ASSESSMENT. CHARLOTTE, NORTH CAROLINA Zoning Ordinance Assessment Report. July 2013

Transcription

1 July 2013 CHARLOTTE, NORTH CAROLINA Zning Ordinance Assessment Reprt ASSESSMENT Clarin Assciates, LLC In Assciatin with Kittelsn & Assciates and Optics Design

2

3 CONTENTS Intrductin and Overview... 1 A. Prject Overview... 1 B. Overview f the Zning Assessment Reprt... 2 Implementing Charltte s Plans and Plicies... 3 A. Citywide Land Use Plicies Centers, Crridrs, and Wedges: Grwth Framewrk (2010) General Develpment Plicies (2007) Urban Streets Design Guidelines (2005)... 5 B. Area Plans General Cntents f the District and Area Plans Zning Ordinance Prvisins Mst Relevant t the Area Plans General Relatinship f the Area Plans t the Zning Ordinance Blue Line Extensin (BLE) Statin Area Plan (2013) Elizabeth Area Plan (2011) Independence Bulevard Area Plan (2011) Midtwn Mrehead Cherry Area Plan (2012) Park Wdlawn Area Plan (2013) Steele Creek Area Plan (2012) Other Strengths and Weaknesses f the Zning Ordinance A. Dcument Organizatin and Frmat Dcument Organizatin Illustratins and Graphics Dcument Frmatting B. Zning Districts Frmat and Organizatin f the Zning Districts Current Zning Districts Ttal Number f Zning Districts Use Classificatin System C. Develpment Standards District-Specific Apprach t Develpment Quality Neighbrhd Prtectin Parking, Streets, and Other Transprtatin-Related Issues Envirnmental Sustainability and Natural Resurce Prtectin D. Review Prcedures Minr Deviatins t Dimensinal and Develpment Standards Cnditinal Reznings Cnclusin Appendix: Summmary f Stakehlder Feedback Charltte Zning Ordinance Apprach Reprt July 2013 i

4

5 INTRODUCTION AND OVERVIEW A. PROJECT OVERVIEW During the past 20 years, Charltte has experienced many significant planning and land use changes. New develpments have included, fr example: Majr cnventin, htel, and ffice prjects in Uptwn; The intrductin f the successful LYNX Blue Line (with new lines t fllw) and cmplementary transit-riented develpment; The additin f many high-quality retail and mixed-use prjects arund the SuthPark Mall area; Thriving new small businesses alng Charltte s urban crridrs; The cnstructin f I-485, which is nearing cmpletin, and related greenfield develpment; and Onging infill and redevelpment prjects in many f the City s handsme, tree-filled neighbrhds. During that time, develpment has been gverned by the Charltte Zning Ordinance, which was last cmprehensively updated in an extended prcess that stretched frm the late 1980s t The rdinance is a regulatry tl that prvides directin n hw develpment r redevelpment will ccur. It is a mix f traditinal, Euclidean-based prvisins (based primarily n the regulatin f land uses) alng with new tls fr flexibility and area-specific elements and enhancements that have been added ver the years. As is the case with many lder develpment cdes arund the cuntry, the current Zning Ordinance has becme utdated and is nt user-friendly (at ver 830 pages). Many believe it is nt well aligned with the City s planning and develpment gals, adpted plans and plicies, and mdern best practices. T address these and ther related issues, the Charltte-Mecklenburg Planning Department is undertaking a cmprehensive assessment f the Charltte Zning Ordinance, alng with a cnsultant team led by Clarin Assciates, and including Kittelsn & Assciates and Optics Design. The prject fcuses n hw well the current Zning Ordinance implements City plicies and plans, such as the Centers, Crridrs, and Wedges grwth framewrk, the General Develpment Plicies, and relevant area plans. The prject als lks at best practices fr zning in ther cmmunities (bth in Nrth Carlina and thrughut the natin), and suggests a range f pssible new zning and land use tls t imprve the Zning Ordinance and better achieve Charltte s planning and develpment gals. The prject will result in tw main reprts: Zning Ordinance Assessment Reprt. The assessment reprt (this dcument) identifies hw well the Zning Ordinance is equipped t Charltte Zning Ordinance Apprach Reprt July

6 Intrductin and Overview Overview f the Zning Assessment Reprt implement adpted plans and plicies, as well as ther strengths and weaknesses f the rdinance. In preparing this assessment reprt, the Clarin team cmpleted the fllwing: Evaluated key plans and regulatins; Participated in a staff-led recnnaissance tur in August 2012 t see hw develpment issues are playing ut; Prepared and administered (with City staff) an nline public survey questinnaire abut the Zning Ordinance; Cnducted three sets f meetings and interviews between August and Nvember 2012, with City staff, Planning Cmmissiners, elected fficials, and ther stakehlders (neighbrhd representatives, develper applicants, and prfessinals invlved in the develpment review prcess); and Cnducted tw public meetings in September 2012 t verview the prject, answer questins, and receive input frm the public. Zning Ordinance Apprach Reprt. This secnd reprt lks frward t alternative appraches fr what the Charltte Zning Ordinance might lk like in the future, whether as a result f incremental updates r a majr cmprehensive revisin. B. OVERVIEW OF THE ZONING ASSESSMENT REPORT Fllwing this intrductin, the assessment reprt has tw main parts: Implementing Charltte s Plans and Plices evaluates hw well the Zning Ordinance is equipped t implement City plicies and plans, particularly the area plans. As is seen in specific examples in Part 2, in many cases the Zning Ordinance includes sme but nt all f the tls needed t achieve the gals set frth in the plans. Other Strengths and Weaknesses f the Zning Ordinance identifies verarching issues that emerged frm the Clarin team s review f the Zning Ordinance, relating t zning districts, develpment standards, review prcedures, and verall user-friendliness. Appendix: Summary f Stakehlder Feedback. The appendix prvides a summary f stakehlder feedback received at the prject meetings in September and Nvember Charltte Zning Ordinance Apprach Reprt July 2013

7 IMPLEMENTING CHARLOTTE S PLANS AND POLICIES The City f Charltte has adpted a number f recent plans and plicy dcuments that address grwth management, land use, and urban frm at citywide, cmmunity, and neighbrhd scales. In Nrth Carlina, plans are a surce f guidance fr lcal fficials making land use decisins. Accrding t state land-use law expert David Owens: The plan is just that a plan r guide and nt a regulatin. But the plan, and all f the studies and discussin that led t it, des prvide the general plicy fundatin fr zning decisins. The law, as well as gd planning practice and cmmn sense, suggests that thse plicies be carefully cnsidered as each zning decisin is made. 1 One f Charltte s key planning gals is t ensure that the Zning Ordinance is aligned with and capable f effectively implementing the City s adpted plans and plicies. As part f this assessment reprt, the rdinance s menu f zning districts is reviewed in light f the key planning cncepts used in the plans and plicies. This means, fr example, reviewing the cncepts and plicy directin in Centers, Crridrs, and Wedges and the area plans and determining whether there are zning districts that adequately implement thse cncepts. Develpment standards in the rdinance (such as building placement and design standards, and height and density cntrls) are als reviewed t determine if they allw the City t achieve the types f cmmunity design called fr in the adpted plans and plicies. Charltte s plans and plices that are mst relevant t this assessment reprt are listed in the bx at the tp f this page. They are briefly described belw, alng with discussins abut their alignment with the current Zning Ordinance. Fr this reprt, the planning staff selected a representative sample f six area plans fr review, including Blue Line Extensin, Elizabeth, Independence Bulevard, Midtwn Mrehead Cherry, Park Wdlawn, and Steele Creek. KEY ADOPTED PLANS AND POLICIES Centers, Crridrs, and Wedges: Grwth Framewrk (2010) General Develpment Plicies (2007) Urban Streets Design Guidelines (2005) Area Plans (nging) A. CITYWIDE LAND USE POLICIES 1. Centers, Crridrs, and Wedges: Grwth Framewrk (2010) Adpted in 2010, Centers, Crridrs, and Wedges (CCW) is characterized as a citywide grwth framewrk that generally establishes the verall visin fr future grwth and develpment in Charltte. The dcument categrizes all land within the City s sphere f influence as ne f three gegraphic types: Activity Centers, Grwth Crridrs, and Wedges. The dcument utlines the 1 Intrductin t Zning. Chapel Hill: Institute f Gvernment, University f Nrth Carlina at Chapel Hill, P. 42 Charltte Zning Ordinance Apprach Reprt July

8 Implementing Charltte s Plans and Plicies Citywide Land Use Plicies current and desired future characteristics f each f these areas and their subareas. Activity Centers are fcal pints f ecnmic activity and cncentrated develpment. There are three types f Activity Centers: Center City, Mixed Use Activity Centers (f which there are 17), and Industrial Centers (f which there are fur). The five Grwth Crridrs stretch frm the City Center t the edges f Charltte and include widely varying character areas. Fr planning purpses, crridrs are brken dwn int fur subareas: Transit Statin Areas, Interchange Areas, Established Neighbrhd Areas, and General Crridr Areas. Figure 1: Centers, Crridrs, and Wedges: Grwth Framewrk Wedges are the large areas between the Grwth Crridrs, excluding the Activity Centers. They primarily include areas f lw- and mderatedensity husing, with sme limited high-density husing and Mixed- Use/Retail districts that serve and act as fcal pints fr surrunding neighbrhds. The general intent behind the CCW is t prvide a unifrm frame f reference fr the nging preparatin f ther plicies and plans, especially mre detailed area plans. The CCW ntes that specific directin fr land use decisin-making will cntinue t be prvided by plicy dcuments such as area plans and General Develpment Plicies, and by regulatins such as zning and subdivisin rdinances. 2. General Develpment Plicies (2007) The General Develpment Plicies (GDP) prvide guidance fr the lcatin, intensity, and frm f future develpment and redevelpment thrughut Charltte. They establish brad plicies that prvide directin in develping future land use plans and in rezning decisins. They prvide guidance in updating zning and subdivisin rdinances, and fr integrating land use planning with capital facilities planning, particularly transprtatin planning. The GDP builds n Centers, Crridrs, and Wedges by setting ut principles fr develpment relating t the fllwing issues: Plicies fr transit statin areas recgnize a cre area within ne-quarter mile walking distance f the statin that generally shuld cntain the highest-intensity and mst pedestrian-riented develpment, and an area between ne-quarter and ne-half mile walking distance f the statin that generally shuld cntain mderate-intensity develpment. Transit plicies generally address land use and develpment, mbility, and cmmunity design. Plicies fr retail-riented mixed/multi-use centers, which can be anywhere in the City (with the largest mst likely in Centers and the smaller typically in the Crridrs and Wedges). Five sizes f centers are identified, frm relatively small cnvenience centers that meet the day-t-day needs f immediate neighbrhds; t large super-reginal centers with 4 Charltte Zning Ordinance Apprach Reprt July 2013

