THEME E
URBAN & RURAL BALANCE
INTRO At the heart of every discussion about the future of Lexington is the balance between urban growth and rural protection and preservation. This has been a consistent fact for decades and is no surprise to its citizens or policymakers. Every theme throughout Imagine Lexington has touched on this in some form or fashion and it is a constant thread present in all goals, objectives, and policies in this Plan. Lexington is a growing city and Lexington has agricultural assets worth preserving, but how can both be achieved? The answer is by growing intelligently through compact, fiscally responsible development patterns, the foundation of the nation’s first urban service boundary, established in this city. This development pattern type has numerous benefits, including infrastructure cost savings, desirable placemaking opportunities, multimodal transportation options, enhanced connectivity, healthier communities, vibrant neighborhood-serving businesses, preservation of irreplaceable
201
|
THEME D
farmland, and many others as well. Smart growth patterns and rural preservation go hand-inhand; therefore, growth is not inherently a bad thing. In fact, when accommodated in this way, growth becomes a boon to the economy, the environment, and society at large. Vibrant cities are growing, declining cities are dying. Implementing this strategy, though, is not always easy. There are a myriad of concerns over how new development can coexist with existing neighborhoods and historic assets. Some of these are legitimate concerns that this Plan seeks to address through contextually appropriate development; however there are often misunderstandings about the goals and benefits of this type of development. 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 and encourage the city to grow and evolve according to this Plan.
WHERE ARE WE NOW? As of 2017, the U.S. Census estimated that the City of Lexington had a population of 321,959, a figure that has been consistently increasing over the years. Evidence of a desirable community, this pattern of urban growth has historically been coupled with rural protections that have resulted in a dynamic community that is unlike any other. 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. It 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
203
|
THEME E
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. This new development will primarily take the form of infill and redevelopment, as it has been and will continue to be the foremost development strategy for the city. Many new developments throughout the urban area can attest to the success of that strategy. The city of Lexington is comprised of 285.5 square miles, 85 squares miles of which are included in the Urban Service Boundary. That means that Lexington’s urban development must generally take place within 30% of the city’s land. This boundary has kept development
patterns relatively compact and has minimized many of the typical sprawling suburban developments that have been occurring throughout the United States. Additionally, roughly ¼ of the remaining 200 square miles are protected by the Purchase of Development Rights program that protects farmland for food security and conservation of environmentally sensitive lands. Eventually the city hopes to conserve 50,000 acres, or almost 40% of the Rural Service Area. These protections have largely contributed to the city’s identity and its relatively fiscally responsible development patterns. The amount of vacant land available for infill projects throughout the city is roughly 10% of the Urban Service Area, meaning there are development opportunities of all types, though some are perhaps more complicated than others. There are also significant redevelopment opportunities, primarily in the underutilized property concentrated on the
city’s major arterial corridors. There are sites on almost every major roadway that could see increases in floor area ratio to better utilize the land for residential, retail, professional office, and other mixed-use developments. Utilizing transportation corridors in this way would create opportunities for enhanced mass transit that would transform the options available for Lexingtonians to move around the city. Additionally, the retail industry has seen major shifts recently with the success and convenience of online shopping. Consumer preferences have changed, and it is evident with the recent closings of significant local anchor stores K-mart, Toys-R-Us, and Walmart. This is indicative of national trends and offers momentous opportunities for redevelopment. Additionally, these redevelopment opportunities could allow new and exciting housing options. The 2017
IMAGINE LEXINGTON
Housing Demand Study noted that there is a need for almost 2,300 new housing units annually over the next 10 years, which far outstrips recent production. This housing shortage is reflective of national trends, and needs to be addressed with an influx of units on the market. Also noteworthy is that senior citizens will account for the greatest percentage of Lexington’s projected population increase. This particular demographic has very specific desires and needs for housing, and Lexington should look to accommodate their interests. 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.
DIVISION OF PLANNING
BALANCE
|
204
VISION FOR BALANCE
accountability
stewardship
growth
PILLARS
&
POLICIES
PILLAR I
ACCOUNTABILITY Imagine Lexington is a product of the people of Lexington, and its implementation should reflect the best interests of the citizens it was created by and created for. Ensuring the outlined vision is followed is crucial, and placing safeguards and checks to make that 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 crystal-clear as to the expectations of this policy-based plan; if followed, even when difficult decisions are necessary, it should result in a livable community that is desirable and forward-thinking. 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 necessary as this
207
|
THEME E
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 2017 public input mechanism, On the Table, this panel will provide the input, buy- in, education, and advocates this city needs. Another way this Plan provides for accountability is in the increased accessibility of information. The Imagine Lexington website serves as a clearinghouse for all information related to the comprehensive plan itself, growth and development metrics, public information and input opportunities, and all other data; it will provide a one-stop shop for citizens, developers, and public officials. This regularly reported information 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 longterm 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.
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.
Another cornerstone of Imagine Lexington is the Placebuilder,
IMAGINE LEXINGTON
"THE ULTIMATE SOURCE OF ACCOUNTABILITY FOR THIS PLAN IS THE CITIZENS OF LEXINGTON, WHO SHOULD HAVE AN ACTIVE ROLE IN ITS DEVELOPMENT."
ACCOUNTABILITY POLICY #1 CREATE A NEW PROCESS FOR DETERMINING LONGTERM LAND USE DECISIONS INVOLVING THE URBAN SERVICE BOUNDARY (USB) & RURAL ACTIVITY CENTERS. The 2018 Goals & Objectives for Imagine Lexington call 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 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. Council has already appropriated $150,000 to hire a consultant to assist in the creation of this process, which will determine the elements listed below. It will 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. 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-
THE PROCESS WILL DETERMINE:
• A rural preserve to set land that will be off-limits for development for generations; • A future urban development area between the rural preserve and the current boundary that is designated for future potential urban development; • Triggers to determine when modifications to the boundary are warranted (based on metrics and current development patterns); • Thresholds for ensuring new development proposals are meeting expectations; • Limits on how much land can be added to the Urban Service Area in a given timeframe; and • Many other, yet-to-be determined, components.
209
|
THEME E
IMAGINE LEXINGTON
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 adhoc 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 offlimits, 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 over 20 years. 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.
