A VISION FOR

OUR FUTURE. IMAGINE LEXINGTON 2045

 THE MISSION OF IMAGINE LEXINGTON.
The 2023 Comprehensive Plan, Imagine Lexington 2045, seeks to provide

flexible yet focused planning guidance to ensure equitable development

of our community’s resources and infrastructure that enhances our

quality of life, and fosters regional planning and economic development.

This will be accomplished while protecting the environment, promoting

successful, accessible neighborhoods, promoting job growth

opportunities for all residents, and preserving the unique Bluegrass

landscape that has made Lexington-Fayette County the Horse Capital

of the World.

LFUCG DIVISION OF PLANNING

101 E VINE ST
LEXINGTON, KY 40507
IMAGINE@LEXINGTONKY.GOV

DIVISION OF PLANNING
CONTENTS.
EXECUTIVE SUMMARY. 7. THEME B. 85.
Why & How We Imagine 8 PROTECTING THE ENVIRONMENT.

Public Input Summary 12 Intro 88

COMMUNITY DEMOGRAPHICS 15 Where Are We Now 88

What’s In The Plan 29 VISION FOR ENVIRONMENT 95

GOALS & OBJECTIVES 31 Pillar I Protection 97

Themes And Policies 39 Pillar II Sustainability 108

Themes Pillars And Policies 47 Pillar III Restoration 119

THEME A. 49. THEME C. 129.

BUILDING AND SUSTAINING SUCCESSFUL NEIGHBORHOODS CREATING JOBS & PROSPERITY
Intro 52
Intro 132
Where Are We Now 53
Where Are We Now 133
VISION FOR NEIGHBORHOODS 55
VISION FOR PROSPERITY 137
Pillar I Design 57
Pillar I Livability 139
Pillar II Density 68
Pillar II Diversity 147
Pillar III Equity 73
Pillar III Prosperity 153

IMAGINE LEXINGTON 2045

THEME D. 165. THEME F. 251.
IMPROVING A DESIRABLE COMMUNITY IMPLEMENTATION

Intro 168 Implementation Table: Action Items 252

Where Are We Now 168

PLACEBUILDER. 261.
VISION FOR COMMUNITY 171
Placebuilder Table Of Contents 264
Pillar I Connectivity 173

Pillar II Placemaking 183 FULL LIST OF CRITERIA. 341.

Pillar III Support 198
APPENDICES.
THEME E. 211. Appendix A - Multi-Family Design Standards

URBAN AND RURAL BALANCE Appendix B - Public Input Report

Intro 212

Where Are We Now 216

VISION FOR BALANCE 219

Pillar I Accountability 221

Pillar II Stewardship 229

Pillar III Growth 238

DIVISION OF PLANNING
ACKNOWLEDGMENTS.
PLANNING STAFF TRANSPORTATION PLANNING Amanda Mays Bledsoe*
Chris Evilia, AICP, Manager Chuck Ellinger II
Jim Duncan, AICP, Director
Hannah Crepps Tayna Fogle
Sylvia Schmonsky
Joseph David Denise Gray
LONG RANGE PLANNING Kenzie Gleason Steve Kay*
(PRIMARY AUTHORS) Sam Hu David Kloiber*
Chris Taylor, Manager Stuart Kearns Susan Lamb*
Chris Woodall, Scott Thompson Shayla Lynch
AICP, Manager*
Debbie Woods Hannah LeGris
Hal Baillie, AICP
Josh McCurn*
Samantha Castro, AICP*
PLANNING COMMISSION Richard Moloney*
Rachael Lay
Ivy Barksdale Brenda Monarrez
Valerie Friedmann
Headley Bell* Liz Sheehan
Boyd Sewe
Zach Davis Kathy Plomin
SB Stroh
Anthony DeMovellan* Jennifer Reynolds
Emery Elkinson,
Larry Forester, Chair Dave Sevigny
Student Intern*
Janice Meyer
PLANNING SERVICES Keith Horn, Commissioner
Robin Michler
Traci Wade, AICP, Manager of Planning,
Bruce Nicol Preservation & PDR
Daniel Crum, AICP
Mike Owens
Stephanie Cunningham
Frank Penn* Kevin Adkins, Chief
Cheryl Gallt Development Officer
Graham Pohl
Autumn Midyett Goderwis
William Wilson
Meghan Jennings *Denotes former staff/
Judy Worth
Donna Lewis Planning Commission/ Urban
County Council members
Tom Martin, AICP URBAN COUNTY COUNCIL
Paula Schumacher
Linda Gorton, Mayor PHOTO CREDITS
Bill Sheehy
Whitney Elliot Baxter
All photos courtesy of LFUCG
Fred Brown except where noted.
James Brown
 EXECUTIVE SUMMARY

8 | EXECUTIVE SUMMARY IMAGINE LEXINGTON 2045

 WHY & HOW WE IMAGINE.
Lexington is a growing, vibrant city, a city with an iconic identity worth preserving, and vast potential to extend
that quality of life to newcomers and visitors alike. Imagine Lexington 2045, created after two years of study,
deliberation, and public input, creates a path forward for the next 20 years to unlock that potential. This is a plan
designed for Lexington by the people of Lexington and is an ambitious yet attainable vision for what the future
could hold. There is, without question, an inspired forward momentum in Lexington. It is reflected in the projects
underway and a collaborative spirit that seeks to accommodate the inevitable growth that comes from Lexington’s
desirability, while preserving the Bluegrass identity that creates it.

Comprehensive Plans are required by state law for those engaging in the practice of zoning, guiding land use
decisions, instructing policy and ordinance changes, as well as informing community facility development.
Therefore, Imagine Lexington directly impacts the everyday lives of Lexingtonians, touching each of the vital
components of the community, and laying out a road map for all of them to work together in concert.

This plan has been made possible by the rich and progressive planning history that came before it. In 1931,
Lexington developed its first comprehensive plan, only a few short years after the 1925 adoption of the nation’s
first comprehensive plan, for Cincinnati, Ohio. Since that time, each Comprehensive Plan has been setting the
stage for future urban growth and development, each building from the last, retaining what is working, discarding
the outdated and unsuccessful, and applying new industry standards.

In that vein, Imagine Lexington 2045 is an extension of the 2013 Comprehensive Plan and an update to the 2018
Comprehensive Plan. It includes many of the same emphases, and most importantly, carrying over the practice
of a “policy-based plan.” In 2013, the Planning Commission decided to move away from predetermining the future
land uses of all properties in Lexington on a map in favor of a more robust and flexible approach to land use. In
2018, Imagine Lexington refined this approach, realizing that placemaking, context, and site layout are much more
important in modern times than individual land uses. The Placebuilder element ensures that new developments
create desirable and intentional places, while enhancing existing neighborhoods.

KEY RECOMMENDATIONS.
URBAN SERVICE BOUNDARY PAST, PRESENT, FUTURE.

Lexington’s progressive planning history extends beyond the first comprehensive plan in 1931. The first urban
service area in the nation was established in this city in 1958. This mechanism, more than any other, has helped
shape Lexington’s physical development by directing growth in a fiscally responsible development pattern toward
the city center. The wonderful result has been the preservation of Lexington’s Bluegrass identity as the Horse
Capital of the World, by restricting growth in the rural area. Agriculture

DIVISION OF PLANNING EXECUTIVE SUMMARY | 9

HISTORY OF LEXINGTON’S URBAN SERVICE AREA.

2023

10 | EXECUTIVE SUMMARY IMAGINE LEXINGTON 2045

 hold. There is, without question, an inspired forward momentum in Lexington.
It is reflected in the projects underway and a collaborative spirit that seeks to
accommodate the inevitable growth that comes from Lexington’s desirability,
while preserving the Bluegrass identity that creates it.

Comprehensive Plans are required by state law for those engaging in the
practice of zoning, guiding land use decisions, instructing policy and ordinance
changes, as well as informing community facility development. Therefore,
Imagine Lexington directly impacts the everyday lives of Lexingtonians,
touching each of the vital components of the community, and laying out a road
map for all of them to work together in concert.

This plan has been made possible by the rich and progressive planning history
that came before it. In 1931, Lexington developed its first comprehensive
plan, only a few short years after the 1925 adoption of the nation’s first
comprehensive plan, for Cincinnati, Ohio. Since that time, each Comprehensive
Plan has been setting the stage for future urban growth and development,
each building from the last, retaining what is working, discarding the outdated
and unsuccessful, and applying new industry standards.

In that vein, Imagine Lexington 2045 is an extension of the 2013 Comprehensive

Plan and an update to the 2018 Comprehensive Plan. It includes many of the
same emphases, and most importantly, carrying over the practice of a “policy-
based plan.” In 2013, the Planning Commission decided to move away from
predetermining the future land uses of all properties in Lexington on a map
in favor of a more robust and flexible approach to land use. In 2018, Imagine
Lexington refined this approach, realizing that placemaking, context, and site
layout are much more important in modern times than individual land uses.
The Placebuilder element ensures that new developments create desirable
and intentional places, while enhancing existing neighborhoods.

KEY RECOMMENDATIONS.
URBAN SERVICE BOUNDARY PAST, PRESENT, FUTURE.

Lexington’s progressive planning history extends beyond the first

comprehensive plan in 1931. The first urban service area in the nation was
Lexington is a growing, vibrant city, a city with an iconic identity worth established in this city in 1958. This mechanism, more than any other, has
preserving, and vast potential to extend that quality of life to newcomers helped shape Lexington’s physical development by directing growth in a
and visitors alike. Imagine Lexington 2045, created after two years of study, fiscally responsible development pattern toward the city center. The wonderful
deliberation, and public input, creates a path forward for the next 20 years to result has been the preservation of Lexington’s Bluegrass identity as the
unlock that potential. This is a plan designed for Lexington by the people of Horse Capital of the World, by restricting growth in the rural area. Agriculture
Lexington and is an ambitious yet attainable vision for what the future could continues to be an important part of the economy through production and job

DIVISION OF PLANNING EXECUTIVE SUMMARY | 11

creation, but also for the tourism industry. All of this is the byproduct of an However, those who often benefited the most from these visions were those
intentional effort to manage growth through sustainable methods. who already had the most. A preference to the protection or elevation of White
and wealthy populations has long been a constant in the field of planning
Throughout the years, the Urban Service Area has undergone many evolutions, throughout the United States and Lexington is no different.
expanding and contracting, but for over 25 years the area has remained
static. The Urban County Council’s adoption of the Goals and Objectives for Redlining of communities, and active / passive displacement of poor and
Imagine Lexington 2045 in June of 2023 set into motion the next iteration of minority communities, have all occurred in Lexington since the earliest
Lexington’s Urban Service Area. Using a deliberative master planning process days of urban planning. These actions which were the basis of some of
throughout 2023 and 2024, a vision for the City’s next 20 years of growth the policies in Lexington’s earliest Comprehensive Plans through the early
will be charted. An advisory committee will prepare a recommendation 2000s were then legislated and codified in the City’s Zoning Ordinance.
to the Planning Commission for the inclusion of additional acreage that These regulations not only separated people, they often barred entry into
addresses the criteria established by the Urban County Council in Theme E, neighborhoods, access to better schools, proximity to healthy food, and
Goal 3. The Planning Commission will direct staff to prepare a master plan more. Through these measures of segregation, the City also regulated out
for infrastructure, community facilities, and new land uses to accommodate the type of development that members of the community now seek. Walkable
growth for decades to come. Theme E, Goal, 3 Objective C specifies that this and mixed-use neighborhoods, many built prior to Lexington’s adoption of the
effort be concluded by December 1, 2024. Zoning Ordinance, were replaced with a sprawling design, which preferences
vehicular movement and does not fully realize the potential of the land.
However, there will be additional opportunities to redefine how future Urban
Service Area expansions occur, including requirements that any expansion While the 2018 Comprehensive Plan laid some of the groundwork for more
meets specific community goals based on the primary tenants of the equitable planning within Lexington, this update seeks to expand upon
Comprehensive Plan. In 2018, Theme E, Accountability Policy #1 called for the those principles and incorporates the incredible work being done by other
creation of a new process for determining long-term decisions involving the organizations and commissions. Imagine Lexington 2045 seeks to build upon
Urban Service Boundary and Rural Activity Centers. This vital policy remains the Mayor’s Commission for Racial Justice and Equality, by recommending a
a critical initiative for Imagine Lexington 2045. Rethinking the way Lexington critical evaluation of regulations and policies that have resulted in inequitable
evaluates growth management will continue to be a monumental task, but distribution of goods and services and making changes where possible.
one that is necessary to promote sustainable and equitable growth as land The plan acknowledges the government’s need to work with historically
within the Urban Service Area becomes more limited. While the 1958 creation marginalized populations to better understand how planning affects everyday
of the Urban Service Area was a high point in Lexington’s planning history, life and illuminate instances where the tools of planning are being utilized to
other communities have shown how to ensure growth boundaries remain segregate, disparage, or privilege. Finally, Imagine Lexington 2045 seeks to
progressive tools that continue to meet evolving needs in today’s world. do its part to create a more equitable balance within Lexington, from which
Lexington must ensure that the Urban Service Area concept remains at the people are able to live a safe, prosperous, and healthy life, regardless of their
forefront of progressive national planning policy by modernizing how and why age, race, sex, gender, sexuality, or income.
land is considered for future development.

PLANNING FOR SUSTAINABLE GROW TH, CLIMATE CHANGE, AND

EQUIT Y: ADDRESSING THE PAST, REFORM FOR THE FUTURE. ENVIRONMENTAL RESILIENCY.

While the underlying principle of urban planning, to enhance a community’s Addressing sustainability in a comprehensive plan is essential for creating
physical, social, and fiscal wellbeing, is still the primary drive of the field, it a balanced and resilient community that can adapt to future challenges
is important to understand who has historically been planned for and who while ensuring the well-being of its residents and the environment. While
was often disregarded. Policies shaped by urban planning like the allocation urban development historically focused on improving community welfare
of resources, the placement of roads, the establishment of parks, and the in physical, social, and financial dimensions, it’s now equally imperative to
upgrading of infrastructure are common throughout comprehensive plans. understand and address the emerging environmental challenges brought

12 | EXECUTIVE SUMMARY IMAGINE LEXINGTON 2045

 PUBLIC INPUT SUMMARY
about by climate change. Land-use planning, transportation networks, and Imagine Lexington 2045 received public comment from over 4,000
infrastructure improvements need to consider changing climate dynamics. contributors from all walks of life. Over the course of the last two years, a
Planning strategies must shift to include safeguarding the environment concerted effort was made to involve as many people as possible through
and planning for climate resilience, especially considering the increased new innovative strategies, and the result was an unprecedented response
frequency of extreme weather events Lexington is beginning to witness, and from the community. The philosophy is simple – the more input received, the
to recognize our connection to other places across Kentucky, including the higher the quality of the end product. Planning staff, Planning Commission,
Eastern regions that experienced devastating floods in July 2022. and Council heard from individuals, and representatives of community
organizations throughout the development of the Comprehensive Plan, and
Similar to the topic of equity described above, the 2018 Comprehensive incorporated the feedback at every stage of its update. The final product is
Plan created a framework for comprehensive environmental protection reflective of the broad community interests and, though not every individual
policies. The Imagine Lexington 2045 update proposes a more transformative request could be incorporated, it is a far better plan for the input received.
approach to urban planning in Lexington, incorporating the lessons learned
from changing climate patterns and building on the efforts of various
organizations and agencies working in this realm. This plan calls for a critical PHASE I – GOALS & OBJECTIVES
examination and modification of policies and regulations that contribute to
environmental degradation and exacerbate climate change impacts. The On the Table 2017 was an incredible success for the 2018 Comprehensive Plan,
plan also acknowledges the need to engage with communities that are moving participation in the planning process from hundreds to thousands.
disproportionately affected by climate change to develop insights into the For Imagine Lexington 2045, On the Table was incorporated yet again, but
day-to-day repercussions of climate change, identifying areas where urban this time with a new collaborative partner in CivicLex and was more targeted
planning tools might be inadvertently promoting environmental injustice or on receiving input from the community regarding the Comprehensive Plan.
vulnerability. The results were a wealth of information that will persist well beyond the
life of this planning process. The information gathered will provide civic
To forge a path to a more sustainable and resilient Lexington, Imagine groups, researchers, and interested organizations with exhaustive data that
Lexington 2045 articulates a dual-faceted strategy: reducing greenhouse gas is customizable to answer a wide variety of questions about community
emissions through compact, walkable development patterns and adapting preferences for Lexington’s future.
to the unavoidable impacts of climate change through the development of
resilient infrastructures and policies. In line with the federal vision of achieving In addition to On the Table, Commerce Lexington solicited the opinions of
net-zero greenhouse gas emissions by 2050, Lexington, in collaboration the business community in Lexington through an intentional focus group
with surrounding counties, will develop a federally funded Climate Pollution process. This process provided staff the ability to hear directly from business
Reduction Plan over the next four years. This ambitious plan will seek not leaders in the community. Staff not only heard from businesses, but through
only to pinpoint and reduce significant sources of greenhouse gas emissions an outreach to civic organizations, heard from ten different groups that focus
but also to explore avenues for carbon capture and sequestration. on the environment, neighborhoods, renters, smart growth, and other topics.
Additionally, input was received from internal Divisions within the LFUCG as
By synergizing efforts with ongoing city initiatives like urban tree canopy well, as they were asked to lend their expertise to our future growth strategy.
expansion, rural greenspace conservation, and promoting compact, walkable
infill development, this plan seeks to fortify Lexington’s resilience against the In addition to the individual public input, the Planning Staff solicited input from
adverse impacts of climate change. The objective is to foster a community any community organization willing to give it. Over 60+ timeslots, bookable
where every individual, irrespective of their background, can thrive in a safe, online, were made available to any community-minded organization willing
prosperous, and healthy environment amid the changing climate dynamics, to take the time to present their ideas or concerns. Ten organizations came
setting a precedent for sustainable urban development for generations to forward and offered information to staff.
come.
All the public input from these mechanisms, and a handful of other small public
input offerings in 2022 and early 2023 were synthesized into a full Public Input

DIVISION OF PLANNING EXECUTIVE SUMMARY | 13

Report, which is available in Appendix (TBD). The Planning Commission and
Council considered this input as they deliberated and reviewed it along with
the other data and information presented to them throughout the process.
At the conclusion, a public hearing was held by the Planning Commission
on February 16, 2023 with a final vote on February 23, 2023 approving the
Goals & Objectives. These Goals & Objectives were further amended through
a Council Committee of the Whole process in May and June of 2023, resulting
in a public hearing on May 9, 2023. The Goals & Objectives in this Imagine
Lexington were fully adopted by the Council on June 15, 2023.

PHASE II – ELEMENTS & PLACEBUILDER

The second half of the Imagine Lexington 2045 process included additional
opportunities for public engagement, including offering scheduled availability
for one-on-one engagement with Planning staff to discuss the draft plan in
depth. Lexington residents and organizations took advantage and engaged
in thorough discussions and gave substantive feedback. Also, a public input
survey was developed and publicized through a robust traditional and social
media campaign. Additionally, Planning solicited targeted feedback from
members of the development community on updates to The Placebuilder, as
well as numerous boards and commissions to provide their expertise. The
Greenspace Trust, The Mayor’s Commission on Racial Justice and Equality,
Tree Board, and others all contributed valuable feedback on the updated
policies in Imagine Lexington 2045’s focused areas of change.

On August 30, a culminating public input open house was held at the Lexington
Senior Center. The event was well attended by the public, as well as local
news media. All the information from throughout the entire process and
public input surveys were available at this event. This provided the backdrop
for fascinating and enlightening conversations between staff and attendees.
Though the number of participants was counted in the hundred and not
thousands for Phase II, there were still many meaningful interactions that led
to the modifications of various policies within the draft plan. A public hearing
was held on November 30, 2023 and the Planning Commission voted to adopt
Imagine Lexington 2045 as the visionary growth plan for the next 20 years.

14 | EXECUTIVE SUMMARY IMAGINE LEXINGTON 2045

COMMUNITY
DEMOGRAPHICS

16 | COMMUNITY DEMOGRAPHICS IMAGINE LEXINGTON 2045

 SOURCES.
COMMUNIT Y SNAPSHOT HOUSEHOLD ECONOMICS
Population Growth (2022) Housing Costs as % of Income (2020)
Age Range (2021) Median Home Price/Median Rent (2023)
Racial Composition (2021) Vehicle Ownership (2021)
Renter Vs. Owner (2021) Household with Broadband Internet Access
Household Size (2021) (2023)

SUSTAINABILIT Y + CLIMATE VEHICULAR SAFET Y

Temperatures (2000-2022) Fatal Motor Vehicle Crashes Per Year (2017-

2021)
Air Quality (2020)
Fatal Motor Vehicle Crashes Per Year
Nature Score (2020) (Locations) (2017-2021)
Precipitation Risk (2022) Pedestrians Involved in Fatal Crashes (2017-
2021)
EQUIT Y
Non-White Communities (2010) PUBLIC HEALTH
Individuals with Disabilities (2021) Life Expectancy (2023)
HRC Municipality Index Score (2022) Care Ratios (2023)
AARP Livability Index (2022) Facilities (2023)
Income Disparities (2022)
EDUCATION
Food Insecurity
Graduation Rate (2023)
URBAN SERVICE AREA Test Score (2023)
USB School Segregation Index (2023)

RURAL SERVICE AREA

RSA

LABOR
Workers Commute (2020)
Unemployment Rate (2010-2023)
Transportation to Work (2020)
Household Incomes (2020)

DIVISION OF PLANNING COMMUNITY DEMOGRAPHICS | 17

18 | COMMUNITY DEMOGRAPHICS IMAGINE LEXINGTON 2045
 T
F
A
R
D

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 T
F
A
R
D

20 | COMMUNITY DEMOGRAPHICS IMAGINE LEXINGTON 2045

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 T
F
A
R
D

https://imaginelexington.com/ugm

22 | COMMUNITY DEMOGRAPHICS IMAGINE LEXINGTON 2045

 https://imaginelexington.
com/sfa-map

DIVISION OF PLANNING COMMUNITY DEMOGRAPHICS | 23

24 | COMMUNITY DEMOGRAPHICS IMAGINE LEXINGTON 2045
 T
F
A
R
D

DIVISION OF PLANNING COMMUNITY DEMOGRAPHICS | 25

26 | COMMUNITY DEMOGRAPHICS IMAGINE LEXINGTON 2045
DIVISION OF PLANNING COMMUNITY DEMOGRAPHICS | 27
28 | COMMUNITY DEMOGRAPHICS IMAGINE LEXINGTON 2045
 Your Plan. Your City.
2022
Nov (2021) – March March 17 April 10-16 May 19 June 30 July - Dec
Mar (2022) Collected Input
from Boards and
Current Data and
Trends Research
On the Table Public
Input Event
Presented On the
Table Data and
Presented Draft
Goals and Objectives
Continued work on
Draft Goals and
Planning for On the Organizations Presented to Public Input Draft to Planning Objectives & Theme
Table Public Input Planning Commission Report to Planning Commission Research
Event Commission

2023
June 15 May 18 April 20 Feb 23 Feb 16 Jan 19
Urban County Proposed Content for Proposed Content for Planning Commission Planning Commission Draft Goals and
Council adopts final Theme B Discussed Theme C Discussed recommends Public Hearing on Objectives Update
Goals and with Planning with Planning approval of Goals and Goals and Objectives Presented to
Objectives Commission Commission Objectives and Planning Commission
forwards to Urban
County Council

2 045 CO M P R E HE N S I VE P L A N
Adopted on 00 of Month 2023

June 15 June 29 July 20 Aug 17 Aug 30 Sept 21 Nov

Proposed Content for Proposed Content for Proposed Content for Full Draft of Imagine Imagine Lexington Imagine Lexington Planning Commission
Theme D Discussed Theme A Discussed Theme E Discussed Lexington 2045 2045 Public Input 2045 Public Input Public Hearing And
with Planning with Planning with Planning Presented to Event at Lexington discussed with Adoption of Imagine
Commission Commission Commission Planning Commission Senior Center Planning Commission Lexington 2045

DIVISION OF PLANNING COMMUNITY DEMOGRAPHICS | 29

WHAT’S IN THE PLAN?

30 | EXECUTIVE SUMMARY IMAGINE LEXINGTON 2045

 WELL - PLANNED CITIES DO NOT GOALS & OBJECTIVES.
HAPPEN BY ACCIDENT.
Informed by Lexington residents, the Goals & Objectives are the backbone of Imagine Lexington 2045, its themes,
An intentional process called and the resulting policies. Their key purpose is to ensure that the urban growth boundary and other Long Range
comprehensive planning ensures Planning issues address needs for new urban development and contribute to the property of Lexington.
that entire community is served by
equitable growth. Comprehensive ELEMENTS & IMPLEMENTATION.
planning relies heavily on public input
- communities should determine how The Elements are the strategy that provides a means to accomplish the Goals & Objectives. State law requires a
they want to grow. comprehensive plan to address land use, transportation, and community facilities at a minimum, but Lexington has
historically taken the opportunity to address housing, environmental considerations, historic preservation issues,
and many other facets of the community. These elements are structured within cross-cutting “THEMES” that reflect
WE WANT TO KNOW HOW YOU the true nature of how the community operates and interacts. Each theme also has “PILLARS” which provide
organization and emphasis within each theme. Within the pillars are “POLICIES” that provide explicit direction
IMAGINE LEXINGTON.
in either an internally or externally focused way. Specific internally focused implementation items derived from
We challenge you to get involved in the these policies are “ACTION ITEMS” that serve as a work program for Planning Staff. Externally focused policies
planning process. Start by becoming are concentrated into criteria for proposed development that are housed within “THE PLACEBUILDER”.
familiar with our 2045 Comprehensive
Plan, Imagine Lexington, and then THEMES, PILLARS, & POLICIES.
share your thoughts at public input
opportunities. Imagine Lexington’s five themes stem directly from the Goals & Objectives. Each theme focuses on a specific topic
that is relevant to the long-term success and vitality of Lexington as it continues to grow. Branching from each
theme is a set of three pillars, which categorize a robust set of policies that guide future community development
READY TO GET STARTED? initiatives.

Imagine Lexington is available for THE PLACEBUILDER.

download or Online browsing at
www.imaginelexington.com The Placebuilder is a tool for reviewing development proposals for agreement with the Comprehensive Plan. It is
a visual guidebook that provides actionable development criteria derived directly from Imagine Lexington themes
and policies. The Placebuilder was designed to encourage dialog between development applicants, communities,
GET IN TOUCH Planning staff, the Planning Commission, and the Urban County Council

IMAGINE @ LEXINGTONKY.GOV

@IMAGINELEXINGTON

@IMAGINE_LEX

DIVISION OF PLANNING EXECUTIVE SUMMARY | 31

GOALS & OBJECTIVES.
ADOP TED BY URBAN COUNT Y COUNCIL JUNE 15, 2023.
THEME A
PREAMBLE
GROWING SUCCESSFUL
NEIGHBORHOODS To ensure that long range planning policies and other urban growth boundary issues address the expected
needs for new urban development and equitably contribute to the health and prosperity of Lexington-Fayette
County, these Goals and Objectives have been drafted based upon an evaluation of existing conditions, robust
public input, examination of land use planning best practices, review of current local plans and documents,
and the projected community needs for the future. While these Goals and Objectives look forward to 2045,
they will continue to be reviewed and revised as necessary on the five-year review cycle mandated by state
THEME B statute. Anytime in the interim, the Planning Commission may recommend that Council amend the Goals and
PROTECTING THE Objectives, and any recommendation shall be presented for consideration, amendment, and adoption by the
ENVIRONMENT Council.