9 Implementing Charltte s Plans and Plicies Citywide Land Use Plicies reginally riented retail, ffice, and civic uses. Design guidance is prvided fr a range f issues, including: Site and Building Design (sample issues: cnnectins t surrunding uses, building rientatin and massing, blck patterns, prtectin f histric resurces, landscaping, and dumpsters); Freestanding Single Tenant Buildings (sample issues: scale, height and cnfiguratin; drive-thrughs; pedestrian safety, aesthetics, and shared amenities); Transprtatin/Cnnectivity (sample issues: pedestrian cnnectins, bike parking, minimized and/r structured parking); and Natural Envirnment (sample issues: slpe prtectin, pen space, bridges and culverts, pervius pavements, landscaping, tree canpy). GDP plicies fr residential lcatin and design include a prcess fr evaluating apprpriate densities where it is nt already determined by existing plans r plicies. The evaluatin cnsiders a number f factrs, including water and sewer availability, land use accessibility, cnnectivity, and surrunding rad netwrks. It uses five density categries, frm up t six dwelling units per acre (DUA) t ver 17 DUA. The plicies als include design guidelines t ensure that residential develpments encurage pedestrian activity, prvide fr gd circulatin, and respect the natural envirnment. In additin t the abve plicies relating t varius mixed-use centers and residential develpment, the GDP includes guiding principles and plicies that fcus n minimizing the negative envirnmental impacts f land use and develpment and mre clsely linking land use and develpment t the availability f supprting public infrastructure. Future updates t the GDP will address ther tpics. The plicies in the CCW and the GDP prvide a framewrk fr general land use patterns and a fundatin fr develpment characteristics that the City desires and that shuld be reflected by zning districts established in the Zning Ordinance. The GDP are used in the develpment f area plans (discussed belw) t determine the apprpriate lcatin fr future residential develpment and redevelpment, as well as t prvide supprt fr cmmunity design plicies. They als are used t evaluate ptential reznings. 3. Urban Streets Design Guidelines (2005) The Urban Street Design Guidelines (USDG) are the implementatin tl fr planning and designing Charltte's streets. The USDG are intended t create "cmplete" streets that, in the City s terms, prvide capacity and mbility fr mtrists, while als being safer and mre cmfrtable fr pedestrians, cyclists, and neighbrhd residents. They fcus n creating a diverse set f street designs and types that prvide multiple transprtatin chices fr Charltte residents. In additin t laying ut guiding principles f Charltte s Charltte Zning Ordinance Apprach Reprt July

10 Implementing Charltte s Plans and Plicies Citywide Land Use Plicies cmplete street netwrk, the USDG establish specific plicies in a variety f areas, such as: Establishment f street classificatins (e.g., Main Streets, Bulevards, Lcal Streets); Creatin f a methdical prcess fr analyzing the existing and future cntext f streets, and determining apprpriate plans, prgrams, and plicies t achieve the desired cmplete street plicy gals; and Recmmending specific standards in areas such as blck lengths, creek crssing intervals, street tree planting strips, street crss-sectins, and sidewalk widths. The USDG serve as the basis fr many f the streetscape recmmendatins in the area plans. The USDG als give guidance fr hw develpment shuld relate t different street types. Charltte s mst recent area plans include streetscape plan maps in which street types frm the Urban Street Design Guidelines are applied t specific streets. These are intended t establish street crss-sectins and ultimate curb lines fr thrughfares. This planning apprach extends the basic street principles f the USDG t the real needs f a particular street length, including the number f lanes, prvisin f bicycle lanes, and width f medians. This is useful in prviding clear directin n the type f street envisined and ways that develpment may be affected by the street sectin (r in ways that develpment can cntribute t realizing the crss-sectin, including the prvisin f streetscape elements). While implementatin f ultimate street crss-sectins fr thrughfares is nt accmplished as a result f the Zning Ordinance standards, placement f buildings in relatinship t the ultimate right-f-way is determined by the rdinance. Hwever, the prtin f the rdinance addressing building placement and relatinship t streets has nt been updated t reflect the new plicies utlined in the USDG. 6 Charltte Zning Ordinance Apprach Reprt July 2013

11 Implementing Charltte s Plans and Plicies Area Plans B. AREA PLANS 1. General Cntents f the District and Area Plans While the CCW and GDP are riented arund planning plicies, the district plans and area plans are prepared fr specific gegraphic areas. District Plans. In the mid-1980s the entire planning jurisdictin f Charltte- Mecklenburg was split int seven districts fr planning purpses: Nrth, Nrtheast, East, Suth, Suthwest, Nrthwest, and Central. Between 1986 and 1992, parcel-specific land use plans were develped fr these districts (called district plans ) that built upn the general plicies and recmmendatins f the 2005 Generalized Land Use Plan (adpted 1985), while fcusing n the specific physical develpment issues f each district. Tday, these district plans remain the currently adpted land use plans fr Charltte-Mecklenburg (with the exceptin f Nrth, which is cvered by the nrthern twns f Mecklenburg Cunty), but they are cntinuusly updated by the adptin f area plans, plan amendments, and reznings. Area Plans. Area plans make up the bulk f the recent planning wrk that has been undertaken in Charltte. Dzens have been cmpleted, and additinal plans are in prcess as f the summer f They prvide the framewrk and serve as a plicy guide fr future grwth and develpment fr specific gegraphic areas. Fur general types f lcatins are cvered by area plans: neighbrhds, business crridrs, pedestrian-riented pedscape areas, and transit statin areas. While the plans vary in scpe and each ne is unique, many area plans share a cmmn rganizatinal structure and include tw majr elements: a Cncept Figure 2: Charltte-Mecklenburg Area Plans that Update the District Plans Charltte Zning Ordinance Apprach Reprt July

12 Implementing Charltte s Plans and Plicies Area Plans Plan and an Implementatin Guide. Cncept Plan. The Cncept Plan includes maps, text, and ther graphics applying plicies t specific gegraphic lcatins. It acts as the verall plicy guide fr future decisin-making within the plan area. In additin t a visin statement, each plan generally includes plicy gals fr the fllwing categries: Land Use; Cmmunity Design (including building architecture and site design, natural envirnment, and pedestrian and vehicular netwrks); Transprtatin and Streetscape; Infrastructure and Public Facilities; and Envirnment. In each f these categries, the plan may carry frward applicable elements f the citywide GDP, and als set frth plan-specific plicies unique t the area. Smetimes the Cncept Plan is a single map and text, while in ther plans it may be further subdivided (fr example, sme transit statin area plans include bth high-level cncept maps and mre detailed structure plans). In sme plans, develpment scenaris are included as part f the Cncept Plan t test recmmendatins fr key areas t ensure they are feasible. The Cncept Plan is adpted by City Cuncil and becmes fficial City plicy fr the planning area. Implementatin Guide. Each area plan als includes a staff dcument (nt adpted by the City Cuncil) that identifies pririties fr implementatin, expected time frames, and the agencies respnsible fr implementing the plan recmmendatins. 2. Zning Ordinance Prvisins Mst Relevant t the Area Plans Generally, the elements f the Charltte Zning Ordinance that are mst imprtant fr implementing the land use plicy directin in the area plans are: (1) the zning districts, including the land uses allwed within the districts; and (2) the varius design and develpment standards (site layut, building design, ff-street parking, etc.). Zning Districts and Land Uses. The Zning Ordinance includes 109 zning districts, cnsisting f general base districts, parallel cnditinal districts, special-purpse cnditinal districts, cnditinal districts with ptinal prvisins, and verlay districts. They are identified n page 39 f this reprt. Matching a particular area plan land use classificatin t a specific district in the Zning Ordinance requires cnsideratin f existing cnditins, the surrunding neighbrhd, and the plan gals. Because the rdinance uses slightly different terms t categrize districts than thse fund in the area plans, crrelatin between the dcuments can be straightfrward in sme cases and mre challenging in thers. Fr example, the area plans residential use categries align fairly well with the rdinance s residential districts, while the mixed-use plan categries d nt align as clsely with the zning districts. 8 Charltte Zning Ordinance Apprach Reprt July 2013

13 Implementing Charltte s Plans and Plicies Area Plans Examples are discussed later in this reprt. Prcedures like cnditinal reznings may be used t tailr the general districts t mre clsely match the specific gals f the area plans. Area plans ften recmmend changes t the currently adpted land use maps. Land use recmmendatins are implemented n an nging basis, especially during cnsideratin f prpsed reznings. Accrding t the City s website discussin f implementing area plans: Cnsistency f the prpsed develpment [with the area plan] is determined after examining a wide variety f factrs including land use, transprtatin, urban design and the envirnment. The prpsed develpment is deemed cnsistent with the area plan recmmendatins if it meets the future land use designatin in terms f use (i.e., residential, ffice, mixed-use etc.), and in terms f intensity/density, building heights and urban design. Staff-initiated crrective reznings that fllw Cuncil-adpted guidelines als are a key tl fr implementing area plan recmmendatins. Anecdtal evidence frm ur meetings and interviews suggest there is sme difference f pinin in the cmmunity regarding whether recent rezning decisins in Charltte have unifrmly been cnsistent with the adpted area plans. In sme cases, perceived incnsistencies may have been due t ambiguus language in a plan (e.g., neighbrhd retail ) that was interpreted differently by different grups, and wuld benefit frm a mre explicit definitin in a zning rdinance. In ther cases, there may have been a cnsidered decisin nt t fllw the plicy directin in an area plan due t ther cmpeting factrs. In ther interviews, we als heard instances f hw the flexibility f the cnditinal rezning prcess is being used t tailr decisins t unusual prjects and achieve greater verall cnsistency with Charltte s plans than wuld therwise be pssible under standard base zning rules. Design and Develpment Standards. Design and develpment standards invlve a brad array f requirements that affect the quality f develpment, ranging frm the height and massing f individual buildings, t the lcatin where develpment may be allwed n a parcel, t the types f building and landscaping materials used, amng ther standards. Zning tls t implement the area plan design and develpment gals are generally fund in ne f tw lcatins in the Zning Ordinance: Citywide Standards: Citywide zning tls are in Chapter 12, Develpment Standards f General Applicability, which includes standards relating t ff-street parking and lading, buffers and screening, accessry uses and structures, strmwater drainage, stream buffers; and Chapter 13, Signs. District-Specific Standards: Mst standards relating t specific design gals are in the district-specific standards that apply t general districts (Chapter 9), verlay districts (Chapter 10), and cnditinal districts (Chapter 11). The rdinance prvides tailred design and develpment standards fr many districts. Fr example, the TOD districts (Sectin Charltte Zning Ordinance Apprach Reprt July

14 Implementing Charltte s Plans and Plicies Area Plans ) include detailed standards related t ff-street parking, urban pen spaces (bth private and public), cnnectivity, buffering, and detailed building design (fcusing n pedestrian rientatin). (Other pedestrian-riented districts, ntably the PED Overlay zne, have standards almst identical t thse f the TOD districts.) 3. General Relatinship f the Area Plans t the Zning Ordinance T best evaluate whether the Zning Ordinance is aligned with and capable f implementing the City s adpted plans, belw we discuss six area plans that exemplify the breadth and diversity f the area planning prgram. Fr each plan, the reprt summarizes the plan plicy gals and discusses hw well the Zning Ordinance relates t and is equipped t implement the plan. The discussins fcus n the Land Use and Cmmunity Design plicies f each plan, since they are mst directly relevant t the Zning Ordinance. (Less emphasis is placed n the Transprtatin and Natural Envirnment gals, which are mstly addressed thrugh ther Charltte rdinances). The plans reflect the brad diversity f Charltte s neighbrhds and envirnments, and illustrate hw similar planning tls may be applied t a wide range f develpment cntexts and issues. In the half-dzen plans reviewed fr this reprt, the planning areas range in size frm 630 acres in the Elizabeth Area Plan t ver 27,000 acres in the Steele Creek Area Plan. As examples f the range f issues cvered, plans in mre urban areas may fcus n mixed-use develpment, urban pen spaces, and transit statin area planning; while plans in mre suburban areas may fcus n prtectin f lwerdensity neighbrhds, prtectin f natural areas, and new activity centers. There are slight technical variatins in each area plan s apprach. Fr example, sme plans refer t subareas while thers refer t similar gegraphies as subdistricts. Sme plans take the level f detail in the Cncept Plan dwn t parcel-specific structure maps, while thers keep the Cncept Plan map at a higher, mre general level. Sme plans establish Guiding Principles, r set frth specific gals f the lcal neighbrhd rganizatins, while thers d nt. In spite f the range f appraches, the plans are cnsistent in adhering t the verall framewrk described abve, in which a general Cncept Plan (adpted by Cuncil) establishes verall plicy and is supprted by maps and text, and a supprting Implementatin Guide (t be used by staff) identifies implementatin respnsibilities. The discussins belw fcus n whether the Zning Ordinance prvides tls that can be used t effectively implement the area plans. As is seen in the specific examples, in many cases the rdinance includes sme but nt all f the tls needed t achieve the gals set frth in the plans. Hwever, finding thse tls can be challenging, and drawing a clear cnnectin between plicies in the area plans and specific, related regulatins in the rdinance is ften nt straightfrward. There is n clear rganizing framewrk r rganizatinal 10 Charltte Zning Ordinance Apprach Reprt July 2013

