Introduction | Summary | Master Plan Document | Annual Reports | Implementation Strategies
2004 Master Plan Annual Report
Land Use
2004 Annual Report | Land Use | Economy | Community Appearance | Community Facilities & Services | Housing | Transportation | Implementation
Click here to view/download a pdf version of the Land Use section.
Click here to view/download a pdf version of the Land Use Map.
Land Use Meeting Summary
From Meeting Dated Wednesday, March 9, 2005
In Attendance
- Chad Gibson (Development Department), Moderator/Recorder
- Joe Valentino, Steve Cothrel (Parks & Recreation Department), Matt Davis, Bryan Wagner (Development Department), Lt. Ernie Ankrom (Police Division), Larry Helscel (Public Services Department), Emma Bramley, Gerald Smith (City Manager’s Office), Robin Sowry (City Attorney’s Office)
Goal
Recognize the City’s residential character while enhancing community redevelopment and revitalization, including town centers, community focal points, mixed housing, open/green space and quality commercial development that serves the community’s needs.
Executive Summary
Land Use is an important but complex component for realizing the overall goals of the Master Plan. In a sense, the objectives within it represent diametrically opposed goals, with constant deliberation required to find the most effective and beneficial balance. Upper Arlington is renowned as a superior residential community within the Central Ohio region. At issue is finding the means to preserve the community’s unique nature without risking it at the same time.
This represents a challenging area for our community leaders. They must work to balance the directives of the Master Plan with the wishes of the community, while weighing the overall good that any given project might represent over the long term for the community as a whole.
A trend is emerging whereby development or redevelopment projects being brought forward to the City by the private sector are causing extensive community discussion, present challenges in Master Plan interpretation, and can result in decisions that appear contradictory as they proceed from Staff consideration through to Board of Zoning & Planning, and oftentimes City Council consideration and action.
As a built out community with few options for progress other than changing some of the community’s existing attributes through redevelopment, this trend is sure to continue. The question then becomes how best to manage these issues, keeping Master Plan goals foremost in our minds for the greater good of the community, successfully selecting the “highest and best” use for a particular plot of land, satisfying the needs and desires of all interested parties, and ensuring an understanding of the City’s role in facilitating the consideration of these issues as they are brought forward by private developers.
A retreat of City Council, Staff, the Board of Zoning & Planning and the Community Improvement Corporation scheduled for April 2005, will begin to address some of these issues. At this time, there will be a discussion of the Master Plan as a whole. In addition, the group will review the roles and responsibilities of each entity, how they currently complement each other and work together, and how they can perhaps enhance these interrelations.
Some other key items emerging from Land Use that require additional City Council discussion and direction include:
- Rezoning requests for small parcels of land.
- The goals of the Master Plan with regard to commercial district redevelopment versus market realities and the many differences between each district.
- Creation of an annual Master Plan peer review process for those formal bodies involved with zoning issues.
The City can rightfully celebrate the framework that has been put in place through creation of the Unified Development Ordinance. It formalizes many key Master Plan wishes, provides for a streamlined development approval process, and allows for an intensified mixture of uses within the commercial districts while preserving the community’s residential neighborhoods
Several Land Use objectives and strategies are considered completed or ongoing as part of routine City business. They have been marked as such and will only contain update information in future reports as projects or items of note occur. Likewise, Staff recommends several strategies be combined with others or deleted if they represent a duplication of efforts. These recommended changes are listed in the Land Use strategy table at the end of this section.
Objective Highlights
Objective 1. Preserve residential neighborhoods.
The City’s Unified Development Ordinance serves as the primary means for preserving residential neighborhoods through its Land Use zoning map and the related set of allowable uses within each district, and development and building standards.
No further steps have been taken to institute historic preservation legislation, following extensive research and consideration, it being decided that a significant need to address the issue further was not being demonstrated at this time.
