the interconnectedness between policies and actions and their broader impact. By fostering social sustainability, the city aims to create a community that supports the well-being and quality of life for all residents, embracing diversity and meaningful community engagement.
Achieving sustainable development requires partnerships and collaborations with stakeholders, including developers, community organizations, educational institutions, and other government agencies. It also involves updating zoning and land use regulations to align with sustainable development principles, creating area master plans, conducting impact assessments for major projects, and establishing metrics and benchmarks to track progress towards sustainability goals. The Division of
Planning should explore opportunities and expanded staffing to monitor progress and ensure transparency and accountability in the implementation of sustainable development practices.
Summary of changes:
• Expanded text to incorporate more detailed information on sustainable development practices
• Included reference to new climate goals
• Added actionable items
• Previous policy title: Address economic, environmental, and social sustainability of new development to thoughtfully utilize Lexington’s resources for present needs while considering those of future generations.
STEWARDSHIP POLICY #9
FOLLOW AND IMPLEMENT THE RECOMMENDATIONS OF THE 2007 STUDY OF FAYETTE COUNTY’S SMALL RURAL COMMUNITIES AND THE 2017 RURAL LAND MANAGEMENT PLAN TO PROTECT AND PRESERVE LEXINGTON’S RURAL SETTLEMENTS.
Lexington has 19 rural settlements that are essential to the history and fabric of the rural community. Three of the historic settlements, Bracktown, Cadentown, and Jonestown, have been absorbed into the Urban Service Area, while 16 reside in the Rural Service Area, totaling 505 acres.
The majority of the rural settlements were settled by free African Americans following the Civil War. Many descendants of those who first settled these communities still remain on the same land today and operate small farms and businesses. The rural settlements also comprise a significant portion of the African American homeownership in Fayette County.
A three-year study of Fayette County’s rural settlements documented the context and history of the different areas and gave policy recommendations to protect each of their unique identities. The study with the recommendations were adopted as part of the 2007 Comprehensive Plan. While some actions have been taken as a result of these policy recommendations, many of these small rural settlements remain threatened. Threats include urban expansion, population decline, gentrification, and loss of identity.
To protect and preserve Lexington’s rural settlements:
• The current lotting patterns should be maintained, unless the action taken would restore the parcel’s historic condition;
• New housing opportunities on vacant lots should be promoted to ensure the longevity of the rural settlements;
• An ND-1 or H-1 overlay, tailored to the needs of these individual communities, should be considered;
• Infrastructure measures that both improve the quality of life for residents of the rural settlements and are compatible with the Rural Service Area should be explored, including transportation and public transit, tourism, and internet/ Wi-Fi connection;
• Consider adjusting the PDR program’s evaluative point system so applications which include farmland adjacent to rural settlements are awarded additional points;
• Identify local land use advocacy groups to partner as stakeholders in the development of policy and education/outreach efforts within rural settlements;
• The policy recommendations for rural settlements from the 2007 Study of Fayette County’s Small Rural Communities and the 2017 Rural Land Management Plan should be implemented.
The City has recently launched “A Sense of Place’ campaign to further document the rural hamlets of Lexington. The project will seek to document rural Black hamlets but also to preserve and educate the community about those hamlets. Future recommendations produced by the steering committee should be reviewed by the Planning Commission for inclusion to the Comprehensive Plan.
Summary of changes:
• Inclusion of the recent ‘A Sense of Place” campaign
PILLAR III GROWTH
There are many challenges and opportunities related to urban growth in Lexington, but ultimately growth is inevitable, encouraged, and invited, as it is an indicator of a vibrant and desirable community. Imagine Lexington has made mention of Lexington’s well-documented and consistent growth in numerous locations throughout the plan, realizing that many approach this fact with trepidation; however, if proper planning and implementation are executed, it should enhance the community on the macro and micro levels. Neighborhoods can become more complete with a mix of uses and amenities to provide for quality of life for all citizens throughout all seasons of their lives; development patterns can be fiscally responsible with taxpayer dollars; overall community health can improve with multimodal options; and, through these practices, Lexington can protect its signature farmland.
Through an inclusive and comprehensive public engagement process, the Urban County Council has recognized a crucial need to acquire more land within the Urban Service Area to cater to housing and job creation. While the 2045 Comprehensive Plan upholds the Urban Service Area concept, it also bears the responsibility of addressing current demands and planning for future expansion to meet the needs of the people of Lexington until 2045. On June 1st, 2023, the Urban County Council officially sanctioned the enlargement of the Urban Service Area. Subsequently, the Planning Commission was tasked with evaluating potential new land for inclusion, and by December 1st, 2024, an Expansion Area Master Plan is expected to be adopted. This Master Plan endeavors to ensure responsible development while considering the preservation of agricultural land and meeting the evident requirements for ad ditional acreage to facilitate housing and economic progress in Lexington.
It is important to acknowledge that this expansion will not immediately resolve the housing shortage, particularly the lack of affordable housing that Lexington currently faces. There is still a pressing demand for housing development within the existing Urban Service Boundary, necessitating a more efficient and compact approach due to the consistent growth experienced by Lexington. With approximately 90% of the area within the boundary already developed, Lexington must optimize the remaining 10% and prioritize redevelopment efforts to their fullest potential.
To maximize the potential for development, Lexington must take a holistic approach to infill and redevelopment across the whole of the Urban Service Area. While initially recommended through the 2013 Comprehensive Plan, Imagine Lexington continues this approach, realizing that the community’s land use policies make all development within the community vitally important, and that every development must achieve community goals. Unfortunately, many of the ordinances and regulations setting the parameters for development throughout the city are outdated, reflecting a more suburban model that does not fit with current realities and vision. It is important to revise these as expeditiously as possible, to ensure the desired development is possible throughout Lexington.