15 Implementing Charltte s Plans and Plicies Area Plans structure in the rdinance that helps link the plan cncepts t the Zning Ordinance. 2 When gd zning tls d exist, like the urban design standards fr the pedestrian-riented districts, they are lcated in disparate parts f the cde, ften repeated in a cnfusing manner, and generally hard t find in a dcument that is challenging t use, lacks a clear and understandable rganizatin, and des nt include many mdern zning tls that wuld help ensure effective implementatin f Charltte s land use plicy gals. In limited cases, there are direct incnsistencies between the plans and the rdinance. In particular, many f the districts allw greater building heights than called fr in the area plans, especially in edge areas where transitins ccur between established single-family neighbrhds and new, adjacent nnresidential develpment. Fllwing the discussin f area plans, later sectins f this reprt address the rganizatinal issue in greater detail, as well as ther strengths and weaknesses f the Zning Ordinance. 4. Blue Line Extensin (BLE) Statin Area Plan (2013) a. Summary Descriptin and General Gals Transit statin area plans address the lcatins immediately surrunding current r planned stps alng the LYNX light rail line and ther rapid transit lines like the Red Line (Nrth Crridr) and the Silver Line (Sutheast Crridr). Generally, the transit statin area plans are intended t facilitate new develpment and infrastructure t cmplement the transit investment; prvide specific land use plicy directin fr each transit statin area; and becme the fficial streetscape plan, which mandates the building setback and streetscape standards fr prperties within urban zning districts. The BLE Statin Area Plan, adpted in May 2013, cvers multiple planning areas, specifically arund the six statins alng the 9.4-mile rute f the future LYNX Blue Line Extensin cnnecting Center City, University City, and UNC- Charltte. The Blue Line Extensin extends alng the Nrtheast Crridr, ne f the five grwth crridrs identified in the CCW Grwth Framewrk. The dcument sets frth a land use and transprtatin cncept fr each f the six transit statin areas at three planning levels, mving frm the general t the specific. The maps fr the Parkwd Transit Statin Area are shwn n the fllwing page t illustrate these three levels. Develpment Cncept Plan (tp): General illustratin f verall desired develpment pattern; 2 Examples f simple techniques used in ther cmmunities t establish clearer cnnectins between plans and regulatins include mirrred nmenclature (ensuring that names used in a plan are the same r similar t thse used in an implementing rdinance), and clear identificatin in an rdinance (fr example, in district purpse statements) f the plan prvisins they are intended t implement. Charltte Zning Ordinance Apprach Reprt July

16 Implementing Charltte s Plans and Plicies Area Plans Develpment Plan (middle): Plicy guidance in several thematic areas: land use, transprtatin, cmmunity design, infrastructure and public facilities, natural envirnment; and Figure 3: Parkwd Transit Statin Area: Cncept Plan (tp), Develpment Plan (middle), Structure Plan (bttm) Structure Plan (bttm): A map and assciated text that identify subdistricts, desired land uses, typical building types, and desired height. The Structure Plan helps t distinguish areas that may have the same type f land use, but different sizes r types f buildings. General district types are identified in each f the six Cncept Plans (tp). These are further divided int numbered subdistricts that are keyed t specific, mapped lcatins n the Structure Plan (bttm). Fr each subdistrict, the Structure Plan lists desired uses, typical building types, and desired height in the table belw the map. Fr example, Parkwd Subdistrict 1 (ut f 10 ttal subdistricts) is intended t cnsist f lw density residential uses. Single-family huses, duplexes, triplexes, and quadraplexes typify the desired building types, with a maximum height f 40 feet. As with the land use plicies, the transprtatin plicies are unique and tailred t each transit statin area. The plan includes crss-sectins (based n the USDG) that define the character and width f the area behind the curbs fr sidewalks, landscaping, pedestrian amenities, and building setbacks. Specific streetscape dimensins (sidewalk, planting strip, travel lanes, etc.) are prvided fr each f fur street types (avenues, bulevards, main streets, and lcal streets) within each transit area. As the fficial streetscape plans fr each transit statin area, all future develpment in the urban zning districts that link back t the streetscape plan must be in accrdance with these standards. Beynd land use and transprtatin, the plan sets frth cllective cmmunity design plicies fr all the statin areas. The plan generally is intended t ensure that develpment and redevelpment is f high quality and takes advantage f access t transit; enhances the cmmunity identity f statin areas; and, near residential areas, recgnizes the size, scale, materials, rhythm, and massing f the surrunding neighbrhd. In the Implementatin Guide, the planning staff is charged with using the plan s land use plicies t guide and evaluate develpment prpsals t implement the transit-supprtive cncept as develpment and 12 Charltte Zning Ordinance Apprach Reprt July 2013

17 Implementing Charltte s Plans and Plicies Area Plans redevelpment ccur. On an nging basis, staff assists private prperty wners and develpers thrugh the rezning prcess t achieve the plan gals f dense, supprtive develpment in each transit area. This invlves selecting the apprpriate districts in the Zning Ordinance and tailring standards if necessary thrugh tls such as the cnditinal rezning prcess. b. Relatinship t Zning Ordinance There are zning districts in the rdinance available t implement the land use plicies in the BLE Statin Area Plan, specifically the TOD districts fr the areas arund the transit statins and the residential districts fr sme neighbrhds. The plan s cmmunity design gals appear t be achievable using the design standards in the current Zning Ordinance. Hwever, the effectiveness f the rdinance in meeting the plan gals will depend n the specific zning districts applied, since mst design standards are embedded within district-specific regulatins, rather than applying generally t multiple districts. Mre specifically: Zning Districts and Land Uses: The Zning Ordinance includes several districts that culd be used t implement the BLE Statin Area Plan: Transit-Oriented Develpment Districts. The TOD districts are clsely matched t the plicy gals f the transit statin area plans. They are designed t create a cmpact and high intensity mix f residential, ffice, retail, institutinal, and civic uses t prmte the creatin and retentin f uses in areas with high ptential fr enhanced transit and pedestrian activity. Three TOD districts include TOD-R ( residentially riented ), TOD-E ( emplyment riented ), and TOD-M ( mixed-use riented (including multi-use develpments)). The TOD Optinal zning district may als be applied t custmize each f the three TOD districts. The TOD districts are applied t existing transit statin areas that have an adpted statin area plan (such as the Blue Line Extensin Plan). Permitted uses within the TOD districts allw fr a cmplementary mix f the types f uses described in the plan, including mixed-use and multi-use develpments. Unlike in mst f Charltte s zning districts, certain minimum standards apply in the TOD znes t ensure that develpment is intensive enugh t supprt the gal f establishing a cmpact, high-intensity transit statin area. Residential develpment has minimum density requirements (e.g., 20 dwelling units per acre within ¼ mile walking distance frm the transit statin). Mixed and nn-residential develpment has minimum flr-arearati (FAR) standards (e.g., minimum FAR f 0.75 within ¼ mile f the transit statin). The maximum base building height is 40 feet, but this may be increased t 120 feet depending n the develpment s prximity t single-family zning. Generally, the TOD districts are well-suited t implement the plicy gals f the BLE Statin Area Plan. Mst TOD zning districts are nt cnditinal, relying n the develpment standards in the rdinance t guide apprpriate develpment. This prvides prperty wners with a level f predictability that is nt always fund in cnditinal zning districts. Charltte Zning Ordinance Apprach Reprt July

18 Implementing Charltte s Plans and Plicies Area Plans Accrding t a number f develper representatives, a predictable and efficient prcess creates a strng incentive t develp in TOD zning districts and is preferred t ther pssible develpment sites in Charltte. Hwever, the cmmunity and Cuncil have als expressed cncerns abut the level f quality f sme develpment under the TOD standards. An internal staff-led effrt has begun t enhance the TOD design standards. Other General Districts: Besides the TOD districts, the urban residential and Mixed-Use Develpment (MUDD) districts might als be cnsidered fr develpment in transit statin areas. They are cnsistent in terms f permitted uses and building frm. Cnditinal Districts: Neighbrhd Services (NS), Urban Residential- Cmmercial (UR-C), and MUDD with a CD plan are pssible cnditinal districts that culd be used fr the transit statin areas. In thery, the Mixed Use Districts (MX-1, MX-2, and MX-3) als are intended t accmmdate mixed-use develpment, but in practice they have been applied in mre suburban cntexts rather than transit statin areas. Als, there are minimum district size requirements (10, 36, and 100 acres, respectively) in the MX districts that may limit their use fr redevelpment in transit statin areas due t assembly issues. Overlay Districts: One verlay district is relevant t the transit statin area plicy gals. The Transit Supprtive (TS) Overlay District may be applied ver an existing zning district, such as Industrial r Office. It may allw sme f the permitted uses f the underlying district that may nt be permitted in TOD districts, while incrprating mst f the same develpment standards as the TOD district t help ensure the physical frm f develpment is cnsistent with the statin area plan gals. TS Overlay may be apprpriate alng the uter edges f a transit statin area r in statin areas that are nt ready t supprt the density and intensity envisined in the statin area plan. While the districts abve generally are available t implement the BLE Statin Area Plan, the specificity and detail f the plan Structure Maps requires careful cnsideratin t match the individual subdistricts with specific zning districts. Preliminary zning classificatins were identified as part f the develpment f the Structure Plans. Using thse preliminary classificatins as a starting pint, staff evaluates apprpriate districts n an nging case-by-case basis thrugh the rezning prcess as develpment is prpsed, with cnsideratin f existing cnditins, the surrunding neighbrhd, and the plan gals. Fr example: Fr the Parkwd Subdistrict 1 lw-density residential categry: The rdinance s single-family districts appear t crrespnd mst clsely with the plan cncept. The districts allw the lw-density residential uses and building types called fr in the plan. Maximum allwed densities range frm three t eight units per acre, which is cmpatible with the plan subdistrict. Maximum average residential building heights at the frnt building line f 40 feet in sme districts (R-5, R-6, R-8) is cnsistent with the 14 Charltte Zning Ordinance Apprach Reprt July 2013