This broad directive is an area that gives rise to differing viewpoints as redevelopment projects are being brought forward by private developers, a situation that is likely to continue since Upper Arlington is essentially built out. Interpretation can range from preserving neighborhoods exactly as they are today with no increases in housing density, to a desire for new “modern day” housing options that meet the needs of changing demographics.
Likewise, several instances have arisen whereby developers/businesses have brought forward rezoning requests from residential to commercial, for parcels of land adjacent to commercial districts or for existing non-residential structures, with community discussion and differing opinions on the best way forward arising.
As a built out community, both trends are likely to continue. An April 2005 retreat of City Council, Staff, the Board of Zoning & Planning and the Community Improvement Corporation will, in part, consider how best to facilitate community discussion of the more controversial redevelopment issues as they are brought before each entity.
Primarily discussed under Housing, enforcement of property maintenance requirements has made great strides in 2004, following the addition of one staff person and implementation of the proactive Property Assessment Monitoring Program. However, the resulting workload, and an increase in complaint-driven issues has resulted in slower progress than anticipated, with the division working at maximum capacity. Some ideas to better facilitate this process are discussed under Housing.
Staff recommends combining Strategy 1c with Transportation Strategy 4b and removing it from this section, since they represent duplicative efforts.
As with residential zoning, the Unified Development Ordinance grandfathered existing commercial uses within the business districts, but took the necessary step of increasing the allowable uses and densities as redevelopment opportunities occur in the future, by rezoning these districts as Planned Mixed Use Districts.
While a great deal of flexibility exists within redevelopment options for the City’s commercial districts, a reality is emerging whereby property owners are seeking minor building modifications, triggering building code compliance requirements. Questions arise regarding application of Unified Development Ordinance requirements, short-term market realities versus long-term Master Plan goals, and supporting existing commercial entities in their efforts to stay viable through incremental change versus settling for nothing less than a complete redevelopment.
Obviously, Staff must keep a strong focus on the code regulation and apply them fairly and consistently to all projects as they are brought forward. The ability to consider such issues more broadly and to deviate from the written code falls upon the shoulders of the Board of Zoning & Planning and oftentimes City Council.
Objective 2. Enhance revenues.
Staff recommends combining the strategies of Objective 2 with Economy and removing them from this section, since there is a duplication of efforts.
Objective 3. Enhance redevelopment and revitalization that is appropriate to Upper Arlington.
As previously mentioned, the framework to enhance appropriate redevelopment and revitalization is in place via the Unified Development Ordinance, and the community can celebrate many positive, recent achievements to attract and retain revenue generating businesses that contribute to the community’s quality of life in many ways.
Much of this objective is directly tied to Economy and is covered in more details within that section. Likewise, Staff recommends combining Strategy 3c with Economy 2b and removing it from this section.
Objective 4. Establish a town center.
This Master Plan directive is probably one of the most widely discussed issues within the community, since it pertains to the creation of a town center in and around the Kingsdale Shopping Center. The Kingsdale area is the most logical for facilitating redevelopment of a town center due to its size, location, and current market conditions. Residents, community leaders, staff and many business citizens all agree a positive change at Kingsdale is desired.
From the City’s perspective, the necessary framework for facilitating change is in place, and a recent retail and office space market analysis supports the case for some form of mixed-use redevelopment occurring at the site.
While discussions on the various options for realizing change continue with the property owner, reaching an achievable way forward has yet to occur. As/when such opportunities arise, many considerations will come into play regarding the City’s role in facilitating the change, as well as how market forces will affect what mixture and density of uses can ultimately be achieved.
From the previous year’s Master Plan Annual Report, Staff recommends amending the language of Strategy 4a, (see Land Use table at the end of this section). Staff also recommends combining Strategies 4b and 4c.
Objective 5. Facilitate mixed-use development.
As previously discussed under Objective 3, the framework is in place through rezoning of many of the City’s commercial districts into Planned Mixed Use Districts.
Staff recommends combining Strategies 5b, 5c, 5d and 5e since the three uses mentioned are representative of the mixture of uses desired (see Land Use table at the end of this section).