ACTION ITEM ESTABLISH A NEW PROCESS FOR LONG-TERM LAND USE DECISIONS INVOLVING THE URBAN SERVICE BOUNDARY
"THE BOUNDARY SHOULD BE ANALYZED TO DETERMINE HOW MUCH OF THE USABLE LAND IS DEVELOPED OR IN PROCESS. IF THERE ARE MAJOR SECTS OF THE AREA THAT ARE UNDERDEVELOPED, A PLAN SHOULD BE MADE TO SEE THEIR DEVELOPMENT IF FINANCIALLY FEASIBLE FOR THE CITY & DEVELOPERS." -LEXINGTON RESIDENT DIVISION OF PLANNING
BALANCE
|
210
ACCOUNTABILITY POLICY #2 MODERNIZE THE ZONING ORDINANCE TO REFLECT THE DIRECTION OF THE 2018 COMPREHENSIVE PLAN, PROACTIVELY PLANNING FOR THE NEXT 20 YEARS OF GROWTH. The last major overhaul of Lexington’s Zoning Ordinance in 1983, much needed in the wake of the City and County merger, also included significant revisions to the Land Subdivision Regulations. There was a focus on raising the bar for future development and ensuring that public infrastructure be built to standards that more adequately
211
|
THEME E
addressed public health and safety. Much has changed in the community since that time, but the ordinance has only seen many small revisions to accommodate those significant changes. The last major changes to the Zoning Ordinance created provisions for infill and redevelopment in 2009. Imagine Lexington is attempting to mark a significant shift in Lexington’s planning direction, one toward facilitating urban growth, enhancing existing places, and creating new desirable areas. Realizing these goals will require modernizing the Zoning Ordinance to make new projects feasible. Creating abundant new opportunities for varied housing types in order to attract new residents and businesses will be
critical, and will require a top-tobottom review of every section of the ordinance. Many of the past iterations need to be evaluated for efficacy, as well as reviewing the ordinance in light of Imagine Lexington’s focus on equity. There is no question that, over the last 20 years, changes to the Zoning Ordinance have taken on a more design-based approach, once again raising the bar for future growth. Residents are increasingly more concerned with the quality of the place they live in. 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 2018 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.
ACTION ITEM UPDATE THE ZONING ORDINANCE TO REFLECT IMAGINE LEXINGTON PRIORITIES.
IMAGINE LEXINGTON
ACCOUNTABILITY POLICY #3 IMPLEMENT THE PLACEBUILDER, WHICH INCLUDES CRITERIA FOR ZONE CHANGE APPLICATIONS, BASED UPON THE GOALS & OBJECTIVES, TO ENSURE DEVELOPMENT COMPLIANCE WITH THE COMPREHENSIVE PLAN. Imagine Lexington is full of policies that guide how development should occur throughout the city, and all of them are important. However, it can be difficult to ascertain by simply glancing at the text of the plan what developers should be aiming for with new proposed development or redevelopment. Additionally, adjacent property owners
DIVISION OF PLANNING
should also be aware of which policies should be considered for a particular application, and what types of development they can expect. The Placebuilder, as the centerpiece of Imagine Lexington, is designed to catalyze conversations about how proposals further urban planning best practices, and to help define what it means to be “in agreement with the adopted comprehensive plan,” per state statute. Rooted in the Goals & Objectives and the policies of the plan, The Placebuilder illustrates the types of development that are appropriate in various contexts, and it offers a menu of development and placetype options for applicants to choose from. This differs from a traditional land use map, because
the goal is no longer about the separation of uses, but instead the building of places. Each type of development has a list of criteria that should be addressed, or shown to be inapplicable, to illustrate how proposals will meet the Comprehensive Plan. Every site is different, with its own opportunities, constraints, and challenges, and not every criterion will apply to every site. The criteria are not a checklist, but they are meant to ensure conversations occur regarding the concepts present throughout Imagine Lexington. In 2013, the decision was made to remove the land use map that had been a mainstay of previous comprehensive plans to create flexibility and adaptability for the city of Lexington, as infill continued to be the preeminent development
strategy. Imagine Lexington, as an update to the 2013 plan, looks to provide additional focus to this strategy: the development criteria create more direction as a policy-based plan. The Placebuilder provides additional guidance to neighborhoods and developers alike.
ACTION ITEMS HOST A PLACEBUILDER WORKSHOP & TRAINING FOR DEVELOPERS, PLANNING COMMISSIONERS, & ANY OTHER INTERESTED PARTIES CREATE A PUBLIC OUTREACH PROGRAM FOR ONGOING COMMUNITY EDUCATION ON IMAGINE LEXINGTON & THE PLACEBUILDER
BALANCE
|
212
ACCOUNTABILITY POLICY #4 DEVELOP GROWTH BENCHMARKS & DETERMINE BEST MEASURABLE METHODS TO MONITOR THEM & 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 policybased 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. Also, a more robust effort to further develop a comprehensive set of measurables should be undertaken in the coming years, finding more detailed ways to track progress. This will be beneficial for the Planning Commission and staff in determining the realization
213
|
THEME E
of the stated Goals & Objectives; just as importantly, it will be an accountability measure, allowing the general public to follow along, be informed, and take ownership of their plan. Progress should be reported on a regular basis on the Imagine Lexington website so that all interested parties can follow along with the latest data.
ACTION ITEM DEVELOP A SERIES OF COMPREHENSIVE PLAN METRICS.
"MAINTAIN A FUNCTIONAL WEBSITE THAT CLEARLY COMMUNICATES THE PROGRESS OF THE PLAN."-LEXINGTON RESIDENT
ACCOUNTABILITY POLICY #5 INCREASE DEDICATED BIKE LANES, PEDESTRIAN & TRANSIT FACILITIES IN THE EXISTING RIGHT-OF- WAY, FOCUSING ON MOVING PEOPLE RATHER THAN EXCLUSIVELY SINGLEOCCUPANCY VEHICLES. Historically, public infrastructure has been focused on creating the easiest and fastest means of transit for single-occupancy vehicles. This resulted in abundant wide lanes of paved asphalt, but limited pathways for pedestrians, cyclists or transit riders. However, an increasing number of people use these streets in different ways; some by personal choice, others because of various constraints. There are many benefits of alternative transportation, such as biking, walking and public transit, some of which are illustrated in the Lexington Area Bicycle & Pedestrian Master Plan 2018. The study showed 30% of all car trips could be easily covered by a 10-minute bike ride or a 30-minute walk. Providing a safe and comfortable environment for non-vehicle travelers is essential to meet those needs.