19 Implementing Charltte s Plans and Plicies Area Plans plan; hwever, the 48-ft limit in ther districts (R-3, R-4) exceeds the plan s recmmendatin. Sme f the rdinance s urban residential districts als may be apprpriate matches t implement the gals f the subdistrict. Fr sme f the plan s ther Parkwd subdistricts, the apprpriate matching districts in the rdinance are nt as bvius. Fr example, subdistricts 5 and 6 call fr transit supprtive uses, which is described nly generally in the plan (residential, retail, civic, and ffice) and is nt defined in the rdinance. The TOD base districts r TS Overlay culd be the apprpriate match, r ther urban districts culd als be used t address develpment n small sites r where site assemblage is nt feasible. Design and Develpment Standards: The BLE Statin Area Plan includes dzens f specific cmmunity design plicies, which are ptentially achievable using the base design standards and tls in the current Zning Ordinance, depending n which zning districts are applied. Mst design standards are embedded within district-specific regulatins, rather than applying generally t multiple districts. In particular, the rdinance s TOD design standards appear t be cnsistent with the general design plicies in the plan. Specific examples include: Building Architecture and Site Design: The plan calls fr high-quality building design that emphasizes pedestrian-friendly spaces, materials, and building types, plus active grund-flr nnresidential uses alng certain streets in many f the transit areas. Specific design requirements are listed (e.g., clear windws and drs, entrances that frnt nt and cnnect t sidewalks). Other sample plicies call fr minimizing the impacts f drivethrugh develpment and lcating dumpsters and service areas away frm residential areas. Sectin f the Zning Ordinance cntains building design standards that are directly relevant t the building architecture and site design gals in the BLE Statin Area Plan, including requirements fr first-flr windws, pedestrian building rientatins, distinctive entryways, screening f parking facilities, etc. These standards culd be further enhanced, and we understand that staff has embarked recently n that effrt. As nted earlier, sme heights allwed by the TOD districts are greater than the building heights called fr in the plan. Off-Street Parking: The plan calls fr parking flexibility in transit areas, recgnizing that the TOD area shuld fcus n pedestrians, with reduced emphasis n vehicle mvement. The rdinance (Sectin ) addresses the plan s issues by setting maximum parking limits in TOD districts and prviding additinal flexibility frm the general citywide parking requirements. In nn-tod districts, hwever, the rdinance des nt prvide as much parking flexibility. Histric Preservatin: In the 36 th Street Transit Statin Area, the plan calls fr the preservatin f the histric mills and mill huses thrugh lcal histric designatin and the adaptive reuse f existing structures. The rdinance prvides the tls t achieve lcal histric designatin thrugh Charltte Zning Ordinance Apprach Reprt July

20 Implementing Charltte s Plans and Plicies Area Plans the Histric Overlay District (Chapter 10, Part 2). Hwever, stakehlders nted that the heights and intensities allwed even with the verlay culd encurage redevelpment that threatens imprtant histric structures, and strnger tls may be needed. 5. Elizabeth Area Plan (2011) a. Summary Descriptin and General Gals Elizabeth is a histric neighbrhd, riginally an early Charltte streetcar suburb, develped mstly during the late 19 th and early 20 th centuries. The planning area is relatively small (630 acres) and lcated t the sutheast f the Center City. The area is bunded by I-277 and Independence Bulevard n the nrth, Briar Creek n the suth, and Randlph Rad/Furth Street n the west. A majr neighbrhd anchr is Independence Park, designed by famed landscape architect Jhn Nlan. The neighbrhd includes a large Natinal Register histric district and ver 21 lcally designated landmarks. Tday, Elizabeth is a diverse, walkable cmmunity with active neighbrhd rganizatins. Frm a land use perspective, the Elizabeth planning area lies mstly within the Sutheast Grwth Crridr as an Established Neighbrhd subarea. Generally, while Grwth Crridrs are expected t see higher intensity uses and develpment, the Established Neighbrhd Subareas within thse crridrs are an exceptin and intended t be maintained and preserved at lwer intensities. Sample land use plicies expressed in the Area Plan s Cncept Map (shwn n the fllwing page) include: Maintaining the predminantly lw-density, existing residential character f the neighbrhd; Enhancing and prtecting parks and pen space, especially Independence Park; Maintaining East Seventh Street as a vehicular crridr helping t anchr the neighbrhd, while increasing its pedestrian-friendly character and streetscape and mix f uses; and Prtecting single-family residential neighbrhds frm encrachment by incmpatible adjacent nn-residential develpment. In terms f cmmunity design, the Area Plan emphasizes issues such as: Ensuring that site and building design (especially fr infill prjects) is cmpatible (scale, size, massing, materials) with existing neighbrhds; 16 Charltte Zning Ordinance Apprach Reprt July 2013

21 Implementing Charltte s Plans and Plicies Area Plans Figure 4: Elizabeth Area Plan Cncept Map Requiring building heights immediately adjacent t single-family residential areas t step dwn t 40 feet r less alng shared bundaries; and Minimizing impacts t the tree canpy. As with the Blue Line Extensin Statin Area Plan, the Elizabeth Area Plan includes detailed transprtatin plicies, including specific streetscape standards. New, pedestrian-riented sidewalk and building placement requirements alng East Seventh Street will be intrduced ver time, as significant develpment r redevelpment is required t install the new streetscape elements. There is great specificity n sme f the land use maps, Charltte Zning Ordinance Apprach Reprt July

22 Implementing Charltte s Plans and Plicies Area Plans Figure 5: Elizabeth Area Plan - Established Neighbrhd Subarea Land Use Plicy Recmmendatins illustrating the ptential fr Charltte s area plans t hne in n particular sites t shw hw specific land use plicies might play ut in practice. 3 The plan calls fr sme crrective reznings, generally t align zning with existing land uses t prtect surrunding residential areas. 3 Fr example, land use plicies fr East Seventh Street call fr majr redevelpment f certain parcels t relcate parking t the rear f these sites, bring buildings t the street, and encurage mre f a pedestrian rientatin. A sample develpment cncept map, (which is clearly labeled an example), is prepared t the level f detail f a parcel-specific regulating plan. 18 Charltte Zning Ordinance Apprach Reprt July 2013

23 Implementing Charltte s Plans and Plicies Area Plans b. Relatinship t Zning Ordinance In terms f land use, there are districts available in the Zning Ordinance that align with the land use classificatins and use types called fr in the Elizabeth plan. In terms f cmmunity design, hwever, the Zning Ordinance includes sme but nt all f the tls called fr in the plan; in particular, it lacks specific, measurable tls that are necessary t ensure cmpatible residential infill and t prtect existing neighbrhds frm new develpment alng East Seventh Street and in ther mixed-use areas. Mre specifically: Zning Districts and Land Uses: The plan area includes an Established Neighbrhd Subarea, General Crridr Subareas, and a preliminary future Transit Statin Subarea (all f which are subareas within the Sutheast Grwth Crridr). The Zning Ordinance districts that can best implement the plan s plicies and gals fr these subareas include the fllwing: Established Neighbrhd Subarea. This prtin f the planning area includes a great variety f land use types, frm mstly residential areas, t mixed-use, t parks and pen space. Fr the primarily residential areas, the plan specifies a range f densities, frm less than r equal t five DUA thrugh 22 r mre DUA. The Zning Ordinance s single-family residential, multifamily residential, and urban residential districts all may be apprpriate t implement parts f these areas in terms f district purpses, allwed uses, and building heights and densities. Fr the East Seventh Street crridr, the plan calls fr a greater mix f uses, specifically residential/ffice/retail. Current zning fr many f these parcels is a mix f NS (Neighbrhd Services), B-1, and O-2. Hwever, ther available districts, especially the Mixed Use Develpment District s (MUDD) by-right allwance f a mix f uses, appear t be better fits with the plan s gals fr this area (thugh MUDD allws height up t 120 feet). MUDD-O and MUDD-CD may als be apprpriate. 4 General Crridr Subareas: These areas, lcated utside the transit statin area and the Established Neighbrhd Subarea, are intended fr mderate-density uses, typically lw- t mid-rise in height. Existing uses include institutins (hspitals) and medical ffices. The plan calls fr the existing residential zning t be changed t Institutinal t reflect existing uses f the prperty. The rdinance s Institutinal district appears apprpriate in terms f allwed uses and building dimensins, thugh the 4 MUDD-O (Sectin ) recgnizes the standards f MUDD might nt be apprpriate t a particular develpment, r unfreseen circumstances might exist that MUDD regulatins d nt address. In such circumstances, MUDD-O establishes a rezning apprved with ptinal prvisins that allws innvative design, thrugh flexibility and variatin f the design standards and district standards in MUDD. Similarly, MUDD-CD is a cnditinal rezning based n the MUDD district that applies restrictive cnditins t the rezning. Charltte Zning Ordinance Apprach Reprt July

24 Implementing Charltte s Plans and Plicies Area Plans setback and yard standards may be excessive fr new develpment in these areas. Preliminary Transit Statin Area: Because the transit statin area is still preliminary and a specific transit statin lcatin has nt been identified, the plan ntes that TOD zning may nt be used fr the area. Instead, ther urban zning districts are identified as ptentially apprpriate, including MUDD, NS, and the urban residential districts. Because f this district s central lcatin, applying MUDD wuld be cnsistent with the rdinance s stated intent t apply MUDD in central areas utside the Central City, thugh a CD plan wuld be necessary t limit building height. Cmmunity Design. As with mst area plans, the Elizabeth Area Plan carries frward general design plicies frm the GDP and als establishes area-specific design plicies. As nted thrughut this reprt, many f the Zning Ordinance s design standards apply t specific districts rather than citywide, and thus the effectiveness f the rdinance in implementing plan gals depends n the actual districts applied t a particular site. Residential Design. The plan-specific plicies emphasize the need fr cmpatible architectural design, especially fr infill prjects in established neighbrhds. Physical characteristics are specifically called ut as imprtant t regulate include size, scale, massing, setback, and materials. Beynd the base dimensinal requirements fr each zning district (e.g., height, setbacks, FAR, building envelpe), the current Zning Ordinance has few tls t ensure that develpment lcated in and adjacent t singlefamily neighbrhds is cmpatible with the character f the neighbrhd. Sme that d exist include: Alternative Setbacks in Single-family Districts: On established blck faces (defined as being at least 25 percent develped, r with at least fur existing dwellings), a single-family detached dwelling may be lcated n clser t the street than the tw clsest structures n the blck. This helps ensure cmpatibility f infill develpment with existing structures, regardless f the strict zning setback requirement (ftnte 9 t 9.205(I)). Building Heights: Maximum building heights are keyed t adjacent zning district(s) and uses in all districts. In nnresidential districts, this places a mdest limitatin n building heights adjacent t residential areas. Fr example, in the Office districts, the maximum height f 40 feet may be increased by tw feet fr every ne ft the side yard is increased; hwever, if the adjacent parcel is residential, then the allwance is just ne ft in height per each ft f side and/r rear yard increase. This is a typical apprach in mst f the Charltte nnresidential districts. The PED Overlay (as well as TOD) des have a mre restrictive height limitatin: where it abuts single-family zning, a height limit f 40 feet applies (versus 100 feet elsewhere in the verlay). MUDD has n transitin requirements fr building height. 20 Charltte Zning Ordinance Apprach Reprt July 2013