THEME A: GROWING & SUSTAINING SUCCESSFUL NEIGHBORHOODS.

THEME C GOAL 1: EXPAND HOUSING CHOICES.

CREATING JOBS
& PROSPERITY OBJECTIVES:
a. Pursue incentives and regulatory approaches that encourage creativity, energy efficiency, and
sustainability in housing development.

b. Accommodate the demand for housing in Lexington responsibly, prioritizing higher-density and mixture of
housing types.
THEME D
IMPROVING A c. Plan for safe, affordable and accessible housing to meet the needs of Lexington’s aging population and
DESIRABLE COMMUNITY residents with disabilities.

d. Create and implement housing incentives that strengthen the opportunities for higher-density and housing
affordability.

e. Improve access to stable long-term housing for those experiencing homelessness.

THEME E
URBAN & f. Explore opportunities for unused and underused publicly owned land to be developed for affordable
RURAL BALANCE housing developments.

GOAL 2: SUPPORT INFILL AND REDEVELOPMENT THROUGHOUT THE URBAN SERVICE AREA AS A
STRATEGIC COMPONENT OF GROW TH.

OBJECTIVES:
THEME F
a. Identify areas of opportunity for infill, redevelopment, adaptive reuse, and mixed-use development.
IMPLEMENTING THE
PLAN

GOALS & OBJECTIVES | 33

b. Respect the context and design features of areas surrounding b. Plan for equitable and accessible social services and healthcare
development projects and develop design standards and guidelines to facilities that address the needs of all residents, maximizing the
ensure compatibility with existing urban form. opportunity to reach geographically underserved areas throughout the
community.
c. Incorporate adequate greenspace and open space into all development
projects, which serve the needs of the intended population. c. Establish and promote road network connections to reduce police, EMS,
and fire response times and improve efficiency and operations of city
d. Encourage infill and redevelopment through the creation and services.
implementation of innovative programs such as the Lexington
Infrastructure Fund, regulatory changes, development incentives, GOAL 5: ENSURE EQUITABLE DEVELOPMENT AND RECTIFY
optional off-site mitigation funds, and other methods. LEXINGTON’S SEGREGATION BY RACE AND SOCIOECONOMIC STATUS
CAUSED BY HISTORIC PLANNING PRACTICES AND POLICIES.
e. Create materials about the Comprehensive Plan and do outreach to
educate the public about infill and redevelopment. OBJECTIVES:

GOAL 3: PROVIDE WELL - DESIGNED NEIGHBORHOODS AND COMMUNITIES. a. Take an actively anti-racist approach to land use policy, with the
purpose of integrated, walkable, transit accessible neighborhoods for
OBJECTIVES: all residents.
a. Enable existing and new neighborhoods to flourish through improved b. Protect existing housing affordability for all and expand low- and
regulation, expanded opportunities for neighborhood character middle-income housing across the city.
preservation, and public commitment to expand options for mixed-use
and mixed-type housing throughout Lexington-Fayette County. c. Ensure that public infrastructure investment in vulnerable areas
provides benefits to that community and actively avoids, minimizes,
b. Strive for positive and safe social interactions in neighborhoods, or mitigates the disparate impact and displacement of vulnerable
including, but not limited to, neighborhoods that are connected for populations.
pedestrians and various modes of transportation.
d. Develop new enforcement and housing programs and revise existing
c. Minimize disruption of natural features when building new communities. policies to prioritize the health, wellbeing, and protection of at-risk
homeowners and renters.
d. Encourage the use of neighborhood-enhancing elements, such as
green infrastructure, street trees, neighborhood-serving businesses, e. Implement and develop innovative programs, such as land banks, the
gathering spaces and other types of community focal points. Affordable Housing Fund, community land trusts, or other methods to
subsidize affordable housing.
e. Improve Lexington’s transportation network through ample street and
sidewalk connections between new and existing development. f. Update zoning regulations to allow for greater density, supply, and
affordability.
GOAL 4: ADDRESS COMMUNIT Y FACILITIES AT A NEIGHBORHOOD
SCALE. g. Provide an ongoing and contextualized educational curriculum on
historical planning practices and policies, acknowledging their impact
OBJECTIVES:
on marginalized neighborhoods in Lexington.
a. Incorporate schools, libraries, parks, greenways, and other community-
focused educational and recreational facilities into neighborhoods in
order to maximize safe routes for all pedestrians and bicyclists.

34 | GOALS & OBJECTIVES IMAGINE LEXINGTON 2045

THEME B: PROTECTING THE ENVIRONMENT. c. Develop incentives and update regulations for green building,
sustainable development, and transit-oriented development with civic
agencies leading by example.
GOAL 1: PROTECT WATER RESOURCES BY IMPROVING URBAN
STORMWATER AND SANITARY SEWER INFRASTRUCTURE. d. Prioritize multi-modal options that de-emphasize single-occupancy
vehicle dependence.
OBJECTIVES:
GOAL 3: APPLY ENVIRONMENTALLY SUSTAINABLE PRACTICES TO
a. Continue to implement sanitary sewer Consent Decree programs PROTECT, CONSERVE AND RESTORE LANDSCAPES AND NATURAL
(remedial measures, capacity assurance, management, operation and RESOURCES.
maintenance).
OBJECTIVES:
b. Protect and improve water quality through the development of cost- a. Support the funding, planning and management of a green infrastructure
sharing and grant programs to assist homeowners, neighborhoods, and program.
developers.
b. Identify and protect natural resources and landscapes before
c. Retrofit stormwater infrastructure to improve water quantity and quality development occurs.
concerns.
c. Incorporate environmental equity and green infrastructure principles in
d. Continue to develop protections for watersheds, including installation of new plans and policies.
elements to improve and protect water quality, reforesting appropriate
areas, and improving aesthetic and educational experiences. d. Coordinate intragovernmental planning, funding, programs and activities
across LFUCG departments and divisions; ensuring that all planning
e. Provide an ongoing educational curriculum that focuses on sustainable and operational activities that impact the protection, conservation
planning, development, and at-home behaviors to help build a culture and restoration of landscapes, natural resources, and our natural
focused on creating a more resilient, equitable, and livable future for all. environment are aligned and complementary.
f. Ensure stormwater and sanitary sewer infrastructure is placed in the e. Incentivize green infrastructure practices in the design of new
most efficient and effective location to serve its intended purpose. development.
GOAL 2: IDENTIFY AND MITIGATE LOCAL IMPACTS OF CLIMATE CHANGE f. Promote, maintain, and expand the urban forest throughout Lexington.
BY TRACKING AND REDUCING LEXINGTON - FAYET TE COUNT Y’S CARBON
FOOTPRINT AND GREENHOUSE GAS EMISSIONS, AND COMMIT TO
COMMUNIT Y - WIDE NET ZERO GREENHOUSE GAS EMISSIONS BY THE
THEME C: CREATING JOBS & PROSPERIT Y.
YEAR 2050.

OBJECTIVES:
GOAL 1: SUPPORT AND SHOWCASE LOCAL ASSETS TO FURTHER THE
a. Continue programs and initiatives to track and improve energy efficiency CREATION OF A VARIET Y OF JOBS.
and reduce greenhouse gasses, and prioritize reducing, reusing, and
recycling. OBJECTIVES:
a. Strengthen efforts to develop a variety of job opportunities that support a
b. Identify and assess potential climate change local impacts, including but
living wage and lead to prosperity for all.
not limited to, temperature, precipitation, extreme weather, agriculture,
and human health. b. Strengthen regulations and policies that propel the agricultural economy,

DIVISION OF PLANNING GOALS & OBJECTIVES | 35

 including, but not limited to, local food production and distribution, in employment sectors that provide upward mobility and prosperity for
agritourism and the equine industry that showcase Lexington-Fayette all and prioritizes identifying land opportunities for job creation and
County as the Horse Capital of the World. housing needs.

c. Collaborate with institutions of higher learning to foster a capable and GOAL 3: IDENTIFY AND UPDATE LAND USE POLICIES AND REGULATIONS
skilled work force while engaging agencies that address the lack of TO IMPROVE ECONOMIC MOBILIT Y AND RELATED SOCIOECONOMIC
prosperity for residents by reducing joblessness. AND HEALTH ISSUES.

d. Encourage development that promotes and enhances tourism. OBJECTIVES:

e. Encourage developers of government-funded or subsidized projects to a. Create and implement mechanisms for low, moderate, and middle
employ residents in the vicinity. income residents to access affordable and equitable home financing
options for those who desire to own a home.
GOAL 2: AT TRACT A WIDE ARRAY OF EMPLOYMENT OPPORTUNITIES
THAT ENCOURAGE AN ENTREPRENEURIAL SPIRIT, AND ENHANCE OUR b. Collaborate with developers, commercial entities, and non-profits to
ABILIT Y TO RECRUIT AND RETAIN A TALENTED, CREATIVE WORKFORCE ensure food security, providing residents access to affordable and
BY ESTABLISHING OPPORTUNITIES THAT EMBRACE DIVERSIT Y, EQUIT Y, nutritious food.
AND INCLUSION IN OUR COMMUNIT Y. c. Create a central coordinating function for all social services in the
OBJECTIVES: county, including non-profit, faith-based, and governmental services.

a. Prioritize the success and growth of strategically-targeted employment GOAL 4: IDENTIFY, PROVIDE AND SUSTAIN READILY AVAILABLE
sectors (healthcare, education, high-tech, advanced manufacturing, PUBLICLY - CONTROLLED ECONOMIC DEVELOPMENT LAND TO MEET
agribusiness, agritourism, and the like), and enable infill and FAYET TE COUNT Y’S NEED FOR JOBS, AMENDING THE COMPREHENSIVE
redevelopment that creates jobs where people live. PLAN AS NECESSARY TO ENSURE IT REMAINS AN UP - TO - DATE &
WORKABLE FRAMEWORK FOR ECONOMIC DEVELOPMENT.
b. Improve opportunities for small business development through
the encouragement of incubator spaces, home-based businesses,
shared work opportunities, and government-led programs to educate THEME D: IMPROVING A DESIRABLE COMMUNITY.
entrepreneurs, particularly for people of color and underserved
communities.
GOAL 1: WORK TO ACHIEVE AN EFFECTIVE, EQUITABLE, AND
c. Review and improve regulations and policies that attract and retain high
COMPREHENSIVE TRANSPORTATION SYSTEM.
paying jobs through close collaboration with agencies that focus on
economic development. OBJECTIVES:
d. Provide entertainment and other quality of life opportunities that attract a. Implement the Complete Streets policy, prioritizing a pedestrian-first
and retain young, and culturally diverse professionals, and a work force design that also accommodates the needs of bicycle, transit and other
of all ages and talents to Lexington. vehicles.

e. Encourage minority businesses to locate in areas that have experienced b. Expand the network of accessible transportation options for residents
displacement and gentrification by creating incentives and removing and commuters, which may include the use of mass transit, bicycles,
barriers to entry. walkways, ride-sharing, greenways and other strategies.

f. Encourage land development that attracts, expands, and retains jobs c. Concentrate efforts to enhance mass transit along our corridors in

36 | GOALS & OBJECTIVES IMAGINE LEXINGTON 2045

 order to facilitate better service for our growing population, as well as c. Develop incentives to retain, restore, preserve and continue use of
efficiencies in our transit system. historic resources such as historic sites, rural settlements and urban
and rural neighborhoods.
d. Improve traffic operation strategies, traffic calming, and safety for all
users. GOAL 4: PROMOTE, SUPPORT, ENCOURAGE AND PROVIDE INCENTIVES
FOR PUBLIC ART.
e. Provide the infrastructure to promote and encourage electric vehicles
throughout Lexington. OBJECTIVES:

f. Enhance transportation options that are affordable, equitable, and a. Initiate and support public art through projects originated by the Public
responsive to the needs of residents and that support their preferred Arts Commission and collaborative projects with LexArts and other
or necessary mode of transportation, with an emphasis on sidewalk neighborhood and community groups.
improvements and connectivity. b. Incentivize the addition of public art to new and existing spaces.
GOAL 2: SUPPORT A MODEL OF DEVELOPMENT THAT FOCUSES ON c. Ensure public art is distributed equitably, enhancing and activating
PEOPLE - FIRST TO MEET THE HEALTH, SAFET Y AND QUALIT Y OF LIFE public and publicly accessible spaces, and providing a vehicle for
NEEDS OF LEXINGTON - FAYET TE COUNT Y’S RESIDENTS AND VISITORS. communities to express their unique identity and culture.
OBJECTIVES: d. Maintain established public art.
a. Ensure built and natural environments are safe and accessible through
activated and engaging site design.
THEME E: MAINTAINING A BALANCE BET WEEN PLANNING
b. Collaborate with educational and healthcare entities to meet the needs
of Lexington-Fayette County’s residents and visitors.
FOR URBAN USES AND SAFEGUARDING RURAL LAND.

c. Collaborate with service providers about how their community facilities

should enhance existing neighborhoods. GOAL 1: UPHOLD THE URBAN SERVICE AREA CONCEP T.

d. Monitor and evaluate newly passed parking regulations to ensure they OBJECTIVES:
are achieving more walkable, people-first development, and lowering a. Preserve the Urban Service Boundary concept, which is the first of
development costs. its kind in the United States, and has been foundational in fiscally
responsible planning and growth management in Lexington since 1958.
e. Ensure the provision of supportive services that meets the needs of the
homeless population, as well as interim and long term housing options. b. Continue to monitor the absorption of vacant and underutilized land
within the Urban Service Area.
GOAL 3: PROTECT AND ENHANCE THE NATURAL AND CULTURAL
LANDSCAPES THAT GIVE LEXINGTON - FAYET TE COUNT Y ITS UNIQUE c. Ensure all types of development are environmentally, economically,
IDENTIT Y AND IMAGE. equitably, and socially sustainable to accommodate the future growth
needs of all residents while safeguarding rural land.
OBJECTIVES:
a. Protect historic resources and archaeological sites. d. Emphasize redevelopment of underutilized corridors.

b. Incentivize the renovation, restoration, development and maintenance of

historic residential and commercial structures.

DIVISION OF PLANNING GOALS & OBJECTIVES | 37

e. Maximize development on vacant land within the Urban Service Area and corridors. This area is also limited with the recognition of the community’s
promote redevelopment of underutilized land in a manner that enhances desire to ensure Lexington remains the Horse Capital of the World.
existing urban form and/or historic features.
c. By December 1, 2024, adopt a new Expansion Area Master Plan to ensure
f. Pursue strategies to activate large undeveloped landholdings within the the above acreage is responsibly developed while balancing the integrity
Urban Service Area. of our agricultural land and the clear need for additional acreage to
address Lexington’s housing and economic development requirements.
GOAL 2: SUPPORT THE AGRICULTURAL ECONOMY, HORSE FARMS, To ensure coordinated development, the master plan should plan for
GENERAL AGRICULTURAL FARMS, LOCAL FOOD PRODUCTION, AG- infrastructure, community facilities, and land uses that include a variety
TECH, AND THE RURAL CHARACTER OF THE RURAL SERVICE AREA. of housing types, with a focus on low and middle income housing types,
and a wide array of employment opportunities. It is the intention of the
OBJECTIVES:
Urban County Council that the new Expansion Area Master Plan include
a. Protect and enhance the natural, cultural, historic and environmental provisions for the construction, creation and/or funding of additional
resources of Lexington-Fayette County’s Rural Service Area and affordable housing units, as defined by the Federal Department of
Bluegrass farmland to help promote the general agricultural brand and Housing and Urban Development, and middle income housing. As such,
ensure Lexington-Fayette County remains the Horse Capital of the World. the Planning Commission shall recommend to the Urban County Council
mechanisms to create, construct and/or fund affordable housing units
b. Support the Purchase of Development Rights and private sector farmland and middle income housing in correlation to the development provided for
conservation programs to protect, preserve and enhance our signature in the Expansion Area Master Plan. Completion of this master plan shall
agricultural industries, historic structures, cultural landscapes, natural be the priority of the work of the Division of Planning to ensure timely
environments and community welfare. adoption and implementation of critical needs identified.
GOAL 3: THROUGH A ROBUST PUBLIC ENGAGEMENT PROCESS, THE d. Future decisions concerning the boundaries of the Urban Service Area
URBAN COUNT Y COUNCIL HAS IDENTIFIED A CRITICAL NEED FOR and Rural Activity Center, as well as creation of new Rural Activity
ADDITIONAL ACREAGE INSIDE THE URBAN SERVICE AREA FOR Centers, will be determined by implementation of the process created
HOUSING AND JOB CREATION. THE 2045 COMPREHENSIVE PLAN pursuant to Goal 4.
SHALL MAINTAIN THE URBAN SERVICE AREA CONCEP T, BUT IT IS
ALSO THIS PLAN’S RESPONSIBILIT Y TO MEET EXISTING NEEDS AND GOAL 4: PROTECT LEXINGTON’S INVALUABLE RURAL RESOURCES AND
PLAN FOR FUTURE GROW TH TO MEET THE NEEDS OF OUR COMMUNIT Y INFORM LONG - RANGE PLANNING FOR HOUSING, INFRASTRUCTURE,
THROUGH 2045. COMMUNIT Y FACILITIES AND ECONOMIC DEVELOPMENT BY FINALIZING
ON THE WORK OF THE SUSTAINABLE GROW TH TASK FORCE AND THE
OBJECTIVES: GOAL 4 WORKGROUP TO CREATE A DATA - DRIVEN AND CREATING
a. The Planning Commission, in carrying out the land use element of this AND ADOP TING A NEW PROCESS, TO INCLUDE ROBUST PUBLIC INPUT
Comprehensive Plan, shall identify no less than 2,700 acres but no more AND A PUBLIC HEARING, FOR DETERMINING LONG - TERM LAND USE
than 5,000 acres for inclusion within the Urban Service Area. Properties DECISIONS INVOLVING THE URBAN SERVICE BOUNDARY AND RURAL
that are contiguous to the current Urban Service Area, or have existing ACTIVIT Y CENTERS.
frontage on corridors, arterials and collector roadways, or with common
ownership of such parcels should be given priority for inclusion. OBJECTIVES:
a. Ensure this process preserves the Urban Service Area concept, even if
b. Plan growth along major transportation and federal highway corridors. the boundary of the Urban Service Area is altered.
The Planning Commission should consider for said acreage that which
has been identified as capable of meeting infrastructure requirements b. Create a process that is informed by robust public and stakeholder
for growth and is contained within Lexington’s major transportation engagement and is built upon a thorough research-based foundation.

38 | GOALS & OBJECTIVES IMAGINE LEXINGTON 2045

c. Make certain this new process informs long-range planning for GOAL 2: IMPLEMENT THE 2045 COMPREHENSIVE PLAN.
infrastructure, community facilities, and economic development, while
protecting Lexington’s invaluable rural resources and continuing to focus OBJECTIVES:
on infill, redevelopment and land use efficiency as the continued primary a. Utilize the annual Sustainable Growth Report update to establish and
objectives. maintain Comprehensive Plan metrics.
d. Ensure outcomes of this process are fiscally sustainable, equitable, b. Maintain a website to host the metrics, updating the general public on
environmentally focused, multimodal, agriculturally supportive, and progress while providing transparency and supporting data.
economically forward.
c. Continue to update the Zoning Ordinance and development process to
e. Incorporate Urban County Council input, and adopt the process as an better address Lexington’s growth and development needs.
amendment to the elements of the Comprehensive Plan by August 1, 2026
and establish a mechanism to immediately implement the process. GOAL 3: INCREASE REGIONAL PLANNING TO ENSURE GREATER
COLLABORATION AND STEWARDSHIP OF SHARED RESOURCES.

OBJECTIVES:
THEME F: IMPLEMENTING THE PLAN FOR LEXINGTON FAYETTE
COUNTY & THE BLUEGRASS. d. Set the standard through leadership and engagement to identify and
resolve regional issues.

GOAL 1: ENGAGE AND EDUCATE THE RESIDENTS OF LEXINGTON- e. Support legislative efforts and cross-county actions that improve regional
FAYET TE COUNT Y IN THE PLANNING PROCESS. planning, including, but not limited to, developing regional policies;
sharing information; and planning for regional systems of transportation,
OBJECTIVES: open space, water supply and infrastructure.
a. Pursue all venues of communication, including, but not limited to,
electronic and social media to involve advocates and stakeholders.

b. Establish early and continuous communication with stakeholders.

c. Ensure that community involvement includes renters, lower-income

households, people who are experiencing homelessness, people of color,
youth, and families, so they have a greater voice in the decision-making
processes.

d. Build on the On the Table initiative and continue to engage in partnerships

with community organizations to reach underrepresented populations.

e. Ensure Lexington’s complex and technical planning efforts, policies,

documents, and plans are written at a basic reading level, with concrete
wording, along with clarification when the meaning of a word differs, so
residents understand all materials and strategies.

DIVISION OF PLANNING
THEMES & POLICIES

40 | THEMES AND POLICIES IMAGINE LEXINGTON 2045

 THEME A: BUILDING AND SUSTAINING SUCCESSFUL NEIGHBORHOODS.
PILLAR I: DESIGN.
Design policy #1: Utilize a people-first design, ensuring that roadways are moving people efficiently & providing
equitable pedestrian infrastructure.
Design policy #2: Ensure proper road connections are in place to enhance service times & access to public
safety, waste management and delivery services for all residents.
Design policy #3: Multi-family residential developments should comply with the Multi-Family Design Standards
in Appendix A.
Design policy #4: Provide development that is sensitive to the surrounding context.
Design policy #5: Provide pedestrian-friendly street patterns & walkable blocks to create inviting streetscapes.
Design policy #6: Adhere to the recommendations of the Lexington area MPO bike/ Pedestrian Master Plan,
adopted in 2018.
Design policy #7: Design car parking lots and vehicular use areas to enhance walkability and bikability.
Design policy #8: Provide varied housing choice.
Design policy #9: Provide neighborhood-focused open spaces or parks within walking distance of residential
uses.
Design policy #10: Reinvest in neighborhoods to positively impact Lexingtonians through the establishment of
community anchors.
Design policy #11: Street layouts should establish clear public access to neighborhood open space and
greenspace.
Design policy #12: Support neighborhood-level commercial areas.
Design policy #13: Development should connect to adjacent stub streets & maximize the street network.

PILLAR II: DENSITY.

Density policy #1: Locate high density areas of development along higher capacity roadways (minor arterial,
collector), major corridors & downtown to facilitate future transit enhancements.
Density policy #2: Infill residential can & should aim to increase density while enhancing existing neighborhoods
through context sensitive design.
Density policy #3: Provide opportunities to retrofit incomplete suburban developments with services and
amenities to improve quality of life and meet climate goals.
Density policy #4: Allow & encourage new compact single family housing types.

DIVISION OF PLANNING THEMES & POLICIES | 41

PILLAR III: EQUITY. including sensitive natural habitats, greenways, wetlands and water bodies.
Protection policy #3: Continue to implement the PDR program to safeguard
Equity policy #1: Ensure equitable development and address Lexington’s
Lexington’s rural land.
segregation resulting from historic planning practices and policies: rectify
the impact of redlining and discrimination based on race and socioeconomic Protection policy #4: Conserve active agriculture land in the Rural Service
status. Area while promoting sustainable food systems.
Equity policy #2: Provide an ongoing and contextualized educational Protection policy #5: Promote and connect local farms with the community
curriculum on historical planning practices and policies acknowledging their through integrated partnerships.
impact on marginalized neighborhoods in Lexington. Protection policy #6: Promote context-sensitive agritourism in the Rural
Equity policy #3: Meet the demand for housing across all income levels. Service Area.
Equity policy #4: Provide affordable housing across all areas, affirmatively Protection policy #7: Protect the urban forest and significant tree canopies.
furthering fair housing, complying with HUD guidance. Protection policy #8: Protect and enhance biodiversity in both the Urban and
Equity policy #5: Add residential opportunities by proactively up-zoning areas Rural Service Areas.
near transit for populations who rely solely on public transportation. Protection policy #9: Respect the geographic context of natural land, encourage
Equity policy #6: Preserve & enhance existing affordable housing through the development to protect steep slopes, and locate building structures to reduce
Land Bank, Community Land Trust & Vacant Land Commission. unnecessary earth disruption.
Equity policy #7: Protect affordable housing tenants through improved code Protection policy #10: Reduce light pollution to protect dark skies.
enforcement policies.
Equity policy #8: Improve access to and promote accessory dwelling units as PILLAR II: SUSTAINABILITY.
a more affordable housing option in Lexington.
Sustainability policy #1: Establish a plan to reduce community-wide
Equity policy #9: Community facilities should be well integrated into their greenhouse gas emissions to net zero by 2050.
respective neighborhoods.
Sustainability policy #2: Establish a plan to reduce all LFUCG facilities,
Equity policy #10: Housing developments should implement universal design operations, and fleets to net zero greenhouse gas emissions.
principles on a portion of their units.
Sustainability policy #3: Reduce air pollution and greenhouse gasses through
Equity policy #11: Ensure stable housing. Empower individuals through compact development and complete streets that encourage multimodal
shelter, and provide housing security through permanent residences and transportation options.
comprehensive assistance programs.
Sustainability policy #4: Reduce and mitigate negative environmental impacts
of impervious surfaces and vehicle use areas.
THEME B: PROTECTING THE ENVIRONMENT. Sustainability policy #5: Expand and promote energy efficiency, renewable
energy, and electrification initiatives.
Sustainability policy #6: Apply for LEED for Cities certification to track
PILLAR I: PROTECTION. progress toward sustainability, greenhouse gas emissions reduction, and
Protection policy #1: Continue the Sanitary Sewer Capacity Assurance environmental equity objectives.
Program (CAP) and encourage the Stormwater Incentive Grant Program to Sustainability policy #7: Develop and proactively share educational materials
reduce impacts of development on water quality. and programs to increase public awareness of energy efficiency benefits and
Protection policy #2: Conserve and protect environmentally sensitive areas, services.

42 | THEMES AND POLICIES IMAGINE LEXINGTON 2045

Sustainability policy #8: Enhance Lexington’s recycling, composting, and Livability policy #4: Promote economic development through improving the
waste management programs. livability of downtown to support more residents and community serving
Sustainability policy #9: Incentivize green stormwater infrastructure beyond businesses.
regulatory requirements. Livability policy #5: Enhance programs & activities by Lexington’s Parks &
Sustainability policy #10: Develop incentives for Green Building Practices and Recreation department, & support public event planning, community events,
Sustainable Site Design. & festivals.