As all growth and urban development can be exciting and is important to the success of Lexington, it is also necessary to remember that quality open space is a basic human need. This was highlighted during the Covid-19 pandemic when these spaces were safe respites from uncertain futures. The public input for this comprehensive plan very clearly indicated that the incorporation of quality open space was a priority for community members of the City and were draws for businesses seeking to establish themselves in the city. It is key to ensure that the open space and parks provided by new developments
is designed so as to maximize the utility and visibility of the space. Making open space and greenspace provision a primary objective of developments, and not simply an afterthought, is crucial to making the most of the land within the Urban Service Area.
No statement on growth within Imagine Lexington would be complete without discussing the importance of the major corridors to the overall development strategy. This Plan calls for the continued study of Lexington’s major arterial corridors, to identify opportunities for redevelopment that will support mass transit initiatives and account for the changing reality of the retail industry. The City has taken the first steps with the review of Nicholasville Road and New Circle Road. However, these studies cannot languish, and the other studies must move forward. As more and more retail dollars go to online shopping, and consumers become increasingly interested in finding unique experiences at their brickand-mortar stores, it is incumbent upon the City to take a proactive look at the future of these sites. This means reaching out to property owners and managers, initiating comprehensive studies of the areas, and embarking upon government-initiated zone changes to spur redevelopment activity. If there is a desired outcome for the city, every effort should be taken to proactively clear hurdles to that outcome.
With all the changes anticipated in the next 20 years, including the expansion of 2,700 to 5,000 acres, the opportunities for Lexington are immense. Preemptive planning through the vision outlined in Imagine Lexington will continue to guide the City along a path that builds on past successes, acknowledges historic biases, and embraces a future for all Lexingtonians.
Summary of changes:
• Inclusions of the changes made by the Covid-19 Pandemic
• Update to include the expansion of the Urban Service Area
GROWTH POLICY #1 MODERNIZE REGULATIONS THAT SUPPORT INFILL AND REDEVELOPMENT.
In the late 1990s and early 2000s, the City acknowledged the historical development patterns of Lexington’s oldest portions of town and sought to promote the infill and redevelopment of properties that did not and could not meet the modern zoning ordinance. In 2001, the Planning Commission adopted the Infill and Redevelopment Area Boundary as part of the 2001 Comprehensive Plan. The I/R Area boundary is based on the 1934 urbanized area of Lexington and its surroundings, which was primarily developed in traditional patterns prior to the adoption of the Zoning Ordinance. The special provisions in the Zoning Ordinance for this defined area are designed to complement those historical patterns, by allowing and promoting opportunities for compatible growth in older neighborhoods. The changes were intended to promote development that enhances the livability of the neighborhood, add appropriate density, and promote affordable housing, all while adding value to areas of town that were previously overlooked because the primarily suburban Zoning Ordinance provisions were out of place in these neighborhoods.
Since the establishment of the I/R Area and the subsequent modifications to the Zoning Ordinance, Lexington has sought to better implement infill and redevelopment practices throughout the Urban Service Area. The need to enhance the livability of the neighborhoods, add appropriate density, and promote affordable housing throughout Lexington is essential to creating a sustainable and resilient community for everyone. The public comment process gathered during Comprehensive Plan process makes clear that Lexingtonians would like to live and work in places are walkable, allow a mixture of uses in neighborhoods, and allow the growth of the community without substantial loss of the surrounding rural service area. To do so, Lexington must modernize the Zoning Ordinance to reduce barriers to new housing, allow for neighborhood businesses within areas dominated by exclusive zoning, and promote a mixture of housing options within the established context.
Summary of changes:
• Refocus the policy on supporting infill and redevelopment in areas beyond just the designated I/R area.
• Previous policy title: Revisit Infill and Redevelopment Area regulations to ensure they are compatible with Imagine Lexington and are encouraging desired development.
GROWTH POLICY #2 IDENTIFY AND ENHANCE OPPORTUNITIES FOR INFILL AND REDEVELOPMENT IN DOWNTOWN AREAS.
Downtown Lexington possesses unique characteristics that set it apart from other cities, primarily due to its urban growth boundary designed to prevent excessive sprawl commonly found in American urban areas. Within this boundary, the downtown area is defined by specific landmarks, stretching from Thoroughbred Park to Rupp Arena. Prominent recent projects, including Town Branch Commons, the Krikorian entertainment complex, the Lexington Convention Center, and the recently approved High Street Redevelopment project, exemplify the momentum behind developments in the downtown area. Therefore, as Imagine Lexington 2045 takes shape, it should actively explore ways to incentivize and support these types of projects.
To maintain the ongoing revitalization of the urban core, it is important to establish a new Downtown Master Plan that specifically focuses on identifying opportunities for redevelopment along with supported strategies. A revised plan will hopefully be a catalyst for attracting new development, while also meeting the needs of existing downtown interests. Furthermore, it is essential to set a regular update to the master plan and explore the possibility of expanding the boundaries of downtown to accommodate the continuous growth occurring in the surrounding areas, which is steadily pushing against the current boundaries.
Downtown residents have repeatedly expressed a desire for more neighborhood-serving commercial development. Turning those wishes into reality requires working with Lexington’s urban neighborhoods to address the provision of additional housing to support further commercial opportunities. With the substantial private investment in student housing in the near-campus areas, Lexington has seen commensurate development of new commercial options intended to serve residents. The redevelopment of the Euclid Kroger and the planned construction of the five/six story mixed-use Hub developments on Pine Street/Upper Street (shown below) and Virginia Avenue/South Limestone Street indicate that providing substantial housing opportunities does attract further economic development.
The growth in the university population, in this case, is having a positive impact in attracting businesses that students and neighborhood residents need, and that increase their quality of life. Acknowledging the need to provide additional future student housing in the near-campus area is critically important, in that it serves to relieve housing pressures from adjacent neighborhoods. However, part of the process of identifying new opportunities will be analyzing existing areas that have already seen substantial irreversible change and may be in need of full redevelopment.
To bolster the vitality of new and existing small businesses in the area, it is beneficial to concentrate efforts on enhancing Jefferson, High, Main, Broadway, and Limestone streets. Limestone Street already serves as a thriving hub for small businesses. The Rupp Arena Arts & Entertainment District Masterplan proposed the extension of safe streets throughout downtown, connecting the University of Kentucky and Transylvania campuses to the heart of the city, and promoting a wider array of mixed-use activities. By revitalizing public spaces and attracting more people, Lexington's central business district (CBD) can undergo transformative changes.