25 Implementing Charltte s Plans and Plicies Area Plans Single-Family Adjacency Standards in Sme Districts. Sme f the new zning districts have urban design standards that address cmpatibility with single-family residential areas. Fr example, the TOD district requires rf line variatin, prches, frnt-facing entrances, and façade articulatin when adjacent t residential areas. (These may achieve sme level f architectural variety but d nt appear intended t respnd t surrunding buildings.) These are mdest standards that by themselves d nt meet the plan plicy gals f prmting cnsistency and cmpatibility between new residential infill develpment r redevelpment and its surrundings. Arund the cuntry, this is a cmmn zning issue. Many cmmunities have adpted aggressive, cntext-based design standards fr infill develpment, including the use f architectural transitins between existing structures and new larger adjacent structures, requirements fr unifying design r architectural themes that repeat r replicate design features n established buildings, and ther similar requirements as well as the cntext-based setbacks and maximum building heights cited abve. In Charltte, staff and the public have cnsidered residential design standards, which in thery culd help ensure cmpatible infill develpment in lder residential areas such as Elizabeth, thugh the legal authrity fr new standards is unclear. Nnresidential Design. The plan includes an array f design gals intended t imprve the pedestrian-friendliness f nnresidential sites and buildings. The rdinance addresses sme but nt all f these gals. Fr example: The plan calls fr lcating parking t the rear f buildings where feasible. In the rdinance, parking areas generally are required t be screened frm the street and may nt be lcated in any required setback, but they are nt required t be lcated t the rear f buildings in any districts. Frnt-laded residential garages are generally prhibited in sme f the mre pedestrian-riented districts (e.g., TOD, Transit Supprtive Overlay, PED Overlay), but nt the ther districts. The plan calls fr integrating significant functinal pen space int the design f new develpment. The tls fr btaining pen space in the Zning Ordinance are fragmented and incnsistent. 5 The plan generally calls fr new develpment t be cmpatible in scale with existing adjacent residential buildings. Beynd a few 5 Many f the mre pedestrian-riented districts (e.g., TOD, PED Overlay, Transit Supprtive Overlay) include requirements fr urban pen spaces fr all new develpment n lts greater than 20,000 square feet. Such spaces may be private r public, and the rdinance includes definitins and minimum requirements fr each. The Urban Residential districts encurage public pen space as part f a density bnus prgram. Sme districts like the Multi-Family Districts and Research districts require a certain amunt f pen space per lt, but it is unclear if these are intended t result in the same type f public amenity sught in the pedestrian-riented districts. Sme districts have n pen space requirements, such as the Institutinal District. Charltte Zning Ordinance Apprach Reprt July

26 Implementing Charltte s Plans and Plicies Area Plans transitinal standards (e.g., height), the rdinance has few cntrls t ensure such cmpatibility (e.g., building length, depth, verall vlume). 6. Independence Bulevard Area Plan (2011) a. Summary Descriptin and General Gals The Independence Bulevard planning area is lcated in the sutheastern part f Charltte and is cmprised f apprximately 5,800 acres, including a large stretch f Independence Bulevard and the neighbrhds immediately nrth and suth f the hybrid freeway/arterial. The planning area is mstly within the Sutheast Grwth Crridr (including Established Neighbrhd and General Crridr subareas), but als includes part f the Eastland Activity Center and sme Wedge areas. Unlike sme f the ther area plans, this dcument begins by stating Guiding Principles. Fr example, Guiding Principle 2 is t Create Ndes, with mixeduse activity at different scales. Other Guiding Principles address strengthening and building neighbrhds, reclaiming and shwcasing natural systems (like greenways), and rienting develpment away frm Independence and twards ther radways. The verall cncept plan is shwn n the fllwing page. Overall, the plan is ambitius in calling fr lng-term change in fundamental land use patterns. The plan calls fr a repsitined develpment pattern that mves away frm the cntinuus pattern f strip develpment alng Independence Bulevard, twards a series f tailred, cncentrated centers, r ndes, which are the fcus f the neighbrhds linked tgether by green cnnectins such as greenways, parks, and trails. The plan identifies bth Reginal Ndes with the greatest cnnectins and access, as well as smaller, lcal-serving Neighbrhd Ndes. By transitining the develpment patterns in the planning area in this way, the plan aims t strengthen neighbrhds and create mre distinctive places alng the Sutheast Crridr, anchred by pedestrian-riented develpment districts, as well as t set the stage fr the revitalizatin f Independence Bulevard. The PED Overlay district is prpsed t help ensure pedestrian-friendliness alng certain rads. Vertically integrated mixed-use develpment is prpsed as an ptin fr these mixed-use ndes. The planning area includes transit statin areas prpsed in the 2030 Transit Crridr System Plan, thugh the buildut f the line is nt expected within the next 20 years. Six prpsed transit statins are identified, which in the interim will functin as key develpment ndes, even withut transit. The plan encurages a high-intensity mix f uses, including transit-supprtive design, in these transit statin areas. Three scales f transit statin areas -- neighbrhd, cmmunity, reginal -- refer t the verall size f the transit statin and the intended service radius (1, 3, r 5 miles, respectively). 22 Charltte Zning Ordinance Apprach Reprt July 2013

27 Implementing Charltte s Plans and Plicies Area Plans b. Figure 6: Independence Bulevard Area Plan - Overall Cncept Plan Relatinship t Zning Ordinance In terms f land use, the current Zning Ordinance des cntain sme mixeduse-riented districts, but lacks a calibrated set f multiple districts that wuld allw full implementatin f the hierarchy f different scales f centers called fr in the Independence Bulevard planning area. In terms f cmmunity design, the rdinance includes sme but nt all f the tls called fr in the plan, and in particular lacks residential design standards and mixed-use design standards tailred t a range f intensity levels. Mre specifically: Zning Districts and Land Uses: Mixed Use Ndes. One f the distinguishing features f the Independence Bulevard Area Plan is its emphasis n the establishment f activity center ndes, specifically Reginal Ndes and Neighbrhd Ndes. The existing mixed-use districts in the Zning Ordinance are nt equipped t encurage and accmmdate the different levels f mixed-use and higher-intensity develpment cntemplated by the Independence Bulevard Area Plan (r ther Charltte plans). The mixed-use districts as drafted have limited applicability, applying nly t specific areas, in certain circumstances, and are thus nt as effective as they might be in encuraging different levels f mixed-use develpment mre bradly thrughut the City. The MUDD district allws by-right mixed-use develpment, but is nt by itself calibrated t allw different levels f intensity, and wuld require tailring thrugh cnditinal reznings, ptins, r ther tls t achieve the differences intended by the plan. MUDD, MUDD-O, MUDD (CD), UMUD, UMUD-O, and UMUD (CD) were riginally drafted fr the Center City and t implement the Center City Charltte Urban Design Plan (thugh MUDD has since been applied mre bradly thrughut the city). The MX districts in thery culd be adapted t suit the mixed-use nde cncepts called fr in the plan, thugh that Charltte Zning Ordinance Apprach Reprt July

28 Implementing Charltte s Plans and Plicies Area Plans wuld require majr changes in hw the districts currently are used and wuld require applicants t g thrugh the cnditinal rezning prcess. Wedge Areas: The plan calls fr strengthening single-family neighbrhds by limiting infill t established densities and maintaining the existing single-family character. These neighbrhds, lcated mstly within Wedge Areas, are intended t prvide a range f husing chices, plus supprting facilities and services. The rdinance s single-family districts and multi-family districts (thrugh R22-MF) appear t be well-suited t implement the plan cncept, since the districts allw the lw-density and mderate-density residential uses and building types called fr in the plan. The rdinance allws a diversity f husing types in these districts, thugh diversity is nt emphasized as a distinct gal. 6 Transit Statin Areas. The gals fr the future transit statins alng Independence Bulevard are similar t thse discussed abve fr the BLE Statin Area Plan. As nted earlier, the Zning Ordinance s TOD districts are amng the mst thrugh and ptentially effective parts f the Charltte Zning Ordinance, and are clsely matched t the plicy gals fr the transit statin areas. The Independence Bulevard Plan specifies that the three TOD zning districts are apprpriate fr these areas, with the specific apprpriate districts specified n the future reginal land use maps. Cmmunity Design. In terms f cmmunity design, the Independence Bulevard Area Plan s plicies are similar t the ther urban plans reviewed fr this reprt. Residential Design. The plan-specific plicies emphasize the need fr highquality architectural design fr residential prjects. As nted earlier, beynd the base dimensinal requirements fr each zning district (e.g., height, setbacks, FAR, building envelpe), the current Zning Ordinance has few tls t ensure a predicable level f architectural design quality fr new residential prjects. 7 Nnresidential Design. The plan includes an array f design gals intended t imprve the pedestrian-friendliness f nnresidential sites and buildings. Building design generally shuld be geared tward high-quality, attractive architecture that helps create distinctive, pedestrian-riented places in the 6 Sme rdinances arund the cuntry have begun t encurage diversificatin f husing types by ffering incentives, such as faster prcessing times and/r design incentives. Charltte adpted affrdable husing text amendments in January and February f 2013 that have incentives/ffsets fr multi-family inclusinary husing and density bnuses fr single-family mixed-incme husing develpment. The City als has fee waivers and expedited review t encurage participatin by the private sectr in the develpment f affrdable husing. 7 Sme residential design plicies in the plan are mre specific than seen in ther area plans; fr example, residential single-family buildings shuld have frnt prches with a minimum depth f six feet and extending half the width f facade. Als, the plan calls fr variatins in elevatins f hrizntal and vertical planes, and distinctins f upper stries frm grund-level design. The current rdinance generally des nt regulate residential design t that level f detail (thugh ne TOD standard des address prch depth.) 24 Charltte Zning Ordinance Apprach Reprt July 2013

29 Implementing Charltte s Plans and Plicies Area Plans mixed-use ndes. Buildings shuld be riented tward greenways and natural areas t help create mre distinctive places. Specific architectural features are encuraged (e.g., distinguishing grund-level architectural detail frm upper levels, prviding human-scale details, reducing the visual impact f residential garages, etc.). As nted fr ther area plans, the rdinance addresses sme but nt all f these gals. Specific examples are nted abve in the discussin f the Elizabeth Area Plan. 7. Midtwn Mrehead Cherry Area Plan (2012) a. Summary Descriptin and General Gals The Midtwn Mrehead Cherry (MMC) Area Plan addresses three distinct but adjining areas just utside f Uptwn and I-277 t the suth: Midtwn: an urbanized district with mixed-use develpment (including the large Metrplitan prject), clse prximity t majr institutinal uses (hspitals, cmmunity cllege), and the Little Sugar Creek greenway running generally alngside Kings Drive; Mrehead: an area anchred by Mrehead Street, nce the primary residential street f the Dilwrth neighbrhd, that tday has becme an ffice and mixed-use area with wide setbacks and dense mature tree canpy; and Cherry: a histric African-American neighbrhd lcated just suth f Midtwn, predminately single-family residential in character, and including sme histric structures. While the verall land use visin fr the three neighbrhds is linked by their clse gegraphical prximity, the plan identifies distinctive land use gals fr each area. The Midtwn and Mrehead areas are within in the Sutheast and Suth Grwth Crridrs, respectively, while the Cherry neighbrhd falls within a Wedge area. The cmmercial elements f Midtwn and Mrehead are intended t be mixed-use, including sme retail. Additinal, sample land use gals fr each area include: Midtwn: Preserve and enhance greenway cnnectins and uses; supprt cntinued build-ut f mixed-use develpment, cmpatible with the greenway and the adjacent Cherry neighbrhd; Mrehead: Preserve tree canpy and setbacks; encurage a mix f pedestrian-riented ffice and residential uses alng key streets and lcatins, with retail at key lcatins; limit heights alng the Dilwrth residential edge; establish high-density transit-riented streetscape standards nrth f Suth Bulevard; Cherry: Retain single-family at current densities, encurage cmpatible infill n vacant lts, sme crrective reznings t prtect character; cnsider histric r cnservatin districts t preserve the histric character. Charltte Zning Ordinance Apprach Reprt July