Sustainability policy #11: Require low impact landscaping and native plants Livability policy #6: Attract & retain a vibrant workforce by improving
species. affordable housing opportunities, amenities, & entertainment options.
Livability policy #7: Create a walkable city with quality transit that is attractive
PILLAR III: RESTORATION. to new businesses and residents.
Livability policy #8: Promote quality of life aspects, including investment in
Restoration policy #1: Implement the LFUCG urban forestry management plan public space, as an attraction to new businesses & residents.
to restore and grow Lexington’s urban forest.
Livability policy #9: Promote economic development through the preservation
Restoration policy #2: Identify opportunities to strategically link parks, trails, of strategically & appropriately located industrial & production zoned land.
complete streets, greenways, and natural areas to advance Lexington’s green
infrastructure network.
PILLAR II: DIVERSITY.
Restoration policy #3: Support community gardens and urban agriculture to
restore natural resources within the Urban Service Area. Diversity policy #1: Create opportunities for incubators. Seek incentives
Restoration policy #4: Improve public health and reduce the regional carbon for owners of vacant office/laboratory space, & for developers who build
footprint by decreasing vehicle emissions through the use of alternative fuel incubator space for startups & for growing businesses.
vehicles. Diversity policy #2: Encourage a diverse economic base to provide a variety
Restoration policy #5: Improve watershed management and waterway quality. of job opportunities, allowing upward mobility for lower income residents of
Fayette County.
Restoration policy #6: Coordinate to address litter abatement.
Diversity policy #3: Support full funding & adequate staff for the Minority
Restoration policy #7: Support Environmental Justice and equity. Business Enterprise Program (MBEP) which increases diversification of city
vendors through promoting an increase in minority, veteran, & women-owned

THEME C: CREATING JOBS AND PROSPERIT Y.

companies doing business with the city.
Diversity policy #4: Encourage training, programs, access, & inclusion to
employment opportunities.
PILLAR I: LIVABILITY. Diversity policy #5: Maximize context sensitive employment opportunities
within the opportunity zone tracts, providing equitable community
Livability policy #1: Encourage economic opportunities for a wide array of
development, & prioritizing local residents for advancement opportunities.
agritourism while preserving the Bluegrass identity.
Diversity policy #6: Increase flexibility on types of home occupations allowed.
Livability policy #2: Emphasize the preservation, protection, & promotion of
the iconic Bluegrass landscape along rural gateways & roadways serving as
primary tourist routes. PILLAR III: PROSPERITY.
Livability policy #3: Promote sports tourism through the development of Prosperity policy #1: Promote hiring local residents, & recruit employees
athletic complexes & enhance Lexington’s existing facilities. living in areas of construction projects.

DIVISION OF PLANNING THEMES & POLICIES | 43

Prosperity policy #2: Support continued funding for economic development.
Prosperity policy #3: Continue to protect the agricultural cluster & equine
THEME D: IMPROVING A DESIRABLE COMMUNIT Y.
industry, & support existing agricultural uses, while promoting new innovative
agricultural uses in the Rural Service Area. PILLAR I: CONNECTIVITY.
Prosperity policy #4: Encourage installation of fiber-optic broadband Connectivity policy #1: Street design should reflect & promote the desired
infrastructure for high-tech & other industries. place-type.
Prosperity policy #5: Continue to raise awareness of farms & farm tours. Connectivity policy #2: Create multi-modal streets that satisfy all user needs
Prosperity policy #6: Promote Kentucky Proud & local Lexington products and provide equitable multi-modal access for those who do not drive due to
using unified branding. age, disability, expense, or choice.
Prosperity policy #7: Support & increase networking opportunities for career Connectivity policy #3: Encourage Transit-Oriented Development, increase
related institutions, organizations, & agencies. density along major corridors, and support transit ridership, thus reducing
Prosperity policy #8: Provide employment opportunities that match the Vehicle Miles Traveled (VMT).
graduating majors from local colleges & vocational training institutions. Connectivity policy #4: Design street networks that provide alternative route
Prosperity policy #9: Recruit professional services that utilize vacant office options and reduce traffic congestion.
space. Connectivity policy #5: Streets should be designed for the desired speed,
Prosperity policy #10: Encourage flexible parking & shared parking using built-in traffic calming measures such as roundabouts, narrower street
arrangements. widths, chicanes, medians, etc.

Prosperity policy #11: Expand job opportunities through education & training Connectivity policy #6: Develop a multi-modal transportation network and
to retain existing businesses & attract new ones. infrastructure; seek collaboration with regional transit partners for the
commuting public.
Prosperity policy #12: Implement the Legacy Business Park Master Plan for the
250 acres of publicly-controlled economic development land at Coldstream Connectivity policy #7: Plan for the long-term land use and transportation
research campus. impacts of connected and autonomous vehicles (CAV).

Prosperity policy #13: Promote increasing the supply of farm workers, & the
availability & affordability of using agricultural technology, & agricultural
PILLAR II: PLACEMAKING.
equipment. Placemaking policy #1: Create development standards and best practices for
Prosperity policy #14: Create and implement mechanisms for low, moderate, land adjacent to shared use trails and trail corridors.
and middle income residents to access affordable and equitable home Placemaking policy #2: Activate built and natural environments to promote
financing options to enable them to “get on the property ladder” and economic development and create safer spaces.
accumulate intergenerational wealth.
Placemaking policy #3: Establish design standards for placemaking.
Prosperity policy #15: Collaborate with developers, commercial entities, and
non-profits to eliminate food deserts throughout the county and ensure that Placemaking policy #4: Create quality & usable open space for all
all residents have easy access to affordable and nutritious food. developments.

Prosperity policy #16: Create a central coordinating function for all social Placemaking policy #5: Review zoning ordinance & subdivision regulations to
services in the county, including non-profit, faith-based, and governmental create more walkable places.
services. Placemaking policy #6: Promote a more resilient power grid while maintaining
urban canopy and enhancing the visible characteristics of Lexington.

44 | THEMES AND POLICIES IMAGINE LEXINGTON 2045

Placemaking policy #7: Cultivate a more collaborative predevelopment accessible via mass transit, bicycle, & pedestrian transportation modes.
process by implementing the recommendations of the Public Engagement Support policy #7: Protect and promote social services and take active
Toolkit. measures to reduce homelessness.
Placemaking policy #8: Develop a tactical placemaking program within the Support policy #8: Build upon the success of the Senior Citizens’ Center
Division of Planning to work with interested neighborhoods & aid in the to provide improved quality of life opportunities for the largest growing
organization of activities. population demographic.
Placemaking policy #9: Honor Lexington’s history by requiring new Support policy #9: Implement additional creative cohousing opportunities that
development & redevelopments to enhance the cultural, physical, & natural are both accessible & affordable for seniors & people with disabilities.
resources that have shaped the community.
Support policy #10: Incorporate street trees as essential infrastructure.
Placemaking policy #10: Coordinate with non-profit organizations to designate
public art easements on new development. Support policy #11: Develop a climate adaptation plan.
Placemaking policy #11: Update the adaptive reuse ordinance. Support policy #12: Support programs that protect the rights of tenants during
the eviction process.
Placemaking policy #12: Analyze underutilized commercial property through
corridor land use & transportation studies.
Placemaking policy #13: Update the Downtown Master Plan.
Placemaking policy #14: Develop a new citywide festival to entice visitors & THEME E: URBAN AND RURAL BALANCE.
provide additional draw during the tourism off-season.
Placemaking policy #15: Reduce/discourage vehicle-oriented development PILLAR I: ACCOUNTABILITY.
patterns, such as drive through businesses and gas stations, within
neighborhoods and the urban core. Accountability policy #1: Complete the new process for determining longterm
land use decisions involving the Urban Service Area and Rural Activity Centers.
PILLAR III: SUPPORT. Accountability policy #2: Develop growth benchmarks and determine best
measurable methods to monitor them and report progress on a regular basis.
Support policy #1: Ensure school sites are designed to integrate well into the
Accountability policy #3: Implement the Placebuilder to ensure development
surrounding neighborhood.
compliance with the goals, objectives, and policies of the Comprehensive Plan.
Support policy #2: Incorporate natural components into school site design to
Accountability policy #4: Modernize the Zoning Ordinance to reflect the
further the goals of Theme B (Protecting the Environment), but also to provide
direction of the 2045 Comprehensive Plan.
calming elements that reduce student stress & anxiety.
Accountability policy #5: Redesign and retrofit the Lexington roadway network
Support policy #3: Support the maintenance & expansion of a robust wireless
to safely and comfortably accommodate all users so as to encourage walking,
communications network creating reliable service throughout Lexington’s
bicycling and transit usage.
urban & rural areas.
Accountability policy #6: Partner with other agencies and organizations to
Support policy #4: Provide equitable healthcare opportunities throughout
create public education and outreach opportunities.
Lexington to allow for the wide range of medical needs of everyone.
Accountability policy #7: Establish a coordinating office to advance climate
Support policy #5: Provide equity in social services by ensuring those in need
action and sustainability planning efforts.
are served by social service community facilities that address homelessness,
substance abuse, mental health, & other significant issues. Accountability policy #8: Establish a coordinating office to implement
recommendations of the mayor’s Commission For Racial Justice And Equality.
Support policy #6: Ensure all social service & community facilities are safely

DIVISION OF PLANNING THEMES & POLICIES | 45

Accountability policy #9: Enhance diversity in Lexington’s boards and minimizing unsubstantiated calls for preservation that can hinder the city’s
commissions. future growth.
Growth policy #6: Address new development context along the boundaries of
PILLAR II: STEWARDSHIP. existing historic districts while encouraging infill and redevelopment.

Stewardship policy #1 : Uphold and modernize the Urban Service Area concept. Growth policy #7: Ensure stormwater and sanitary sewer infrastructure
is placed in the most efficient and effective location to serve its intended
Stewardship policy #2: Capitalize on the diverse economic development, purpose.
housing, and tourism opportunities throughout the Bluegrass region and
engage in discussions to further connect regional economic hubs. Growth policy #8: Identify catalytic redevelopment opportunities to proactively
rezone properties, clear regulatory hurdles, and expedite redevelopment.
Stewardship policy #3: Increase regional transportation cooperation
and pursue multimodal transportation options to facilitate inter-county Growth policy #9: Support missing middle housing types throughout Lexington.
connectivity. Growth policy #10: Establish Transit-Oriented Development (TOD) for new
Stewardship policy #4: Coordinate with surrounding counties to capitalize on development and infill along major corridors.
the inherent tourism draws of the Bluegrass region. Growth policy #11: Imagine Lexington 2045 anticipates a variety of land use
Stewardship policy #5: Fully realize the development potential within changes will occur throughout the Urban Service Area and recommends
Lexington’s Rural Activity Centers while avoiding negative impacts to those that are in agreement with the goals, objectives, and policies within this
surrounding agriculture, rural settlements, and scenic resources. comprehensive plan. Land use changes alone in an area are not sufficient
to constitute major changes of an economic, physical, or social nature as
Stewardship policy #6: Identify new compatible rural land uses that would provided in state statute for the approval of a zone map amendment.
enhance Lexington’s economy and provide additional income-generating
possibilities for local farmers. Growth policy # 12: Adopt a Master Plan for the expansion of the Urban
Service Area that addresses Lexington’s growth needs through sustainable
Stewardship policy #7: Enhance regional collaboration for coordinated and equitable development.
planning efforts.
Growth policy # 13: Establish minimum residential densities and commercial
Stewardship policy #8: Ensure future development is economically, intensities for new growth areas so that development covers the cost of the
environmentally, and socially sustainable. provision of infrastructure, community services, and facilities.
Stewardship policy #9: Follow and implement the recommendations of the Growth policy # 14: Identify and provide mechanisms that produce affordable
2007 study of Fayette County’s small rural communities and the 2017 Rural housing.
Land Management Plan to protect and preserve Lexington’s rural settlements.

PILLAR III: GROWTH.

Growth policy #1: Modernize regulations that support infill and redevelopment.
Growth policy #2: Identify and enhance opportunities for infill and
redevelopment in downtown areas.
Growth policy #3: Implement the recommendations of the 2018 Your Parks,
Our Future Master Plan.
Growth policy #4: Promote the adaptive reuse of existing structures.
Growth policy #5: Identify and preserve Lexington’s historic assets, while

46 | THEMES AND POLICIES IMAGINE LEXINGTON 2045

THEMES, PILLARS
& POLICIES.
 Theme A. Theme B. Theme C. Theme D. Theme E.
Neighborhoods Environment Prosperity Community Balance
Building & Protect The Creating Jobs & Improving a Urban & Rural
Sustaining Environment Prosperity Desirable Balance
Successful Community
Neighborhoods

DESIGN PROTECTION LIVABILIT Y CONNECTIVIT Y ACCOUNTABILIT Y

DENSIT Y SUSTAINABILIT Y DIVERSIT Y PLACEMAKING STEWARDSHIP

EQUIT Y RESTORATION PROSPERIT Y SUPPORT GROW TH

50 86 130 166 212

THEMES & POLICIES | 49
THEME A.
BUILDING AND
SUSTAINING
SUCCESSFUL
NEIGHBORHOODS.
INTRO.
‘We inhabit a universe that is characterized by diversity’ Desmond Tutu

Thriving communities are established through the success of their neighborhoods, which serve as the
fundamental building blocks of an appealing community. In Lexington, the neighborhoods and more importantly
the neighbors themselves are the very essence of the city. Imagine Lexington 2045 recognizes the importance
of developing neighborhoods that are visually appealing and inclusive, catering to individuals of all ages,
races, colors, religions, disabilities, sexes, familial statuses, and nationalities. In the planning process for
these neighborhoods, it is crucial to consider those who are facing housing insecurity. This approach nurtures
a sense of belonging, fosters active community participation, and promotes sustainable growth, thereby
cultivating a flourishing community. The long-term viability and prosperity of these neighborhoods depend
on embracing diversity in housing options, affordability, land utilization, transportation alternatives, and
recreational amenities. Imagine Lexington 2045 envisions creating welcoming neighborhoods that prioritize
the needs of everyone as a paramount objective.

It is imperative to acknowledge the challenges faced by the unhoused population and involve them in the
process of community-building. Meticulous planning, community participation, and ongoing maintenance play
crucial roles, with a focus on inclusive housing options and affordability being at the forefront of development
endeavors. The success of neighborhoods is pivotal in establishing a desirable community and providing a solid
foundation for a comprehensive plan. Ensuring equitable access to a wide range of land use, transportation,
and recreational opportunities for all residents, irrespective of their race or socioeconomic status, is also
vital.

Lexington is undergoing a period of significant growth, and it is imperative to direct this growth towards
fostering a sense of community, especially as the Urban Service Boundary is expanded by 2,700 to 5,000 acres.
The continuous urbanization of this once small college town requires careful management, a strong emphasis
on enhancing existing neighborhoods, and applying the balance of the recommendations of Imagine Lexington
to the expansion process. By conscientiously guiding growth and development, Lexington can reinforce the
success of established neighborhoods while creating vibrant new ones that provide housing options for
everyone, adhere to exceptional design standards, and prioritize community-building amenities.

To cultivate a flourishing community, it is crucial to effectively manage Lexington's expansion of the Urban
Service Area. This entails a dual approach: improving the quality of existing neighborhoods and addressing
past issues such as environmental justice, historical planning practices and policies, as well as segregation
and the lingering effects of redlining, race, and socioeconomic disparities. The expansion of the city offers a
distinctive opportunity to build upon the progress achieved thus far, but also a sense of urgency to correct the
mistakes of the past through regulatory reform ahead of expansion. By embracing deliberate and thoughtful
growth and development characterized by exemplary design standards and community-oriented amenities,
Lexington can fortify the current neighborhoods and establish dynamic new ones. Rather than fearing the
city's expansion, Lexingtonians should perceive it as an unparalleled opportunity to build upon the existing
momentum. This requires careful planning, community involvement, ongoing maintenance, and a commitment
to diversity, affordability, land use, transportation, and recreational opportunities.

NEIGHBORHOODS | 53
WHERE ARE WE NOW?
Lexington boasts a diverse array of neighborhoods, ranging from historic to improve housing affordability. Through a process called ‘filtering’ where
downtown areas to suburban single-family neighborhoods and mixed-use housing ages, it becomes relatively more affordable. A significant share of
developments. Despite varying opinions on what constitutes a successful affordable housing is hand-me-down housing according to a 2017 study on The
neighborhood, a sense of community and belonging remains a shared priority. Long Term Dynamics of Affordable Rental Housing as much as 45% of units to
To foster this, Imagine Lexington 2045 aims to develop quality new projects renters making less than 50% of the area median income, were units which
while building upon the strengths of existing neighborhoods. were at one time owner-occupied or higher rent. In addition to promoting
sustainable and affordable housing, Lexington has placed a strong emphasis
Traditionally, Lexington's neighborhood development has followed the on addressing housing insecurity. To facilitate this, the city established The
Euclidean zoning scheme, a system of zoning whereby a town or community is Department of Housing Advocacy and Community Development, in response
divided into areas in which specific uses of land are permitted. While this can to a recommendation from The Commission for Racial Justice and Equality
be beneficial for protecting against pollution risks and separating industrial Housing and Gentrification Subcommittee. This department comprises
from residential areas, it has also exacerbated issues such as segregation and six divisions, one of which is dedicated to Homelessness Prevention and
urban sprawl, limiting housing supply and increasing affordability challenges. Intervention. The Homelessness Prevention and Intervention division is
Recognizing these issues, some cities have embraced more flexible zoning committed to assisting individuals facing housing insecurity or those at risk
policies that encourage mixed-use development and higher-density housing. of becoming homeless.
These progressive approaches aim to promote alternative modes of
transportation like walking, biking, and public transit. They have gained wide The United States is facing a pressing issue of affordable housing, as
popularity across the board, but specifically among two rapidly expanding indicated by a Pew Research Center survey in October 2021, where 49% of
age groups in Lexington: young professionals and the aging population. Americans consider it a problem. The housing-affordability crisis, at its most
basic, lies in the insufficient supply to meet the demand for housing, resulting
Lexington has experimented with mixed-use zoning but faced challenges in escalating prices for existing properties. Particularly concerning is the
implementing it on small sites. However, the community conversations that fact that lower-income households express the highest level of concern at
led to the creation of mixed-use zones paved the way for later adoption of the 57%, while Black, Hispanic, and Asian American adults also report significant
Form-Based Neighborhood Business (B-1) Zone. Successful larger mixed- levels of worry at 57% and 55% respectively. In contrast, fewer White adults,
use (MU-2 and MU-3 zoned) projects have demonstrated their appeal at a at 44%, perceive it as a major issue. This disparity highlights the urgent need
neighborhood level, and the inclusion of multi-family housing in single-family to address housing affordability, especially for marginalized communities.
developments has become more common. Additionally, as part of the Imagine Record housing shortages significantly contribute to the affordability
Lexington 2018 Comprehensive Plan process, the City addressed mixed-use challenges, underscoring the importance of implementing zoning reforms
on a larger scale within the B-6P (Commercial Center Zone) by allowing multi- and making new housing investments as crucial solutions. Disturbingly, home
family residential as part of the development or retrofit of shopping centers. prices surged by nearly 20 percent in 2021 alone, accompanied by a sharp
There is more work to be done toward creating complete neighborhoods of all rise in rents, raising concerns about a potential increase in homelessness.
sizes, including a variety of housing types, but also neighborhood supportive Previously affordable cities, once shielded from the crisis, are now
uses. experiencing unprecedented highs in home prices. Lexington is not exempt
from the impact of housing unaffordability, with workers in service and
As the public perception changes and the demand for units grows, there are
cultural jobs being disproportionately affected due to weaker wage growth
increasingly more residential plans that contain at least two housing types.
compared to other sectors. It is crucial to recognize that the consequences
In many cases, multi-family residential and townhouses are being included
of housing insecurity extend beyond mere housing, as studies indicate its far-
in single-family developments. Still, the City must do more to include more
reaching effects on educational attainment, physical and emotional health,
middle housing options like duplexes, triplexes, and up to eight-plexes that fit
and social connectedness for those affected.
seamlessly into the neighborhood context. The local demand for multi-family
housing has been strong since the last recession. These new market-rate In Lexington, there are numerous non-profit organizations and charities
apartments help keep rents relatively low, as older units lower their prices to dedicated to assisting individuals experiencing housing insecurity. Some
remain competitive. However, it’s not just that increasing supply that works

54 | THEME A IMAGINE LEXINGTON 2045

examples include the Lexington Rescue Mission, New Life Day Center, The
Salvation Army Lexington Corps Community Center, Catholic Action Center,
The Nest, Community Action Council, Arbor Youth Services, and many more.
To tackle these challenges effectively, Lexington has fostered partnerships
with community organizations like the Hope Center. By collaborating with
such organizations, the city can offer a range of essential services including
housing, addiction recovery assistance, and job training to individuals without
stable housing. Through these concerted efforts, Lexington strives to ensure
that all its residents have equal access to secure and comfortable housing.

Comparison of differing frameworks of zoning guidelines. Modified graphic obtained from

FORM BASED CODES INSTITUTE.

DIVISION OF PLANNING
VISION FOR
NEIGHBORHOODS.
 design density equity

PILLARS & POLICIES

PILLAR I DESIGN.
design will result in successful neighborhoods that will last over time and
benefit Lexington as a whole, and can oftentimes be accomplished with no or
minimal additional cost to developers.

During the completion of small area plans that were adopted as elements of
the 2013 Comprehensive Plan, such as The Armstrong Mill West Small Area
Plan, Cardinal Valley Small Area Plan, and Winburn Small Area Plan, it became
clear that many neighborhoods were not necessarily opposed to multi-
family housing if the design contributed positively to the overall fabric of the
neighborhood. The Winburn Small Area Plan incorporated a series of design
standards to enhance the quality of housing in the area, which were intended
to be transferable and applicable to multi-family developments throughout
Lexington. These standards emphasized fundamental principles to activate
streets and ensure safety for all residents, without imposing restrictions on
construction materials or limiting density. Developers who underwent zone
changes in the study area found the guidelines useful in allaying concerns
of neighboring residents and establishing clear expectations for future
development. The Imagine Lexington 2018 plan took this a step further and
applied these design standards universally on zone changes as part of the
Playground design of Douglass Park June 3, 2016.
Placebuilder. Imagine Lexington 2045 will build on this design momentum and
will look for ways to further codify these design standards so they become
the rule rather than the exception.
As Lexington grows and becomes more urbanized, it is essential to develop
in a way that fosters community building. Development that achieves infill, The American Institute of Architects (AIA) and the American Society of
density, and utilization of vacant or underutilized property but neglects other Landscape Architects (ASLA) stress the importance of well-designed
design goals of the Comprehensive Plan would be a missed opportunity to neighborhoods and housing. They recommend that new neighborhoods
enhance the community, particularly with an expansion of the Urban Service should be integrated into existing developments in ways that enhance the
Area. community, commercial developments should support nearby communities,
and multi-family housing should be designed to complement its surroundings.
In 2013, the Comprehensive Plan underwent a significant change by excluding Streets should prioritize pedestrian safety and accessibility for all users,
the land use map, a significant component of previous plans. Despite concerns while minimizing the visual impact of parking, garages and driveways on the
expressed by some stakeholders about the map's omission, the Planning streetscape. Additionally, the AIA recommends that new, more compact forms
Commission recognized the need for flexibility in the planning process to of multi-family housing be accommodated by the zoning ordinance to reflect
encourage innovative development solutions. The Placebuilder element of the evolving needs of Lexington’s housing strategy. ASLA also advocates for
2018 Imagine Lexington plan further refined the approach by clearly applying access to transportation through the implementation of Complete Streets
the policies of the plan to zone change applications ensuring developments policies, which promote healthier, more sustainable, and more equitable
respond to the surrounding context and desired outcomes. communities.
The Imagine Lexington 2045 plan builds on this approach by focusing on Designing well-functioning neighborhoods must extend beyond individual
policies that will guide future developments and refine the concept of flexible living spaces and incorporate strong design principles into a range of
planning. The plan emphasizes the importance of design, particularly in community amenities. Convenient access to amenities is essential, and new
ensuring that new developments are contextually sensitive and incorporate developments should include green spaces that are thoughtfully designed for
best practices for green and open spaces. This approach of addressing site both residents and the wider community. These green spaces should be safe,

58 | THEME A IMAGINE LEXINGTON 2045

visible, and integrated into neighborhoods, serving as important focal points need to be improved to be on par with those available for vehicle drivers.
where residents can congregate and socialize. The COVID-19 pandemic has Creating walkable neighborhoods with wider sidewalks and bike facilities is
highlighted the significance of open space in neighborhoods as people sought something many people look for when deciding where to live. While self-
outdoor areas for physical activity and socializing while minimizing the risk preservation is important, building strong communities requires a more
of infection. In addition to providing physical and social benefits, open space collective mindset. By investing in accessible community facilities and
in neighborhoods also promotes environmental health by mitigating urban transportation options, Lexington can create neighborhoods that benefit
heat island effect, reducing stormwater runoff, and supporting biodiversity. everyone. It's time to prioritize the needs of the many over the needs of the
The Urban Institute’s report A Framework for Assessing Equitable Health few and explore innovative solutions that serve all residents.
Outcomes of Parks from 2022 details ways the integration of open space into
neighborhood design is crucial for promoting the health and resilience of
communities. DESIGN POLICY #1.
There are many examples of cities that have created vibrant urban centers
UTILIZE A PEOPLE - FIRST DESIGN, ENSURING THAT ROADWAYS ARE
that integrate residential, commercial, and entertainment spaces together to
MOVING PEOPLE EFFICIENTLY & PROVIDING EQUITABLE PEDESTRIAN
generate a distinct and thriving place. The development of the Arena District in
Columbus, Ohio is one such example that has inspired similar projects across INFRASTRUCTURE.
the United States. The Arena District, initiated by Nationwide Realty Investors, Adopting a people-first design for neighborhoods is crucial to achieving a
has become a flourishing destination with various recreational amenities. It balanced, multimodal transportation system and accommodating future growth
features retail, dining, and entertainment venues centered around Nationwide while promoting open spaces in Lexington. This shift from focusing solely on
Arena, home to the Columbus Blue Jackets and the Columbus Clippers. Over vehicular transportation to including pedestrians, bicycle riders and mass
time, the district has expanded to include offices, residential units, and hotels, transit users on the same level as automobiles will reclaim more of the city
catering to both local residents and tourists visiting the nearby Columbus for walkable solutions and opportunities for enhancing the human experience.
Convention Center. In a similar vein, the Rupp Arena Arts & Entertainment
District in Lexington, has seen significant transformation efforts, with plans To achieve this goal, it is essential to provide transit and transportation
for further multiuse development on the High Street lot and Town Branch infrastructure that caters to the needs of all users. Mass transit infrastructure
Park. Such developments should be encouraged, and they should prioritize should be considered essential, and proposed developments on current
community input and utilize data from surrounding neighborhoods to drive transit lines or future expected routes should enhance existing infrastructure
thoughtful and inclusive growth and design. to accommodate the new or increased ridership. This includes accessibility,
scaling, adding or improving shelters and seating options and providing direct
The availability of community facilities is an important aspect of building pedestrian and bicycle linkages to transit.
strong neighborhoods. However, it's not enough to simply have facilities;
they also need to be utilized in a way that benefits the residents. Parks may Pedestrian infrastructure should include wide sidewalks on both sides of
have facilities, but lack programming, while the library has programming streets and separated bike lanes wherever possible. Further, a people-first
but may lack a way to deliver it to those in need. Schools have ample space design should ensure that pedestrian and bicycle users’ safety is assured by
but lack after-hours programming. To address these issues, representatives the incorporation of traffic calming measures that slow traffic and increase
from various organizations, including Parks and Recreation, Lexington Public driver awareness, and physical separation between the modes.
Library, and Fayette County Public Schools, have shown a willingness to
explore sharing facilities and programming to better serve a wider range of It is important to prioritize the most vulnerable users of our transportation
constituents and share costs. These partnerships should be encouraged and network, in addition to addressing vehicular safety. This entails giving
supported. precedence to the wellbeing of individuals over vehicles and devising
accessible, efficient, and fair transportation alternatives that cater to
In addition to providing amenities, it's crucial to consider transportation everyone. It is imperative for the design standards for public transportation
options that allow residents to access them. Pedestrian and bicyclist facilities amenities to meet minimum requirements in all neighborhoods, ensuring

DIVISION OF PLANNING NEIGHBORHOODS | 59

safety, sustainability, and visual appeal. Moreover, these standards should connectivity that further the health, safety, and welfare of the community, as
harmonize with the surrounding amenities, whether already existing or well as benefit the individual residents themselves. Additional connections
proposed. These improvements to Lexington’s multimodal network not only result in reduced public safety response times that can save lives. These same
have benefits to the users who choose or need to use these other methods connections can also save taxpayer dollars as waste management operations
of transportation, but they have the added benefit of implementing impactful become more efficient, and have positive climate impacts by reducing vehicle
and efficient climate solutions. By adopting a people-centric approach, the miles traveled and reducing delivery routes for goods and services.
city can reduce its carbon footprint by making other modes of transportation
viable and attractive. Additionally, the adoption of LFUCG Complete Streets Policy by the Urban
County Council on December 6, 2022, represents a significant step towards
DESIGN POLICY #1 PLACEBUILDER CRITERIA creating a more connected, safe, sustainable, and efficient road transportation
• A-DS1-1: Mass transit infrastructure such as seating and shelters system. Complete Streets is an approach to road design that considers the
should be provided/enhanced along transit routes. (A-EQ7). needs of all users, including pedestrians, cyclists, public transit riders,
• A-DS1-2: Accessible pedestrian linkages to transit should be and motorists, regardless of age or ability. The policy aims to ensure that
provided. streets are safe and accessible for everyone, regardless of their mode of
transportation, and that they contribute to the overall livability and economic
vitality of communities. By adopting the policy, Lexington is committing to
DESIGN POLICY #2 prioritize the needs of all road users and to consider a range of mobility
options in future road projects. This approach can lead to improved health
ENSURE PROPER ROAD CONNECTIONS ARE IN PLACE TO ENHANCE
outcomes, reduced transportation costs, and increased economic activity.
SERVICE TIMES & ACCESS TO PUBLIC SAFET Y, WASTE MANAGEMENT The policy can also foster a sense of community and promote social equity by
AND DELIVERY SERVICES FOR ALL RESIDENTS. ensuring that all residents have access to safe and convenient transportation
There is often opposition to connecting roads between developments, as options.
residents believe that the increased traffic will negatively affect their property.
However, it is important to note that there are many benefits to the increased “Providing a strong connected network of roads and pedestrian facilities can
help distribute traffic, reduce travel distances and times, improve routing for
transit and reduce walking distances. Good connectivity also provides better
routing opportunities for emergency and delivery (solid waste, recycling, mail)
vehicles. All of these effects can play a positive role in reducing congestion on
the street network.” - Kentucky Transportation Cabinet.