Summary of changes:
• Added the need to update the Downtown Master Plan
• Added exploring expanding downtown boundaries
• Added need for extending safe streets through downtown and connecting UK and Transylvania to Downtown
• Added need to minimize surface parking in the downtown area
• Previous policy title: Capitalize on the current momentum of downtown development and improvements by working to identify and enhance opportunities for redevelopment.
GROWTH POLICY #3
IMPLEMENT THE RECOMMENDATIONS OF THE 2018 YOUR PARKS, OUR FUTURE MASTER PLAN.
Lexington's Division of Parks and Recreation currently meets residents’ and visitors’ needs with a diverse recreation portfolio comprising more than 105 parks, seven community centers, five golf courses, and seven plaza spaces. Furthering the implementation of Lexington’s 2018 Parks and Recreation Master Plan is crucial for maintaining and enhancing the overall quality of life for Lexington’s residents, especially as the city continues to grow.
As noted in the Parks and Recreation Master Plan, the spatial distribution of parks throughout Lexington is a critical factor, as residents are more likely to utilize facilities that are near their homes, especially those who rely on walking or public transportation. To plan accordingly, the Parks and Recreation Master Plan provides differing metrics for neighborhood, community, or regional/nature parks, with each type fulfilling an essential role in the overall park system.
Neighborhood parks, typically ranging from 2.5 to 15 acres, serve residents within a 10-minute walk service area. At present, neighborhood park service areas in older parts of Lexington (inside New Circle Road) exceed newer areas of development. As of 2018, approximately 40% of Lexington residents inside the Urban Service Boundary lived within a 10-minute walk of a neighborhood park. The Parks and Recreation Master Plan identifies the need for walkable access to neighborhood parks in the rapidly developing residential areas outside of existing neighborhood park service areas. These areas include northwestern neighborhoods outside of walking distance to Masterson Station Park, the Hamburg Area, east of Jacobson Park, the Polo Club area east of I-75, and any future growth areas along the current Urban Service Boundary.
For community parks, which are typically over 16 acres (often exceeding 40 acres), the Parks and Recreation Master Plan recommends that residents have access within a five-minute drive or a 10-15 minute bike ride of their home. Most land within the current Urban Service Boundary falls within an existing community park service area, except for central sector neighborhoods near Picadome, east sector neighborhoods in the Hamburg area, southwest sector neighborhoods east of Veteran's Park, and the rapidly developing Polo Club Area.
Regional parks and nature parks, which are usually over 100 acres in size, offer a wide array of amenities and attract visitors willing to travel greater distances. Since most regional parks in Lexington exceed 200 acres, they are typically located in suburban and rural areas where land is available. Approximately 60% of Lexington residents live within a 10-minute drive of a Regional Park. The Parks and Recreation Master Plan suggests the addition of new regional and nature parks. It identifies four new or expanded parks in Lexington, including the development of one existing park (Cardinal Run North, currently underway), one private park (Town Branch Park, currently underway), and two new future acquisition areas in the northwest and northeast rural areas.
As Lexington’s population continues to grow and new residential subdivisions are developed both within and beyond the current Urban Service Boundary, the demand for additional parks will continue to
increase. Most new developments in Lexington are situated beyond the service areas of existing parks, so it is essential to establish new parks in these growing areas. This ensures that new residents have comparable access to the facilities and proximity to open spaces that current residents enjoy while maintaining a consistent level of service for residents across Lexington. The Parks and Recreation Master Plan considers parks and open spaces as vital infrastructure for new residential developments and emphasizes that land for new parks should be set aside during the development process.
The Parks and Recreation Master Plan outlines strategies to facilitate collaboration between the City and developers to ensure sufficient park services in future residential developments. These strategies involve acquiring land in projected residential growth areas for neighborhood and community-scale parks and natural areas using developer fees. Another approach is to encourage the dedication and development of parkland as part of the residential development process. According to the Parks and Recreation Master Plan, the ownership and operation of these future parks and recreational features do not necessarily need to be assumed by the city or the Division of Parks and Recreation. In many cases, particularly for smaller parks, ownership and operation by non-governmental organizations may be preferred.
Implementing these strategies will require collaboration across the Divisions of Planning and Parks and Recreation to identify potential locations for future parks. The Divisions of Planning and Parks and Recreation must also coordinate on policy and regulation updates that ensure new park acquisition and development maintains and enhances access to meet the recreational needs of the relevant neighborhood(s).
Summary of changes:
• Rewrote to focus on the Division of Planning’s responsibilities toward implementing the 2018 Parks and Recreation Master Plan as Lexington continues to grow
• Previous policy title: Provide varied, abundant, and connected greenspaces throughout Lexington’s urban and rural areas.
GROWTH POLICY #4
PROMOTE THE ADAPTIVE REUSE OF EXISTING STRUCTURES.
Structures often outlive the function that they were built to serve, and there is nothing new about stabilizing and rehabbing an old structure; however, under modern Zoning Ordinance provisions, refitting an old building for a new use is often problematic, particularly given the existing suburban parking requirements. The most drastic examples of this in Lexington were in the older industrial areas located within the defined Infill AND Redevelopment Area.
Historically, major employers wanted to be near railroad access and housing that would allow their employees to walk to work, which contrasts with more recent suburban-style priorities of having easy highway access and separation from residential properties. Many older industrial buildings nationally have become highly underutilized, due to the need for most new industrial uses to locate in large buildings that are more cost-effective when built new, with better access to transportation corridors. Several small users could utilize the abundant vacant square footage, but a common problem was that the combined parking requirements of several small users could rarely be met onsite, or even in the general vicinity, without major demolition to provide new surface parking lots.