In order to provide equity to all Lexington residents, city infrastructure must be required to ensure enough space is granted for all users, including pedestrians, cyclists, and transit riders, within the right-of-way. New rightsof-way should be designed for all users from the outset, but it is also important to retrofit existing facilities to correct for the years of emphasis placed on the single-occupancy vehicle.
IMAGINE LEXINGTON
ACCOUNTABILITY POLICY #6 PARTNER WITH OTHER AGENCIES LIKE THE LEXINGTON PUBLIC LIBRARY TO CREATE A PUBLIC OUTREACH OPPORTUNITY THAT PROVIDES DECISIONMAKERS WITH INPUT & CREATES NEIGHBORHOOD LEADERS ACROSS ALL DEMOGRAPHICS & GEOGRAPHIES. In 2017, as part of a partnership with the Blue Grass Community Foundation, Leadership Lexington, Fayette County Public Schools, and many other organizations, the Division of Planning sought input into this Imagine Lexington plan with On the Table. This innovative outreach tool changed the dynamic of civic engagement for Lexington and leveraged powerful partnerships to hear from active citizens who were hungry for both food and meaningful conversation.
It provided an accessible way for people to gather informally over a meal to discuss Lexington’s positive attributes and issues, as well as bold ideas and solutions to make it an even better place. Initially, this initiative had a stretch goal of engaging 5,000 people to participate; that goal was not only surpassed, but more than doubled, with over 11,000 people contributing. The roughly 10,000 comments that resulted from the input-gathering tools employed by the Division of Planning through this and other methods were synthesized into a Public Input Report (See APPENDIX C) that served as a key component to inform this plan. This public outreach initiative engaged far more people than previous comprehensive plan efforts,which typically brought out a couple hundred individuals. Perhaps equally significant is the diverse representation On the Table contributed. The Division
of Planning heard from a much more varied group of people representing a host of viewpoints that are perhaps not always heard in civic engagement. This was only possible through the partnerships that strengthened the effort. To build on this momentum, Imagine Lexington calls for a more permanent and ongoing way to connect the general public to decision-makers. By utilizing partnerships to create a citizen advisory panel, this plan hopes to achieve the following goals: • Ensure input is heard from voices that are representative of the city at large, and not only highlyorganized interests; • Develop future neighborhood leaders; • Improve the level of civic discourse;
• Offer educational opportunities so input is informed and not solely emotional. In order to achieve these goals, the panel will be randomly selected across all demographics and geographies to serve lengthy terms as advisors to the Division of Planning and the Planning Commission. They will provide ongoing input into planning implementation items and decisions, and will be educated on current process and best practice. This will be a productive environment to discuss and test future process and outreach improvements, and a valuable tool to consistently provide ongoing public input throughout the implementation of Imagine Lexington.
ACTION ITEM CREATE A CITIZEN ADVISORY PANEL
"INCREASED DIALOG LEADS TO BETTER SOLUTIONS." - LEXINGTON RESIDENT
DIVISION OF PLANNING
BALANCE
|
214
PILLAR II
STEWARDSHIP Lexington was founded in 1775, meaning there have been almost 250 years of rich history that came before the current inhabitants, and there will inevitably be many more to follow in the future. Each generation of Lexingtonians is tasked with protecting the land 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 is the 87-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 be continued as this generation plans for the future. Sustainable development is perhaps the best way to discuss stewardship of Lexington’s land and resources. The Goals & Objectives of this Plan call for all future development to be sustainable from an economic, environmental, and social standpoint. This means providing for the needs of current citizens without compromising the needs of those in the future. Development that is economically
215
|
THEME E
sustainable provides patterns that are fiscally responsible with taxpayer dollars and that provide employment opportunities for the community. Environmentally sustainable development is the result of responsible use of the community’s natural and built resources. Ensuring the continued availability of clean air, water, and soils, and protecting the signature farmland, are vital to an environmentally sustainable community. The third leg of the sustainability stool is social sustainability, which requires equitable land use policies. Ensuring opportunities exist for all citizens of Lexington to thrive is critically important, as is considering the unintended consequences of all policies and land use decisions. In addition to sustainable development on a local level, regional planning is an important concept where collaboration can result in improved land stewardship on a larger scale. This is an idea that has been long discussed, but has lacked in 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. Imagine Lexington makes recommendations for connecting the economic hubs of the nearby communities, focusing on transportation, tourism, and mutual interests between planning staffs. More progress needs to happen to allow for broader protections for the region as a whole. The primary collective elements binding the Bluegrass Region are the quality agricultural land and historic farming culture. In Lexington, it is critically important to protect and preserve these assets that are important to the city’s economy, identity, quality of life, and international acclaim. The Urban Service Boundary is the first line of defense locally for this, and Imagine Lexington commits to maintaining the current boundary in its existing location after careful study, deliberation, and public input. Steadfast stewardship of Lexington’s
rural landscape through requiring a compact, efficient, and fiscally responsible growth pattern 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, and should be fully explored before other options for new urban land are pursued. Developing these sites fully could relieve development pressure on rural properties, similar to the focus on infill and redevelopment within the Urban Service Boundary. There are a number of tools at the disposal of the community to protect and preserve agricultural land, while simultaneously enhancing the urban area of Lexington. Being faithful stewards of this land, as generations were before, is one of the most compelling reasons to utilize these tools and carefully employ sound planning principles.
IMAGINE LEXINGTON
STEWARDSHIP POLICY #1 UPDATE LEXINGTON’S STONE FENCE INVENTORY, & PURSUE ADDITIONAL PROTECTIONS FOR THIS ICONIC & HISTORIC CULTURAL ASSET. Stone fences are iconic to the historic and cultural landscape of Lexington’s rural heritage. 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
DIVISION OF PLANNING
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.” An inventory was conducted for the 1990 study, and found 247 stone fences with a total length of 38.7 miles. This was a 25% loss from the 49.6 miles identified in a 1967 study. The 1990 inventory was catalogued using a measuring wheel and plotting the stone fences on a 1981 Tree Stand Atlas map sheet. 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.