30 Implementing Charltte s Plans and Plicies Area Plans An verall Cncept Map designates the brad land use categries fr each neighbrhd (e.g., lw density residential, residential/ffice/retail ). Unlike the BLE Statin Area Plan, which includes separate plicy-based Develpment Plans and blck-by-blck Structure Plans, the MMC plan includes a Recmmended Future Land Use Map fr each f the three neighbrhds that cmbine plicy and land use directin. The Midtwn map is shwn as an example belw. These maps include detailed plicy guidance nted by designatins L1, L2, etc., plus clr-cded, blck-by-blck residential density targets. Figure 7: Sample Recmmended Future Land Use Map frm the Midtwn Mrehead Cherry Area Plan The MMC plan encuraged establishment f a Pedestrian (PED) Overlay District within substantial prtins f Midtwn and Mrehead t create a mre urban fabric with a mixture f uses in a pedestrian-riented setting f mderate intensity, t supprt ecnmic develpment alng business crridrs, and t prvide prtectin fr adjining established neighbrhds. This designatin has since been cmpleted; hwever, staff cntinues t wrk with the neighbrhd t ensure that PED is the apprpriate tl t match the desired character f East Mrehead. The MMC plan als includes specific streetscape requirements t guide develpment within the district. The PED establishes a 40-ft height limit 26 Charltte Zning Ordinance Apprach Reprt July 2013

31 Implementing Charltte s Plans and Plicies Area Plans where it abuts single-family zning (with upper-flr stepbacks that may increase the height maximum t 100 feet). While the PED district is identified as the likely means t accmplish the plan bjectives, ther tls t accmplish the plicy culd be cnsidered. Beynd land use, plan-specific plicies that apply t the MMC area include: b. Cmmunity Design: Plan-specific plicies address building architecture, the natural envirnment, and pedestrian and vehicular netwrks. Examples f plan-specific gals that d nt appear in the GDP are t prvide a variety f husing types; t preserve Little Sugar Creek, its tributaries and the natural ecsystem arund them; and t encurage shared parking amng different nn-residential uses where feasible. Transprtatin and Streetscape: The plan establishes specific transprtatin plicies fr the plan area, including enhancements t existing streets and prpsed new streets t imprve bike-and pedestrian access. Relatinship t Zning Ordinance In terms f land use, there are districts available in the Zning Ordinance that are cnsistent with the land use classificatins and use types called fr in the MMC Area Plan specifically the MUDD, single-family, and multi-family general districts and the PED Overlay. In terms f cmmunity design, hwever, the Zning Ordinance lacks the base tls necessary t achieve the plan gals withut case-by-case mdificatins (thrugh such tls as cnditinal reznings). Zning Districts and Land Uses: The Zning Ordinance districts that are mst relevant t the implementatin f the MMC plan include the fllwing: Residential/Office/Retail: The MMC plan identifies Residential/Office/Retail as a separate categry n the Recmmended Future Land Use Map. Much f the area with this designatin currently is zned Business (B-1 and B-2), which permits retail/cmmercial uses and als residential and ffice uses. These districts are cmpatible with the plan s land use gals (but their design standards are geared mre t suburban-style develpment versus a mre urban neighbrhd). Beynd thse districts, the current Zning Ordinance has sme tls t implement this mixed-use categry. The three Mixed-Use Cnditinal Districts culd be used, but they have been used mre as planned develpment-type districts and have minimum acreage requirements that culd limit their use n smaller parcels. The MUDD District (Sectin ) is anther tl that culd be used fr mixed use areas. In the MMC plan area, numerus MUDD reznings have been apprved (in the Midtwn area in and arund the Metrplitan prject, and als scattered alng Mrehead). Sme MUDD reznings have been intended t allw mixed uses, and thers t allw densities greater than thse allwed in the base B (Business) and O (Office) zning. Charltte Zning Ordinance Apprach Reprt July

32 Implementing Charltte s Plans and Plicies Area Plans Residential/Office. The plan identifies Residential/Office as a distinct future land use categry. Much f this area applies alng Mrehead Street and currently is zned O-2. While Office zning districts are riented mstly twards ffice uses accrding t their purpse statements, residential uses are allwed. The MUDD districts wuld als be a pssibility fr applying mixed-uses in this area; hwever, the rdinance des nt have a true mixed residential-ffice district apart frm the current Office districts. Residential Districts. The plan includes six residential land use classificatins with a range f maximum allwed densities: frm less than r equal t fur DUA t 22 r mre DUA. In the Zning Ordinance, the single-family districts allw density ranges up t eight DUA and may be used t implement sme f the plan classificatins. These districts are intended t accmmdate single-family husing and a limited range f supprting public and institutinal uses. The multi-family districts allw densities frm up t eight DUA t 22 DUA and match ther plan categries. These zning districts are intended t accmmdate a variety f husing types, including multi-family uses, plus a limited range f supprting public, institutinal, and cmmercial uses. Park/Open Space: The MMC plan calls fr a number f parcels t be reserved fr parks and green space, mstly alng the Little Sugar Creek Greenway. Sme f these parcels currently are zned MUDD. Others are zned B-2, which, while it des allw parks as a permitted use, is written t apply mre t business-riented uses. The rdinance des nt have a dedicated district fr parks and pen space. PED Overlay District: The plan calls specifically fr the use f the PED Overlay district in a large prtin f the MMC plan area in rder t impse additinal standards that will help prmte a mixture f uses in a pedestrian-riented setting f mderate intensity, t supprt ecnmic develpment alng business crridrs, and t prvide prtectin fr adjining established neighbrhds. The PED Overlay district is identified in the plan as the apprpriate tl t meet these bjectives. As nted earlier, the PED designatin has been adpted, thugh it cntinues t be evaluated t ensure it is the apprpriate tl fr East Mrehead. Generally, the PED Overlay is intended t prmte a pedestrian-riented mix f uses within grwth crridrs but utside transit statin areas; it is applied by staff after a pedscape plan (such as the ne included in the MMC plan) is adpted by Cuncil. There are currently six PED Overlay Districts in Charltte. Design and Develpment Standards: The MMC plan s specific design-related gals d nt appear t be achievable slely thrugh use f the base design standards in the current Zning Ordinance, withut additinal tailring (thrugh appraches such as cnditinal reznings). Mre specifically: Cmpatibility with Existing Neighbrhds. In residential areas, the plan calls fr cmpatibility with the existing design features, and recgnitin f 28 Charltte Zning Ordinance Apprach Reprt July 2013

33 Implementing Charltte s Plans and Plicies Area Plans the size, scale, materials, rhythm, and massing in the neighbrhd. Specific plan plicies call fr cmpatible infill develpment and cmplementary architectural design. As discussed abve in the Elizabeth Area Plan discussin, the rdinance has few measurable and predictable minimum standards t ensure develpment lcated in and adjacent t single-family neighbrhds is cmpatible with the character f the neighbrhd. Building Design. The plan carries frward many building design gals f the GDP that require high-quality buildings that create an attractive, pedestrian-riented atmsphere, and als sets frth additinal planspecific gals, such as aviding blank walls alng pedestrian circulatin areas. The rdinance sets frth urban design and develpment standards fr certain pedestrian-riented districts like MUDD and TOD (but nt all districts) that address many f these plan plicies, such as by requiring street walls t encurage and cmplement pedestrian activity thrugh the use f windws and drs, and ther design techniques. Streetscape: The plan calls fr encuraging urban building setbacks, which is nt defined but likely refers t minimum setbacks that bring buildings clser t the sidewalk in pedestrian areas. The Zning Ordinance has minimum setback requirements specific t each zning district. The MUDD district, fr example, has a 14-ft minimum setback frm the back f the existing r prpsed curb. Hwever, the rdinance als defers t the adpted streetscape plans (in this case, the MMC Area Plan) fr specific building placement rules, as well as specific crss-sectins f sidewalks fr varius street types. Off-Street Parking: The plan encurages shared parking amng different uses where feasible t minimize the verall amunt f parking required fr new develpment. The rdinance (Sectin ) des authrize the jint use f up t 50 percent f required parking spaces fr tw r mre uses lcated n the same parcel r adjacent parcels, prvided that the develper can demnstrate that the uses will nt substantially verlap in hurs f peratin r in demand fr the shared spaces. In terms f natinal best practices, this apprach is typical, but culd be expanded t include authrizatin fr ther types f alternative parking arrangements, such as ff-site parking, deferred parking, valet r tandem parking, r transprtatin demand management (TDM) prgrams. 8. Park Wdlawn Area Plan (2013) a. General Summary and Plicy Gals The Park Wdlawn plan area cmprises apprximately 2,000 acres in suth central Charltte. Much f the plan area lies within a Wedge and cnsists f stable, generally single-family neighbrhds such as Sedgefield, Madisn Park, and Cllingwd. The plan area als includes the entire Park Rad/Wdlawn Rad Mixed Use Activity Center identified in the CCW Grwth Framewrk. The plan area is Charltte Zning Ordinance Apprach Reprt July

34 Implementing Charltte s Plans and Plicies Area Plans mstly built ut, s mst new develpment will ccur thrugh infill and thrugh redevelpment. The plan discusses cncerns that infill develpment will encrach upn the existing single-family neighbrhds. T help minimize impacts, the plan recmmends that new develpment be neighbrhdfcused i.e., sensitive t the surrunding neighbrhds in terms f height and design, and t be mre pedestrian-fcused. Figure 8: Park Wdlawn Cncept Map Cnnectivity is identified as a majr issue in the plan; the area lacks walkability and the street grid pattern that wuld make it easier t travel, bth fr vehicles and fr pedestrians. Lng blcks and lack f street cnnectins are issues. Als, there is limited cnnectivity between the eastern and western prtins f the plan area. b. Relatinship t the Zning Ordinance In terms f land use, the existing residential districts in the Zning Ordinance are suitable t implement the land use classificatins and use types called fr in Park Wdlawn s Wedge neighbrhds. Hwever, few districts are available t implement the Activity Center mixed use recmmendatins, beynd MUDD and districts that wuld require reznings (like NS) and/r may nt achieve the frm and intensity desired (like the MX districts). In terms f cmmunity design, and as is discussed in previus sectins, the Zning Ordinance lacks the 30 Charltte Zning Ordinance Apprach Reprt July 2013

35 Implementing Charltte s Plans and Plicies Area Plans base tls necessary t achieve the plan gals withut case-by-case mdificatins thrugh such tls as cnditinal reznings. Zning Districts and Land Uses: The Zning Ordinance districts that are mst relevant t the implementatin f the Park Wdlawn Area Plan include the fllwing: Activity Center. The Park Wdlawn Mixed Use Activity Center is identified in Charltte s CCW Grwth Framewrk as an area targeted fr mixed-use redevelpment at higher intensities than currently exist. The center extends alng Park Rad and currently includes a variety f land use areas, including mixed use and mderate t high-density residential develpment. Much f the Activity Center currently is zned O-1, O-2, and B-1, with sme multi-family parcels, as well. These existing districts accmmdate sme mix f uses, but nt the pedestrian-riented redevelpment called fr in the plan. The plan als emphasizes maintaining a strng fcus n sensitive design that respects the surrunding neighbrhds. Of the existing districts, MUDD (discussed abve in the descriptin f the MMC Area Plan) culd in thery be an apprpriate district fr this area, since it allws and encurages the mix f uses called fr in the plan. It may be tailred thrugh MUDD-O r MUDD-CD t respnd t specific neighbrhd and site issues, but that wuld require an applicant t g thrugh the cnditinal rezning prcess, as wuld the NS and MX cnditinal districts. The plan distinguishes between multiple character areas within the Activity Center, and the Park Wdlawn area ultimately culd benefit frm a new, mre tailred set f mixed-use districts that accmmdates a range f mixed-use intensities, as discussed fr the Independence Bulevard Area Plan. Wedges (Residential Neighbrhds). The cncept plan identifies the Wedge neighbrhds as apprpriate fr lw-density t mderate-density residential develpment. Many areas are intended t remain lw density residential, up t fur DUA. Over 70 percent f the planning area is zned single-family, and much f this area currently is zned R-4, which is cnsistent with the plan density. Sme residential areas are cnsidered apprpriate fr new multi-family residential at densities up t 12 DUA in certain situatins (i.e., if parcels are assembled and n single-family parcels are land-lcked). Overall, a variety f lcatin-specific density recmmendatins are called ut in the plan. Generally, the existing singlefamily and multi-family districts appear t be suitable t accmmdate these areas in terms f land uses and densities. Design and Develpment Standards: The Park Wdlawn Area Plan s specific design-related gals are nt achievable slely thrugh use f the base design standards in the current Zning Ordinance. Sme tailring f the base standards thrugh appraches such as cnditinal reznings wuld be necessary fr the mst effective implementatin f the plan. Als, many f the plan s gals relate t cnnectivity, which is generally addressed utside the Zning Ordinance. Charltte Zning Ordinance Apprach Reprt July