In 2012, the city partnered with the developers of the Distillery District and National Avenue to pass a first-of-its-kind Zoning Ordinance provision that would allow flexible uses and lower parking standards, providing a type of redevelopment flexibility second only to the core downtown zones. From inception, the adaptive reuse provisions of the Zoning Ordinance were designed to further the Goals and Objectives of the Comprehensive Plan, promoting the sustainable practice of reusing existing buildings, minimizing the need, in some cases, for new construction. The provisions were written with large-scale redevelopment in mind, allowing phasing of the development to occur, recognizing that largescale redevelopment projects rarely happen overnight. In 2021, the Planning Commission and Urban County Council adopted an update to the Adaptive Reuse regulations to modernizing the project requirements. These modifications were specifically targeted at correcting some of the unintended negative consequences of the earliest projects, while also raising the bar to create better development. In addition to the update to the Adaptive Reuse Projects, the Planning Commiss ion and Council modified the Flex Space Project to the Industrial Reuse project to allow for the reuse of industrial buildings located outside of the defined Infill and Redevelopment Area.
In addition to those older structures located in industrially zoned land, Lexington must now turn its attention to other zones and potential structures. Lexington has a diverse construction history, which includes large office structures and project sites located along collector roadways. The ability to adaptively reuse structures that are currently vacant will allow for in context development, which can revitalize areas and be more environmentally sustainable.
Summary of changes:
• Expanded policy text to include more than warehouse and industrial adaptive reuse options
GROWTH POLICY #5 UTILIZE CRITICAL EVALUATION TO IDENTIFY AND PRESERVE LEXINGTON’S HISTORIC ASSETS, WHILE MINIMIZING UNSUBSTANTIATED CALLS FOR PRESERVATION THAT CAN HINDER THE CITY’S FUTURE GROWTH.
With any future development of Lexington, reverence and critical review of the city’s history is imperative. Through the utilization of existing preservation policies, specifically through the Division of Historic Preservation, and through partnership with organizations like the Blue Grass Trust for Historic Preservation and the National Register of Historic Places, Lexington can protect, preserve, and enhance its stock of historic properties and structures, which act as a bridge between present day and Lexington’s 243-year history.
While the preservation of Lexington’s historic properties is important, it is equally critical to distinguish between properties that contribute to the historical record, and those that are less significant historically. During the development process, the age of properties is frequently utilized as a guideline for preservation in opposition to new construction. However, the 50-year test, which is often referred to as the test of longevity, must be corroborated with levels of historic significance. Historical significance of a site considers the impact on or importance to American history, architecture, archeology, engineering, and/or culture, and can be attributed to districts, sites, buildings, structures, and/ or objects.
The significance of the property can generally be broken down into four primary criteria of influence: an area of important events, association with significant persons, a unique or distinctive type, or the potential to yield important information. Furthermore, the property must possess high levels of integrity regarding location, design, setting, materials, workmanship, feeling, and association. These criteria for preservation and/ or enhancement of a structure should be employed to analyze the importance to the history and character of Lexington.
Through this crucial evaluation process, properties and districts that contribute to the historical record, as well as representative samples of architectural stylings, will be preserved for future generations to experience. However, without a critical review of a property’s contribution, Lexington will see a proliferation of unsubstantiated calls for preservation that can hinder the growth and densification within the urban service boundary.
Additionally, a proactive and comprehensive inventory of historic assets should be undertaken by the Department of Planning, Preservation, and Development to identify architecturally and historically significant properties. This should result in the initiation of additional H-1 Districts, as appropriate, to supplement the 15 existing districts that fundamentally contribute to Lexington’s urban fabric. Ideally, this assessment should be completed prior to development proposals to eliminate confusion as potential developments are evaluated.
One historical asset that should be both documented and preserved is Lexington’s iconic stone fences. They play a unique role in the region’s identity and contribute to the scenic views, rural corridors and rolling hills. Despite the role stone fences play in defining the sense of place within the Inner Bluegrass Region, they are in critical danger of being lost to development and neglect.
Stone fences are made of Kentucky Limestone collected from fields, streams, or quarries and demonstrate sustainable farming practices from the 1800s. The 1990 Stone Fences of Fayette County study estimated that 90% of the stone fences in the region are gone. The development of adjacent properties has been the primary reason for their demise since 1950. The 1994 Stone Fence Ordinance protects those stone fences located in the public right-of-way from demolition. However, as the 2017 Rural Land Management Plan finds, “the fate of stone fences remains in peril.”
The stone fence inventory should be updated to catalogue their condition and reflect their current status. Advancements in technology should be utilized to digitally map the stone fences through Geographic Information System (GIS). Other issues concerning stone fences identified by the 2017 Rural Land Management Plan should be considered when updating current policies and regulations protecting limestone fences.
Summary of changes:
• Addition of stone fence inventory policy from previous Stewardship Policy #1
GROWTH POLICY #6 ADDRESS NEW DEVELOPMENT CONTEXT ALONG THE BOUNDARIES OF EXISTING HISTORIC DISTRICTS TO ENHANCE HISTORIC AREAS WHILE ENCOURAGING INFILL AND REDEVELOPMENT.
Traditionally, the application of zoning has been almost universally about softening the edges of varying land uses against each other. Shifts in industrial production in the United States have resulted in less need for stepdown zoning that was pervasive from the 1930s through the 1990s. Modern planners are less likely to need to address mitigating the impacts of manufacturing and industrial uses on less intense areas directly adjacent but are now focused on how to integrate different land uses within neighborhoods and developments. However, as preservation efforts of the last few decades have increased, there has also been an increased desire to mitigate issues of different contexts between old and new development. Lexington’s local economy has undergone a similar transformation over the last few decades. While the tobacco industry has waned, the city’s service and healthcare industries have grown significantly. The more urban land uses of the new economy are increasingly complementary to existing residential land use patterns. Greater consideration to site design can make those transitions even more complementary and of greater benefit to neighborhoods.