DESIGN POLICY #2 ACTION ITEMS

1. Conduct a comprehensive road connectivity assessment.

DESIGN POLICY #3
MULTI - FAMILY RESIDENTIAL DEVELOPMENTS SHOULD COMPLY WITH
THE MULTI - FAMILY DESIGN STANDARDS IN APPENDIX A.

In the Winburn Small Area plan, design standards were created to address
neighborhood concerns and to ensure that many of the problems historically
created through poor design would not be repeated in the future. Special
Connected vs. cul-de-sac street design. Source: Transportation & Growth Management Oregon
attention was paid during the creation of the standards to ensure that new
Guide for Reducing Street Widths

60 | THEME A IMAGINE LEXINGTON 2045

multi-family developments will be properly oriented for pedestrians and site
safety and will create a strong sense of place. The Benefits of Context-Sensitive Site Planning & Design
Enhances pedestrian/bicyclist mobility and safety
The design standards were developed with the intention of being portable for
inclusion in the 2018 Comprehensive Plan. The same design principles that Promotes a sense of community
were established to create desirable multi-family development in Winburn, Creates opportunties for active living
are also applicable throughout Lexington. They were included as a component Society Increases neighborhood safety
of the Placebuilder in the 2018 Plan, and have helped shape successful multi-
Improves access to public services
family developments over the past five years. They are carried forward in
Imagine Lexington 2045 and will continue to be instrumental in the future. Minimizes negative impacts on surrounding properties
Protects cultural and historic resources
These design standards were shaped with public involvement during the
development of the Winburn plan, and involving residents, housing advocates, Attracts visitors, tourists, and investment
and community stakeholders in the planning and design process ensures Increases property value
that housing solutions are responsive to local needs and preferences, Creates marketable "experiences"
fostering more inclusive and equitable outcomes. Seeking additional ways to
Economy Speeds real estate sales and rentals in tight markets
incorporate public input and feedback is crucial for creating housing solutions
that are responsive to local needs and preferences. Attracts high-skilled employees and employers
Reduces commuting times
To promote desirable neighborhoods, the Urban County Council and Planning
Commission should codify these guidelines through additional Zoning Uses land efficiently
Ordinance text amendments. This would provide a stronger foundation for Conserves energy
their implementation and integration into future development projects. Protects biodiversity
Environment Reduces air and water pollution
DESIGN POLICY #3 ACTION ITEMS
1. Update the Zoning Ordinance to adopt elements of the multi- Protects ecosystem processes
family design standards. Reduces urban heat islands
Largo, J. A. (2013). Site Analysis: Informing Context-Sensitive and Sustainable Site Planning and Design. John Wiley &
DESIGN POLICY #3 PLACEBUILDER CRITERIA Sons. P. 11
• A-DS4-1: Multi-family residential developments should comply
with the Multi-family Design Standards in Appendix A.
and existing neighborhoods and environment. These connections can be
established through the inclusion of complementary features like retail
DESIGN POLICY #4 spaces, job opportunities, community greenspaces, and physical multimodal
PROVIDE DEVELOPMENT THAT IS SENSITIVE TO THE SURROUNDING connections. It is crucial to ensure that these connections are appropriately
scaled, accessible, and in harmony with the surrounding context to avoid
CONTEXT.
intrusiveness. The goal is to design new buildings that seamlessly blend
Context-sensitive development is an approach that focuses on aligning into the existing neighborhoods, respecting the overall scale, character, and
new developments with the existing fabric of neighboring communities and placement on the site, and preserving as much of the natural environment
environmental compatibility. It recognizes the importance of considering the as possible. By engaging with the community and valuing its traditions and
surrounding built and natural environments to enhance the overall quality diversity, development efforts can bring about positive change that aligns
of life for residents. Rather than promoting uniformity or segregated land with the neighborhood's distinctive characteristics, preserving its identity and
uses, this approach emphasizes meaningful connections between new vegetation, promoting inclusivity, and incorporating sustainable practices.

DIVISION OF PLANNING NEIGHBORHOODS | 61

Context-sensitive development also takes into account the presence of uses should be provided.
existing vegetation. The National Capital Planning Commission emphasizes • A-DS4-2: New construction should be at an appropriate scale
the importance of preserving and enhancing tree canopy cover. It details to respect the context of neighboring structures; however, along
some of the principles that drive the implementation of strategies that major corridors, it should set the future context.
minimize tree removal during the planning and design phases. Trees offer
numerous environmental, health, and community benefits, including wildlife DESIGN POLICY #5
habitat, groundwater filtration, erosion prevention, energy conservation
through shading, aesthetic outdoor spaces, improved air quality, and PROVIDE PEDESTRIAN - FRIENDLY STREET PAT TERNS & WALKABLE
carbon sequestration. Consequently, safeguarding and restoring the BLOCKS TO CREATE INVITING STREETSCAPES.
tree canopy impacted by development becomes paramount. An effective
policy must guide new development to prevent and mitigate tree loss, Prior to the Covid-19 pandemic, the 2018 Comprehensive Plan had already
prioritize tree preservation, and propose alternatives when preservation is addressed the correlation between walkable communities and public health.
unfeasible due to development constraints. This policy should encompass The pandemic has further emphasized the significance of astute space and
both tree preservation and replacement practices. The policies governing street design. Creating a welcoming and secure neighborhood environment
tree preservation and replacement should address the conservation and is of importance, fostering the freedom for individuals to move effortlessly
replacement of both individual trees and forests. To determine the number of between different locations on foot. Studies have demonstrated that walkable
replacement trees for individual specimens, a formula based on size, species streets not only facilitate movement, but also promote exercise, contributing
rating, and condition rating should be employed. Regarding forested areas, a to the overall health of the community. To accomplish this walkable
ratio based on the number of acres cleared should inform the replacement transportation network, Dangerous by Design, a 2016 report from Smart
efforts. When replanting, the size of the new tree should be appropriate for its Growth America, suggests that when designing street facilities, developers
specific type, such as shade trees, evergreens, or ornamental trees. should, “consider how to keep people walking separate from people driving
vehicles; keep traffic speeds low; ensure sidewalks and curb ramps are
Guidelines related to massing and design can be utilized to ensure a accessible to people with disabilities; and clarify where each road user should
seamless fit within the context. By considering the unique social, cultural, be expected to travel.”
economic, and environmental aspects of each community, context-sensitive
development provides a targeted and thoughtful approach to neighborhood Traffic speeds have a profound impact on both the actual and perceived safety
development. Active community engagement is crucial for garnering support of pedestrians, as well as the overall quality of life in communities. The same
for new development projects. Involving residents in the decision-making 2016 publication indicates that pedestrians struck by a motor vehicle traveling
process and valuing their input allows for tailored development efforts that at 40 miles per hour face a staggering fatality rate of 65 percent. However,
meet their needs and aspirations. Furthermore, the integration of sustainable when vehicle speeds are reduced to 30 mph, the risk of death decreases to
practices enhances the overall wellbeing, cohesion, and resilience of the 18 percent. Moreover, the fatality rate further drops to just 6 percent when
community. Through context-sensitive development, new developments can vehicles are traveling at 20 mph.
integrate harmoniously with neighboring communities, enhancing the quality
of life for all residents while respecting the neighborhood's identity and built Given these findings, it is crucial to prioritize the reduction of vehicle speeds in
characteristics. areas with high pedestrian activity, such as neighborhoods, commercial areas,
schools, and parks. According to the 2021 Annual Traffic Report released by the
DESIGN POLICY #4 ACTION ITEM Lexington Police Department, there were 168 collisions involving pedestrians,
1. Create guidelines for massing and design. resulting in 7 fatalities. This represents an increase from the previous year's
statistics, which reported 149 collisions and 8 fatalities. These figures align
DESIGN POLICY #4 PLACEBUILDER CRITERIA with the national trend highlighted in the updated Dangerous by Design
• A-DS4-1: A plan for a connected multi-modal network to adjacent report indicating a concerning surge in pedestrian fatalities. In 2020 alone,
neighborhoods, greenspaces, developments and complementary over 6,500 individuals lost their lives in pedestrian accidents—an average of

62 | THEME A IMAGINE LEXINGTON 2045

 Vehicle speeds are heavily influenced by roadway design, regardless of the
posted speed limit. Narrow, curvilinear streets with on-street parking and
street trees help to slow traffic and create a pedestrian-friendly atmosphere.
Bicycle lanes and sidewalks should be physically separated from vehicle
traffic by trees, bollards, buffers, parked cars, or curbs wherever possible.
Research has shown that physically separated bike lanes yield the greatest
safety gains for cyclists and, as a highly visible piece of infrastructure, even
have the potential to attract new cyclists. The Environmental Protection
Agency’s (EPA) Green Streets Handbook from 2021 also states that vegetated
buffers can further protect cyclists from harmful air pollution and should be
incorporated whenever possible. Residential streets that are overly wide and
straight and lack a vertical edge, such as trees or buildings, enable fast-
moving traffic. It is also important to consider land uses and their relationship
to the streets within the neighborhood. Thoughtful attention should be given to
Above: Clays Mill Road 2013 ensuring there is a people-first building orientation, and pedestrian-oriented
Below: Clays Mill 2023 uses activating the ground level.

Placemaking and walkability are important to the success of Lexington and

its neighborhoods. A variety of best-practice reviews show that property
values tend to be higher in more walkable neighborhoods that contain a mix
of nearby destinations connected by pedestrian friendly streets.

To ensure accessibility for all members of the community, including those

with mobility limitations, public spaces should be designed with careful
consideration of how people interact with them. Combining pedestrian-
oriented design with affordable housing can also maximize the benefits of this
approach by providing accessible destinations for low-income households.

DESIGN POLICY #5 ACTION ITEMS

1. Conduct a pedestrian accessibility audit.

Images comparing the effects related to the presence or absence of a vegetative buffer along DESIGN POLICY #5 PLACEBUILDER CRITERIA
similarly sized/trafficked roads in Lexington. • A-DS5-1: Safe multi-modal facilities should be provided to ensure
vehicular separation from bicycles, pedestrians and other modes
nearly 18 fatalities per day, representing a 4.5 percent increase compared to of transport.
2019. • A-DS5-2: Developments should incorporate vertical elements,
such as street trees and buildings, to create a walkable
This alarming trend persists because our nation's streets are designed in a streetscape.
manner that prioritizes the quick movement of cars, often at the expense of • A-DS5-3: Building orientation should maximize connections with
pedestrian safety. Even with reduced driving during the pandemic, the year the street and create a pedestrian-friendly atmosphere.
2020 witnessed a significant rise in overall traffic fatalities, highlighting the • A-DS5-4: Development should provide a pedestrian-oriented
dangerous nature of our street designs. and activated streetscape.

DIVISION OF PLANNING NEIGHBORHOODS | 63

DESIGN POLICY #6. larger capacity is required, several smaller lots that help break up the mass
of the parking surface are preferable to one large lot. Multiple smaller lots
ADHERE TO THE RECOMMENDATIONS OF THE LEXINGTON AREA MPO are advantageous because they are more readily incorporated into sites with
BIKE/ PEDESTRIAN MASTER PLAN, ADOP TED IN 2018. significant grade changes, provide easier access to the buildings they serve,
and minimizes stormwater runoff.
The 2018 Bike/Pedestrian Plan, called ConnectLex, envisions “a network of
These discrete parking lots within larger developments should be connected
high quality walkways and bikeways that connects communities and fosters
via access easements and vehicular use areas that substantively address
economic growth and regional collaboration. People of all ages and abilities
Lexington’s Complete Streets policies and where possible, public street
will have access to comfortable and convenient walking and biking routes,
standards for sidewalk widths and the provision of bicycle infrastructure.
resulting in true mobility choice, improved economic opportunity, and healthier
When access easements are utilized in lieu of a public street, there should be
lifestyles. Across the region, a culture of safety and respect is cultivated for
no degradation of access or safety for pedestrians or bike riders.
people traveling by foot or bike, whether for transportation or recreation.” The
plan identifies a multitude of bicycle and pedestrian projects that should be
addressed throughout the duration of this Comprehensive Plan. DESIGN POLICY #7 PLACEBUILDER CRITERIA
• A-DS7-1 – Parking should be oriented to the interior or rear of
To enhance connectivity, ConnectLex aims to create a comprehensive network the property for non-residential or multi-family developments.
of streets that prioritize walkability and bicycle-friendliness, catering to
individuals of all ages and abilities, thus ensuring their safe and convenient
access to various destinations. By recognizing the economic benefits DESIGN POLICY #8.
associated with communities that encourage walking and cycling, Lexington
PROVIDE VARIED HOUSING CHOICE.
can leverage the potential rise in property values and redevelopment
opportunities. Moreover, the initiative places a strong emphasis on promoting To cater to the diverse needs of modern households, it is important to have
fairness and inclusivity by focusing on providing walking and biking a variety of housing options available. This is an essential element of any
infrastructure in areas with the greatest need, thus fostering accessibility intelligent growth strategy that strives to provide quality housing for people
and equity in these modes of transportation. ConnectLex strives to improve at all income levels. When there is an increase in the overall supply of
public health by expanding the availability of active transportation options housing and access to affordable options within a neighborhood, residents
and outdoor recreational spaces, thereby contributing to the overall have greater flexibility in choosing where to live. Factors such as access to
wellbeing of individuals. Additionally, addressing the safety concerns of transportation, job opportunities, schools, affordability, and housing type all
the most vulnerable users remains a top priority, as Lexington aims to contribute to the overall housing choice.
achieve zero fatalities and serious injuries among pedestrians and cyclists.
Ultimately, by enhancing mobility, Lexington can offer a diverse range of It is crucial to diversify the housing stock to meet the needs of people from
active transportation choices that facilitate the creation of healthy, safe, and different income levels, abilities, ages, and lifestyles, including those who
walkable/bikeable neighborhoods, irrespective of whether they are situated require supportive services such as people experiencing housing insecurity.
in rural, urban, or suburban settings. Creating diverse neighborhoods that offer a mix of housing types such as
townhomes, apartments, condominiums, duplexes, and single-family homes
DESIGN POLICY #7. can foster personal interactions and enhance security. The increased
population from higher-density residential development can also promote
DESIGN CAR PARKING LOTS AND VEHICULAR USE AREAS TO ENHANCE neighborhood-serving commercial development with a larger, built-in
WALKABILIT Y AND BIKABILIT Y. customer base. Adding housing can be an economic stimulus for commercial
centers that are vibrant during the workday but suffer from a lack of foot
Regardless of whether a development is commercial or residential, larger, traffic and consumers during evenings or weekends.
more expansive surface parking areas should be kept to a minimum. When a

64 | THEME A IMAGINE LEXINGTON 2045

DESIGN POLICY #8 PLACEBUILDER CRITERIA lack of engaging amenities, or poor visibility (such as open spaces located
• A-DS8-1: Where single family detached residential units are behind private homes) hinder or prevent use.
provided, a variety of other housing types should be regularly
interspersed along the street frontage. In the 2018 Parks Master Plan, Lexington’s Division of Parks and Recreation
set a goal of increasing the population served within a ten-minute walk of
a neighborhood park. In 2021, Lexington further committed to this goal by
DESIGN POLICY #9 joining the Trust for Public Land’s national 10-Minute Walk Campaign, aiming
PROVIDE NEIGHBORHOOD - FOCUSED OPEN SPACES OR PARKS WITHIN to ensure that everyone in the city can reach a park or neighborhood-focused
open space within a ten-minute walk by 2050. As Lexington continues to
WALKING DISTANCE OF RESIDENTIAL USES.
grow, the inclusion of neighborhood-focused open spaces in new residential
Access to active and engaging neighborhood-focused open spaces, such as developments will be essential to meet the city’s goal.
parks or other intentionally designed outdoor gathering places, are crucial
To address this issue, Lexington should conduct a comprehensive review
for the wellbeing of individuals and communities. Well-designed and easily
and update of plans, regulations, and policies, with the aim of establishing
accessible open spaces within neighborhoods promote frequent physical
consistent level of service standards for neighborhood-focused open spaces
activity, such as walking and biking, which can reduce the risk of chronic
and parks. In areas where these open spaces are currently lacking, it is
diseases like heart disease and hypertension, improve mental health, and
imperative that they are incorporated into new development projects. These
combat social isolation. Additionally, numerous studies have shown the
developments should adhere to level of service standards regarding size,
economic advantages of neighborhood-focused open spaces, ranging from
location, access, and amenities for the neighborhood-focused open spaces.
direct job creation to increased property values. When companies decide
where to locate, quality of life factors, such as the availability of open spaces,
are often considered.

Neighborhood open spaces can also offer key environmental benefits,

especially when designed to integrate natural features such as tree
preservation areas and stream corridors with amenities for active and passive
recreation. Environmental benefits can include reduced heat island effect,
improved air quality, and better stormwater infiltration. In addition, locating
open spaces within walking distance of homes reduces vehicle traffic, leading
to fewer vehicle miles traveled and lower greenhouse gas emissions.

Residents of Lexington are aware of these benefits and have expressed a

desire for more walkable, neighborhood-focused open spaces. In the 2022
On the Table survey data, the most discussed topic was “walking, biking,
and access,” and the sixth most popular topic was “urban greenspaces.” A
survey conducted as part of the 2018 Parks and Recreation Master Plan also
highlighted the community’s desire for improved walking and biking trails that
connect urban areas, emphasizing the need for more accessible open spaces
and amenities.

However, in many Lexington neighborhoods, residents lack access to

appropriately located, sized, and designed open spaces that meet their needs.
Even when such spaces are within walking distance, barriers such as busy
road crossings, lack of pedestrian infrastructure, undefined entrance points,

DIVISION OF PLANNING NEIGHBORHOODS | 65

 DESIGN POLICY #10
REINVEST IN NEIGHBORHOODS TO POSITIVELY IMPACT LEXINGTONIANS
THROUGH THE ESTABLISHMENT OF COMMUNIT Y ANCHORS

The promotion of sustainable and smart growth can greatly benefit from
the active involvement of community anchors, which encompass the social,
economic, and physical dimensions of neighborhoods. Community anchors
can take various forms, ranging from sites of historical and cultural
significance to everyday locations like local grocery stores or community
centers. Regardless of their nature, these anchors provide essential goods
and services while supporting the unique identities of neighborhoods. The
synergy among designated community anchors ensures that investments
Gonzales Gardens Master Plan, Columbia, SC (Lord Aeck Sargent) made in one anchor have a broader impact, benefiting a larger portion of
the population. This approach includes initiatives such as complete streets,
safer intersections, revitalized public spaces, and other enhancements that
Furthermore, as residential developments are planned, connections to other
improve mobility and the overall public realm.
public space projects such as parks, shared-use trails, and greenways
should be provided to seamlessly link neighborhoods to the larger network In addition to physical improvements, community anchors focus on promoting
of regional open spaces. Providing guidance and consistency on these various modes of transportation, including biking, walking, public transit, and
strategic connections during development will require a coordinated and other multi-modal options. By investing in transportation infrastructure, the
comprehensive green infrastructure plan (see Theme B Restoration Policy initiative enhances neighborhood aesthetics and emphasizes the historical
2) that addresses connectivity between all open space assets. This approach and cultural value of the community. Complementing these investments, the
will promote an active and sustainable lifestyle that benefits new and existing adoption of an infill housing strategy ensures that neighborhoods surrounding
neighborhoods throughout all of Lexington. community anchors offer housing options that meet the preferences and
demands of residents, while maintaining the character of residential
DESIGN POLICY #9 ACTION ITEMS development.
1. Review and update plans, regulations, and policies to establish
consistent level of service standards for neighborhood-focused In Lexington, potential community anchors include The Cornerstone on UK
open spaces and parks. Campus, Greyline Station on N. Limestone and Loudon and the Bread Box
2. Develop resources to promote the development of affordable on the corner of Jefferson and 6th Street. The Cornerstone serves as an
housing with parks, greenspaces, and equitable transportation innovation hub, connecting the University with the City and offering flexible,
options. technology-rich spaces for collaboration. Greyline Station, the historic
Greyhound bus station, has been restored and now houses various retail,
DESIGN POLICY #9 PLACEBUILDER CRITERIA office, dining, and event spaces, along with a public market managed by the
• A-DS9-1: Development should provide active and engaging NoLi CDC. The Bread Box is a mixed used development that was originally
amenities within neighborhood focused open spaces. a bakery for over 100 years. This building has been reinvented to house a
• A-DS9-2: Where neighborhood open space or parks are not variety of tenants, each working to make Lexington a better place.
located within walking distance of a new development, applicants
should incorporate these facilities. A compelling illustration of this can be found in Memphis, where the Memphis
3.0 Community Anchors initiative has showcased the transformative
influence of these anchors. In the revitalization of neighborhoods, community
anchors assume a critical role by addressing the social, economic, and

66 | THEME A IMAGINE LEXINGTON 2045

physical aspects. By fostering collaboration between city planners and local areas are safe, inviting, and beneficial to the maximum number of residents,
community members through initiatives such as Small Area Plans, effective it is essential that they have clear and visible access from the public right-of-
planning and optimal utilization of public investments can be achieved. Through way. Visibility and accessibility from the public right-of-way is also important
empowering neighboring communities and reinforcing their unique identities, for safety, maintenance access, and emergency medical access, if needed.
community anchors contribute to the creation of walkable environments and
ultimately enhance the overall quality of life for residents. One way to achieve this is to allow for a significant amount of open space to
have frontage on a public street. This type of street layout, where buildings
In addition to the anchor facilities themselves, programming is also an or structures are situated on one side of the road, while the opposite side
essential component in cultivating a vibrant civic commons and fostering features a contiguous stretch of greenspace or open area, deliberately
a sense of community. Community anchors recognize the significance of positions buildings to face the open space, creating both active and vibrant
providing inclusive programming that promotes a sense of belonging, ensuring streetscapes and adjacent open spaces.
that everyone feels embraced and actively involved. This approach not only
encourages individuals to explore novel opportunities but also creates lasting Some effective ways to further activate open spaces along streets are to
and meaningful experiences. This exemplifies the comprehensive approach include wider sidewalks, interpretive signage, street furniture, wider planting
to community development, which furthers sustainable and intelligent strips with street trees, and pedestrian scale lighting. By doing so, these
progress, benefiting both local neighborhoods and the wider community. spaces become more visually appealing and inviting, and provide a safe and
According to the principles outlined in “Anchoring Inclusive Economic and comfortable environment for residents to enjoy the outdoors.
Community Development,” community anchors can serve as catalysts
Open spaces and greenspaces are an essential component of healthy urban
for driving sustainable and intelligent growth by implementing strategies
neighborhoods, but their effectiveness depends on their accessibility and
that encompass various aspects, including social, economic, and physical
visibility. Lexington should review and update regulations to ensure that
dimensions of neighborhoods.
neighborhood street layouts actively promote the benefits of clear, visible
access to open and greenspaces.
DESIGN POLICY #10 ACTION ITEMS
1. Conduct a city wide study to identify opportunities for community
DESIGN POLICY #11 PLACEBUILDER CRITERIA
anchors.
• A-DS11-1: Street layouts should provide clear, visible access to
DESIGN POLICY #10 PLACEBUILDER CRITERIA neighborhood-focused open space and greenspaces.
• A-DS10-1: New developments should incorporate clear and
dedicated connections to nearby community anchors. DESIGN POLICY #12
SUPPORT NEIGHBORHOOD - LEVEL COMMERCIAL AREAS.
DESIGN POLICY #11
Repositioning Declining Shopping Centers in Philadelphia (2020) delves into
STREET LAYOUTS SHOULD ESTABLISH CLEAR PUBLIC ACCESS TO the issue of declining shopping centers in Philadelphia, originally designed
NEIGHBORHOOD OPEN SPACE AND GREENSPACE. for convenient car-based shopping but now suffering from underutilization
and deterioration. Online shopping has posed challenges for stores that rely
Most residential areas include some degree of open space and greenspace on quick transactions, necessitating a strategic approach to rejuvenate these
which serves as a common resource for the community. These spaces could centers and restore them as vibrant community focal points. This approach
be active or passive in their uses and could include greenways, conservation should carefully consider the specific needs of the community, local market
areas, floodplains, parks, or other shared outdoor gathering places. conditions, and the distinctive characteristics of each commercial center.
Open spaces and greenspaces within a neighborhood should be easily To adapt to changing consumer preferences, the retail industry is embracing
accessible to meet the needs of the community. In order to ensure that these technology and reimagining store interiors to prioritize experiential elements

DIVISION OF PLANNING NEIGHBORHOODS | 67

 Certain shopping centers are undergoing a transformation into lively
“lifestyle centers” that resemble bustling town squares. These centers
integrate a mix of functions such as offices, housing, hotels, civic buildings,
and public amenities. It is crucial for planners, developers, and policymakers
to carefully assess the changing nature of these centers and ensure they are
well-connected to the surrounding neighborhoods and the transit network.
To minimize displacement of existing businesses during the revitalization
process, targeted programs should be implemented to support local
community-serving establishments within the shopping centers. Moreover,
as the demand for smaller logistics warehouses in urban areas grows
alongside the rise of e-commerce, shopping centers can serve as suitable
locations for such facilities. However, the transportation implications of these
uses must be taken into careful consideration.