ACTION ITEM UPDATE THE 1990 STONE FENCE INVENTORY
BALANCE
|
216
STEWARDSHIP POLICY #2 CAPITALIZE ON THE DIVERSE ECONOMIC DEVELOPMENT, HOUSING, & TOURISM OPPORTUNITIES THROUGHOUT THE BLUEGRASS REGION & 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
217
|
THEME E
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, 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.
"UNDERSTAND, PLAN FOR, & BEGIN WORKING ON A
REGIONAL APPROACH TO ECONOMIC DEVELOPMENT;
LEXINGTON IS THE HUB FOR THIS PART OF THE STATE." -LEXINGTON RESIDENT
IMAGINE LEXINGTON
Fay Jes ette sam Cou nt ine Co y unt y
STEWARDSHIP POLICY #3
Woodford Co unty Fay ette Co unty
ty un Co nty tte Cou e y Fa lark C
Fay Je s ette Co sam ine unty Co unt y
y nt y ou t t C oun ot C Sc tte ye a F
C nty ark ou Cl nC iso d Ma
53 Miles Of Short-Term Priorities In Fayette
Wood ford C ounty Je ssam ine Co unty
Woodf or Je ssam d County ine Cou nty
LEXINGTON
unty on Co Bo urb ty C o un F ay ette
SHORT-TERM MID-TERM
ty un Co ty on un dis Co Ma ette y Fa
Woodf ord Co unty Fayette County
LONG-TERM
Woodford Co unty Fay ette Co unty
NICHOLASVILLE
0
1
MILES 2
I
LEXINGTON
Fay Je s ette Co sam ine unty Co unt y
Woodf or Je ssam d County ine Cou nty
Woodf or Je ssam d County ine Co unty
y nt y ou t t C oun ot C Sc tte e y Fa
Woodf ord Co unty Fayett e Coun ty
A regional transportation network provides for thetymovement n ou ty Cpeople n of goods and though tte Cou e y Fa lark a multimodal C system, which includes trains, trucks, buses, cars, bikes, and pedestrian options. As the regional transportation network grows, a viable system of accessible transportation alternatives should be implemented for residents and commuters alike. This includes complete nty ou
RE
cooperative, and comprehensive planning with the surrounding counties should be pursued, as transportation links Lexington to the rest of the world politically, economically, and socially. d is Ma 53 Miles Of Short-Term Transportation transcends all In order to facilitate and levels of governmental units and Priorities In maintain Fayette an effective and comprehensive is vital to economic growth. transportation system, cross-border actions should be encouraged and As Lexington’s population and implemented through regional economic activity continue to transportation planning. The increase, so too will the demand economic success of Lexington for the movement of goods and and the region depends upon people. Approximately half of the the accessibility and connectivity city’s labor force commutes from of the regional transportation outside of the county, a trend that is network. The city’s transportation expected to continue as populations Fay Je s ette Co s ine unty network penetrates urban and in Scott, Madison,amand Co Jessamine unt y rural boundaries as well as political Counties grow at rapid rates. This borders. Regional transportation will result in more people and planning through continuing, vehicles making daily commutes, on unty on Co Bo urb ty C o un F ay ette
INCREASE REGIONAL TRANSPORTATION y COOPERATION & PURSUE unt Co bon ounty r u Bo rk C MULTIMODAL TRANSPORTATION Cla OPTIONS, TO FACILITATE INTERNICHOLASVILLE COUNTY CONNECTIVITY.
streets that give consideration to bicycle and pedestrian traffic in addition to cars, trucks, buses, and ride sharing options while utilizing the latest yinnovative unt y Co t un rk a o l advancements inC technology. C on
Fay Je s ette Co sam ine unty Co unt y
SHORT-TERM MID-TERM
LONG-TERM
C on dis Ma ette y Fa
DIVISION OF PLANNING
ty un Co nty u te et Co y Fa lark C
already well-traveled arterials and thoroughfares. In addition to more commuters, an increase in trucks and freight movement is also anticipated as online shopping continues to increase and home delivery becomes more readily available. Currently, the Lexington Area Metropolitan Planning Organization (MPO) functions as the transportation planning unit for the city, while also serving as the regional organization that covers Jessamine County and a very small portion of Scott County. However, Lexington should look to foster increased regional transportation planning amongst all of its surrounding counties.
"A REGIONAL
TRANSPORTATION PLAN IS NECESSARY
TO PROVIDE A TRANSIT SYSTEM BETWEEN LEXINGTON &
WILMORE
15 Miles Of Short-Term Priorities In Jessamine
NEIGHBORING CITIES."
-LEXINGTON RESIDENT
BALANCE
|
218
STEWARDSHIP POLICY #4 COORDINATE WITH SURROUNDING COUNTIES TO CAPITALIZE ON THE INHERENT TOURISM DRAWS OF THE BLUEGRASS REGION. Lexington is not alone in reaping the natural and historical benefits of the Bluegrass Region, as the surrounding counties all have similar assets, as well unique cultural and historic draws that make the region an attractive tourist destination.
Some of the attractions cross county boundaries, such as the bluegrass landscape, horse farm tours, the Bourbon Trail, and the Brewgrass trail; while others are locally specific, such as Shaker Village in Mercer County or the Kentucky Castle in Woodford County. Together, they all create a regional experience that is unlike any other; in order for them to be most effective, they must be marketed together as such. Visit Lex already incorporates regional showpieces into their marketing materials, including their pre-planned itineraries and “top
SHAKER VILLAGE OF PLEASENT HILL, HARRODSBURG, KYL
219
|
THEME E
10 things to do” list. It could be mutually beneficial for all involved for Lexington to continue conversations with the goal of increasing tourist traffic for Fayette and outlying counties. Those counties would receive visitors who may be coming due to the larger draw of the urban amenities Lexington has to offer, and Lexington would likely benefit, as those who are 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. Land development, primarily in Lexington’s job-creating industries. Opportunities for industrial and professional office growth are present, and, as land constraints continue to tighten, the city should look creatively to these areas for employment solutions. These should be pursued, but with constant consideration given to the integrity of the rural service area.