36 Implementing Charltte s Plans and Plicies Area Plans Cmpatibility with Residential Neighbrhds. Because many f the Activity Center parcels back up t residential neighbrhds, the plan-specific cmmunity design plicies call fr transitining the scale and height f develpment with respect t single family neighbrhds. The plicies emphasize height restrictins (40 feet in many areas) and design that is sensitive t the neighbrhds. Other plicies state that shallw depth lt redevelpment alng Park Rad shuld relate t the single family neighbrhds behind. Buildings shuld be riented tward radways and existing and future greenways. The plan als calls fr multi-family develpment t relate t the surrunding cntext and have a pedestrian scale street presence. As nted earlier, the existing rdinance des have step-dwn height cntrls in many multi-family and nnresidential districts when adjacent t single-family develpment; hwever, these still may allw heights greater than the 40-ft limit called fr in the plan (and the MUDD district des nt have step-dwn cntrls at all). Otherwise, the current Zning Ordinance des nt have specific standards that wuld help define and ensure cmpatible building massing and scale, either in the multi-family residential districts r citywide. This issue is discussed abve in the Elizabeth Area Plan sectin. Streetscape Imprvements. As with ther area plans, the Park Wdlawn Area Plan is the fficial Streetscape Plan fr the area. It includes crsssectins that address varius street types (e.g., avenues, main streets) and specific standards such as sidewalk and travel lane widths. Fr the urban districts, the new Streetscape Plan prvisins will cntrl and serve as an imprtant tl fr achieving the plan s cmmunity design bjectives; fr many ther districts, hwever (including MF, B-1, B-2, O-1, and O-2), the limited standards in the Zning Ordinance will cntinue t apply. Cnnectivity. The plan emphasizes creating better intercnnectivity, bth vehicular and pedestrian. Cnnectivity is addressed in Charltte primarily thrugh the Subdivisin Ordinance, rather than the Zning Ordinance. The Subdivisin Ordinance cdifies the general bjectives fr creating a cmplete, cnnected netwrk f streets and blcks expressed in Charltte s Urban Street Design Guidelines, and includes requirements fr street netwrk cnnectivity and blck dimensins, detailing the types and arrangement f blcks relative t a variety f principal uses. Althugh these are understd and cmmunicated as part f subdivisin s that new develpment can apprpriately cntribute t a cnnected transprtatin netwrk, these standards may cme int play in applicatins f the Zning Ordinance (i.e. when land is nt being subdivided). Many cmmunities include cnnectivity requirements in the Zning Ordinance; hwever, the available legal authrity t apply all these cnnectivity requirements thrugh the Zning Ordinance requires further review. 32 Charltte Zning Ordinance Apprach Reprt July 2013

37 Implementing Charltte s Plans and Plicies Area Plans 9. Steele Creek Area Plan (2012) a. Summary Descriptin and General Gals Cvering the largest plan area f the six plans reviewed fr this reprt, the Steele Creek Area Plan includes apprximately 27,000 acres (ppulatin 35,000) in suthwest Charltte. The eastern prtin f the plan area includes mre intense develpment clse t I-77, I-485, and Suth Tryn Street, mstly within fur mixed-use and industrial activity centers. The western half f the plan area brders the Catawba River and includes the McDwell Nature Center and Preserve, alng with several lw- t mderate-density residential subdivisins like The Sanctuary. Much f the plan area is within a Wedge. In terms f land use, sme f the key develpment plicies are: Maintain the lwer density residential develpment (fur units/acre) character in the Wedge, with neighbrhd-supprting retail and services at strategic lcatins; In mixed-use activity centers, encurage grwth and transitin t a mre pedestrian-riented envirnment; and In industrial areas, encurage additinal industrial develpment and emplyment. The plan s cmmunity design gals include: Ensuring that building and site design reflect the natural envirnment and respect surrunding neighbrhds; and Encuraging accessibility by imprving pedestrian and bicycle cnnectins. Figure 9: Steele Creek Area Plan - Cncept Plan Charltte Zning Ordinance Apprach Reprt July

38 Implementing Charltte s Plans and Plicies Area Plans Natural features are a key part f the planning area, which has a river, majr natural pen space preserve, and substantial tree canpy. Plan plicies emphasize envirnmentally sensitive develpment that enhances the area s land, air, and water quality. b. Relatinship t Zning Ordinance In terms f land use, the existing districts in the Zning Ordinance are suitable t implement sme but nt all f the land use classificatins and use types called fr in the Steele Creek plan area. In terms f cmmunity design, the Zning Ordinance includes sme tls necessary t achieve the plan gals, but many plan issues (such as cnnectivity) are addressed by regulatins utside the Zning Ordinance. Zning Districts and Land Uses: The principal types f land use areas identified in the Steele Creek Area Plan are: Industrial Centers. The Westinghuse Industrial Center crsses the center f the plan area and is a majr reginal industrial center. Additinal industrial develpment is anticipated and encuraged. This large area is an example f an Industrial Center identified in the CCW Grwth Framewrk, which is primarily single-use ffice and industrial, with supprting retail. The rdinance s industrial districts are generally cmpatible with the plan gals in terms f uses allwed, since they include the types f supprting retail uses the plan ntes are needed t supprt the industrial emplyment base. Hwever, the districts d nt include develpment quality standards addressing issues like pedestrian netwrks and landscaping, which the plan ntes are needed t integrate new prjects with existing develpment. Mixed-Use Centers. The Activity Centers (such as Whitehall/Ayrsley) in the planning area are intended fr a brad mix f higher-density residential, institutinal, ffice, and sme industrial uses. As nted fr the earlier area plans, MUDD and the MX districts are available in the rdinance t implement these mixed-use recmmendatins. (The MX districts may be a better fit here than in sme f the mre central areas; hwever, the split wnership f the areas may make the districts harder t apply.) They wuld need t be tailred t fit the unique circumstances f the Steele Creek area, such as the mre significant industrial aspect than is seen in ther areas, as well as the prximity t residential neighbrhds. A larger menu f mixed-use districts ultimately wuld assist in accmmdating the unique mix f uses and develpment characteristics intended fr these suburban centers, as ppsed t the mre central activity centers. Wedge Neighbrhds. The cncept plan identifies the Wedge neighbrhds as apprpriate fr lw-density t mderate-density residential. Many areas are intended t remain lw density residential, up t fur DUA. Over 51 percent f the plan area is zned single-family. 34 Charltte Zning Ordinance Apprach Reprt July 2013

39 Implementing Charltte s Plans and Plicies Area Plans Generally, the existing single-family districts appear t be suitable t accmmdate these areas in terms f land uses and densities. Design and Develpment Standards: Sme Steele Creek design issues, such as residential cmpatibility standards, are discussed abve fr ther area plans; thers are belw. Beynd the issues belw, many f the plan s gals relate t cnnectivity, which is addressed utside the Zning Ordinance. Clustered Develpment. One plan-specific gal is t encurage clustered develpment where apprpriate t prtect natural areas. The rdinance authrizes cluster develpment in all single-family residential districts except R-8 (thugh we heard cncerns abut the effectiveness f this incentive when applied in cnjunctin with the tree save requirements). Envirnmental Prtectin. Prtectin f the tree canpy, native plants, and ther envirnmental features is a key gal f the plan, especially fr areas near the Catawba River. The Zning Ordinance cntains limited tls t address these issues, such as strmwater drainage plans (Chapter 12, Part 6) and standards t prtect the stream water netwrk and adjacent lands (Chapter 12, Part 8). There are watershed verlay districts fr Catawba River/Lake Wylie and Lwer Lake Wylie. Hwever, beynd these tls, the Zning Ordinance generally des nt specifically define r encurage green site design. Charltte s separate Tree Ordinance addresses the planting f street trees, and the prtectin and replacement f existing trees. Charltte Zning Ordinance Apprach Reprt July

40 OTHER STRENGTHS AND WEAKNESSES OF THE ZONING ORDINANCE Our review and analysis, alng with the stakehlder meetings, identified several key bservatins abut the current Zning Ordinance that are either nt directly discussed in the plan implementatin sectin abve r wrthy f additinal nte. In particular, there is a general cnsensus that the current rganizatin and frmat f the dcument is nt user-friendly. Als, the rdinance lacks many best-practice zning tls that are fund in mdern cdes, especially thse necessary t bth prtect residential neighbrhds while at the same time encurage mre walkable urbanism in targeted areas. A. DOCUMENT ORGANIZATION AND FORMAT A user-friendly zning rdinance shuld be easy t use, rely n an intuitive and lgical rganizatin, and allws a reader t lcate their desired infrmatin quickly. User-friendly rdinances als use plain English, use precise language and standards, and prvide examples r illustratins f cmplex prvisins. They are rganized and presented in a lgical way that helps readers understand hw different pieces f infrmatin relate t ne anther. In Charltte, there is general agreement in the Staff Diagnstic Assessment, frm ur stakehlder meetings, and frm ur wn analysis that the current Zning Ordinance is nt a user-friendly dcument. Majr issues are identified belw. Suggested new appraches t imprve the rganizatin and frmat are discussed in the Apprach Reprt. 1. Dcument Organizatin The structure f the Zning Ordinance is nt lgical r intuitive. One fundamental prblem is that related prvisins appear in different chapters. Fr example, review prcedures can be fund in at least five places. Develpment standards appear in tw chapters as citywide standards, but als in many f the zning district regulatins. Similarly, the zning district regulatins are fund in Chapters 9, 10, and 11, but many use-specific standards and accessry use prvisins are fund with the develpment standards in Chapter 12. Definitins are lcated thrughut the rdinance and in sme instances there are cnflicts between different definitins. Sme terms used in the rdinance are nt defined. Given this current structure and rganizatin, in many instances it is necessary t turn between multiple chapters t determine what requirements apply t specific types f develpment. Many interviewees nted that imprtant infrmatin seems buried in the rdinance, at different levels, making it challenging t navigate and understand the dcument and t determine which requirements may be relevant t a particular applicatin. Charltte Zning Ordinance Apprach Reprt July