To encourage economic investment, the government can proactively

rezone these shopping center sites from Neighborhood Business (B-1) to
Commercial Center Zone (B-6P), allowing for increased residential density
and commercial activity. Additionally, providing incentives for businesses
to establish themselves in these commercial centers and developing a
robust marketing strategy to promote them within the local community can
further bolster their revitalization efforts. By implementing these proactive
measures, shopping centers can reclaim their role as vibrant and essential
community spaces. The activation of neighborhood-level commercial centers
can address the community’s desire for more local business opportunities,
including street vending, as highlighted in the Neighborhood Activation Study
conducted by the Safe Places Active Spaces initiative in 2019.

DESIGN POLICY #12 ACTION ITEMS

1. Amend the Zoning Ordinance to encourage greater residential
opportunities within existing neighborhood-serving business
districts.
over sheer inventory. Some stores are incorporating lockers for efficient
package pickups, while others are reducing their store numbers and sizes. DESIGN POLICY #12 PLACEBUILDER CRITERIA:
Moreover, shopping and strip centers can enhance the shopping experience • A-DS12-1: Development should be located nearest to neighborhood
by integrating public amenities such as well-designed pathways, comfortable serving commercial areas.
seating areas, proper lighting, and appealing landscaping and community
events. Additionally, these centers play a crucial role in catering to the needs DESIGN POLICY #13
of low and moderate-income residents who rely on physical stores due to
limited broadband access or lack of transportation. Therefore, it is imperative DEVELOPMENT SHOULD CONNECT TO ADJACENT STUB STREETS &
to ensure that these centers are inclusive and accessible to consumers of all MAXIMIZE THE STREET NET WORK.
income levels and mobility limitations, by providing safe pedestrian walkways
A well-connected street network offers direct, uninterrupted routes and
and reliable transit connections.
multiple options for travel. By incorporating interconnected roads, traffic is

68 | THEME A IMAGINE LEXINGTON 2045

 PILLAR II DENSIT Y
distributed evenly and efficiently, utilizing smaller and slower interconnected Throughout Imagine Lexington 2045’s Goals and Objectives extensive public
roads to avoid congestion points. This approach adds resilience to the outreach effort, it was clear that the overwhelming opinion of the community is
road network, enabling efficient dispersal of traffic in case of incidents or to maintain a strong Urban Service Boundary and continue to pursue strategies
construction. The result is reduced response times for public safety vehicles for infill and redevelopment. Even though the Urban County Council adopted
and enhanced accessibility and efficiency for public transit, school buses, Goals and Objectives with an expansion of 2,700 – 5,000 acres, no amount of
service vehicles, and waste management. Creating a robust street system new land for growth will change the market for housing in Lexington’s already
with multiple routes to neighborhood destinations is widely recognized as developed urban core. The implication is that development within the Urban
a best practice in urban planning. By distributing traffic across numerous Service Boundary must continue to become more compact and efficient even
collector and local streets, every street in a neighborhood becomes desirable as Lexington grows into new areas. With roughly 90% of the area within the
without becoming overly burdened. current boundary developed, Lexington must make the most of the remaining
10%, as well as maximize redevelopment efforts.
In February of 2022, the Urban County Council adopted key changes to the
Subdivision Regulations to address some of Lexington’s connectivity issues. In the 2012 article "Smart Growth and Economic Success: Benefits for Real
The maximum block length was reduced from 1,600 feet to 1,000 ft, the Estate Developers, Investors, Businesses, And Local Governments", it is
minimum block length was abolished, cul-de-sac standards were improved, highlighted that compact development patterns offer a wide range of benefits
street connections required into adjacent developments in every direction, that extend beyond preserving agricultural land. These benefits include
and single-loaded streets were required for the majority of frontage on public reduced environmental impact, enhanced economic vitality, and improved
facilities. These regulations took effect in February of 2023. public health outcomes. Compact development promotes sustainable and
livable communities by optimizing land use, lowering transportation costs, and
To further address connectivity within Lexington’s regulations, it is fostering better public health. Additionally, high-density development attracts
recommended that Lexington adopt the connectivity index approach businesses and residents, stimulating the local economy and increasing
recommended by the Kentucky Transportation Cabinet for new developments, property values. The article emphasizes the importance of preserving natural
requiring them to achieve a minimum score on a "connectivity index.” The habitats and open spaces through efficient land use practices, recommending
Sustainable Development Code organization calculates the connectivity index targeted redevelopment and infill efforts in commercial corridors, downtown
by dividing the number of street links by the sum of intersections and culs- areas, and transitional zones while respecting stable single-family
de-sac also referred to as nodes. In cases where culs-de-sac are necessary, neighborhoods. By adhering to these principles and practices, Lexington can
the creation of pedestrian and bicycle connections between culs-de-sac and/ create a more complet and more sustainable environment for its residents.
or public right of way should be mandatory to ensure a level of connectivity Compact development brings economic advantages to real estate developers,
for pedestrians and bicyclists, thus mitigating negative impacts on walkability. investors, businesses, and local governments. It maximizes land usage,
reduces project costs, and minimizes expenses for public amenities. Compact
In addition to measuring street connectivity using the connectivity index,
development also boosts economic productivity and investment, lowers
it is advisable to incorporate explicit statements of purpose in ordinances
building and infrastructure costs, enhances emergency services, increases
to promote walkability. Additional regulations can do more to address the
tax revenue through higher property values, and promotes alternative modes
length of dead-end streets, and establish guidelines for traffic circulation that
of transportation. Additionally, it stimulates local economic activity, job
consider vehicles, bicycles, and pedestrians alike. As part of these measures,
creation, and improved access to goods and services through vibrant mixed-
planning staff should revise subdivision regulations to mandate signage at
use neighborhoods. Imagine Lexington 2045 embraces compact development
all stub streets, informing neighborhood residents about future roadway
and the density and intensity it brings.
connections and providing a means for discussion with staff regarding timing
and impacts. A complete community is one that meets people’s needs for everyday living, to
include a mix of housing (with regard to type and affordability), local services,
community infrastructure, jobs, schools, and recreation/open space for the
residents. Complete communities are often designed with sustainability in

DIVISION OF PLANNING NEIGHBORHOODS | 69

mind, incorporating green spaces, energy-efficient buildings, and alternative strategically positioned along collector streets and minor arterials. However,
transportation options to reduce the community's carbon footprint and high density development is not appropriate in every context. As stressed
promote a healthy lifestyle. The goal is to create a vibrant, resilient community within the “Design” vision and policies, density should address the context of
that can adapt to changing needs and circumstances over time. Complete its surroundings.
streets, efficiency of land use, livability and sustainability are its main
characteristics. A complete community is, in effect, a mixed-use development In 2009, the Environmental Protection Agency (EPA), the U.S. Department
on a community-wide scale that helps to create a sense of place. of Housing and Urban Development (HUD), and the U.S. Department
of Transportation (DOT) established the Partnership for Sustainable
Research has shown that, in the future projected population increase, the Communities with the objective of assisting communities in improving access
largest demographics represented will be young professionals and the aging to affordable housing, offering diverse transportation options, and reducing
population. It is important to note that national data suggests that these two transportation costs. It was inspired by a vision of building economically
age groups prefer housing options that are walkable and require minimal competitive, environmentally sustainable, and opportunity-rich communities.
maintenance. Providing developments that support these land use patterns The partnership works to ensure that development, housing, energy, and
will ensure Lexington remains responsive to the future needs of these transportation policies are interconnected. The partnership's "Livability
populations. Principles" were subsequently adopted by the Transportation Policy
Committee in 2011, with the Metropolitan Transportation Plan (MTP) 2045
It is crucial for the Lexington community to recognize the importance of upholding a commitment to these principles, and this comprehensive plan
implementing compact development, particularly in the wake of the first supports them as well. Imagine Lexington 2045 recommends concentrating
expansion of the Urban Service Area in 27 years. While infill development the highest density/intensity development along major corridors and in the
may face opposition from some residents, it is important for the community downtown area to facilitate transit-oriented development, which would pave
to consider the long-term benefits of such development, including reduced the way for Bus Rapid Transit opportunities.
urban sprawl, preservation of natural areas, and improved access to services
and amenities. Through thoughtful design and community engagement, infill Studies such as Imagine Nicholasville Road and Imagine New Circle Road
development can enhance existing neighborhoods and help to create a more have concluded that increasing the intensity of land use along these corridors,
sustainable and livable city. particularly for residential purposes, is necessary to accommodate population
growth through more efficient land utilization. Doing so also ensures that
DENSITY POLICY #1 the bulk of the highest density residential development occurs outside of
existing thriving neighborhoods. Similarly, in cases where high density
LOCATE HIGH DENSIT Y AREAS OF DEVELOPMENT ALONG HIGHER apartment development takes place beyond these areas, it should primarily
CAPACIT Y ROADWAYS (MINOR ARTERIAL, COLLECTOR), MAJOR focus on minor arterials and collectors for easier access to future transit
CORRIDORS & DOWNTOWN TO FACILITATE FUTURE TRANSIT services. Where corridor development and thriving neighborhoods merge,
ENHANCEMENTS. transitions and step-downs should mitigate intrusion. Corridor development
should also include multimodal connections to adjacent developments and
Given Lexington’s historically increasing population, the community’s neighborhoods, incorporating them into the context of the neighborhood.
expressed desire to create exciting walkable places, and the goal of preserving
valuable agricultural land, the importance of density cannot be overstated. By DENSIT Y POLICY #1 PLACEBUILDER CRITERIA
reducing dependence on vehicles, Lexington can actively contribute to the • A-DN1-1 - High density residential development (HR) should be
global fight against climate change. Additionally, by reducing the number of located on corridors and downtown.
car trips on local streets, not only does the city promote sustainability, but it
also lowers the costs associated with maintaining infrastructure. To ensure
optimal access to community gathering places such as parks and schools,
higher density units, which may have limited private open spaces, should be

70 | THEME A IMAGINE LEXINGTON 2045

DIVISION OF PLANNING NEIGHBORHOODS | 71
 DENSITY POLICY #3
PROVIDE OPPORTUNITIES TO RETROFIT INCOMPLETE SUBURBAN
DEVELOPMENTS WITH SERVICES AND AMENITIES TO IMPROVE
QUALIT Y OF LIFE AND MEET CLIMATE GOALS.

For decades, Lexington has embraced a form of zoning that was targeted
at separating different land uses categories (commercial, residential) and
isolating incompatible land uses (industrial, warehousing). While the essential
purpose of such separation was to limit the negative impact of more intense
land uses on lesser intense land uses, what evolved was a highly segmented
built environment. One that was drastically different than the way cities
were intertwined historically. While this separation of land uses had positive
effects, ensuring that industrial development did not expose residents to
the toxic effects of production and manufacturing, it also created a stratified
community and disparaged denser development or different forms of housing
than single family detached structures. Mixed residential development that
included a blend of townhomes, duplexes, single family detached dwellings,
The Hub. Photo courtesy of www.antunovich.com/hub-lexington and low-level multi-family structures, which allow for aging in place and
access to more affordable housing for first time owners, were harder to
construct. The incorporation of neighborhood businesses, like a corner store,
DENSITY POLICY #2 grocery, or restaurant, was also harder to establish, pushing them to the
larger regional development and arterial roadways.
INFILL RESIDENTIAL CAN & SHOULD AIM TO INCREASE DENSIT Y WHILE
ENHANCING EXISTING NEIGHBORHOODS THROUGH CONTEXT SENSITIVE
Over the course of the last twenty years, and as represented by the comments
DESIGN.
made during the public outreach, the market has seen a significant shift
In areas where the preservation of existing neighborhood design in residential consumer preferences, to which Lexington must respond
characteristics is of high importance, infill residential should apply the and address with more modern zoning regulations. Primarily, Lexington’s
recurring building patterns of the area. It is wholly possible to add residential economy, like the national economy, has shifted away from many of the most
units while matching the consistent rhythm of existing development, so incompatible land uses (heavy industrial land uses), while at the same time,
that the new blends respectfully with the old. Significant contrasts in scale, there has been a boom in the services and retail sectors. Today, people are
massing and design should be minimized while attempting to not impact the seeking to live in areas where they can get all their needs met without being
density of a proposed development. forced to drive as far, or in some cases, at all. A complete neighborhood
should contain residential, employment, commercial, recreational and civic
uses that serve the overall needs of the area, are within a walkable distance,
DENSIT Y POLICY #2 PLACEBUILDER CRITERIA
and serve as neighborhood focal points. Improving our neighborhoods to
• A-DN2-1 - Infill residential should aim to increase density.
include everything people need for their daily lives reduces their required
• A-DN2-2 - Development should minimize significant contrasts
vehicular trips and will be a key way for Lexington to meet its lofty carbon
in scale, massing and design, particularly along the edges of
neutrality goals. Where these community needs do not exist within existing
historic areas and neighborhoods.
neighborhoods and developments, Imagine Lexington 2045 advocates
for complementary infill and development to meet those needs. New

72 | THEME A IMAGINE LEXINGTON 2045

neighborhoods and developments should incorporate these from the outset the efficient use of Lexington’s finite and expensive land. However, there are
to avoid having to retrofit them after the fact. numerous zoning reforms that are allowing emerging single family housing
types to be developed in other cities. According to an April 2023 report from
DENSIT Y POLICY #3 PLACEBUILDER CRITERIA the Mercatus Center at George Mason University, in the late 1990s, the City of
• A-DN3-1: Pedestrian-oriented commercial opportunities Houston made significant changes to their minimum lot size restriction that
and other services should be incorporated within residential resulted in tens of thousands of new single family residential homes. While
neighborhoods. the rest of the United States has seen significant increases in home prices,
• A-DN3-2: Development should incorporate residential units in Houston has grown ever more affordable due to the steady addition of new,
commercial centers desirable homes.

DENSITY POLICY #4 Lexington needs more housing of all types as its population continues to
grow. The 2017 Housing Demand Study indicated that single-family residential
ALLOW & ENCOURAGE NEW COMPACT SINGLE FAMILY HOUSING T YPES. options continue to be popular and will be for the foreseeable future. However,
the paradigm for providing these single-family homes is shifting from the
The market demand for new single-family housing is often in opposition with larger suburban model lots to a more compact and urban form of single-
family home, such as townhomes, fourplexes, and others.

One way to provide for this type of development would be amending the
Total Incremental Units Required in 2025 regulations to allow group residential developments that include single-
family housing. This compact type of development allows for shared common
space and reduced maintenance, which are ideal for the senior and young
Owner- professional populations. Compact lots mean less time and money for
Rental Total
Occupied maintenance, more opportunities for social interactions in shared open
spaces, more economic efficiency for infrastructure services, and safer
neighborhoods. Other innovative solutions such as cottage housing courts
Condiminiums 1,020 1,020 and cohousing developments that incorporate efficiently designed single-
family housing as a component of an overall development should be explored
as well.
Townhomes/Duplexes/
12,170 2,935 15,105 DENSIT Y POLICY #4 ACTION ITEMS
Single Family Homes
1. Update Zoning Ordinance to allow for compact housing types.

DENSIT Y POLICY #4 PLACEBUILDER CRITERIA

Multi-family Structures 6,335 6,335 • A-DN4-1 - Provide new compact single-family housing types.

Other (Mobile homes, RV,

190 130 320
etc.)

Total 13,380 9,400 22,780

2017 FAYETTE COUNTY HOUSING DEMAND STUDY; URBAN PARTNERS

DIVISION OF PLANNING NEIGHBORHOODS | 73

 PILLAR III EQUIT Y
also evident, with significantly lower rates for Black (35.3%) and Hispanic
(16.3%) residents compared to their White (59.4%) counterparts. To address
these challenges, it is crucial for Lexington to prioritize the implementation of
policies and incentives that promote affordable housing and homeownership
among marginalized communities.

To tackle the affordable housing crisis, an equitable housing policy is essential

to provide safe, affordable, and stable housing for all residents in Lexington.
This policy should focus on creating a regulatory framework that ensures an
adequate supply of affordable housing units in all parts of the city, mitigating
the effects of market-driven gentrification. Additionally, in 2018, the city
established a "Neighborhoods in Transition" task force to address the impacts
of neighborhood redevelopment on existing residents. This task force worked
towards minimizing the negative consequences of such transformations
and promoting a more inclusive approach to neighborhood development. By
implementing these measures, Lexington can begin to address the housing
crisis, reduce disparities, and create a more equitable and accessible housing
market for its residents.
Equity and equality sound similar but are very different concepts. Equality
means sameness, while equity refers to access and opportunity. It is not the Lexington’s proportion of single-family detached homes relative to the overall
goal of the Comprehensive Plan to provide equality in housing, such that all mix of housing is larger than in other urbanized cities of similar size. In these
residents would have the same size house or purchase a home instead of areas, the suburbs outside of the city limits have absorbed more and more
renting. However, the Comprehensive Plan recognizes that housing insecurity of the single-family detached homes, and the city itself has provided less
is a serious issue, and that public policy can help to address this gap for those new housing of this type relative to the overall mix. This is not unlike the
who are underprivileged in Lexington. It is important to acknowledge that the single-family developments appearing in Jessamine, Scott, and Lexington’s
private market may not always accommodate that need, unless incentivized other adjacent counties. Fayette County’s proportion of overall residential
or regulated. Inequity in communities exists for numerous reasons, many building permits has remained consistent over the years, yet the proportion
of which are outside of Planning’s regulatory sphere. There is much that can of single-family building permits has decreased. This trend is expected to
be done, however, through day-to-day review of zoning applications, if equity continue, as Lexington is just beginning to see increased densification of its
is given as much weight as design and density. Equitable development and urban core and arterials. It is important to note that this does not indicate
housing can help to reduce disparities and improve outcomes for low-income a cessation in the production of single-family detached housing, but rather
communities. there has been a deliberate focus on constructing alternative housing options
as the city undergoes densification. To foster balanced growth in Lexington,
Lexington is currently facing a severe affordable housing crisis, as highlighted it is crucial for the city to offer a diverse range of housing types, expand its
in the National Low Income Housing Coalition's 2021 Out of Reach report for housing inventory, and increase the number of available units. This approach
Kentucky. The report reveals that the fair market rent for a two-bedroom will contribute to enhanced affordability and provide choices for both present
apartment requires a household to earn $17.50 per hour, which is more and future residents.
than double the state's minimum wage of $7.25 per hour. Consequently,
many families in Lexington are struggling to meet their basic needs due Providing this mix of housing types, diversifying housing stock, and producing
to the exorbitant cost of housing. Moreover, the city's housing supply is more units will result in greater housing affordability across the board as
predominantly comprised of single-family detached homes, 58.7%, which Lexington evolves and matures as a city. This will require that townhouses,
are the most expensive housing option available, further exacerbating the condominiums, and multi-family dwelling units replace single-family detached
issue of housing insecurity. Racial disparities in homeownership rates are units as the primary housing type of new construction. This shift signifies

74 | THEME A IMAGINE LEXINGTON 2045

 residents are unable to enjoy these everyday community assets that others
take for granted. It is essential for planning policies to address these issues
whenever possible. In other cases, where groups like the Community Land
Trust and Office of Homelessness are better equipped to make a meaningful
impact, this plan seeks to create policies that will support and call attention
to their respective missions.

To truly prioritize equity, it is necessary for Lexington to adopt additional

measures that establish a comprehensive, well-funded, and sustainable
framework for documenting, tracking, and monitoring equity initiatives. It
is crucial to establish a centralized authority responsible for overseeing all
equity-related efforts within the community. This authority would coordinate
the implementation of programs, promote community advocacy, disseminate
information, and foster collaboration with relevant departments and partners.
By taking these steps, Lexington can ensure that equity is at the forefront of
its planning and development endeavors.

EQUITY POLICY #1
ENSURE EQUITABLE DEVELOPMENT AND ADDRESS LEXINGTON’S
SEGREGATION RESULTING FROM HISTORIC PLANNING PRACTICES AND
POLICIES: RECTIFY THE IMPACT OF REDLINING AND DISCRIMINATION
BASED ON RACE AND SOCIOECONOMIC STATUS.
a responsible stance towards urbanization, accommodating the evolving Kenneth T. Jackson defined Redlining as a discriminatory practice in
needs of the city while encouraging a more sustainable development pattern. financial and insurance markets based on location, race, and socioeconomic
Furthermore, addressing the requirements of those facing housing insecurity status, often associated with historical maps created by federal agencies
should be a top priority for Lexington, necessitating investment in programs like the Federal Housing Administration (FHA) and Home Owners' Loan
that furnish secure and stable housing solutions. By formulating policies that Corporation (HOLC) during the Great Depression. These maps color-coded
uphold fairness and cater to the needs of all residents, Lexington can ensure neighborhoods, assigning red to those deemed the highest credit risk.
its continued growth and prosperity in a manner that is sustainable, inclusive, Despite the implementation of the Community Reinvestment Act (CRA) in 1977
and equitable. Lexington’s urbanization is the sign of a vibrant, attractive to combat Redlining, neighborhoods labeled as "declining" or "hazardous" in
city that is growing responsibly and in a manner that the local government the 1930s still face enduring economic challenges, perpetuating racial and
can afford to provide adequate public infrastructure. Providing options for socioeconomic disparities. While the CRA encourages lending to lower-
residents, both current and future, will address equity in Lexington and income borrowers, a 2019 Penn Institute for Urban Research article suggests
ensure it continues to grow and prosper. there is no significant difference in the market share of CRA-regulated lenders
in lower-income neighborhoods, and they actually lag behind the market in
The aim of equity policies extends beyond housing and encompasses transit
historically redlined areas. In Lexington, the impact of redlining is evident
and code enforcement as well. These policy areas have the potential to
through an interactive map showcasing redlined neighborhoods based
generate significant impact through public investment. Equity also includes
on a 1940 map, highlighting the systematic exclusion of historically Black
the ability of the community to provide at-risk citizens with access to the
neighborhoods that have disproportionately borne the brunt of gentrification.
services they need such as essential community facilities, age-friendly
residential options, and walkable commercial areas. Unfortunately, many

DIVISION OF PLANNING NEIGHBORHOODS | 75

The Housing and Gentrification Subcommittee of the Commission for Racial and income, resulting in neighborhoods with concentrated poverty
Justice and Equality in 2020 defined gentrification as a process where or affluence and limited racial and economic integration. The report
wealthier, primarily white individuals move into marginalized communities, calls for adjusting zoning requirements that discourage density
displacing long-standing, predominantly lower-income, minority residents, and affordability, and looking at existing single-family R-1 zones for
as evidenced by Lexington’s East End. After the Civil War, the East End possible conversion to R-3 zones, which allow single-family detached
experienced segregation and economic decline, rendering it susceptible to homes, but also include other housing types.
gentrification. The lack of investments in these areas over time has contributed
to their deterioration, ultimately facilitating the influx of wealthier newcomers. 4. Recommendation #8 calls for actions to be taken to curb predatory
A significant indicator of gentrification is the decline in long-term residents, investors in the city's housing market.
who often face forced displacement due to escalating living costs and
It is crucial for Lexingtonians to be educated about the history of redlining and
changes in employment prospects. Historical factors, such as discriminatory
its lasting effects. The impact of redlining is evident in the systematic exclusion
lending practices during the Jim Crow era, have further exacerbated property
and disproportionate burden faced by historically black neighborhoods that
devaluation in redlined neighborhoods. As recommended by the Housing and
have experienced gentrification. Gentrification further exacerbates the
Gentrification Subcommittee, the city should allocate financial resources
displacement of long-standing residents and reinforces property devaluation
to gentrifying and at-risk neighborhoods, particularly those affected by
in Redlined areas.
disinvestment and displacement, and the City should implement a program
encouraging minority business inclusion in the gentrifying neighborhoods in Furthermore, it is imperative to ensure that the planning process includes
the city. the participation and input of all community members, especially those who
have been historically marginalized, in order to foster a truly inclusive and
Adopting the recommendations put forth by the Housing and Gentrification
representative approach to equitable development in Lexington. By adopting
Subcommittee is crucial for promoting equitable development and addressing
the recommendations put forth by the Commission for Racial Justice and
the historical segregation in Lexington resulting from planning practices and
Equality, which aim to rectify the impacts of redlining and gentrification, and
policies. These recommendations aim to rectify the impacts of redlining, race,
promote equitable development, the city can work towards addressing the
and socioeconomic status. Notable recommendations from the report include:
historical segregation resulting from planning practices and policies. Educating
1. Recommendation #1 calls for the establishment of an Office of the community about this history and its consequences is an essential step
the Housing Advocate, supported by an ordinance and permanent in fostering understanding, promoting inclusivity, and implementing effective
funding. This Office was established by the City as the Department strategies to create a more equitable and integrated Lexington.
of Housing Advocacy & Community Development in early 2022 as an
implementation of the Report. EQUIT Y POLICY #1 ACTION ITEMS
1. Educate the public, rectify historical discrimination, and ensure
2. Recommendation #2 emphasizes the need for changes in the Division equitable development through workshops, education campaigns,
of Code Enforcement, particularly the revision of Lexington's housing zoning policies, affordable housing initiatives, and community
code. The focus should shift towards prioritizing health and safety engagement.
rather than aesthetics and revenue generation. The current housing 2. Work with communities, local partners, and policymakers to
code, largely based on the International Property Maintenance Code research and develop community benefit and anti-displacement
of 1998, aims to protect public health, safety, and welfare without strategies in existing neighborhoods.
increasing construction costs or favoring specific materials or
methods.

3. Recommendation #3 highlights the importance of implementing

mechanisms to maintain housing affordability. Historic zoning
practices have artificially separated residents based on race, class,

76 | THEME A IMAGINE LEXINGTON 2045

EQUITY POLICY #2 virtual and in-person engagement with community members of all ages. While
the Uncommon Commons digital outreach initiative of Imagine Lexington 2018
PROVIDE AN ONGOING AND CONTEXTUALIZED EDUCATIONAL laid the groundwork for this outreach through the production of educational
CURRICULUM ON HISTORICAL PLANNING PRACTICES AND POLICIES materials accessible to all levels of comprehension and ages, the Division
ACKNOWLEDGING THEIR IMPACT ON MARGINALIZED NEIGHBORHOODS of Planning should build upon this foundation to create a greater knowledge
IN LEXINGTON. base and a more diverse curriculum that meets the needs of Lexingtonians.