Objective 6. Encourage neighborhood and community level retail.
The framework is in place to discourage regional scale retail and encourage neighborhood and community level retail.
Addressing connectivity between retail areas and adjacent neighborhoods ties into the Transportation section and raises issues of responsibility for sidewalk installation and bicycle amenities (see Transportation Objective 5).
A recent success in enhancing connectivity occurred in 2004, with the addition of sidewalks at the High School in conjunction with the Zollinger Road reconstruction project.
Objective 7. Expand the City physically where appropriate through annexation.
As opportunities arise, the City is pursuing appropriate annexation, with recent success concerning the commercial properties at the southeast corner of Lane Avenue and North Star Road, which will reap long-term financial rewards for the City.
Opportunities for annexation are limited as a landlocked community, and consideration must be given to the fiscal benefits of commercial property versus residential property annexation before proceeding with such efforts in the future.
Objective 8. Maximize the opportunities between the City and The Ohio State University relative to the development of west campus.
Relations between the two entities remain strong, with recent mutually-beneficial projects emerging:
- A new office building is under construction on Lane Avenue that will house the OSU Development Department.
- The City, OSU and other entities are cooperatively working on a stormwater study of developable west campus land, with the hopes of jointly solving existing issues to the benefit of all involved parties.
Objective 9. Improve land use management within City government.
As already mentioned, the framework is in place for effective land use management through the development and adoption of the City’s Unified Development Ordinance.
A positive and intended result of creating this streamlined document has been a significant increase in development approval process efficiency and enhanced customer service. Projects that fall within permitted land use and other regulations are typically processed and presented to the Board of Zoning & Planning within approximately four weeks. In other communities, this process can take much longer.
The Unified Development Ordinance is a working document, continually under review, with minor adjustments made as necessary. A recent example is the Tarrington Woods residential development – while located within a commercially zoned district, a residential “overlay” designation is currently in process to formally “recognize” the existing use.
Instances have recently arisen in which design standards set forth by the Unified Development Ordinance have been adjusted to be more attuned to public sentiment on a specific project yet potentially weakening the long-term intent of portions of the Master Plan.
A retreat of City Council, Staff, the Board of Zoning & Planning and the Community Improvement Corporation is scheduled for April 2005 to discuss various Master Plan issues among other items. In addition to this, Staff is recommending regular “Master Plan Peer Review” meetings among the members of leadership, keeping the document fresh in their minds and reflective of the community’s changing needs.
Land Use
Strategy Responsibilities / Recommended Amendments
Objective 1. Preserve residential neighborhoods.
a. Adopting residential conservation guidelines for unique neighborhoods.
| Development, City Council, Board of Zoning & Planning, City Attorney
| Immediate / On hold
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b. Continuing to enforce property maintenance requirements and related zoning codes.
| Development, City Attorney
| Ongoing / Routine
|
c. Implementing traffic calming techniques on key neighborhood collectors and other local streets that are affected by cut-through traffic.
| Police, Public Services
| Immediate and Ongoing / Combine with Transportation 4b Remove
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d. c. Focusing commercial redevelopment within the Study Areas.
| Development, City Council, Board of Zoning & Planning
| Immediate and Ongoing / Further discussion and direction required
|
Objective 2. Enhance revenues. Remove: both strategies are reflected in Economy
a. Implementing the economic development strategies and Study Area Plans.
| Economic Development, Board of Zoning & Planning, Community Improvement Corporation
| Ongoing / Combine with Economy Remove
|
b. Emphasizing high-paying professional jobs.
| Economic Development, Community Improvement Corporation
| Ongoing / Combine with Economy 1c Remove
|
Objective 3. Enhance redevelopment and revitalization that is appropriate to Upper Arlington.
a. Supporting the Community Improvement Corporation (CIC) in undertaking these projects.
| Economic Development, City Council, Community Improvement Corporation
| Short Term / Routine
|
b. Updating the zoning code to implement the Study Area Plans.