DOWNTOWN HARRODSBURG, KY
IMAGINE LEXINGTON
STEWARDSHIP POLICY #5 FULLY REALIZE THE DEVELOPMENT POTENTIAL WITHIN LEXINGTON’S RURAL ACTIVITY CENTERS WHILE AVOIDING NEGATIVE IMPACTS TO SURROUNDING AGRICULTURE, RURAL SETTLEMENTS, & VIEWSHEDS. The 2017 Rural Land Management Plan has a stated policy emphasis for the Rural Activity Centers (RACs) to “maximize their potential for jobs while maintaining their boundaries and minimizing impacts to the rural area.” The Rural Service Area (RSA) includes 1,562 acres dedicated to the four RACs: Blue Sky Industrial Park, Avon (Blue Grass Station), Spindletop Research
DIVISION OF PLANNING
Park, and the Blue Grass Airport. Blue Sky is underutilized, with much of its area occupied by surface car lots; it can accommodate industrial uses, and is the only RAC not in public ownership. Its recommended uses are primarily for warehousing, light industrial, and interstate commercial development. There are significant opportunities to more fully realize the potential of this site, and a small area plan should be undertaken for more specific recommendations. At 271 acres, Avon is under control of the Commonwealth of Kentucky, with the exception of 79 acres that are privately held. This RAC includes several tenants, such as 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, which includes tenants such as the Council of State Governments and the Asphalt Institute. This Rural Activity Center is zoned for professional office uses. There are opportunities there for additional professional office developments which would be well suited for corporate headquarters, as the land is already zoned for professional office. Economic development opportunities should be pursued though amendments to the City’s agreement with the Commonwealth of Kentucky regarding sanitary sewer provision would be required. The Blue Grass Airport is largest of the RACs, at 707 acres. This RAC includes warehousing and office uses to support the airport facilities, as well as a shooting range for Lexington Police. The Airport Board
also acquired another 314 acres and constructed an additional runway outside the RAC; however, the boundary was not expanded, in order to avoid complications that could arise through future property sales. While the RACs make up a relatively small percentage of the RSA, they still provide for growth and development, primarily in Lexington’s job-creating industries. Opportunities for industrial and professional office growth are present, and, as land constraints continue to tighten, the city should look creatively to these areas for employment solutions. These should be pursued, but with constant consideration given to the integrity of the rural service area.
ACTION ITEM CONDUCT A BLUE SKY SMALL AREA PLAN
BALANCE
|
220
STEWARDSHIP POLICY #6
STEWARDSHIP POLICY #7
IDENTIFY NEW COMPATIBLE AGRITOURISM & ECOTOURISM LAND USES THAT WOULD ENHANCE LEXINGTON’S ECONOMY & PROVIDE ADDITIONAL INCOMEGENERATING POSSIBILITIES FOR LOCAL FARMERS.
CONSULT WITH PLANNING DEPARTMENTS OF ADJACENT COUNTIES TO FIND COMMON COMPREHENSIVE PLAN GOALS, OBJECTIVES & IMPLEMENTATION ITEMS WHERE SHARED BENEFITS COULD BE GAINED BY WORKING TOGETHER.
The 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 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.
ACTION ITEM UPDATE THE ZONING ORDINANCE PROVISIONS FOR AGRITOURISM
221
|
THEME E
Regional planning efforts in the past have been difficult endeavors for many reasons; however, there is a shared goal among staff from all of Lexington’s regional neighbors to advance the basic principles of urban planning. While there are significant differences in the underlying ordinances that control zoning from county to county, all of the neighboring counties have adopted comprehensive plans, which share many goals and objectives. Developing a rapport with the planning staff from these neighboring planning departments and identifying common goals and objectives would allow for shared efforts in implementing policies. This would foster a commonality that highlights similarities, rather than focusing on differences.
IMAGINE LEXINGTON
STEWARDSHIP POLICY #8 ADDRESS ECONOMIC, ENVIRONMENTAL, & SOCIAL SUSTAINABILITY OF NEW DEVELOPMENT TO THOUGHTFULLY UTILIZE LEXINGTON’S RESOURCES FOR PRESENT NEEDS WHILE CONSIDERING THOSE OF FUTURE GENERATIONS. The focus of sustainable development is to raise the standard of living for current residents without precluding
DIVISION OF PLANNING
the same opportunity to future generations. There are three facets to sustainability through which all proposed development should be reviewed: Economic, Social, and Environmental. It is indeed possible to promote growth in a sustainable way by ensuring that goods and services can be easily distributed and that there are sufficient jobs to support the provision of government services. At the same time, reducing the fiscal impact of growth must be considered as well. Imagine Lexington is committed to promoting and implementing policies and regulations that will yield development patterns
that save taxpayer dollars. From an environmental perspective, land uses and new development should support their surrounding ecosystems. Improving upon Lexington’s commitment to sustainable growth will require implementing guidelines for measuring the impact of new development. Lexington should be a city that encourages growth that is durable, healthy and energy efficient. Lexington should be a leader in green building construction practices. Social Sustainability emphasizes
the creation of equitable land use policies that promote access to social and economic resources. Imagine Lexington aims to address public transportation, the needs of the homeless population, healthcare and mental wellness programs, and policies for inclusivity, as well as community engagement through additional zone change criteria. A commitment to sustainability involves the private sector rethinking how it develops, as well as how government approaches community issues, realizing that the interrelationship between policies and actions often affect much more than just their intended focus.
BALANCE
|
222
STEWARDSHIP POLICY #9 FOLLOW & IMPLEMENT THE RECOMMENDATIONS OF THE 2007 STUDY OF FAYETTE COUNTY’S SMALL RURAL COMMUNITIES & THE 2017 RURAL LAND MANAGEMENT PLAN TO PROTECT & PRESERVE LEXINGTON’S RURAL SETTLEMENTS. Lexington has 19 rural settlements that are essential to the history and fabric of the rural landscape. 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 after the Civil
223
|
THEME E
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, begun in 2002, documented their character and history and gave policy recommendations to protect each of their unique identities, all of which were included in 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 potential urban expansion, population decline, possible gentrification if redeveloped, and loss of unique 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.