The decisions made by the community through urban and regional planning can EQUIT Y POLICY #2 ACTION ITEMS
have both immediate and long-lasting impacts. The location and the provision 1. Create an ongoing educational curriculum on historical planning
of housing, employment, and services are guided by the Comprehensive practices and policies' impact on marginalized neighborhoods in
Plan and regulated by the Zoning Ordinance. While these documents receive Lexington
significant interest during updates or when there is a zone change in a
neighborhood, there is often a lack of engagement or knowledge regarding EQUITY POLICY #3
planning policies or the responsibilities of the Division of Planning as a whole.
To ensure enhanced comprehension of Lexington's planning practices and MEET THE DEMAND FOR HOUSING ACROSS ALL INCOME LEVELS.
policies, the Division of Planning must provide ongoing public outreach and
expanded educational opportunities, accessible both in-person and online. This Comprehensive Plan does not seek to be antagonistic toward growth
and new residential development; on the contrary, continued growth is
Additionally, while the goal of urban and regional planning is to ensure vitally important and Lexington should encourage intense (re)development
that the health, safety, and welfare of all community members is protected in the most appropriate areas to provide housing for all. In Public/Private
and enhanced, the history of the field and the impact on the community Partnerships Are Crucial To Meet The Demand For Affordable Housing,
indicates that some members of the community have been disregarded. The Shimon Shkury recognizes the pressing requirement for additional housing,
implementation of urban planning practices and policies are representative particularly affordable housing. The Comprehensive Plan acknowledges that
of the civic and social perspectives of those who guide change from the the collaboration of various stakeholders is crucial in creating and preserving
government (Council members, Planning Commissioners, Planning Staff,
etc.), as well as those who are allowed to engage in or are typically heard from
during the planning process. The voices heard during the planning process
are traditionally White, wealthy, and older in age. The limited input combined
with established planning practices that preference separated land uses and
sprawl have advantaged certain members of Lexington’s community more
than others. This has resulted in the development of communities that have
disparate resources and exclude some from entry. While there are broader
structural impacts that marginalize communities in Lexington, the field of
urban planning must be reflective of the negative impacts that have been
promoted and seek to change those practices and policies to create a more
equitable and just community. These changes must be done in collaboration
with and support from the broader community.

To do so, the Division of Planning, in cooperation with other divisions and civic
organizations, should continue to produce better educational documentation
regarding the historic and current urban planning practices. In addition to the
creation of greater published information, there must also be an increase in

DIVISION OF PLANNING NEIGHBORHOODS | 77

affordable housing. It emphasizes the importance of coordinating efforts and affordability. A significant portion of households, as indicated by the 2022
providing incentives and benefits from all sides. Both the city and state levels State of the Nation's Housing Report, currently face "unaffordable" rent or
of government, along with their respective economic policies, play a critical mortgage payments exceeding 30% of their monthly income. The community
role in competing for and retaining private capital for affordable housing. also perceives the availability of affordable housing as a major concern. The
Comprehensive Plan recognizes that housing affordability can be achieved
There are numerous steps Lexington must take to improve overall housing through an increased supply of new construction that puts a downward
pressure on rents of existing units.

To overcome the housing shortage, an urgent response is necessary. A

multitude of labor and materials constraints at the national level have led to
years of insufficient construction that have resulted in a record shortage of
homes for sale and a scarcity of affordable rentals across the country. A Pew
Research Center article, Key Facts About Housing Affordability in the U.S.,
discusses the surge in home buying during the COVID-19 pandemic, driven
by historically low mortgage interest rates and speculation by investors, has
further exacerbated the available supply of home for purchase and the rise in
rents. The 2022 State of the Nation’s Housing Report states that addressing
this shortage requires a concerted effort to improve local zoning codes,
allowing for a greater diversity of housing types and enabling the supply to
meet demand. Innovative approaches such as "gentle density" zoning, which
permits the construction of small-scale housing units like duplexes, triplexes,
and accessory dwelling units, show promise.

Imagine Lexington 2045 implementation calls for a top-down review

of the Zoning Ordinance and Subdivision Regulations in an attempt to
create new housing opportunities, as well as to streamline permitting and
review processes. This process began in 2017 with the amendments to the
Commercial Center (B-6P) zone, as well as changes to how Final Record
Plats are reviewed.

EQUIT Y POLICY #3 ACTION ITEMS

1. Review regulatory changes and incentives to produce affordable
housing.

EQUITY POLICY #4
PROVIDE AFFORDABLE HOUSING ACROSS ALL AREAS, AFFIRMATIVELY
FURTHERING FAIR HOUSING, COMPLYING WITH HUD GUIDANCE.

Over the course of changing federal administrations there have been various
modification in policy recommendations. One modification, which directly
changed how fair housing and regulations regarding housing were perceived,
was the replacement of the Affirmatively Furthering Fair Housing (AFFH)

78 | THEME A IMAGINE LEXINGTON 2045

 Home Value of Owner Occupied Units

Year 2022 2021 2020 2019 2018 2017 2016

Less than $50,000 2323 2483 1592 1881 1730 1714 1864
$50,000 to $99,999 1940 3358 5556 3317 6594 6478 7701
$100,000 to $149,999 5110 8792 13612 13352 14255 15439 16040

Number of Units
$150,000 to $199,999 9163 12546 14840 14104 15801 13737 15269
Home Price

$200,000 to $299,999 21735 21218 16815 17092 15655 16197 15726

$300,000 to $499,999 24373 19165 13282 14177 13508 12279 9236
$500,000 to $999,999 9451 6775 4922 5581 4464 4782 3818
$1,000,000 or more 1954 792 928 818 1093 841 1047
Median (dollars) $287,100 $242,400 $200,900 $211,400 $193,300 $193,100 $181,200
ACS 1-Year Estimates Data Profiles, Selected Housing Characteristics

rule with the Preservice Community and Neighborhood Choice (PCNC) rule in Specifically, Lexington will seek to promote affordable housing throughout
2020. Following concerns and disappointment raised by numerous business the community. Access to safe, affordable housing should exist in all
groups, like the National Association of Realtors and non-profit organizations, neighborhoods. However, this plan shall also continue to support significant
the PCNC rules were rescinded in 2021 and replaced with an interim rule that investment in existing low-income areas so as not to shut out distressed
reestablished the AFFH model. The interim AFFH rule is in the process of areas from further public investment or speed up the economic displacement
review and is anticipated to be adopted within the year. of low-income residents due to traditional market forces.

According to the Department of Housing and Urban Development, the

interim Affirmatively Furthering Fair Housing (AFFH) is a legal requirement EQUITY POLICY #5
that federal agencies and federal grantees further the purposes of the Fair
ADD RESIDENTIAL OPPORTUNITIES BY PROACTIVELY UP - ZONING
Housing Act. HUD's interim AFFH rule provides an effective planning approach
AREAS NEAR TRANSIT FOR POPULATIONS WHO RELY SOLELY ON
to aid program participants in taking meaningful actions to overcome historic
patterns of segregation, promote fair housing choice, and foster inclusive PUBLIC TRANSPORTATION.
communities that are free from discrimination. In the late 1990s and early 2000s, residents of Lexington’s oldest areas
Specifically, affirmatively furthering fair housing means taking meaningful were concerned with the impacts of off-campus student housing and how
actions that, taken together, address significant disparities in housing needs the modification of buildings was changing the character of these areas. In
and in access to opportunity, replacing segregated living patterns with truly response to these concerns, the City enacted various regulation changes,
integrated and balanced living patterns, transforming racially and ethnically established historic overlays, and down-zoned certain portions of Lexington.
concentrated areas of poverty into areas of opportunity, and fostering During those periods of down-zoning, the intent of the City was to review
and maintaining compliance with civil rights and fair housing laws. The other areas for potential up-zonings, which could provide a greater access to
duty to affirmatively further fair housing extends to all housing and urban transit, services, and goods for larger populations. Those up-zoning efforts
development activities and programs. never came to fruition, yet the University of Kentucky’s enrollment continued
to grow without adequate changes in zoning capacity to meet that need. At

DIVISION OF PLANNING NEIGHBORHOODS | 79

the same time, downtown residential has become more desirable and the However, more active and long-standing solutions are available through the
space between what has been traditionally considered the urban core and development, utilization, and expansion of land banks, community land trusts,
the university has shrunk so as to be almost indistinguishable. There is a and a vacant land commission. Each of these entities can provide potential
critical need to complete the task started in the 1990s by up-zoning areas options for the development and maintenance of affordable housing options
throughout the City, while also allowing greater flexibility in the regulations, throughout Lexington.
which have restricted the construction of different types of housing and have
limited density. EQUITY POLICY #7
In transit opportunity areas identified in current and future corridor studies PROTECT AFFORDABLE HOUSING TENANTS THROUGH IMPROVED CODE
(Imagine Nicholasville Road, Imagine New Circle Road), the government should
ENFORCEMENT POLICIES.
consider up-zoning properties to allow and encourage more intense uses that
support transit, allow for various housing options, and allow for the inclusion Streamlining communications and automating interactions between city
of neighborhood-serving commercial opportunities. Where neighborhoods agencies and housing providers in an efficient manner plays a crucial role
already exist along these corridors, appropriate transitions and step-downs in cultivating a vibrant rental housing industry that benefits the community.
should be used, but should not otherwise deter development of additional A rental property registration program to proactively address substandard
housing. To avoid adverse effects on low and medium density neighborhoods, housing conditions would help alleviate the current culture where residents
transit-oriented development should be accommodated as much as possible are wary of contacting Code Enforcement to report violations for fear that
on commercially zoned land along major arterials. Commercial Center (B-6P) they may lose the roof over their head. Louisville, Covington, and Erlanger
zoning should be considered along major arterials. have all taken this proactive approach to this serious issue.

EQUIT Y POLICY #5 PLACEBUILDER CRITERIA The goal of this approach is to establish a licensing program that creates
• A-EQ5-1: Development should create context sensitive a procedure for the enforcement of codes and regulations. The registration
transitions between intense corridor development and existing will identify problem properties and utilize random inspections to keep
neighborhoods. (Shifted from A-EQ3-1) landlords from delaying maintenance or poorly managing their units. Cities
• A-EQ5-2: Development should be transit-oriented (dense & both large and small across the country use rental registration programs and
intense, internally walkable, connected to adjacent neighborhoods, their tangible successes are well documented. As Lexington moves towards
providing transit infrastructure & facilities). (B-SU3) (Shifted becoming a larger metropolitan city, it is incumbent upon the government
from A-EQ3-2) to ensure all residents are afforded the opportunity to live in safe, code
compliant homes. A comprehensive, equitable housing policy must address
EQUITY POLICY #6 existing housing as well as new construction. Scott McGill, in the article
Everyone & Why We Need Them, discusses how rental registry also offers
PRESERVE & ENHANCE EXISTING AFFORDABLE HOUSING THROUGH THE housing providers the means to update important emergency information
LAND BANK, COMMUNIT Y LAND TRUST & VACANT LAND COMMISSION. such as property manager and owner contact information, access their
government-issued notices and forms, report rental vacancy rates, and pay
Previous Comprehensive Plans laid the groundwork for the currently existing fees online. There are additional benefits on the landlord/property owner side
program infrastructure to serve our affordable housing needs. Subsequent as well. In preliminary meetings with housing stakeholders, developers with
steps need to address the ongoing funding and identify methods for making a proven track record of strong property management indicated that the most
sure these programs reach the critical mass of assets needed to become important factor in their decision to make a purchase in a given area was the
self-sufficient. upkeep and maintenance of that neighborhood by other landlords. They felt
it was impossible to overcome the inertia of neighborhood decline without
The development of affordable housing within the City is a central focus of the
other good faith actors. A proactive approach to code enforcement, driven by
Comprehensive Plan. When reviewing the mechanisms for affordable housing,
random inspections, will ensure that it is possible to invest in all areas where
there are regulatory changes that can allow or incentivize affordable options.

80 | THEME A IMAGINE LEXINGTON 2045

a return can be achieved by making all neighborhoods more desirable.

Lexington has the opportunity to establish an effective landlord/rental

registration program by adopting and incorporating key features from
other cities like the Louisville’s Rental Registry and the Baltimore County
Government. The program should include elements like a publicly accessible
landlord registry with information on evictions, code enforcement violations,
and tenant complaints. It should also consider mandating annual inspections
for rental properties and establishing a mandatory registration process
for all rental units, including short-term rentals. Non-compliance with the
registration requirements could result in penalties, such as license denial,
suspension, revocation, or non-renewal, along with civil fines for violations
and failure to comply with correction notices. Additionally, provisions should be
included that benefit those who have consistently demonstrated compliance
over time, by relaxing inspection and fee requirements for these “good
actors”. By implementing these measures, Lexington can more effectively
track property ownership, enforce tenant protections, and improve rental
conditions throughout the city. To ensure ease of use for the public, a user-
friendly registration account should be developed to offer comprehensive
information and instructions regarding the registration requirements,
ensuring accessibility for all stakeholders. well as the creation of incentives, are vital next steps to improving access
to ADUs. For the typical homeowner ADU applicant, streamlining the permit
process and reducing the administrative cost in order to make ADUs an
EQUITY POLICY #8 attractive housing option for homeowners should be addressed. Further, in
order to provide more equitable access to ADUs, some cities like Chicago,
IMPROVE ACCESS TO AND PROMOTE ACCESSORY DWELLING UNITS AS
Illinois or Salem, Massachusetts provide grants or low interest financing
A MORE AFFORDABLE HOUSING OP TION IN LEXINGTON. options to assist in design or construction costs for some applicants.
The 2018 Comprehensive Plan called for the creation and adoption of an
Accessory Dwelling Unit (ADU) ordinance to reintroduce a historic housing EQUITY POLICY #9
option that had been made illegal over time. After working extensively with
the Senior Services Commission and the American Association of Retired COMMUNIT Y FACILITIES SHOULD BE WELL INTEGRATED INTO THEIR
Persons (AARP) for over 2 years, in October of 2021 the Urban County Council RESPECTIVE NEIGHBORHOODS.
adopted Lexington’s first modern ADU ordinance. In early 2022, Lexington
and Louisville planning staff worked together to host a statewide ADU virtual EDUCATION
conference with over 500 attendees that focused on educating builders,
To foster stronger communities, it is vital to design school sites that are
real estate agents, appraisers, and lending agents on national trends and
appropriately sized and integrated within the community, rather than isolated
practices on ADU construction.
and inaccessible. Ensuring neighborhood access to these facilities is crucial,
Cultivating a successful ADU program requires ongoing efforts to make as they can serve as catalysts for community-building. Schools should be
these units easier and more affordable to build. Education and awareness viewed as valuable community assets, and it is essential to prioritize their
in the various building trades and industries that are part of the building and suitability and safety for hosting diverse community events. This recognition
financing process is just one aspect. Further changes to the regulations, as and prioritization can contribute to the development of a culture of community
engagement and participation.

DIVISION OF PLANNING NEIGHBORHOODS | 81

Expanding successful after-school programs across schools in Lexington is embracing change, libraries can continue to play a leadership role in their
another crucial step in building stronger communities. Noteworthy initiatives communities.
such as the Extended School Program (ESP) and the Recreation Enrichment
and Learning Program (REAL) offer affordable, high-quality childcare In Kalev Hannes Leetaru's article Libraries Looking Across Languages:
services. While ESP caters to elementary school students, REAL is designed Seeing the World Through Mass Translation, he envisions a world where
for middle school students. These programs, developed through collaboration language ceases to be a barrier to accessing information in real time. Through
between Lexington Parks & Recreation and the Fayette County Public School seamless translation into various languages, everyone would have equal
system, are currently operational in select schools. Expanding the reach access to information, transcending linguistic limitations. While technologies
of these programs would allow more students and families to benefit from like the internet have broken down geographical barriers, linguistic obstacles
the valuable services they provide, thereby positively impacting community still prevent many voices from being heard. Libraries, particularly those in
wellbeing. multilingual communities, have taken steps to make their resources more
accessible by employing bilingual staff and volunteers. However, providing
Lexington should consider implementing a program that offers a assistance in another language is only one part of the solution; the information
complimentary Student Bus Pass to all students enrolled in High Schools, itself must also be available in a language that patrons can understand. Some
Middle Schools, and Community Colleges within the city. This initiative aims to libraries have begun translating their catalogs into the most commonly spoken
alleviate the financial burdens faced by low-income and diverse communities, languages, often relying on machine translation and volunteers for manual
enabling young individuals from across Fayette County to access its resources corrections. Although imperfect, this is a step in the right direction. To truly
and opportunities equitably. Additionally, it fosters a culture of early exposure create a welcoming environment for all members of the community, libraries
to public transportation and makes bus travel a common practice from a should collaborate with professional translation services experienced in
young age. Moreover, designating specific weekend destinations can further translating literary works and other library materials. By making even a
enhance community involvement in local events and venues, such as parks few popular works accessible to a wider audience, libraries can fulfill their
and libraries. purpose of providing equal and comprehensive access to information.

Additionally, exploring the integration of public healthcare facilities within

school buildings can yield significant advantages. This integration would
enhance accessibility and convenience in accessing healthcare services
for students and the wider community. By transforming schools into
multifunctional spaces that encompass education, community events,
and healthcare, the overall well-being and development of the community
can be greatly enhanced. This comprehensive approach recognizes the
interconnectivity of various community needs and contributes to holistic
community development.

LIBRARIES
Libraries have transformed into much more than just a place to borrow
books. They have become vital civic infrastructures, serving as centers for
productivity, connectivity, and research. In response to the digital age and
the effects of the COVID-19 pandemic, libraries have adapted by providing
digital content and services, attracting patrons who value convenience. As
remote work becomes increasingly prevalent in the post-pandemic world,
libraries can further appeal to a wider audience by offering diverse spaces
to accommodate different working styles. By championing sustainability and

82 | THEME A IMAGINE LEXINGTON 2045

Libraries also play a crucial role in supporting creative aging and fostering To ensure that these facilities continue to be accessible and provide quality
community enrichment. As the older adult demographic becomes the care, it is crucial that the city, service providers, and neighborhoods work
dominant group in the United States by 2030, libraries are adapting to together collaboratively. This includes developing and implementing effective
meet their needs for meaningful engagement and accessible learning. For transportation options for patients, as well as conducting regular evaluations
lower-income communities and communities of color, libraries hold special of public safety concerns. By working together, Lexington can create a more
significance as community anchors. They serve as places for acquiring job equitable healthcare system that provides support to all members of the
skills, exploring new technologies, and accessing services that cater to their community and ensures that everyone has access to the care they need to
specific needs. Libraries have a longstanding commitment to serving the thrive.
poor, as recognized by The American Library Association's Policy #61, which
aims to enable the participation of economically disadvantaged individuals in GREENSPACE, FOCAL POINTS ETC.
society. While libraries cannot single-handedly address the complex issue
of homelessness, they strive to provide support and resources to unhoused Providing access to parks, greenspace, and neighborhood focal points
individuals, including access to library cards and non-judgmental assistance. is a critical component of establishing a strong and healthy community.
However, it is imperative to strive to make these amenities available to all
Public libraries are essential institutions that act as vital links in diverse community members, regardless of their housing circumstances. Ensuring
communities. A University of Pennsylvania study highlights their importance equitable access to parks and other communal areas is an essential step
as socially responsive establishments that offer crucial support to vulnerable towards guaranteeing that every member of the community, including those
individuals. Libraries serve as hubs of diversity, reaching out to the people experiencing housing insecurity, have the opportunity to reap the benefits of
experiencing homelessness, individuals with mental illness or substance these vital resources.
use disorders, recent immigrants, and those affected by trauma. Recognizing
the potential of libraries, policymakers and government officials should Recognizing the significance of these spaces, actions to guarantee that
incorporate them into budgetary plans to maximize their impact. Libraries they are accessible to all community members must be taken. This involves
have the capacity to improve population health, empower civic engagement, taking measures to ensure adequate access during the development of new
and foster active participation in local and global communities. As they sites, as well as exploring opportunities to retrofit existing locations with
continue to evolve and expand their roles, libraries are poised to become improved access. Additionally, Lexington must prioritize the unique needs of
even stronger community anchors. those experiencing housing insecurity when designing and maintaining these
public spaces. This can foster welcoming and inclusive communities where
HEALTHCARE, SOCIAL SERVICES everyone can enjoy the advantages of nature and social connections.

Community-based healthcare facilities are essential in providing access EQUIT Y POLICY #9 ACTION ITEMS
to healthcare and social services, especially in areas with low levels of 1. Support expansion of ESP and REAL programs to more schools.
automobile ownership. These facilities must also prioritize being good 2. Collaborate with libraries to improve access to additional
neighbors to the communities they serve. This involves recognizing the community services and engagement.
unique needs and characteristics of each community and delivering services 3. Develop resources to promote the development of affordable
in a respectful and supportive manner. housing with parks, greenspaces, and equitable transportation
options.
Examples of community-based healthcare facilities that embody this
approach include the San Francisco Community Health Center, which serves EQUIT Y POLICY #9 PLACEBUILDER CRITERIA
low-income and immigrant populations with culturally sensitive care, and • A-EQ9-1: School sites should be appropriately sized.
the Montefiore School Health Program in New York City, which partners with • A-EQ9-2: Shared open spaces should be easily accessible and
local schools to provide comprehensive healthcare services to students. A clearly delineated from private open spaces.
local example is the UK HealthCare Community Engagement Program, which
provides healthcare services and resources to communities in Kentucky.

DIVISION OF PLANNING NEIGHBORHOODS | 83

 Universal Design Principles
Equitable Use The design is useful & marketable to people with diverse abilities

Flexibility in Use The design accomodates a wide range of individual preferences & abilities

Use of the design is easy to understand, regardless of the user's experience,

Simple & Intuitive Use
knowledge, language skills, or current concentration level
The design communicates necessary information effectively to the user, regardless
Perceptible Information
of ambient conditions or the user's sensory abilities
The design minimizes potential hazards & the adverse consequences of accidental
Tolerance for Error
or unitended conditions

Low Physical Effort The design can be used effiently & comfortably & with a minimum of fatigue

Appropriate size & space is provided for approach, reach, manipulation, & use
Size & Space for Approach & Use
regardless of user's body size, posture, or mobility

EQUITY POLICY #10 developments where possible. Usability for all People recommends guidelines
to establishing universal design as the foundation, suggesting it becomes
HOUSING DEVELOPMENTS SHOULD IMPLEMENT UNIVERSAL DESIGN easier and more cost-effective to incorporate specialized features as needed,
PRINCIPLES ON A PORTION OF THEIR UNITS. catering to those with significant functional needs.

Universal design is design that’s usable by all people, to the greatest extent It's important to recognize that everyone interacts with the built environment
possible, without the need for adaptation or specialized design, as stated by differently, with abilities changing over the course of a person's lifetime.
Ron Mace, who is best known for coining the term universal design and for Given the substantial global population of individuals with physical, auditory,
his work advocating for people with disabilities. While public spaces such or visual disabilities, autism or neurodevelopmental and/or intellectual
as parks, plazas, streets, and gardens typically meet the legal requirements disabilities, or neuro-cognitive disorders, it is of growing importance to
of the Americans with Disabilities Act (ADA), it's important to recognize that extensively implement universal design principles in order to address
these standards represent a minimum level of accessibility. However, due and alleviate these challenges. Additionally, the creation of an age friendly
to their emphasis on technical aspects rather than experiential quality, ADA development plan should be explored to address inequities in both public and
standards often result in spaces that remain challenging for people with private facilities and to raise awareness about the opportunities to improve.
disabilities to access, leading to a sense of physical and mental disconnection The city of Pittsburgh has developed a model program that Lexington should
from public. look to emulate.

To address this issue, Lexington should consider surpassing the minimum

requirements set by the ADA standards. The American Society of Landscape
EQUITY POLICY #11
Architects (ASLA) recommends that with the preference of older Americans to ENSURE STABLE HOUSING., EMPOWER INDIVIDUALS THROUGH
age-in-place rather than relocate to retirement communities, neighborhoods
SHELTER, AND PROVIDE HOUSING SECURIT Y THROUGH PERMANENT
must be designed to accommodate individuals of all ages and mobility
RESIDENCES AND COMPREHENSIVE ASSISTANCE PROGRAMS.
levels. To support aging in place and recognize the increasing senior housing
need, universal design principles should be incorporated into neighborhood The availability of existing affordable housing for both rental and ownership

84 | THEME A IMAGINE LEXINGTON 2045

purposes is on the decline, and the construction of new affordable units is
failing to keep pace with the growing demand. It is imperative to prioritize
concerted efforts towards enhancing housing affordability and security.
Specifically, special attention should be given to addressing the housing
needs of vulnerable groups, including, but not limited to, groups such as the
aging population, individuals with disabilities, and those with incarceration
histories. Achieving this objective requires effective coordination at the local
and regional levels, leveraging data-driven solutions.

Preserving affordable rental units in Lexington poses significant challenges

due to various factors. These include owners choosing not to accept housing
vouchers, converting properties into higher-priced rentals, escalating rents
resulting in tenant displacement, and an overall shortage of affordable
alternatives. To tackle these issues, it is crucial to adopt equitable development
methods rooted in transparency and community engagement. This entails
implementing measures like tenant protections, tax incentives, and housing
counseling. Additionally, it is important to address discriminatory practices
based on income source, eviction status, credit score, and immigration status,
among other factors.

To promote housing stability and advance racial equity, it is essential to

undertake efforts to increase homeownership assistance. Racial equity
should be embedded into all housing and community development strategies
and plans, becoming an institutionalized principle. Removing barriers to
funded housing assistance and supporting strategies that facilitate stable
housing transitions are of paramount importance. Moreover, rent regulations
should strike a delicate balance that considers the needs of both property
owners and the overall housing supply.

By implementing these measures, Lexington can actively work towards

achieving housing stability and equity for all its residents.

EQUIT Y POLICY #11 ACTION ITEMS

1. Collaborate with government agencies to develop comprehensive
assistance programs.

DIVISION OF PLANNING
THEME B.
PROTECTING THE
ENVIRONMENT.
INTRO
A healthy environment is essential for human wellbeing, providing access to clean air, water, and soil, as well as
thriving natural areas for recreation, relaxation, and environmental resiliency. This section of the Comprehensive
Plan outlines the commitment to developing and implementing effective strategies, policies, and plans that
promote environmental sustainability and resiliency in line with the vision for a thriving community. The following
policies outline specific actions that will be taken to achieve these goals and maintain a healthy and sustainable
environment for all. By taking action today, both present and future generations can continue to enjoy a high quality
of life.

Following the 2018 Comprehensive Plan, concrete steps have been taken toward incorporating green infrastructure
principles into planning activities, increasing transit and non-motorized transportation options, prioritizing
greenspace conservation and access, and managing water quality through various programs and grants in
Lexington. These efforts have resulted in the creation of tree protection areas, community gardens, multi-use
trails, and naturalized riparian areas, all while accommodating new development within the Urban Service Area.

As climate change continues to have negative consequences and climate research suggests the approaching
point of no return, it has become imperative to prioritize efforts to reduce Lexington’s regional greenhouse gas
emissions. Lexington must also work toward a more just, equitable, and livable city, addressing historic patterns
of investment and disinvestment in urban greenspaces that have left some neighborhoods more vulnerable to
climate impacts and negative health consequences such as urban heat, air and water pollution. Discussions around
environmental sustainability and resiliency must therefore center on the critical issue of Environmental Justice.

This section of Imagine Lexington presents an overview of the impacts of development on the environment
and recommends policies and practices to minimize and mitigate negative environmental impacts of land use,
transportation, and energy consumption. The policies focus on protecting valuable natural resources, taking a
sustainable approach to development activities and land use patterns, building environmental equity, and restoring
resiliency across Lexington’s urban and rural areas.