Redevelopment of older industrial sites near historic areas creates an opportunity to enhance those spaces. Historic preservation efforts have succeeded in making some areas attractive for new growth around them, which is a testament to their success. However, creating a market for new projects is not without its own issues to monitor. Imagine Lexington supports the preservation of existing historic districts, while encouraging new infill and redevelopment projects both within these areas and around them.
Development criteria within Imagine Lexington seek to address some of these contextual issues to better provide guidance to historic property owners and developers regarding what to expect along the boundaries of historic zones. The primary goal will be to enhance the historic areas by creating new dynamic places where people will want to live, work and visit. These new developments must not attempt to mimic or recreate the past. They should be contextual to their surroundings, but also be distinct from historic developments. In the urban core and surrounding second tier urban locations, increases in land use intensity are to be expected. However, that intensity should still enhance the aesthetics and established built environment of directly adjacent historic areas.
Summary of changes:
• Further clarification addressing new development adjacent to historic areas
• Previous policy title: Address new development context along the boundaries of existing Historic Districts to enhance historic areas while encouraging infill and redevelopment.
GROWTH POLICY #7 (NEW)
ENSURE STORMWATER AND SANITARY SEWER INFRASTRUCTURE IS PLACED IN THE MOST EFFICIENT AND EFFECTIVE LOCATION TO SERVE ITS INTENDED PURPOSE.
Development significantly affects the hydrological functioning of an area in two primary ways: first, development usually increases impervious surfaces, resulting in a higher volume of stormwater runoff, and second, by necessitating the installation of sanitary sewers. As a result, stormwater and sanitary sewer systems must be installed. These sewer systems operate most efficiently when their physical layout mimics the topography of their service area. Following the service area topography allows the pipelines and channels to flow by gravity at minimum depths below the ground surface, saving money by minimizing the need for pumping and the cost of deep excavations.
Service areas for stormwater and sanitary sewer systems are most efficiently defined by catchments, which are areas of land where rainwater collects when it rains. Catchments are defined by elevation contours, not property lines or geopolitical boundaries. A service area boundary should never be defined by a stream or channel, leaving one side of the catchment served and the other side unserved. Instead, it should cross a stream or channel so that the downstream service point serves the entirety of every upstream sub-catchment. Figure A illustrates this concept, with the black lines delineating topographical service areas the catchments with points 1 and 2 showing drainage convergence points and the main drainage outlet in red.
In the case of sanitary sewers, it is crucial that all sanitary liquid waste undergo treatment before being discharged into the environment. To achieve this, the lowest elevation point in the system must be a treatment plant or a pumping station that directs the waste to a treatment facility. Efficient layouts for sanitary sewer infrastructure minimize the number of pumping stations and treatment plants by defining the catchment service area upstream of convergence points where streams and natural drainage channels meet. Figure A provides a visual representation of this approach, where a treatment plant or pump station located at point 1 would effectively serve all the land upstream from that point, while point 2 would handle the land draining into both points 1 and 2. The "outlet" serves the entire catchment.
As urban development progresses, the unavoidable increase in impervious surfaces within catchments significantly impacts the conveyance of stormwater. Efficient stormwater conveyance systems work to minimize the negative impacts of impervious areas by utilizing a system of green infrastructure and detention basins to control the increase in peak stormwater flow rates and durations. The peak flow
control infrastructure is throughout the catchment being served, working to limit increased flow and cumulative impacts at points 1 and 2 and at the outlet shown in Figure A.
To effectively address these requirements, it is necessary to review and update Lexington's codes, policies, and ordinances regarding the placement of stormwater and sanitary sewer infrastructure. This will help ensure that the placement of infrastructure is optimized to serve its intended purpose in the most efficient and effective manner. It is also important to review its placement relative to the Urban Service Boundary, to anticipate and accommodate future growth needs in the area, as appropriate, and avoid unintended development pressure in areas designated for long-term rural preservation. It is the intention of this policy to minimize the impact of infrastructure cost on taxpayers throughout Lexington. It is not the intention of this policy for infrastructure investment to impact short-term growth and Urban Service Area decisions, but to plan for long-term infrastructure needs, timing, and efficiency.
Over the past decade, this community has invested nearly $400 million in improving stormwater and wastewater management systems. Undertaking this review and update would enable the city to continue upholding high standards for stormwater and wastewater management while minimizing the economic and environmental impacts associated with these systems.
Summary of changes:
• New policy written with input from Division of Water Quality
• Replaced policy on autonomous vehicles
• Previous policy title: Lexington should be proactive, highly agile, and adaptable in pursuing changes to transportation and land use policy that harness the benefits of autonomous vehicles (AV) and limit the potential detriments.
GROWTH POLICY #8 IDENTIFY CATALYTIC REDEVELOPMENT OPPORTUNITIES TO PROACTIVELY REZONE PROPERTIES, CLEAR REGULATORY HURDLES, AND EXPEDITE REDEVELOPMENT.
Previous small area plans, which contained future land use recommendations, have been critical to facilitating future development in those locations. Recommendations in the South Nicholasville Road Small Area Plan led the way for The Summit at Fritz Farm, an area that had been the subject of numerous failed zone change attempts in the past. While in the Winburn-Russell Cave Small Area Plan, specific recommendations for public improvements were immediately implemented through Urban County Council action, approving funds for constructing the completion of Winburn Drive to Citation Boulevard.
Looking forward, as the planned corridor studies that are a major component of Imagine Lexington are completed, property owners interested in implementing the recommendations should be afforded an opportunity to take part in a Planning Commission initiated Zone Map Amendment. Leveraging the partnerships forged during the study period, a government sponsored zone change that reflects the recommendations would expedite the land use changes needed along the respective corridors. If the City has a desired outcome in these areas, proactive measures should be taken to lay the groundwork for their implementation.
Taking steps to clear the path for future development can signal to the development community that there is substantial buy-in on the planned path forward, minimizing both the risk and cost associated with redevelopment projects. Part of the corridor study process would include engagement with the associated Urban County Councilmembers and property owners once again to ensure a broad overall desire to implement the plans.