IMAGINE LEXINGTON
"THREATS [TO RURAL SETTLEMENTS] INCLUDE POTENTIAL URBAN EXPANSION, POPULATION DECLINE, POSSIBLE GENTRIFICATION IF REDEVELOPED, & LOSS OF UNIQUE IDENTITY."
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. The 2013 Comprehensive Plan expanded the scope of what
225
|
THEME E
the community considers “infill” development, moving from simply developing vacant parcels within the Infill and Redevelopment regulatory barrier, to a more holistic approach including development opportunities throughout the Urban Service Area. 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 specific 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 comport with current realities and vision. It is important to revise these as expeditiously as possible, in an incremental manner, to ensure the desired development is possible. However, the more traditional infill and redevelopment is critical as well, and the specific regulations tailored to this should also be
revisited. Staff should study the results of the existing ordinances to understand if the desired outcomes for adaptive reuse of buildings and infill are occurring. There is fantastic momentum taking place in Lexington’s downtown, from Town Branch Commons, to the completion of City Center, and every effort should be taken to capitalize on this to improve the vitality and desirability of the urban core.
As all of this growth and urban development is exciting and important to the success of Lexington, it is also necessary to remember that open space is a basic human need. Public input for this comprehensive plan very clearly indicated that this is a priority for the citizens of the city. It is key to ensure that the open space provided by new developments is designed so
Inevitably, the success of the downtown area places pressure on the historically significant resources located there; in fact, much of the desirability of these areas comes from the integrity and quality of the historic assets that give it a unique sense of place. Every effort must be made to protect these crucial pieces of Lexington’s story, while allowing for the next chapters to be written. Historic resources should not halt progress, but should be respected and enhanced by new opportunities and new neighbors.
IMAGINE LEXINGTON
as to maximize the utility 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 Boundary, and regulations must be modified to specifically reflect that. 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 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. As more and more retail dollars go to online shopping, and consumers become increasingly interested in finding unique experiences at their brick and 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
DIVISION OF PLANNING
should be taken to proactively clear hurdles to that outcome. Retail is not the only industry that is seeing a rapid change to its foundational practices; transportation is as well. Autonomous vehicles are proving to be a disruptive technology that will drastically alter the landscape in the future. Experts in the field are indicating that these vehicles may soon be the norm, rather than the exception. Driverless vehicles are already making appearances throughout the nation, and preliminary autonomous options are being installed as standard equipment on some new models. This radical shift in transportation will have significant effects on the way Lexingtonians navigate the city, but will also have sweeping impacts on land uses as well. This city has an opportunity to be a leader in planning for these technologies, and should strive to be on the cutting edge. With all of the changes anticipated in the next 20 years, the opportunities for Lexington are immense. Preemptive planning through the vision outlined in Imagine Lexington will continue the city along a path that builds on the past, but also embraces the future.
BALANCE
|
226
GROWTH POLICY #1 REVISIT INFILL & REDEVELOPMENT AREA REGULATIONS TO ENSURE THEY ARE COMPATIBLE WITH IMAGINE LEXINGTON & ARE ENCOURAGING DESIRED DEVELOPMENT. The first Infill & Redevelopment Committee was created in 1996, which led to the 2001 Residential I/R Study, official adoption of the defined Infill & Redevelopment Area in the 2001 Comprehensive Plan, and subsequent regulatory changes to implement the 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.
227
|
THEME E
Prior to the I/R changes, there were many concerns about inappropriate infill in some areas of town, and lack of infill opportunities in others. 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. Throughout the years, the provisions of the Zoning Ordinance related to infill and redevelopment have been modified to ensure they were accomplishing these goals. It is time to revisit these regulations with a context-sensitive approach to assess whether they are in line with the stated Goals and Objectives, or if they are producing undesirable development within the I/R Area.
ACTION ITEM UPDATE THE ZONING ORDINANCE TO REFLECT IMAGINE LEXINGTON’S INFILL POLICIES
IMAGINE LEXINGTON
GROWTH POLICY #2 CAPITALIZE ON THE CURRENT MOMENTUM OF DOWNTOWN DEVELOPMENT & IMPROVEMENTS BY WORKING TO IDENTIFY & ENHANCE OPPORTUNITIES FOR REDEVELOPMENT. The implementation of the infill and redevelopment boundary and its corresponding special zoning provisions was a boon to downtown growth, coming at a time when citizens began to take interest, once again, in living in a more urban setting. Demographically, Baby Boomers were looking to downsize, along with new young professionals beginning to demand smaller housing types located closer to
amenities. Recent developments near downtown do not indicate any anticipated shift in these preferences. Current and proposed projects like Town Branch Commons, the Krikorian entertainment complex, and the Lexington Convention Center will be catalytic in spurring additional smaller developments downtown, and Imagine Lexington should anticipate ways to encourage those projects. A new Downtown Master Plan that specifically focuses on identifying opportunities for redevelopment along with supported strategies is needed to continue revitalizing the urban core. This should be led by the Downtown Lexington Partnership, with strong collaboration with Planning, additional governmental and quasi-governmental agencies, and other critical stakeholders
like downtown neighborhoods and businesses. A revised plan will hopefully be a catalyst for attracting new development, while also meeting the needs of existing downtown interests.
Pine Street/Upper Street (shown below) and Virginia Avenue/South Limestone Street indicate that providing substantial housing opportunities does attract further economic development.
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
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.