41 Other Strengths and Weaknesses f the Zning Ordinance Zning Districts 2. Illustratins and Graphics The current Zning Ordinance des nt take advantage f the many advances in graphic design and recent thinking abut develpment cde rganizatin and clear illustratin f zning cncepts. The dcument relies n text t cnvey mst zning cncepts, prcesses, and standards, and includes few illustratins and ther graphic aids like phtgraphs, flwcharts, and tables. The result is a bulky dcument that fails t visually cmmunicate the desired intentin behind varius standards. Fr example, the urban design standards fr the TOD, PED Overlay, and ther pedestrian-riented districts establish significant requirements fr distinguishing grund-level spaces and sidewalks, but that intent nly becmes clear after a clse, detailed reading whereas mre illustratins wuld immediately cnvey the intended physical envirnment thse standards are intended t create. 3. Dcument Frmatting Numerus users f the Zning Ordinance nted that the dcument frmatting makes it difficult t navigate and use. Fr example, the lack f sectin references n each page makes it challenging t determine where in the dcument a particular prvisin is lcated. ( I knw this is Part 5, but in which chapter? ) The lack f detail in the table f cntents als makes it challenging t understand the hierarchy f varius prvisins. Crss-referencing is limited. While there is an index f terms, it is incmplete. There is n glssary f abbreviatins. There als are n hyperlinks and the current rdinance is nt web-friendly. B. ZONING DISTRICTS The heart f mst zning rdinances is the menu f zning districts int which the cmmunity is divided, including the land uses allwed within thse districts and the dimensinal standards that regulate the basic physical aspects f new develpment in each district (height, setbacks, building placement, etc.). Charltte s Zning Ordinance establishes a ttal f 109 zning districts, including 32 general zning districts, 49 parallel cnditinal districts, 11 specialpurpse cnditinal districts, six cnditinal districts with ptinal prvisins, and 28 verlay zning districts. These districts, which are listed in the table n page 39, are rganized int the fllwing types: General (r base) districts are cnventinal zning districts that allw any f a range f designated land uses, subject t intensity and dimensinal standards specific t the district as well as t generally applicable standards. Under Nrth Carlina law, general districts may nt be apprved subject t cnditins; Cnditinal districts are a type f zning district apprved with individual, site-specific cnditins that mdify the standards generally applicable in the district. Cnditins are ffered by the prperty wner and mutually agreed t by the wner and the City. Sme f these districts impse Charltte Zning Ordinance Apprach Reprt July

42 Other Strengths and Weaknesses f the Zning Ordinance Zning Districts cnditins in all cases (e.g., NS and RE-3), while thers are general districts that may impse cnditins but d nt d s in all cases (e.g., B-1 (CD)). Cnditinal districts with ptinal prvisins are a frm f cnditinal districts unique t Charltte where the cnditins f apprval relax (rather than add t) therwise applicable district standards fr the district; and Overlay districts are special zning districts that impse requirements and standards in additin t thse generally applicable in the underlying zning district. Generally, the lineup f districts in Charltte appears functinal and capable f supprting a variety f develpment types and land use patterns, ranging frm higher-intensity, mixed-use urban prjects t lwer-intensity suburban cntexts. Hwever, there are many pprtunities fr imprvement, smetimes thrugh minr adjustments and smetimes thrugh substantial revisin. Sme key issues include: 1. Frmat and Organizatin f the Zning Districts In terms f frmat and rganizatin, the zning districts take up the bulk f the rdinance. They are presented in a traditinal (and cumbersme) frmat, with narrative district purpse statements fllwed by lists f permitted uses and dimensinal requirements (density, lt width, etc.). This lengthy frmat, which can run t dzens f pages fr just ne r tw districts, is repeated fr varius categries f base districts fr ver 300 pages f the dcument. Additinal chapters devted t verlay and cnditinal districts add many additinal pages. A variety f imprved, mdern appraches t laying ut district infrmatin have been applied and tested arund the cuntry. Fr example, ther cmmunities have intrduced mre extensive graphics shwing lt patterns and building types typical f the district, and illustratins f hw dimensinal standards apply t the principal develpment types allwed in the district. The vast majrity f cmmunities tday rganize all use lists (permitted, permitted with cnditins, accessry, temprary) in user-friendly tables that allw quick cmparisn amng districts. Similarly, the general dimensinal standards can be cnslidated int a single table fr each set f districts. 38 Charltte Zning Ordinance Apprach Reprt July 2013

43 Other Strengths and Weaknesses f the Zning Ordinance Zning Districts 2. Current Zning Districts General Districts Cnditinal Districts Overlay Districts Single-Family Districts Parallel Cnditinal Districts Histric Overlay District (ne district applied t six different neighbrhds) R-3 One cnditinal district parallel t each f Dilwrth R-4 the general districts (32 ttal) Furth Ward R-5 Mixed Use Cnditinal Districts Hermitage Curt R-6 MX-1 Plaza-Midwd R-8 MX-1 (INNOV) Wesley Heights Multi-Family Districts MX-2 Wilmre R-8 MF MX-2 (INNOV) Airprt Overlay Districts R-12 MF MX-3 Airprt Apprach Zne R-17 MF MX-3 (INNOV) Airprt Transitin Zne R-22 MF Other Cnditinal Districts Airprt Hrizntal Zne R-43 MF R-MH (Manufactured Husing) Airprt Cnical Zne Urban Residential Districts CC (Cmmercial Center) Airprt Nise Disclsure Overlay District UR-1 NS (Neighbrhd Services) UR-2 HW (Hazardus Waste) Manufactured Hme Overlay UR-3 RE-3 (Research) Watershed Overlay Districts UR-C Cnditinal Districts with Optinal Institutinal Districts Prvisins Muntain Island Lake Overlay District Institutinal INST MUDD-O (Mixed Use Develpment Critical Areas Office Districts Optinal) CA-1 Office-1 (O-1) UMUD-O (Uptwn Mixed Use - Optinal) CA-2 Office-2 (O-2) TOD-O (Transit Oriented Develpment CA-3 Office-3 (O-3) Optinal) CA-4 Business Districts RE-3-O (Research-3-Optinal) Prtected Areas B-1 (Neighbrhd Business) PED-O (Pedestrian Overlay-Optinal) PA-1 B-2 (General Business) TS-O (Transit Supprtive Overlay- Optinal) PA-2 B-D (Distributive Business) PA-3 BP (Business Park) Catawba River/Lake Wylie Watershed Overlay District Research Districts Critical Area Research-1 (RE-1) Prtected Area Research-2 (RE-2) Lwer Lake Wylie Watershed Overlay District Mixed Use Districts Critical Area Mixed Use Develpment (MUDD) Prtected Area Uptwn Mixed Use (UMUD) Special Sign Overlay Districts Transit Oriented Districts Histric Overlay District TOD-R (Residentially Oriented) TOD-E (Emplyment Oriented) TOD-M (Mixed-Use Oriented) Industrial Districts Neighbrhd Mixed Use Overlay District Billbard Free Overlay District Other Overlay Districts I-1 (Light Industrial) PED (Pedestrian Overlay) I-2 (General Industrial) TS (Transit Supprtive Overlay) UI (Urban Industrial) Charltte Zning Ordinance Apprach Reprt July

44 Other Strengths and Weaknesses f the Zning Ordinance Zning Districts 3. Ttal Number f Zning Districts The number f districts in the current Zning Ordinance is relatively high, even fr a city the size f Charltte. (Chicag nly has eight residential districts, fr example, versus Charltte s 14.) A frequent cmment in ur interviews, especially frm staff, is that the rdinance includes t many districts. The current districts have been added ver many years, resulting in a number f districts that seem t verlap in terms f their functin r purpse. Many f these amendments were initiated t address the pressing develpment needs f the City, as well as address simple peratinal and prcedural issues. The result is an rdinance that is a cmplex patchwrk quilt f mdern regulatry tls like mixed-use and TOD districts, mixed in with lder and in sme instances antiquated single use and suburban-riented districts that verlap in purpse and d nt always align with the City s land use gals and plicies. In sme cases, distinctins between similar districts may n lnger be significant (particularly where special cnditinal districts are similar t general districts r ther special cnditinal districts). Sme current districts are seldm (r never) used, and thus may be unneeded r bslete. Fr example, very little land is zned O-3 (CD), O-3, and MX-3, and n land is zned UI. If zning classificatins are nt being applied, it may be because there is n demand fr them r they d nt adequately accmmdate mdern develpment trends. T make the districts mre lgical and precise in purpse, mdern cdes pay special attentin t drafting specific purpse statements fr all districts (nt just the tp-level district categries), including the land use classificatins in lcal plans that the district generally is intended t implement. 4. Use Classificatin System While uses are identified in the current Zning Ordinance, their presentatin is nt lgically and cnsistently rganized and presented, creating uncertainty and the need fr interpretatin. Fr example, the current rdinance lists permitted uses fr each general district in tw lcatins: the master table f uses (Table 9.101), and in the narrative lists f uses permitted by right and permitted under prescribed cnditins that are lcated within each set f district regulatins. This duplicatin increases the ptential fr incnsistency as the table and lists are amended ver the years--smething that has begun t ccur in the Charltte Zning Ordinance. Further, sme use terms are nt defined r nt sufficiently distinguished frm similar but different uses, resulting in prpsals fr s-called hybrid uses that blur the bundaries between uses and subcategries, and which staff and cde users have difficulty assigning t ne categry versus anther. 40 Charltte Zning Ordinance Apprach Reprt July 2013

45 Other Strengths and Weaknesses f the Zning Ordinance Develpment Standards C. DEVELOPMENT STANDARDS 1. District-Specific Apprach t Develpment Quality While Charltte welcmes new develpment, interviewees and survey respndents stressed their desire fr high-quality prjects that will enhance the character f the cmmunity and create great new places while als prtecting the great places Charltte already has. The current Zning Ordinance has a fragmented apprach t develpment quality. Generally, site and building design issues are based n district, rather than n types f land uses r develpment. S, a new multi-family building in a multi-family district likely is subject t different standards than it wuld be in ne f the MX districts which may be intentinal, but als creates uncertainty fr a develper cntemplating a multi-family prject in Charltte. In sme f the new districts, such as the TOD districts and the PED Overlay, the standards are thughtful and rbust, reflective f Charltte s recent plans, and already have resulted in many high-quality prjects. Fr many f the lder districts (e.g., the multi-family districts), hwever, the standards are minimal and cver basic issues like height and setbacks but d nt address urban design r cmpatibility with the surrunding neighbrhd. In many cases, we heard that issues assciated with the district-based standards (e.g., standards t strict, standards nt strict enugh, standards absent fr particular issues) led applicants and/r staff t turn t MUDD r a type f cnditinal rezning t negtiate better slutins fr a particular site r prject. The district-based apprach t develpment quality als has smetimes made it harder t achieve mixed-use, pedestrian-friendly develpment using cnventinal districts. 2. Neighbrhd Prtectin One feature that sets Charltte apart frm many majr American cities is the quality f its neighbrhds, bth ld and new. Many f the lder, inner-ring, single-family neighbrhds are characterized by tree-lined streets and sidewalks that cnnect residents t nearby schls. There is general cnsensus that prtecting and maintaining the quality and character f Charltte s existing neighbrhds is key t maintaining the City s quality f life, and cnsequently shuld be an imprtant bjective in the Zning Ordinance. With that said, the preservatin and develpment f Charltte s neighbrhds during the City s majr develpment bm f the past decade has nt cme withut cnflict, especially regarding develpment prpsals at the edge f, r in the transitin areas between, single-family neighbrhds and the Crridrs and Centers. Smetimes the cnflict between ld and new can be especially jarring, such as when a massive new multi-family building is erected immediately adjacent t single-family backyards. As nted several times in the plan implementatin sectin abve, there are few measurable and predictable minimum standards in the current Zning Ordinance t ensure develpment lcated adjacent t single-family Charltte Zning Ordinance Apprach Reprt July