WHERE ARE WE NOW?

Lexington has the potential to create a mutually beneficial relationship between people, the built environment, and
nature, but to do so, careful land planning and development policies are essential. Policies for new development
and redevelopment must prioritize a sustainable built environment that supports positive climate action. A holistic
approach to natural resource conservation, agricultural heritage, and equitable urban development is necessary
to support broad-scale environmental resiliency and climate action.

Lexington’s rural areas feature limestone geology, rolling hills of bluegrass, and abundant headwater streams,
which contribute to the city’s identity and support signature industries such as thoroughbred breeding and
bourbon distilling. Within the urban area, parks, greenspaces, and tree canopy contribute to the city’s beauty and
environmental resiliency. However, it is crucial to address the equitable distribution of these resources.

ENVIRONMENT | 89
To create a thriving community that benefits both its residents and the
environment, Lexington’s urban and rural lands must work together in a
coordinated way. The following sections describe the current progress in
environmental planning for natural systems and ecology, agriculture, the built
environment, and climate planning.

NATURAL SYSTEMS AND ECOLOGY

Natural systems are composed of biotic (flora and fauna), and physical (land
and water), systems. Landscapes in Fayette County range from natural to
farmland, suburban to urban, and with varying amounts of greenspace and
forest scattered throughout.

LAND AND SOILS

Lexington’s fertile soil is a valuable natural asset that has supported diverse
crops and farming for centuries. Preserving fertile soils is vital for local food
security, ecosystem health, and balanced carbon cycles. However, ongoing
development is threatening the city’s land and soil resources. While the Urban
Service Boundary protects rural land and significant soils, population growth
in the Urban Service Area puts greenspace, floodplains, and forests at risk.
Proper policies and controls are necessary to protect the urban environment area for the aquifer is located within northern Fayette County.
during development.
Fayette County contains nine watersheds, with the Kentucky River and Boone
According to the Rural Land Management Plan, approximately 30% of prime Creek exclusively located in the rural area. Seven headwaters originate
farmland and significant soils in Fayette County have been lost to development within the Urban Service Area, which experiences significant pollution from
since pre-settlement times. To safeguard agricultural land, Lexington has nutrients, pathogens, and sediment. Stream segments in all nine watersheds
implemented the Urban Service Boundary and Purchase of Development are assessed for designated uses, including recreation, fish consumption,
Rights program, which protects over 73,998 acres of prime farmland and drinking water, and aquatic habitat. Unfortunately, all streams do not fully
38,150 acres of soils of statewide significance. As of 2022, the PDR program support at least one use, although Town Branch has improved from non-
has preserved over 30,000 acres of Fayette County’s agricultural land, with a support in 2008 to partial support in 2010.
goal of 50,000 acres to be preserved in total.
Since 2011, the LFUCG Division of Water Quality has implemented the Capacity
WATER RESOURCES Assurance Program to monitor sewer capacity and integrated stormwater
management into development technical discussions. The Municipal Separate
Fayette County lies within the Inner Bluegrass region, known for its karst Storm Sewer Systems (MS4) program monitors non-point source pollutants
geology featuring springs, caves, underground streams, and sinkholes. and identifies illegal point discharges, while Remedial Measures Projects
Creeks flow away from the city center and into surrounding counties, while provide sewer capacity and abate weather-related overflows.
the Kentucky River forms the southeastern border and serves as the county’s
drinking water source. To protect water quality, the Kentucky Geological URBAN FOREST
Survey recommends several practices for source water protection areas. The
city of Georgetown, located in Scott County to the north of Lexington, obtains Urban trees provide numerous benefits, such as reducing electrical costs
its drinking water from the Royal Spring Aquifer. Notably, 80% of the recharge by providing cooling shade and decreasing the heat island effect, cleaning

90 | THEME B IMAGINE LEXINGTON 2045

 coincide with income and race, highlighting the need for diverse and equitable
urban tree management.

BIODIVERSIT Y & NATURAL HABITAT

Biodiversity encompasses the variety of life on Earth, including different
species, their genetic diversity, and the ecosystems in which they thrive.
It has developed over billions of years through the intricate interactions
between living organisms and their environment. Biodiversity is critical for
providing essential ecosystem services that support human wellbeing, such
as air and water purification, pollination, soil fertility, climate regulation, and
food production. Additionally, biodiversity also contributes to the cultural,
aesthetic, and recreational values that enhance the quality of life in cities.

The Kentucky River corridor and its tributaries remain the only significant
forest cover in the area, providing habitat for a diverse array of plants and
wildlife. Urban areas that support notable plant life or habitats include
McConnell Springs Nature Park, the Arboretum on the University of Kentucky
campus, Lexington Cemetery, Masterson Station Park, Jacobson Park,
Veterans Park, and Kearney Hill Golf Links.

Protecting and enhancing biodiversity is vital for promoting sustainable

the air by removing pollutants and absorbing carbon dioxide, controlling soil
development and resilience in the face of environmental challenges like
erosion by slowing and absorbing stormwater runoff, and providing habitat
climate change. It can be achieved through practices like preserving,
for wildlife. They also enhance the aesthetic appeal of neighborhoods and
restoring, and connecting natural habitats, using green infrastructure,
increase residential property values.
promoting sustainable land use practices, and engaging local communities in
LFUCG Division of Environmental Services has made significant progress conservation efforts. However, a comprehensive study of biodiversity assets
with the Urban Forestry Program, including tripling the budget, hiring and restoration planning in Lexington has yet to be conducted.
a City Arborist and two new forestry crews led by certified arborists, and
implementing street tree care and planting initiatives. Trees Lexington!, a AGRICULTURE AND NATURAL RESOURCES
grassroots non-profit organization, is also working on community planting
Fayette County’s rural land is primarily used for agriculture, with a variety of
projects with community support.
farms ranging from horse farms to crop and cattle production. The 2017 Rural
A 2022 Urban Tree Canopy Assessment revealed that tree canopy cover Land Management Plan provides an update on various plans, regulations,
increased from 20% to 23% from 2012 to 2020 in the Urban Service Area, except studies, and reports since the 1999 Rural Service Area Land Management Plan.
for District 1, which experienced a decrease of eight acres. The assessment Protecting the rural area is crucial not only for environmental sustainability
found that 33% of land within the Urban Service Area is suitable for planting. but also for the Agricultural Cluster, a major economic driver for Lexington,
The 12,649 acres of tree canopy in Lexington generate over $6.5 million in which generates about $2.3 billion in output and supports one out of every 12
economic, environmental, and social benefits annually, as well as $111 million jobs in Fayette County, according to a University of Kentucky study.
in carbon storage.
As the “Horse Capital of the World,” Lexington has a rich cultural landscape
Urban trees can also serve as a tool for equity in a community. A Tree Equity of horse farms and racing that is protected under various policies, including
Score calculated by American Forests indicates that canopy cover gaps often the Purchase of Development Rights (PDR) program. Recent initiatives aim

DIVISION OF PLANNING
to connect the urban community with rural land, such as Horse Country Inc., are actively engaged in energy efficiency programs, with the hope that their
which provides tours to horse farms, and programs like Blue Grass Farm to effects will spread to their parents and families. Additionally, school building
Table, Community Shared Agriculture (CSA), and farmers markets that bring such as the net-zero energy Locust Trace AgriScience Center, are a showcase
local food and products to urban families, strengthening the rural-urban for energy and environment focused facility design.
connection.
GREEN INFRASTRUCTURE
Climate change is affecting agriculture in central and eastern Kentucky
by prolonging the frost-free growing seasons and increasing atmospheric Green infrastructure refers to the natural or semi-natural systems and
carbon dioxide, which tends to increase crop yields. However, more frequent features that provide a range of ecological, economic, and social benefits to
and severe droughts, spring and summer storms, and hot days may decrease people and the environment. It can include forests, wetlands, grasslands, parks,
crop success and yields, and have negative impacts on livestock health. greenways, street trees, green roofs, green walls, permeable pavements, and
other forms of vegetation or natural features that are integrated into the built
BUILT ENVIRONMENT environment. Green infrastructure is used to balance the built environment
with natural systems, and to create more sustainable, resilient, and livable
The built environment has a significant impact on environmental sustainability. communities.
The construction of buildings and infrastructure can result in habitat loss,
disruption of natural waterways, and increased energy consumption. Poorly While green infrastructure provides significant ecological benefits, it also
designed buildings and neighborhoods can also contribute to urban heat provides crucial social and physical wellness benefits to residents and visitors.
islands, which can lead to increased energy demand for cooling and lower To ensure effective planning and management of the green infrastructure
air quality. However, incorporating sustainable design practices into the network, the City has maintained various plans and resources, including the
built environment can help mitigate these negative impacts. Buildings and 1996 Greenspace Plan, 2002 Greenway Master Plan, 2018 Parks Masterplan,
infrastructure that are designed to be energy-efficient, use sustainable 2017 Urban Forestry Management Plan, 2017 Rural Land Management Plan, and
materials, and incorporate greenspaces can reduce their environmental the 2018 Bike and Pedestrian Master Plan. Additionally, the 2020 Stormwater
footprint and promote sustainable living. Additionally, mixed-use Manual includes site-based green infrastructure best management practices
neighborhoods with access to public transportation and walkable amenities to address stormwater runoff.
can encourage alternative transportation methods and reduce reliance on
cars, further reducing the impact on the environment. LFUCG currently manages over 500 acres of greenways that serve as
stormwater management, water quality, environmental conservation, and
ENERGY AND SUSTAINABILIT Y recreation areas. Additionally, the city maintains just over 5,300 acres in 104
parks and golf courses across the county, and the 2018 Parks and Recreation
Although LFUCG has an energy initiatives team that monitors the government’s Master Plan calls for more parks and open spaces to be reserved or provided
energy usage, there is currently no community-wide monitoring or during the development of new neighborhoods.
transparency on energy usage. Creating energy awareness is the community’s
first step towards conserving energy. In 2012, a community-led voluntary plan AIR QUALIT Y
called Empower Lexington was presented and supported by the Urban County
Council, which made valuable recommendations for action plans, and major The Clean Air Act Amendments of 1990 require all metropolitan areas to
updates to this plan are currently underway. meet the National Ambient Air Quality Standards (NAAQS) established by the
Environmental Protection Agency (EPA) for numerous criteria air pollutants,
Looking to local partners, the University of Kentucky supports a robust including ozone (O3), particulate matter, carbon monoxide (CO), nitrogen
Sustainability Program, which not only supports academic research, but dioxide (NO2), and sulfur dioxide (SO2). Metropolitan areas that meet these
also provides services and management for campus operations. Fayette standards are considered to be in attainment and are not required to establish
County Public Schools is also a local leader in sustainability initiatives. By control measures to improve air quality. The purpose of the NAAQS is to
implementing multiple programs within the school system, young supporters regulate criteria air pollutants that have been deemed a risk to public health.

92 | THEME B IMAGINE LEXINGTON 2045

 interest in maintaining or further lowering regional ground level ozone
concentrations.

The other pollutant of interest are two classifications of particulate matter

which when inhaled in significant quantities can lead to negative health
consequences such as decreased lung function, aggravated asthma, irregular
heartbeats, nonfatal heart attacks and premature death for persons with
heart or lung disease. Particulate matter is regulated by the EPA for sizes
of 10 micrometers or less (PM10) as well as those less than 2.5 micrometers
(PM2.5). In addition to the health consequences, particulate matter also
contributes to negative impacts such as the acidification of lakes and
streams, depleting soil nutrients, damaging sensitive forests and farm crops
and decreasing the biodiversity of ecosystems.

The Lexington Region has been classified as ‘attainment’ for both

classifications of particulate matter and current region wide levels are well
below EPA standards for concentrations under the NAAQS. Nevertheless,
research suggests exposure to unhealthy concentrations of particulate
matter can be possible in close proximity to features such as busy highways,
railroad yards, certain industries, and certain types of surface mining as well
as any open wood burning. Of particular concern for the Lexington Region are
emissions from vehicles, especially from arterial roadways in close proximity
to residential areas, which according to the U.S. Department of Transportation
disproportionality impact low-income and minority communities. Diesel
fuel, which is a primary fuel source for most large trucks, is a particularly
significant source of particulate matter emissions.

CLIMATE CHANGE & RESILIENCY PLANNING

The Lexington Metropolitan Area has previously been designated as non- Kentucky’s climate is changing. Although the average temperature did
attainment by the EPA due to concentrations of ground level ozone exceeding not change much during the 20th century, most of the commonwealth has
those considered acceptable under the NAAQS. The good news is that warmed in the last 20 years. Average annual rainfall is increasing, and a
regional ozone concentrations have significantly decreased during the past rising percentage of that rain is falling on the four wettest days of the year.
20 years primarily due to advances in fuel efficiency and emission reductions In the coming decades, the changing climate is likely to reduce crop yields
for motor vehicles and other internal combustion engines. As such, the and threaten some aquatic ecosystems. Floods, such as those experienced
Lexington Metropolitan Area is now considered in compliance with NAAQS in Eastern Kentucky in July of 2022, may be more frequent resulting in
standards for ozone. significant damage to property, disruption of travel and increasing threats
to life. Ironically, droughts may also be longer and more severe, which would
However, recent research suggests that exposure to even modest levels of
increase the difficulty of meeting the competing demands for water in the
ground level ozone can have significant health consequences especially to
Ohio, Tennessee, and Cumberland rivers.
the very young or old and to those with asthma or other lung diseases or
those with cardiopulmonary diseases. Therefore, even though the region is The climate is changing because the earth is warming. People have increased
in compliance with current EPA standards, the LFUCG has a public health the amount of carbon dioxide in the air by 40 percent since the late 1700s.

DIVISION OF PLANNING ENVIRONMENT | 93

Other heat-trapping greenhouse gases are also increasing. These gases have walkable infill development are positive steps toward reducing urban heat
warmed the surface and lower atmosphere of the Earth about one degree (F) island and greenhouse gas emissions. Additionally, through a grant from
during the last 50 years. Evaporation increases as the atmosphere warms, the US EPA, the LFUCG will be developing a Climate Pollution Reduction Plan
which increases humidity, average rainfall, and the frequency of heavy in coordination with five surrounding counties for implementation in 2025
rainstorms in many places—but contributes to drought in others. These (Bourbon, Clark, Jessamine, Scott, and Woodford Counties). The intent of this
changes are also influencing the magnitude and frequency of other extreme plan is to identify and implement opportunities for the region to align with the
meteorological events, such as the windstorms of March 3, 2023, land falling federal goal of net zero greenhouse gas emissions by 2050.
hurricanes or winter weather events such as ice storms or extreme snowfall.
“Environmental issues affect every part of our lives. And climate change will
The warming climate is also accelerating the melting of polar ice-caps make it more important.” – Lexington Resident, 2022 OTT Response
resulting in a significant rise of global sea level. This rise will not directly
impact Lexington, being 1000 feet above sea level. However, many of the
largest cities in the US, such as Miami, New Orleans, and New York, are
already being impacted with many others to follow. This is resulting in the
potential population displacement of tens or hundreds of thousands during
the next several decades to other locations not being impacted. Lexington is
potentially one such place of refuge.

Natural cycles and sulfates in the air prevented much of Kentucky from
warming during the last century. Sulfates are air pollutants that reflect
sunlight back into space. Now sulfate emissions are declining, and the factors
that once prevented Kentucky from warming are unlikely to persist. By the
end of the century, Lexington could have temperatures similar to Houston
or New Orleans, according to researchers at the U.S. Geological Survey.
High air temperatures can cause heat stroke and dehydration and affect
people’s cardiovascular and nervous systems. Certain people are especially
vulnerable, including children, the aging population, those with health
conditions, and economically disadvantaged individuals. Hot days can also
increase the frequency of dangerous concentrations of ground level ozone
(see discussion regarding air quality).

To address the impacts of climate change, Lexington needs to conduct a two-

pronged approach:

1. Reduce regional greenhouse gas emissions by identifying and

ultimately eliminating significant sources of emissions as well as implementing
any opportunities to capture and sequester atmospheric carbon.

2. Implement projects, policies and strategies which allow Lexington to

adapt to a changing climate and become more resilient.

Fortunately, many of the city’s ongoing initiatives such as increasing urban

tree canopy coverage, protecting rural greenspaces, and focusing on compact,

94 | THEME B
VISION FOR THE
ENVIRONMENT.
protection sustainability restoration

PILLARS & POLICIES

PILLAR I PROTECTION.
Kentucky’s own Wendell Berry wisely remarked that “the Earth is what we all wildlife habitat, and control flooding. Combining existing with recorded and
have in common.” Likewise, the natural environment of Lexington is something future greenways, there is potential for 1,400 acres of LFUCG greenways, of
that all members of the community share in common. It is incumbent upon which 1,000 acres could function as both conservation and trail greenways.
each of us to protect it, and it is crucial that the Comprehensive Plan lay out The protection and proper utilization of these greenways should be a priority,
actionable strategies for safeguarding the environmental resiliency that is key and the development that occurs around them should be complementary and
to the health and welfare of the community. As the city continues to grow and use them as an amenity for the entire community to enjoy. The Greenway
develop, it becomes even more important to be cognizant of the immediate Master Plan should be consulted and followed for all development that affects
and long-range effects land use decisions will have on the environment. these sensitive areas of the community.

One of the vital components of environmental protection and a nationally Greenways and other green and open spaces are valuable for their ecological
recognized growth management strategy is Lexington’s Urban Service benefits, but also for their impacts on livability and tourism. It is apparent
Boundary, which delineates the areas where urban growth can occur within from the 2017 Greenspace Survey that Lexington residents overwhelmingly
the city. The public input gathered in 2022 through the community wide On appreciate and visit greenspace. Open land areas with lawn and trees, such
the Table event includes broad support for maintaining the Urban Service as parks, dog parks, the arboretum, and school and church yards ranked
Boundary. There are numerous environmental benefits gained by retaining a the highest, with 95% of respondents indicating that have utilized one of
compact urban form, and emphasizing the protection of Lexington’s unique these facilities. Additionally, 65% of respondents stated they visit a public
bluegrass landscape continues to be a priority for environmental protections. greenspace once a week or more, utilizing greenspace most often to relax,
According to the 2017 Rural Land Management Plan (RLMP), the Rural socialize, picnic, exercise the dog, fly a kite, etc. (86%) or to appreciate nature
Service Area (outside of the Urban Service Area, shown on the following (85%). The types of greenspaces rated highest in importance are open land
map) is comprised of 88% prime farmland and soils of statewide significance. (84%), nature parks or sanctuaries (83%), neighborhood and park trails (83%)
Additionally, the RLMP showed that just under 30% of the Rural Service Area and farms and scenic rural roads (80%). Interest is highest for participation
are considered Environmentally Sensitive Areas (stream corridors, karst in the rural area in nature recreation (76%), events and festivals (74%), farm,
areas, steep slopes, wetlands, mature tree stands, etc.). These areas are winery and botanical garden tours (74%), homegrown restaurants (73%) and
important and are worth protecting. biking, hiking and equestrian trails (73%).

Though there are numerous environmental protection considerations for the Overall, it is evident that Lexington residents highly value their greenspaces
Rural Service Area, there are protections needed inside the Urban Service of all types, and more greenspace opportunities to meet these public desires
Boundary as well. In 2011, the City of Lexington entered a Consent Decree with should be encouraged. These valuable greenspaces within Lexington
the U.S. Environmental Protection Agency and the Commonwealth of Kentucky should be protected, but it is also critical to optimize their effectiveness and
to resolve violations of the Clean Water Act associated with the sanitary encourage new and innovative spaces throughout the Urban Service Area.
sewer and storm sewer systems by the year 2026. A Remedial Measures Imagine Lexington makes it clear throughout the plan that safeguarding
Program has been established to evaluate the sanitary sewer system to greenspace for health, social and environmental benefits is paramount to the
identify a cost-effective, efficient improvement plan to address recurring success and sustainability of the city.
sanitary sewer overflows. Additionally, a Capacity Assurance Program has
been instituted as a way of managing access to the sanitary sewer system.
GREEN INFRASTRUCTURE
Growth and development are important to Lexington’s maturation as a city,
but it must be done in a way that respects the natural environment. As Green infrastructure refers to the natural or semi-natural systems and
urban development intensifies, the city must also intensify protections of the features that provide a range of ecological, economic, and social benefits to
natural ecosystems within the Urban Service Boundary through conservation people and the environment. It can include forests, wetlands, grasslands, parks,
greenways. The 2002 Greenway Master Plan designates streams, floodplains, greenways, street trees, green roofs, green walls, permeable pavements, and
riparian vegetation, and associated environmentally sensitive or geologic other forms of vegetation or natural features that are integrated into the built
hazard areas as conservation greenways to improve water quality, provide environment. Green infrastructure is used to balance the built environment

98 | THEME B IMAGINE LEXINGTON 2045

with natural systems, and to create more sustainable, resilient, and livable
communities.

While green infrastructure provides significant ecological benefits, it also

provides crucial social and physical wellness benefits to residents and visitors.
To ensure effective planning and management of the green infrastructure
network, the City has maintained various plans and resources, including the
1996 Greenspace Plan, 2002 Greenway Master Plan, 2018 Parks Masterplan,
2017 Urban Forestry Management Plan, 2017 Rural Land Management Plan, and
the 2018 Bike and Pedestrian Master Plan. Additionally, the 2020 Stormwater
Manual includes site-based green infrastructure best management practices
to address stormwater runoff.

PROTECTION POLICY #1
CONTINUE THE SANITARY SEWER CAPACIT Y ASSURANCE PROGRAM
(CAP) AND ENCOURAGE THE STORMWATER INCENTIVE GRANT PROGRAM
TO REDUCE IMPACTS OF DEVELOPMENT ON WATER QUALIT Y.

LFUCG Division of Water Quality oversees the storm sewer system of over
800 miles of underground pipelines; 50,000 structures; and over 1,000 wet
ponds and detention basins; the sanitary sewer system of over 1,400 miles
of underground pipelines; and 36,000 manholes, with 75 pumping stations
conveying sewage throughout the Urban Service Area. Since 2015, over 70
million gallons of wet weather storage facilities have been constructed to
prevent the release of raw sewage into waterways during rain events. There
are two treatment plants capable of treating over 60 million gallons of sewage
each day.

Since entering the consent decree with the U.S. Environmental Protection
Agency (EPA) in 2011, the division continues to monitor impact of new
development on sewer conveyance and treatment capacity and has been
incorporated into the development plan review process with a required
sign-off. The Government’s challenge is to provide sewer capacity when
new development or redevelopment is proposed. All proposed new and
redevelopment projects must submit an application to the Capacity Assurance
Program (CAP), and the proposed connection to the sanitary sewer system
before the development plan can be approved. The Consent Decree also
required that a Remedial Measures Program be implemented to provide
capacity to abate recurring sanitary sewer overflows while supporting the
existing Urban Service Area full development projections published at that
time. The Consent Decree required Capacity Assurance Plan (CAP) is now
the mechanism for informing decision makers about available sanitary sewer

DIVISION OF PLANNING ENVIRONMENT | 99

capacity when a conditional use or change of use is proposed, as well as at Rights (PDR) Program. This program is the first Agricultural Conservation
the time of a preliminary zone change. The process should be documented in Easement program facilitated by a local government in Kentucky, and its
zoning compliance letters. primary goal is to preserve farmland, soils, and environmentally sensitive
land in the Rural Service Area. As of 2022, more than 30,000 acres of Fayette
In addition to requirements for new development, grant funding is available County's agricultural land are now protected through the PDR program.
for retrofits and improvements to existing development. Stormwater
Quality Projects Incentive Grant Program provides financial assistance The 2017 Rural Land Management Plan (RLMP) is dedicated to the planning
to Neighborhood Associations, Homeowners Associations, Educational and management of land uses in the Rural Service Area. The RLMP calls out
Institutions, and commercial entities for projects that improve water quality, a large “Natural Area” located in the extreme southeastern part of the county
reduce stormwater runoff and educate residents about stormwater quality as well as “Special Natural Protection Areas” which are dispersed across the
issues in the community. Grants associated with development projects must Rural Service Area. The plan maps areas of high priority and slightly lower
be for water quality or runoff reduction in excess of regulatory requirements. priority for preservation.
Since 2011, the Division of Water Quality has managed the grant awards
totaling between $1.2 and $1.7 million each fiscal year. Since 2011, a total of 227 Inside the Urban Service Area, the need to protect environmentally sensitive
grants have been awarded. Application to the grant is encouraged and should
be promoted through community outreach and the development process.
SPECIAL NATURAL
LFUCG currently manages over 500 acres of greenways that serve as
stormwater management, water quality, environmental conservation, and PROTECTION AREAS
recreation areas. Additionally, the city maintains just over 5,300 acres in
104 parks and golf courses across the county, and the Parks and Recreation 2017 Rural Land Management Plan
Master Plan calls for more parks and open spaces to be reserved or provided
during the development of new neighborhoods.

PROTECTION POLICY #2
CONSERVE AND PROTECT ENVIRONMENTALLY SENSITIVE AREAS,
INCLUDING SENSITIVE NATURAL HABITATS, GREENWAYS, WETLANDS
AND WATER BODIES.