DOWNTOWN AREA MASTER PLAN
DIVISION OF PLANNING
BALANCE
|
228
GROWTH POLICY #3 PROVIDE VARIED, ABUNDANT, & CONNECTED GREENSPACES THROUGHOUT LEXINGTON’S URBAN & RURAL AREAS. The Bluegrass identity sets Lexington apart from the rest of the world. It is vital that this identity be preserved and maintained through the designation and preservation of greenspace; growth should strike a harmonious balance between development and preservation. Lexington has
229
|
THEME E
and should continue to provide abundant new greenspace and greenways, while preserving existing natural areas that continue to foster and promote growth. Greenspace and greenways are essential to the quality of life expected by Lexington’s citizens and are imperative to attracting new businesses and skilled workers. Greenspace should not be subjugated to the rural service area; rather, greenspace and greenways should play a prominent role in how the urban service area is developed. As the community continues to grow, more projects such as the Legacy and Town Branch Trails should
be considered and implemented, and more neighborhood parks should be created. Greenspace is more than horse farms, parks, and forests; it also includes streams, sinkholes, the Kentucky River, and the prime soils provided by Lexington’s karst topography. Greenways are linear corridors, not unlike roads and trails, which can provide critical linkage and protection of natural and cultural resources. Both new and existing corridors should be made complete with green infrastructure. The natural topography of the Bluegrass offers abundant
opportunities within the urban service area for greenspace. Greenspaces provide for recreational tourism, healthier living habits, and socially equitable open spaces. The scenic, environmental, and cultural impact of allocating greenspace and greenways is vital to a healthy and thriving urban environment. The issues, concerns, and policy recommendations of both the 1994 Greenspace Plan and the 2007 Greenway Master Plan should continue to be considered and implemented. Both plans should be updated, taking into account new advancements in technology, growth, and development.
IMAGINE LEXINGTON
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 & Redevelopment Area. Historically, major employers wanted to be near railroad access and housing that would allow their employees to walk to work, which is in contrast to 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 corridor redevelopment in mind, allowing phasing of the development to occur, recognizing that largescale redevelopment projects rarely happen overnight. Since the
adoption of the new regulations, these Adaptive Reuse Projects have generally been successful for large-scale redevelopment with some unintended negative consequences, such as the lack of options for multimodal access, resulting in overcrowded parking. It is time to revisit this ordinance and strengthen it to achieve the current Goals and Objectives of the Comprehensive Plan, ensuring that adaptive reuse projects enhance their surrounding neighborhoods, provide more opportunities and options for a livable and walkable environment, and become anchors
for re-investment in existing neighborhoods. A possible approach to strengthen the adaptive reuse provisions is to create a context- sensitive design methodology, with differing guidelines for large corridors and individual projects; and, perhaps, the ability to apply the adaptive reuse principles to properties other than industrially-zoned areas.
ACTION ITEM UPDATE THE ADAPTIVE REUSE PROVISIONS IN THE ZONING ORDINANCE
JAMES E. PEPPER DISTILLERY PRESS CONFERENCE
DIVISION OF PLANNING
BALANCE
|
230
GROWTH POLICY #5 UTILIZE CRITICAL EVALUATION TO IDENTIFY & 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, 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
231
|
THEME E
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 (National Register Criteria for Evaluation). 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.
ACTION ITEM
CREATE A PROACTIVE & COMPREHENSIVE INVENTORY OF HISTORIC ASSETS
IMAGINE LEXINGTON
GROWTH POLICY #6 ADDRESS NEW DEVELOPMENT CONTEXT ALONG THE BOUNDARIES OF EXISTING HISTORIC DISTRICTS TO ENHANCE HISTORIC AREAS WHILE ENCOURAGING INFILL & REDEVELOPMENT. Traditionally, the application of zoning has been almost universally about softening the edges of varying land uses against each other. American economic shifts have resulted in less need for stepdown
DIVISION OF PLANNING
zoning, as today planners are less likely to need to address mitigating the impacts of manufacturing and industrial uses on less intense areas directly adjacent. On the other hand, preservation efforts of the last few decades have increased the desire to mitigate issues of context between old and new. 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, a testament to their success. However, creating a market for new projects is not without its own issues to monitor. Imagine Lexington absolutely supports preservation of existing historic districts, while encouraging new infill and redevelopment projects in areas around them.
Development criteria within Imagine Lexington will seek to address some of these contextual issues in order to better provide guidance to historic property owners and developers about 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, while not attempting to mimic or recreate the past. In the urban core, increases in land use intensity are to be expected, while still enhancing the aesthetic of directly adjacent historic areas.
BALANCE
|
232
GROWTH POLICY #7 LEXINGTON SHOULD BE PROACTIVE, HIGHLY AGILE, & ADAPTABLE IN PURSUING CHANGES TO TRANSPORTATION & LAND USE POLICY THAT HARNESS THE BENEFITS OF AUTONOMOUS VEHICLES (AV) & LIMIT THE POTENTIAL DETRIMENTS. While computer technology has improved rapidly and dramatically over the last 20 years, conversely, automobiles have traditionally followed a much more deliberately slow-paced and methodical development process, primarily to ensure that safety is enhanced with every iteration of advancement. But as cars have become more like computers, there has been a shift in the design process, from designing a car that can withstand a crash to designing a car that avoids the crash in the first place. With prices dropping and the availability of driver-assistance technology increasing, it is evident that the future of transportation will be tied to a smart connected city infrastructure, known in the industry as Intelligent Transportation Systems (ITS). This, in turn, will
233
|
THEME E
allow future innovations that will create more travel options. Just as computer technology, the internet, and smart phones have transformed almost every aspect of daily lives, connected and automated vehicles will change the way citizens navigate and pay for travel. There are many experts that have envisioned a utopian future of low cost electric vehicles transporting people from door to door, while others see a dystopia of clogged streets and negative impacts on health, as fewer choose to walk. The truth is likely to be found somewhere in between these two visions, with both new benefits and unforeseen consequences. What is clear is that change is coming, and it is coming faster than ever expected. Automated and connected vehicles will affect the economy, land use decisions, data sharing, pricing, safety, available travel options, congestion, customer service, retail establishments, employment, and many other aspects of daily lives. Irrespective of the projections about how fast the full adoption of these services will be at full market saturation, the time to plan for them is now. It is important to remember, first, that people make places and
places make people. Whatever the mobility options, Lexington should adopt a “people first” attitude when preparing for a shift in land use patterns, and ensure that the thrill of a new technology enables a better future, rather than having it dictate behaviors. Lessons should be learned from society’s last major transportation shift, where singleoccupancy vehicles dictated the landscape with very little regard to the unintended consequences. In order to prepare for the future of autonomous vehicles, Lexington should be increasingly flexible in parking requirements, favoring those high-intensity uses that are well-suited as mobility hubs to aggregate and provide seamless transfers between a growing number of mobility options and ownership models. It will also be important to consider designated curbside or private drop-off and pickup areas in lieu of traditional surface parking spaces, as parking in close proximity to destinations will be less crucial. Additionally, Lexington must prepare for AV technologies to change the needs of private industries, particularly freight and retail, with less space dedicated to showrooms and increased demand for warehouses and logistical square footage.