| Development, City Council, Board of Zoning & Planning, Economic Development
| Immediate / Complete Includes Implementation 3a
|
c. Adopting targeted economic and zoning incentives packages.
| Economic Development, City Council, Community Improvement Corporation
| Immediate / Combine with Economy 2b Remove
|
Objective 4. Establish a town center.
a. Proposing a town center as part of the Kingsdale Study Area Plan. CHANGE TO: Facilitating the implementation of a town center as part of the Kingsdale Study Area Plan.
| Economic Development, City Council, Board of Zoning & Planning, Community Improvement Corporation
| Ongoing
|
b. Proposing a program for the town center. CHANGE TO: Proposing and implementing a program (of uses/densities) for the town center based on the Studay Area Plan recommendations.[Combined with 4c]
| Economic Development, City Council, Board of Zoning & Planning, Development Department, Community Improvement Corporation
| Short Term / Ongoing Discussion and direction will be required at the time of implementation
|
c. Implementing the town center based on the Study Area Plan recommendations.
| Economic Development, City Council, Development, and
| Short Term and Mid Term / Combine with 4b Remove
|
Objective 5. Facilitate mixed-use development.
a. Adopting and implementing the Study Area Plans.
| Development, City Council and Board of Zoning and Planning
| Short Term and Mid Term / Duplication of 3b Remove
|
b. a. Revising development regulations to permit and encourage mixed-use development. CHANGE TO: Revising development regulations to permit and encourage mixed-used development comprised of appropriate levels of residential, office and retail uses.[Combination of 5b, 5c, 5d, 5e]
| Development, City Council, Board of Zoning & Planning
| Short Term and Ongoing / Ongoing
|
c. b. Allowing a minimum amount of housing as an incentive to be incorporated into office developments in targeted areas.
| Development, City Council, Board of Zoning & Planning, Economic Development, Community Improvement Corporation
| Ongoing / Combine with 5b Remove
|
d. c. Allowing a minimum amount of retail to be incorporated into residential developments in targeted areas.
| Development Board of Zoning & Planning
| Ongoing / Combine with 5b Remove
|
e. d. Allowing retail to be incorporated into office developments in targeted areas.
| Development, City Council, Board of Zoning & Planning
| Ongoing / Combine with 5b Remove
|
Objective 6. Encourage neighborhood and community level retail.
a. Revising development regulations to discourage regional scale retail development.
| Development, City Council, Board of Zoning & Planning
| Immediate / Complete
|
b. Requiring street and walkway connectivity between retail and adjacent neighborhoods to encourage pedestrian access and better distribution of traffic.
| Public Services, City Council, Board of Zoning and Planning
| Immediate / Need direction
|
Objective 7. Expand the City physically where appropriate through annexation.
a. Supporting annexation of unincorporated areas where it is in the best economic interests of the City.
| Economic Development, City Council, Board of Zoning & Planning, City Attorney, Community Improvement Corporation
| Immediate / Ongoing
|
Objective 8. Maximize the opportunities between the City and The Ohio State University relative to development of west campus.
a. Working with the University through a joint committee to co-plan development of the area.
| Economic Development, City Council, Development, Community Improvement Corporation
| Immediate / Ongoing
|
Objective 9. Improve land use management within City government.
a. Adopting the Master Plan Update and Study Area Plans.
| Economic Development, City Manager, City Council, Board of Zoning & Planning
| Immediate / Complete
|
b. Updating the zoning code in line with plan recommendations, including adopting overlay-zoning districts.
| Development, City Council, Board of Zoning & Planning
| Immediate / Ongoing
|
c. Adopting commercial design standards and guidelines.
| Development, City Council, Board of Zoning & Planning
| Immediate / Further discussion required
|
d. Studying the efficiency of the development approval process.
| Development, Board of Zoning & Planning
| Immediate / Ongoing Routine
|
City Manager's Office
City of Upper Arlington
3600 Tremont Road
Upper Arlington, OH 43221
Phone: 614-583-5040
Fax: 614-457-6620
www.ua-ohio.net
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