Recently completed corridor studies for Nicholasville Road and North New Circle Road both have identified a handful of catalyst site locations that could benefit from a zone change to prepare for future redevelopment and to assist with needed infrastructure improvements.
Summary of changes
• Updated to include completed corridor studies and their related identified catalytic sites
• Previous policy title: Identify catalytic redevelopment opportunities to proactively rezone properties, clear regulatory hurdles, and expedite redevelopment in key areas that will ignite further economic growth.
GROWTH POLICY #9
SUPPORT THE “MISSING MIDDLE HOUSING” TYPES THROUGHOUT LEXINGTON.
Lexington, like nearly every city in America, was historically built with neighborhoods that included a mix of housing types that included single-family homes, small fourplexes, carriage houses, stacked duplexes, courtyard apartments, and larger apartment clusters, all with fewer off-street parking spaces in walkable neighborhoods that were the fundamental building blocks of the city. As many overt forms of racial housing discrimination were made illegal, zoning stepped in to fill the same role as cities implemented zoning reforms to make many of these types of mixed housing neighborhoods became non-conforming. Mixed housing neighborhoods disappeared, replaced with newly created single-family zoning categories designed to separate people along racial, class, and socio-economic lines. Today those remaining mixed housing neighborhoods, such as Chevy Chase and Kenwick that were developed during periods where racial covenants served the purpose that zoning would later supplant, are highly sought after, due to their ability to provide amenities like walkability and achieving a higher density without the perception of overcrowding. As this type of housing in these and other neighborhoods becomes more popular, there will be additional opportunities to provide compatible housing, new uses such as live-work units, and walk-to businesses to support the residents. The low intensity business uses need to be integrated with the existing neighborhood, and should favor mixeduse corridors, such as Jefferson Street or Loudon Avenue, where they add neighborhood character and become focal points for neighborhood gatherings.
Summary of changes:
• Clarified root causes for disappearance of missing middle housing typologies
GROWTH POLICY #10 ESTABLISH TRANSIT ORIENTED DEVELOPMENT (TOD) FOR NEW DEVELOPMENT AND INFILL ALONG MAJOR CORRIDORS
The adoption of the Goals and Objectives by the Urban County Council instructed the Planning Commission to identify land for the expansion of the Urban Service Area. Within Goal #3, Objectives a and b, the Council provided recommendations regarding the location of future development, specifically indicating that properties with existing frontage along corridors, arterials and collector roadways be given priority.
Existing/infill corridors are typically served by transit and often include underutilized land such as large parking lots and commercial land uses that are prone to evolve and change over time. Corridor-based growth provides an opportunity to locate new housing in these areas, close to existing goods and services, and to support transportation needs through enhanced transit service. Additionally, as Lexington expands the Urban Service Area, it is important to ensure that development maximizes the available land and established infrastructure so to remain socially, economical, and environmentally sustainable and resilient.
One solution is to prioritize Transit-Oriented Development (TOD) along major corridors and new development. TOD refers to areas with high quality public transit services, good walkability, and compact, mixed land use. This type of development allows people to choose the best option for each trip: walking and cycling for local errands, convenient and comfortable public transit for travel along major urban corridors, and automobile travel to more dispersed destinations. People who live and work in such communities tend to own fewer vehicles, drive less, and rely more on alternative modes.
While TOD should be an important component of all new development, it should also be a major theme within all redevelopment, particularly along major corridors. As a city with a larger than average retail footprint, it is fair to assume Lexington will be disproportionately affected by changes in the retail market. In recent years, Lexington has already experienced the trickling effects brought on by shifting consumer habits and preferences, with the closure of several prominent national retailor locations. In response, Imagine Lexington brings to the forefront the flexibility and creativity needed to facilitate the reuse, revitalization, and/or enhancement of existing retail space, both utilized and underutilized.
This type of redevelopment can be mutually beneficial for the city, the future tenants, and the property owners. This additional development opportunity will allow the landowners greater return on their properties and should also bolster the success of the remaining retail entities on the site, building in a customer base within close, walkable proximity, as well as connecting other parts of the city to the development through enhanced transit. Existing retail developers interested in strengthening their customer base should consider the incorporation of not only residential uses, but less traditional retail services such as small groceries, pharmacies, gym/fitness centers, and locations for medical and senior care. As mentioned throughout previous themes, a growing number of residents now prefer to live and spend time in areas that are walkable and well-incorporated.
Coordinating land use planning with appropriate transportation infrastructure and services is critical to achieving these outcomes. Thus, Lexington should continue to establish corridor -specific land use and
transportation plans for each major arterial. Evaluation of future expansion areas must also closely consider how land use patterns and transportation infrastructure will be coordinated to reduce trip lengths for all modes, and make daily trips convenient via walking, bicycling and public transit.
Summary of changes:
• Shift policy from retail redevelopment to need for Transit Oriented Development
• Previous policy title: Support the enhancement, reuse, and/or redevelopment of underutilized property to fit the changing retail landscape, increase development viability, and bolster enhanced mass transit options.
GROWTH POLICY #11
IMAGINE LEXINGTON 2045 ANTICIPATES A VARIETY OF LAND USE CHANGES WILL OCCUR THROUGHOUT THE URBAN SERVICE AREA AND RECOMMENDS THOSE THAT ARE IN AGREEMENT WITH THE GOALS, OBJECTIVES, AND POLICIES WITHIN THIS COMPREHENSIVE PLAN. LAND USE CHANGES ALONE IN AN AREA ARE NOT SUFFICIENT TO CONSTITUTE MAJOR CHANGES OF AN ECONOMIC, PHYSICAL, OR SOCIAL NATURE AS PROVIDED IN STATE STATUTE FOR THE APPROVAL OF A ZONE MAP AMENDMENT. State statue provides direction on the findings necessary for proposed map amendments or zone changes. The primary threshold to clear is that the proposal must be in agreement with the adopted comprehensive plan. However, it also allows that, in the absence of such a finding, the Planning Commission can approve an application if there have been, “major changes of an economic, physical, or social nature within the area involved which were not anticipated in the adopted comprehensive plan and which have substantially altered the basic character of such an area.” Due to the adaptive and flexible nature of Imagine Lexington, this should be a very difficult argument to make successfully. Imagine Lexington not only anticipates land use changes throughout much of the urban service area, it calls for and recommends them.