There are a great many unknowns when it comes to the full spectrum of impacts autonomous vehicles will have on transportation, land use, and society as a whole. What is clear is that Lexington needs to strive to be proactive in anticipating these changes, leveraging them for their positive attributes while minimizing the negative. This new technology should be not be feared but embraced, and Lexington should look to be a leader in the state, region, and nation in this regard.
ACTION ITEM UPDATE THE ZONING ORDINANCE TO ACCOMMODATE & ANTICIPATE AUTONOMOUS VEHICLES
IMAGINE LEXINGTON
GROWTH POLICY #8 IDENTIFY CATALYTIC REDEVELOPMENT OPPORTUNITIES TO PROACTIVELY REZONE PROPERTIES, CLEAR REGULATORY HURDLES, & EXPEDITE REDEVELOPMENT IN KEY AREAS THAT WILL IGNITE FURTHER ECONOMIC GROWTH. 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 WinburnRussell 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 to ensure a broad overall desire to implement the plans.
ACTION ITEM WORK WITH THE PLANNING COMMISSION & COUNCIL TO PROACTIVELY PURSUE GOVERNMENT-INITIATED ZONE CHANGES RECOMMENDED BY CORRIDOR STUDIES
DIVISION OF PLANNING
GROWTH POLICY #9 SUPPORT THE “MISSING MIDDLE HOUSING” TYPES THROUGHOUT LEXINGTON. Historically, Lexington and many other cities were built with 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. Many of these neighborhood features became non-conforming uses and slowly disappeared, for a variety of regulatory, social and economic reasons, as the development community and the Zoning Ordinance became more focused on suburban expansion, which favored the automobile and separation and isolation of uses.
activities, 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 lowintensity business uses need to be integrated with the existing neighborhood, and should favor mixed-use corridors, such as Jefferson Street or Loudon Avenue, where they add neighborhood character and become focal points for neighborhood gatherings.
Today those remaining neighborhoods, such as Chevy Chase and Kenwick (commonly known as the “Missing Middle Housing”), are highly sought after for infill and redevelopment
BALANCE
|
234
GROWTH POLICY #10 SUPPORT THE ENHANCEMENT, REUSE, AND/OR REDEVELOPMENT OF UNDERUTILIZED PROPERTY TO FIT THE CHANGING RETAIL LANDSCAPE, INCREASE DEVELOPMENT VIABILITY, & BOLSTER ENHANCED MASS TRANSIT OPTIONS. Since the beginning of the century, the United States has seen significant growth in annual e- commerce sales. Shifts in consumer behavior, particularly among millennials, have contributed to a near 15% increase in online sales revenue every year since 2010. While e-commerce only makes up about 10% of the U.S.’s total retail annual revenue (with the remaining 90% coming from
235
|
THEME E
traditional brick and mortar stores), its unprecedented growth and accessibility has some forecasting e-commerce’s eventual reign over the retail sector. Such a changeover will likely cause traditional brick and mortar businesses, such as strip malls and big box stores, to become a less prominent component of the landscape.
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.
Recommendations to allow for a greater range in development types, particularly high-density residential, are supported by this policy, and the B-6P and mixed use zones in particular provide these opportunities. Other U.S. cities have already begun finding innovative ways to
To put Lexington’s commercial retail landscape into perspective, the city is currently home to 71 square feet of retail space per capita, about 1.5 times the national average of 46.6 square feet. Lexington also has a higher percentage of retail space as compared to similarly sized cities and other industrialized countries. 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
IMAGINE LEXINGTON
revamp their underutilized retail spaces to better accommodate the needs of the surrounding population. One of the most noteworthy cases of adaptive reuse of retail property occurred in America’s first mall, the Providence Arcade Building in Rhode Island (built in 1828). After years of decline, the majority of this space has been converted into a community of micro-apartments, marketed to young professionals seeking affordable housing. The design features small retail businesses on the first floor, while the top two floors are composed of residential units. In another example of the revitalization of a declining shopping mall, the Main Line Health Center in Exton, Pennsylvania implemented an adaptive reuse
project that converted the space into an active healthcare facility.
viability of enhanced mass transit by increasing potential ridership.
One of the central themes of these projects is the concept of filling a specific need of the local consumer base. In the case of Lexington, the increased need for housing units, such as what was achieved with the Providence Arcade project, could present an opportunity for developers and community designers to encourage residential uses on existing retail properties, whether by adding on to an existing property or implementing an adaptive reuse of an underutilized building. As most large retail centers are located along major hightraffic corridors, incorporating this residential component into existing developments will also increase the
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. Retail spaces that are within close proximity to housing, restaurants, public spaces, and entertainment opportunities could create the communitybased customer experience that people are looking for.
ACTION ITEM
UPDATE LEXINGTON'S COMMERCIAL ZONES TO INCLUDE MORE VARIED USES TO ACCOMMODATE THE SHIFTING RETAIL MODEL
MODEL APARTMENTS RETROFITTED IN OLD PROVIDENCE ARCADE NORTHEAST COLLABORATIVE ARCHITECTS
DIVISION OF PLANNING
BALANCE
|
236
GROWTH POLICY #11 IMAGINE LEXINGTON ANTICIPATES A VARIETY OF LAND USE CHANGES WILL OCCUR THROUGHOUT THE URBAN SERVICE AREA & RECOMMENDS THOSE THAT ARE IN AGREEMENT WITH THE GOALS, OBJECTIVES, & POLICIES WITHIN THIS COMPREHENSIVE PLAN. LAND USE CHANGES ALONE IN AN AREA ARE NOT SUFFICIENT TO CONSTITUTE MAJOR CHANGES OF AN
237
|
THEME E
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.
IMAGINE LEXINGTON
"LAND USE CHANGES ARE EXPECTED TO OCCUR THROUGHOUT LEXINGTON AS INFILL AND REDEVELOPMENT CONTINUES AS THE PRIMARY STRATEGY."