Applicants justifying a zone map amendment with language regarding unanticipated changes must do so with evidence outside of land use changes approved by the Planning Commission, which should speak to much larger economic, physical or social shifts from forces greater than local planning decisions.
Land use changes are expected to occur throughout Lexington as infill and redevelopment continues as the primary strategy. These changes will occur and be approved primarily based upon their ability to demonstrate compliance with the Goals and Objectives and associated policies, as well as the zone change criteria of Imagine Lexington.
Summary of changes:
• Added 2045 to policy title
• No other changes
GROWTH POLICY # 12 (NEW)
ADOPT A MASTER PLAN FOR THE EXPANSION OF THE URBAN SERVICE AREA THAT ADDRESSES
LEXINGTON’S GROWTH NEEDS THROUGH SUSTAINABLE AND EQUITABLE DEVELOPMENT.
The Goals and Objectives for Imagine Lexington 2045 call for the identification of between 2,700 and 5,000 acres of land for inclusion to the Urban Service Area. Once this land is selected, the Planning Commission will begin a comprehensive master planning process for the defined areas. This master plan will guide future growth and development, with a focus on addressing a wide spectrum of community needs as well as the infrastructure and facilities necessary to support the sustainable and equitable development envisioned by Imagine Lexington 2045.
Sustainable Development
Imagine Lexington 2045’s critically important goal of reaching net zero greenhouse gas emissions by the year 2050 will require a considerable shift in development practices in comparison to previous expansions. To meet this goal, the master plan will set forth rigorous standards for future development that at minimum should encompass:
• Emissions Reductions
Prioritize carbon-neutral development and building practices by including guidelines for reducing emissions and exploring carbon-sink technologies such as reforestation.
• Natural Systems
The identification, preservation, and conservation of environmentally sensitive areas such as streams, wetlands, floodplains and forests must be a key organizing principle of new development. These areas should be well-integrated into the fabric of the new growth area so that they are both protected from development but also serve as key focal points and passive recreation areas.
• Transportation
The master plan must promote a transportation network and land use patterns that support efficient transit, as this is integral to reducing emissions from personal vehicles. Off-road bicycle paths should be provided along all collector and arterial streets.
• Complete Neighborhoods
Neighborhoods should be designed so that residents are no more than a ten-minute walk to a neighborhood-serving retail area, elementary school, and a park or public space as described in the Placebuilder.
Equitable Development
Of equal importance, the master plan should ensure that new developments in these areas are accessible to all individuals who desire to reside or work there. It should also ensure that housing options catering to different income levels are available, providing a safe environment with convenient access to services and community facilities within walking distance. The master plan will propose mixeduse neighborhoods that incorporate commercial hubs, promoting a greater mix of differing housing types at the block level.
• Housing Affordability
Address the issue of housing affordability by implementing strategies that ensure a range of housing options are available to residents at various income levels. This includes exploring
initiatives such as mixed-income developments, affordable housing subsidies, incentives, and/or requirements for developers to include affordable units.
• Housing Options
Promote a diverse range of housing options to accommodate the varying needs and preferences of residents. This includes considering the development and mixing of different types of housing such as single-family homes, townhouses, apartments, and accessory dwelling units (ADUs). The plan should encourage architectural diversity and innovative design approaches that cater to different household sizes, lifestyles, and stages of life, fostering a vibrant and inclusive community.
• Close to Jobs
Prioritize the proximity of residential areas to job opportunities. By strategically locating housing developments near employment centers, the plan can reduce commuting distances and promote walkability, cycling, and the use of public transportation. This approach not only reduces traffic congestion and emissions but also enhances the work-life balance for residents, allowing them to spend more time with their families and participate in community activities.
• Social Interaction
Emphasize the importance of social interaction and community engagement within the new growth area. It should encourage the development of public spaces, gathering areas, and community facilities that foster social connections and facilitate recreational activities. This can include the provision of parks, plazas, community centers, and other amenities that promote a sense of belonging, encourage social interactions among residents, and enhance the overall quality of life in the community.
While the master plan will guide private development, it will also identify additional regulation changes that will be needed for these projects to be legally constructed. A great deal of progress has been made since the completion of the 2018 Comprehensive Plan, but additional reform is needed to address inconsistencies across some residential and business zones. Establishing a business zone that is widely viewed by residents as complementary to a neighborhood and that also supports the inclusion of residential development is critical to addressing many of the goals, objectives and policies of Imagine Lexington 2045. Creating neighborhoods that are walkable and bikeable to employment, community facilities, and vibrant public spaces is not possible with many of the zoning tools Lexington currently possesses.
While the 2018 Comprehensive Plan called for a new approach to expansion decisions, it doesn't imply that pursuing expansion in Lexington, as historically done, cannot be accomplished with excellence. Some properties may still choose not to develop, and timing issues could pose challenges in providing infrastructure, as seen before. However, Imagine Lexington 2045 sets the highest standard yet for future development in Lexington, and a master plan that sets out to implement this Comprehensive Plan will certainly set a new standard for future expansions to follow.
Summary of changes:
• New policy to outline priorities for 2023-2024 growth master plan
GROWTH POLICY # 13 (NEW)
ESTABLISH MINIMUM RESIDENTIAL DENSITIES AND COMMERCIAL INTENSITIES FOR NEW GROWTH AREAS SO THAT DEVELOPMENT COVERS THE COST OF THE PROVISION OF INFRASTRUCTURE, COMMUNITY SERVICES, AND FACILITIES.
As Lexington grows, any new development must address how it will impact the current population, while also providing access to housing, goods and services for all income levels. The essential function of the Urban Service Area is to ensure that development is fiscally and environmentally sustainable. That same essential function must be applied to future greenfield expansion, so that the economic impact of new development does not burden current community members. Historically, Lexington has placed a greater focus on off-setting development costs through either increased tax burden on current residents or the use of developer exactions. The exaction program provided the opportunity for developers to build major infrastructure and earn credit against fees imposed on property for the funding of services.
Should a program like the exaction program not be part of future expansion, there must be a guarantee that current residents do not foot the bill for the construction of future development. There are opportunities that would allow for the offsetting of costs by new development, including impact fees. However, impact fees are not currently allowable for the Urban County and would necessitate State legislation. Until such legislation is passed, Lexington is left with limited options to offset costs beyond relying on the future density and development of expansion areas. Absent a fee/credit system to address this issue, it is imperative that all future development be constructed at a density that would cover the costs of services that development will produce. Additionally, any future expansion must not make the same mistakes from previous expansions. Affordability must be a primary component of growth, so that those who seek to move to new areas of Lexington are financially able to locate there.
Summary of changes:
• New policy
GROWTH POLICY # 14 (NEW) IDENTIFY AND PROVIDE MECHANISMS THAT PROODUCE AFFORDABLE HOUSING.
Over the course of the last 15 years, there has been a consistent housing strain throughout the United States. This strain was made worse during the Covid-19 pandemic, which highlighted the limited economic resources of many within our communities, as well as the economic burden of housing. While there is a typical assumption that 30% of a household’s income should be allocated to housing relating expenses, this reference number is outdated. First, the percentage does not consider the significant increase in non-housing related debt carried by most individuals. As of the first quarter of 2023, student debt was $1.3 trillion higher than it was in the same quarter of 2004. In comparison, credit card debt has only increased by $300 billion in the same time span.
Next, the 30% does not account for the slow growth of wages in comparison to the increased cost of other goods and services. For instance, the annual cost of new car ownership increased by over $1,000 between 2021 and 2022 to $10,728. Additionally, the monthly anticipated cost to feed a 1-year old child has increased by almost 23% over the course of the last five years.
While debt and the cost of non-housing related expenditures are higher, the cost of housing has also increased. These costs can also be increased by the restrictions or limitations on density, form, and function by the local government that act a barrier to adequate supply. While there are ways to promote the construction of greater housing options and greater affordability, Lexington must comprehensively review the mechanisms to promote affordability for all residents throughout the current and future Urban Service Area.
RENT
As described in the 2017 Housing Demand Study, greater than 50% of Lexington’s population is comprised of renters. This high rental population is representative of both being a larger city, as well as being the location of a large university. Since the adoption of the 2018 Comprehensive Plan, the rental rates have increased at rapid rate. Between 2017 and 2021 the monthly median gross rent increased by $196. This has caused residents to either compete for a limited amount of housing in their price-range or make hard choices regarding daily needs. The high demand for rental housing within Lexington, coupled with a low inventory, is the primary reason for the increase in rental costs. However, additional factors have limited the supply of available rental housing within Lexington. According to short-term rental tracking platform AirDNA, there are currently 1,170 whole dwelling units that are being operated as short-term rentals. While these amenities do play a role in the tourism market, they take away needed housing for local residents.
To promote the development of affordable housing, there must be an underlying focus on promoting more housing in general. The 2017 Housing Study stressed the need for denser housing types, with a particular focus on multi-family residential dwelling units. Some of the best ways to promote multifamily is to remove the stigmas associated with the housing type. While Lexington started to fill the housing gaps through the addition of attached single-family dwelling types and larger multi-family residential opportunities, the middle level of housing (fourplexes, sixplexes, eightplexes), which is often at the same scale as a detached single family dwelling unit, is still missing.
While adding housing to the community can start to slow the increase in the rental rates, the mechanisms to produce more truly affordable housing must also be explored. Through collaboration with public and private affordable housing operators, Lexington can seek to incentivize the production of affordable rental opportunities. Density bonuses, monetary support, or dedicated land for the development of truly affordable rental opportunities should be considered as part of any expansion to the Urban Service Area.
HOME OWNERSHIP
Since the 1940s, the typical introductory housing type has been a smaller single-family detached dwelling unit. Affordable land costs, standardization of construction techniques, and accessible and lowcost materials boosted the construction of new housing throughout the United States following World War II. Coupled with the GI Bill and an industrialized post-war United States, many white lower income and middle income populations were able to purchase homes for the first time. The expansion of home ownership had the added effect of producing generational wealth for families. Recent studies show that land and home ownership is a major contributor to continuous wealth between generations, and is also representative of the inequities that have developed over time.
While the single-family detached dwelling unit was historically a starter home, that history is no longer a reality or possibility for many young households. Increased values for land, increased costs for materials, and greater competition for smaller sized properties have priced out many first-time homeowners. Whereas in the 1980s, the majority of first time home buyers were in their 20s, recent data shows that the median age for a first time homeowner is 36 years of age. Data shows that increased non-housing costs (college debt), coupled with increased competition from older populations who are more financially stable, as well as lagging construction, has precluded many from entering the housing market for the first time.
To boost the access to home ownership, Lexington must acknowledge that first time ownership may not be in the form of a traditional single family detached structure. Other more affordable housing options like single family attached dwelling units (commonly referred to as duplexes and townhomes) or condos allow for individuals to access housing without the underlying land value cost. Minimizing the land value impact can be accomplished through the decrease or elimination of minimum lot sizes, the promotion of varying housing types, density bonuses where true affordable housing is offered, and/or expanding Lexington’s land trusts.
GOVERNMENT
In addition to reviewing legislation and funding opportunities to help the production of affordable housing, Lexington must also explore the historic roots of concentrating different housing options and people. Due to the exclusionary impact of historical single family residential zoning, the ability to be part of different neighborhoods or to age in place is greatly limited. While the adoption of the accessory dwelling unit (ADU) ordinance has promoted the development of new options, there is considerably more work that must be done to allow for new populations to access areas that were barred to them historically. Access to a neighborhood can mean better schools, better services, and better futures.
Exclusion as a practice was wrong historically, and the continuation of such practices would be abhorrent.
Summary of changes:
• New policy