Conservation refers to the protection, preservation, and management of

natural resources and ecosystems in order to maintain their ecological,
social, and economic values. Conserving environmentally sensitive areas
across Fayette County benefits local communities and the environment as a
whole by promoting biodiversity, protecting critical habitats for endangered
and threatened species, and providing essential ecosystem services. These
services include air and water purification, flood and drought risk mitigation,
and climate change impact reduction. Environmental conservation can Area # Special Natural Protection Area - “A” Sites
also improve public physical and mental health by increasing access to
greenspaces and providing opportunities for outdoor recreation.
B-# Special Natural Protection Area - “B” Sites
In the Rural Service Area, Lexington has taken significant steps in protecting the
land and soils of statewide significance through the Purchase of Development

100 | THEME B IMAGINE LEXINGTON 2045

areas must be balanced with the need to develop land for Lexington’s growing PROTECTION POLICY #3
population. As development occurs, care must be taken to ensure that
environmentally sensitive areas are protected so that they may continue to CONTINUE TO IMPLEMENT PDR PROGRAM TO SAFEGUARD LEXINGTON’S
provide the ecosystem benefits that are so valuable to communities. Policies RURAL LAND.
and regulations that support a balance of land for buildings and infrastructure
with areas of greenspace are needed to offset the negative environmental As outlined in the 2017 Rural Land Management Plan, Lexington has had a long
impacts of the built environment. The 2002 Greenway Master Plan identifies history of taking positive action to ensure the community’s rural landscapes
land for conservation within the Urban Service Area, and this plan is currently are preserved from unmanaged growth. In 1958, the Urban Service Area
being updated to reflect current conditions and best practices. Boundary was created to manage development and has become a pioneering
landmark for planning across the nation. In 2000, continuing the tradition of
For development applications inside the Urban Service Area, a process long-term land use planning, the Purchase of Development Rights Ordinance
should be established to identify and quantify endangered species on a was adopted.
proposed development site. New developments are advised to avoid dividing
floodplains into private ownership with flood insurance. Care should be Purchase of Development Rights, or PDR as it is more commonly known, is
taken during the development process to provide additional protection areas Kentucky's first Agricultural Conservation Easement program facilitated by a
around floodplains and to incorporate them into accessible greenspace via local government. The Rural Land Management Board governs the program
greenways. When greenways are located in neighborhoods, single-loaded and is the bridge between interested landowners and the federal, state, and
streets or highly visible pedestrian access points can provide more open local governments. The members of the Board are appointed by the Mayor
accessibility for residents to access greenways and any associated trails. and confirmed by the Urban County Council. Through the PDR program, the
Rural Land Management Board purchases farm owners’ development rights
Conservation easements can be used to establish greenways within (their right to ever develop the farm for urban uses), thereby preserving it as
floodplains or other environmentally sensitive areas. By working with farmland forever.
developers and landowners, cities can use conservation easements to
limit intrusive development and other activities, such as clear-cutting, that The conservation efforts of the City are significant on two separate levels.
could harm the environment. By using conservation easements to protect First, the program protects and preserves Lexington’s significant soils from
floodplains as greenways, cities can create a network of interconnected urbanized development. The protection of these soils is essential to the
natural areas that help support the health of the local ecosystem and provide sustainability and resiliency of the region. In periods of potential natural
valuable public amenities. disaster or economic instability, these properties are poised to produce the
greatest amount of food for the area. Secondly, the preservation of the land
PROTECTION POLICY #2 ACTION ITEMS provides funds to agricultural landowners to enhance agricultural operations
1. Develop a county wide inventory of Special Natural Protection onsite. The funds garnered by the PDR can allow for farms to modernize
Areas. equipment and remain solvent. Historically, farming operations which sought
2. Update land development regulations to include best practices to upgrade equipment or needed to weather periods of economic uncertainty
for greenway access and implementation of conservation were often forced to leverage the land. However, through the PDR Program
easements. property owners may sell future development to ensure solvency today.
3. Update the 2002 Greenway Masterplan.
Currently, there are 285 farms permanently protected by PDR, totaling nearly
PROTECTION POLICY #2 PLACEBUILDER CRITERIA: 31,066 acres, with 1,662 acres under contract. The goal of the PDR program is
• B-PR2-1 Impact on environmentally sensitive areas should be to conserve 50,000 acres of land (LFUCG PDR).
minimized within and adjacent to the proposed development site.
• B-PR2-2: Development should include regularly spaced access PROTECTION POLICY #3 PLACEBUILDER CRITERIA
with an adequate width to the greenway network and conservation • B-PR3-1 Minimize impact of development adjacent to land
areas. conservation properties through buffering.

DIVISION OF PLANNING ENVIRONMENT | 101

102 | THEME B IMAGINE LEXINGTON 2045
PROTECTION POLICY #4
Farms by Use
CONSERVE ACTIVE AGRICULTURE LAND IN THE RURAL SERVICE AREA
WHILE PROMOTING SUSTAINABLE FOOD SYSTEMS. Farms by Change from
2002 2007 2012
Use (%) 2002
In 2017, Fayette County had 622 farm operations on 114,624 acres, which
represented approximately 63% of the total land within the county. This
Pasture 27.3 39.2 47.9 75.5%
indicates a 13% decrease in active farm operations since 2012. However,
the decrease in farm operations is misleading, as the total acreage of
farm operations only decreased by 233 acres, or less than .2%. This loss of Cropland 56.3 45.4 35.1 37.7%
operations is representative of a greater consolidation of land within farming
operations, rather than a major reduction in active agricultural production.
Woodland 7.1 6.9 5.2 -26.8%
The consolidation of farms into larger operations has been well documented

Other 9.2 8.4 11.8 28.3%

RURAL LAND USE CATEGORIES 2017 Rural Land Management Plan
2017 Rural Land Management Plan

throughout the United States since the 1940s, and the expansion of mechanized
agriculture (USDA Farming and Farm Income).

Despite the shifts in the lotting size of agricultural production, and Lexington’s
focus on the equine industry, there is a growing focus within the region on
agricultural and horticultural operations geared towards the development
of more sustainable food systems. Sustainable food systems shift the
predominant focus of production for economic gain to a system that is targeted
at providing food security and nutrition for all through economically, socially,
and environmentally sustainable practices. Economically and environmentally
sustainable practices have been the intent of the City’s Community Supportive
Agriculture (CSA) Program. CSA programs are beneficial to both growers and
consumers, as they make direct connections between sellers and buyers,
which limits seasonal risk for growers and provides a more affordable
and transparent purchasing process for consumers. By collaborating with
Core Agricultural Land local farms, Lexington is supporting the local economy, while also providing
healthy foods to employees, which can reduce health insurance costs across
Natural Area the board.
Buffer Area
To establish sustainable food systems in the city, it's important to consider
Rural Activity Center the diverse groups of people involved in horticulture and agriculture. Black
Small Lot Residential Soil, a non-profit organization based in Lexington, seeks to reconnect Black
Kentuckians with their legacy and heritage in agriculture in both the rural and
Rural Settlement urban contexts. Black Soil offers a variety of programming on agritourism,

DIVISION OF PLANNING ENVIRONMENT | 103

education and outreach, event management, seed-to-shelf commitment, There are significant benefits gained through the promotion of local farms
and strategic partnerships. It is also important to support the history and within the community. By economically supporting locally owned farms,
prevalence of Lexington’s Latino population in the agricultural industry. While the community not only supports the preservation of a viable industry in
Lexington’s Latino population only comprises approximately 7.4% percent of the region but also benefits from economic stimulus. When money is spent
the population in 2021, greater than 60% of the H-2A visa program workers on goods that are produced within the community, those dollars are more
in the state of Kentucky have been based in Lexington. This suggests that readably re-spent within the local community. This raises the local economic
a large amount of the agricultural labor in Lexington is being conducted by activity and builds a greater local tax base.
individuals of Latin American decent (USDA 2022: H-2A Employer Data Hub).
Furthermore, when goods are produced and distributed locally, there are dual
In addition to the inclusion of more sustainable agricultural/horticultural benefits of reducing costs and the impact on the environment. Storing and
practices and a wider economic pool, a priority of sustainable food systems shipping agricultural goods is a time sensitive and costly process. The average
is the elimination of food insecurity and food waste. Within Kentucky, one food item travels 1,500 miles, compared to the average locally-produced item,
in eight people face hunger. What is more concerning is that one in seven which travels only 56 miles. By promoting locally produced goods, growers
children face hunger and approximately 41% of families in Kentucky are can reduce spending on transportation and storage, and can pass savings
reliant on the Supplemental Nutrition Assistance Program (SNAP) (Feeding along to consumers. Additionally, by reducing the distance food must travel
America). While Lexington’s percentage of food insecure population is less from the farm to the consumer, there will be a reduction in the vehicular
than the State, 11.4%, this still means that approximately 36,600 people are miles traveled, which will benefit the environment by reducing greenhouse
food insecure, or lack access at times to enough food for an active, healthy gas emissions.
life (Feeding America). Organizations like FoodChain and Glean Kentucky are
focused on both providing produce and vegetables to those in need, which Lexington should also seek grants and incentives to expand CSA opportunities
often supplement organizations like Gods Pantry and the Lexington Pride to contractors or other associated partners to increase participation in the
Center’s Food Pantry. program and support local farmers.

PROTECTION POLICY #5
PROMOTE AND CONNECT LOCAL FARMS WITH THE COMMUNIT Y
THROUGH INTEGRATED PARTNERSHIPS.

As part of a sustainable food system, Lexington must continue to promote

and connect local farms with the community through integrated partnerships.
One of Lexington’s most prominent programs for City employees has been
the Community Supported Agriculture (CSA) voucher program. This program
allows employees to access healthy, local foods from surrounding farms like
Elmwood Stock Farm, High Five Farm, HomeGrown Direct, Lazy Eight Stock
Farm, Rolling Fork Organic Farm, or Sustainable Harvest Farm.

In addition to CSA programs, Lexington has four formalized farmers markets

that serve the community five days a week. With locations at Tandy Centennial
Park, Southland Drive, Maxwell and Broadway, and Greater Gardenside, local
growers, artisans, and small businesses can sell directly to Lexingtonians
and visitors. Currently, there are a total of 64 vendors who sell goods at
the farmers markets, all of which are located within 50 miles of downtown
Lexington.

104 | THEME B IMAGINE LEXINGTON 2045

PROTECTION POLICY #6 from the connectivity of the Legacy Trail and Keeneland has also seen the
benefit of transit operations during racing season. Lexington should evaluate
PROMOTE CONTEXT - SENSITIVE AGRITOURISM IN THE RURAL SERVICE opportunities to partner with LexTran and local companies to establish a
AREA. program for linking urban areas with rural amenities.
The 2017 Rural Land Management Plan has a thorough summary of the recent PROTECTION POLICY #6 ACTION ITEMS
tourism developments in the rural service area. Year after year, visitors 1. Review the Zoning Ordinance for new agritourism and ecotourism
surveyed by VisitLEX say that they come to the Bluegrass for the horses, opportunities.
landscape, and bourbon. The two major attractions, which draw more than a 2. Work with local partners to establish a program linking public
million visitors a year to the Rural Service Area, are the Kentucky Horse Park transit to experiences in Lexington's rural parks, natural areas,
and Keeneland. There are numerous for-profit tour companies and Horse and agritourism offerings.
Country, a non-profit coalition of farms that provide visitors from all over
the world with access to these destinations. In 2022, Horse Country had 35 PROTECTION POLICY #7
member farms, clinics and a feed mill participating, with 23 of them offering
tours, and had over 26,000 bookings. The community now has the opportunity PROTECT THE URBAN FOREST AND SIGNIFICANT TREE CANOPIES.
to enjoy an authentic experience with horses, which further allows them to
Protecting and preserving urban tree canopy is critical to maintaining the
promote Lexington as a regional attraction.
ecological, economic, and social health of urban areas. By incorporating
In 2016, a text amendment was approved to allow agritourism and ecotourism tree protection and preservation policies and regulations into planning and
as a conditional use in the Rural Service Area. Agritourism activities allowed development processes, cities can create more sustainable and livable
in the Agricultural Rural (A-R) and Agricultural Natural Areas (A-N) zones communities that preserve natural resources for future generations.
include corn mazes, farm gift shops, educational classes related to agricultural
The City of Lexington has post-development tree canopy requirements for
products or skills, horse shows involving more than 70 participants and
each zoning category in Article 26 of the Zoning Ordinance. However, the
seasonal activities. For the Agricultural Buffer (A-B) zone, children’s rides are
current post-development canopy requirements fall short of achieving the
also listed. Other agritourism and equine-related activities, such as wineries,
citywide goals for increasing tree canopy, and further, the current regulations
hayrides, petting zoos, youth camps, and bed and breakfast establishments
can result in a net-loss of tree canopy coverage during development. Higher
were already principal, accessory or conditional uses in the agricultural zones
canopy cover targets must be achieved to reach long-term goals.
(KRS 100). Racetracks and historic house museums are allowed as conditional
uses in the A-R zone. Ecotourism allowed in the A-R zone includes equine The 2022 Urban Tree Canopy Assessment analyzed urban tree canopy change
trails, botanical gardens and nature preserves. In the A-B and A-N zones, by the City’s zoning categories, which offered insight as to how development
ecotourism includes commercial hiking and bicycling trails, equine trails, tree patterns have changed Lexington’s canopy over time. While individual canopy
canopy tours, canoeing and kayaking launch sites, botanical gardens, nature losses and gains occurred in all zoning classes, the overall canopy losses
preserves, and recreational outfitters limited to equipment rental only. The occurred in two zoning types: Industrial and Mixed Use. Industrial areas
A-B zone adds zip-line trails and removes recreational outfitters from the had the greatest reduction in canopy (-8 acres), and Mixed Use experienced
list. the largest percent reduction in the canopy (-4% or -6 acres). Commercial
(Downtown) and Commercial (Other) sustained a less than 1% gain.
Over the course of the last seven years, since the adoption of the agritourism
Agricultural and Office/ Professional both increased their canopy by 2% in
text amendment, numerous activities have developed, which promote local
eight years. Canopy in Residential areas experienced the largest increase
assets. While the tourism industry and the local economy have benefited from
with a 4% gain (1,570 acres). This data should be used to inform updates to the
the establishment of Horse County and wineries within the community, there
City’s zoning requirements.
still remains a connectivity barrier to access for some of these amenities.
Connectivity to the rural community should be emphasized as roads and Additionally, Lexington currently has limited protections in place for existing
shared-use trails are being reviewed. The Kentucky Horse Park has benefited

DIVISION OF PLANNING ENVIRONMENT | 105

 trees on privately owned land. To protect the existing urban tree canopy on
private property, Lexington should explore tree protection regulations to
ensure there is no net-loss of tree canopy during the development process.
Effective regulations will guide new development to prevent and mitigate tree
loss, prioritize tree preservation, and propose alternatives when preservation
is unfeasible due to development constraints. These regulations should
encompass both tree preservation and replacement practices and address
the conservation and replacement of both individual trees and forests.
To determine the number of replacement trees for individual specimens,
a formula based on size, species rating, and condition rating should be
employed. Regarding forested areas, a ratio based on the area cleared should
inform the replacement efforts. When replanting, the size of the new tree(s)
should be specified as appropriate to offset the canopy loss as effectively as
possible. These regulations could involve developing a fee-in-lieu process or
another form of offsite mitigation.

Lexington should also continue to develop outreach programs and educational

initiatives to inform and encourage private landowners and residents to
preserve existing trees and plant new ones. Partnerships with local non-
profit organizations, neighborhood associations, and contractors can also
be expanded to plant trees in low-canopy and underserved neighborhoods.
Community-based organizations and individual champions can also be
engaged to promote stewardship, and volunteer planting and maintenance
events can increase awareness in the community. Even with these efforts
in place, regulatory reform is needed to enhance and strengthen the current
Planning processes and regulations to increase responsible development,
protection and long-term management of urban trees on private property.

PROTECTION POLICY #7 ACTION ITEMS

1. Update Article 26 of the Zoning Ordinance.
PROTECTION POLICY #7 PLACEBUILDER CRITERIA
• B-PR7-1: Developments should be designed to minimize tree
removal and to protect and preserve significant trees.

PROTECTION POLICY #8
PROTECT AND ENHANCE BIODIVERSIT Y IN BOTH THE URBAN AND
RURAL SERVICE AREAS.

Lexington should take proactive measures to protect and enhance

biodiversity—across both the urban and rural areas—to ensure the wellbeing
of people and the natural environment. Biodiversity refers to the variety of life
on Earth, including the number and abundance of different species, as well

106 | THEME B IMAGINE LEXINGTON 2045

 slopes, and forest, and was home to a wide variety of aquatic and terrestrial
wildlife. The RLMP also listed “Special Natural Protection Areas”, which were
dispersed across the Rural Service Area. The lists described mapped areas
of priority for preservation, and included sites with rare species of plants,
large blue ash trees, rare bird sites, river slopes, and natural bodies of water.

In addition to protecting biodiversity throughout the rural area, it is crucial

to identify and protect biodiversity within the Urban Service Area. The 2002
Greenway Master Plan identifies land for conservation within the Urban
Service Area, and this plan is currently being updated to reflect current
conditions and best practices. As Lexington grows, a priority should be placed
on protecting environmentally sensitive urban areas through smart planning,
updating policies, and educating the public. Additionally, new regulations
should be explored to increase biodiversity with native plantings and low
impact landscaping (see Sustainability Policy 11).

Compiling a county-wide inventory of environmentally sensitive areas and

areas of significant habitat will help build on the 2001 Greenway Master
Plan and 2017 RLMP. With an updated biodiversity inventory, Lexington can
as the genetic diversity within each species and the diversity of ecosystems make informed decisions on where and how new developments will directly
and their functions. It is the result of billions of years of evolution and the or indirectly impact biodiversity—and ultimately help increase biodiversity
interactions between living organisms and their environment. across the county.

Preserving biodiversity is crucial for maintaining healthy ecosystems, PROTECTION POLICY #8 ACTION ITEMS
providing ecological services, and improving quality of life. It promotes social 1. Complete a county-wide biodiversity inventory and action plan.
and environmental justice and supports local economies through ecotourism
and green jobs. In the face of climate change, biodiversity conservation is PROTECTION POLICY #9
essential for ecosystem resilience and adaptation.
RESPECT THE GEOGRAPHIC CONTEXT OF NATURAL LAND, ENCOURAGE
Fayette County has undergone significant modification for agricultural and DEVELOPMENT TO PROTECT SOILS AND STEEP SLOPES, AND
urban development, leading to the fragmentation of natural areas and a LOCATE BUILDING STRUCTURES TO REDUCE UNNECESSARY EARTH
decline in biodiversity. The Kentucky River corridor and tributaries are the only DISRUP TION.
significant forest cover in Fayette County, supporting a diversity of plants and
Lexington’s Land Subdivision Regulations require that developers evaluate
wildlife. Rural areas with significant plant life and habitat include Hisle Park,
a site’s geographic and topographic characteristics, including steep slopes
Raven Run Nature Sanctuary, and Floracliff Nature Sanctuary. Urban areas
and sinkholes, as part of the development planning process. This is to ensure
of significant habitat include McConnell Springs Nature Park, the Arboretum
that development is done in a way that minimizes negative impacts on the
on the University of Kentucky campus, Lexington Cemetery, Masterson
environment and surrounding areas.
Station Park, and Kearney Hill Golf Links. However, a comprehensive study of
biodiversity assets and habitat in Lexington has yet to be completed. It has been demonstrated that extensive disturbance to the earth through
man-made grading for building structures can lead to soil erosion, loss of
The 2017 Rural Land Management Plan (RLMP) called out an area located
vegetation, and damage to natural habitats. Furthermore, such practices may
in the southeastern part of Fayette County as a “Natural Area”. The Area,
have a domino effect, resulting in adjacent areas being similarly intruded
approximately 8,500 acres, included floodplains, riparian vegetation, steep

DIVISION OF PLANNING ENVIRONMENT | 107

upon. Therefore, prior to establishing a plan for a new development, a is critical in the planning of new development in Lexington. This approach
thorough analysis of the site's geographic context in terms of soils, contours, facilitates sustainable development that minimizes negative impacts on the
and watershed distributions should be conducted. This approach facilitates environment, while preserving the natural beauty of the community for future
sustainable development that is sensitive to the area's natural topography, generations
thereby reducing unnecessary disruption to the environment.
PROTECTION POLICY #9 ACTION ITEMS
Soil plays a crucial role in providing various ecosystem services and 1. Update regulations to include best practices for soil preservation
addressing climate change, but it is often overlooked, degraded, and discarded and management during the construction process.
during construction and urban development. It is essential to not only prevent PROTECTION POLICY #9 PLACEBUILDER CRITERIA
further damage to these vital ecosystems but also to proactively plan and • B-PR9-1 Minimize grading and topsoil disturbance by utilizing
manage soil to achieve environmentally beneficial development. Construction the existing topography to the greatest extent possible and
practices that involve removing existing vegetation and topsoil lead to preserving key natural features.
problems like poor stormwater management and hindered plant growth,
which incur significant costs for remediation. Preserving and protecting on- PROTECTION POLICY #10
site topsoil during construction can mitigate these issues and save money by
reducing the need for soil importation later. REDUCE LIGHT POLLUTION TO PROTECT DARK SKIES.

Collaboration between project teams, developers, and contractors is crucial Light pollution is the overabundance or improper direction of outdoor lighting
to stockpiling and safeguarding the valuable topsoil, taking into account soil in urban areas and other built environments. It originates from various
texture, moisture, and weather conditions to prevent compaction. Whenever sources, including streetlights, advertising displays, and other forms of
possible, a balanced cut and fill approach should be pursued, avoiding drastic artificial illumination. It can disturb the natural light cycles in the environment
alterations to the original topography of the land. Best practices suggest that and adversely affect both humans and wildlife.
after construction, a minimum of four (4) inches of topsoil should be applied
to disturbed areas, and compacted soils should be loosened as deeply as Reducing light pollution is essential for several reasons. First, it can disrupt the
feasible. Incorporating compost-amended topsoil enhances long-term natural sleep-wake cycle of people and animals by impeding the production
stormwater infiltration, supports plant health and growth, and optimizes the of melatonin, a hormone that helps regulate sleep. Second, excessive lighting
overall functionality of the property. can negatively impact the behavior and reproduction of some species of
plants and animals. Third, it can result in unnecessary energy consumption,
To ensure proper soil management, regulations should mandate consideration which can contribute to increased greenhouse gas emissions.
of soil functions, soil surveys, soil management plans, and construction method
statements before commencing construction activities. By adopting these The dark-sky movement is a global campaign that aims to reduce light
practices, Lexington can promote sustainable development while protecting pollution and preserve the natural night sky. The movement strives to
and harnessing the potential of soil for the benefit of the environment and promote increased visibility of stars at night, mitigate the environmental
community. impacts of lighting, improve the safety, health, and well-being of both
humans and wildlife, and study the effects of darkness on living organisms.
Sustainable planning practices also stipulate that large developments should The International Dark-Sky Association advocates for the use of fixtures
only be permitted on land areas with less than a 15% slope, in order to respect that minimize upward light in public spaces and encourages communities
the natural topography and reduce any potential negative impacts on the to implement lighting regulations. Additionally, it recommends using fully
environment. For modest development such as trails and pathways, slopes shielded fixtures that minimize or eliminate upward light in public areas to
of up to 30% may be permissible in compliance with the Land Subdivision reduce light pollution.
Regulations and the Zoning Ordinance.
Lexington should minimize light pollution, promote energy efficiency, protect
The consideration of a site's geographic and topographic characteristics the well-being of the community and the environment, and develop a lighting

108 | THEME B IMAGINE LEXINGTON 2045

 PILLAR II SUSTAINABILIT Y.
ordinance to achieve these goals. Sustainability has become an increasingly important issue in land use planning
and development due to the negative impact that traditional development
PROTECTION POLICY #10 ACTION ITEMS practices have had on the environment. Sustainable land use planning and
1. Development should avoid overlighting and upward directed development involve incorporating social, economic, and environmental
lighting. considerations into decision-making processes, with the goal of creating
PROTECTION POLICY #10 PLACEBUILDER CRITERIA communities that are resilient, equitable, and prosperous for both present
• B-PR10-1 Development should not contribute to light pollution. and future generations. In order to ensure that future generations have
access to clean water, air, and natural resources, it is crucial to incorporate
sustainable practices in all aspects of land use planning and development.

SUSTAINABLE TRANSPORTATION OP TIONS

Sustainable land use planning starts with walkable, transit focused urban
design. Walkable cities are designed to be easily navigable on foot, bike
or via transit, with sidewalks, crosswalks, and other pedestrian-friendly
features that connect housing to jobs, schools, goods, and services. This
style of development encourages physical activity and helps to create a
sense of community. Importantly, by prioritizing non-vehicular modes of
transportation, communities can reduce vehicle miles traveled, which in turn
reduces air pollution and greenhouse gas emissions.

Low Impact Development, Sustainable Landscaping, and Green Infrastructure

Low impact development (LID) is an approach to land use planning and

development that aims to minimize the impact of development on the
environment. LID includes sustainable landscaping practices, such as using
native plants and trees, reducing water use, and promoting biodiversity.

Green infrastructure refers to the natural or semi-natural systems and

features that provide a range of ecological, economic, and social benefits to
people and the environment. It can include forests, wetlands, grasslands, parks,
greenways, street trees, green roofs, green walls, permeable pavements, and
other forms of vegetation or natural features that are integrated into the built
environment. Green infrastructure is used to balance the built environment
with natural systems, and to create more sustainable, resilient, and livable
communities.

Green infrastructure stormwater best management practices are another

important aspect of sustainable land use planning. This involves designing
stormwater management systems that mimic natural processes, such as
infiltration and evapotranspiration. These systems can help to reduce the
impact of development on water quality, reduce flooding, and promote biodiversity.
GREEN BUILDING AND SITE DESIGN SUSTAINABILITY POLICY #1
Green building and site design is another important aspect of sustainable ESTABLISH A PLAN TO REDUCE COMMUNIT Y - WIDE GREENHOUSE GAS
land use planning. This involves designing buildings and sites that are EMISSIONS TO NET ZERO BY 2050.
energy efficient, use renewable energy sources, and incorporate sustainable
materials. The Leadership in Energy and Environmental Design (LEED) Since the 1800s, human activity has been the main driver of climate change,
standards are widely used in green building and site design and provide a which is simply defined as long-term shifts in temperatures and weather
framework for achieving sustainable building practices. patterns, primarily due to burning fossil fuels like coal, oil, and natural gas.
Burning fossil fuels releases greenhouse gasses (GHGs), which increases
temperatures and leads to more frequent and more severe natural disasters.
LOCAL GOVERNMENT LEADERSHIP To combat climate change, the United Nations Climate Change Conference
Local governments play a critical role in promoting sustainable land use established the Paris Agreement. The Paris Agreement calls for global GHG
planning and development. They can take an active leadership role by emissions to be halved by 2030 and reach net zero emissions by 2050 in order
setting goals, adopting policies, and implementing programs that promote to avoid increasing Earth’s surface temperature by more than 1.5°C and to
sustainability. Collaboration across multiple divisions and departments, avoid the worst impacts of climate change.
as well as with local agencies and organizations, is crucial to achieving
The impacts of climate change are already evident in Kentucky, with the
sustainable land use planning.
increased intensity of floods in the eastern part of the state and tornados
during the winter months in the west. These impacts are costly for cities
as they hinder basic services, destroy infrastructure and housing, and pose
COMMUNIT Y ENGAGEMENT AND EDUCATION a risk to human livelihoods and health. This concerns many Fayette County
Engaging and educating communities on sustainable planning, development, residents. The Division of Planning, in partnership with CivicLex, hosted the On
and at-home behaviors is important because it helps to build a culture of the Table (OTT) event to gather input specifically for the Comprehensive Plan
sustainability, addresses complex challenges such as climate change update. The OTT event resulted in nearly 2,500 Lexingtonians participating
and resource depletion, encourages behavioral change, and empowers in a community-wide interactive survey, which established environmental
communities. By involving residents in sustainable initiatives, providing them resiliency—and climate change—as one of residents’ top priorities.
with information and motivation to adopt more sustainable behaviors, and
empowering them to participate in decision-making processes, Lexington Some cities, such as Burlington, Vermont and Ann Arbor, Michigan are on
can create a more resilient, equitable, and livable future for all. track to achieve community-wide net zero GHG emissions as soon as 2030.
Others, including Cincinnati, Ohio and Louisville, Kentucky, have created goals
and a comprehensive climate action plan to reach community-wide net zero
REACHING NET ZERO GREENHOUSE GAS EMISSIONS by 2050 and 2040, respectively. The most current research suggests that
over 400 cities across the United States have either committed to creating
Cities must play a role in reaching the global and federal commitment to a climate action plan, are in the process of developing a climate action plan,
reach net zero greenhouse gas emissions. This involves reducing greenhouse or are currently implementing a plan. These efforts will be amplified by the
gas emissions from all sectors, including transportation, buildings, industry, upcoming historic investment created by recent federal legislation such as
and waste management. Sustainable land use planning and development can the Inflation Reduction Act.
play a crucial role in achieving this goal, by reducing vehicle miles traveled,
promoting sustainable building practices, and encouraging renewable energy The first step to creating a climate action plan is establishing the community’s
sources. total GHG emissions by completing a community-wide GHG emissions
inventory. This will allow LFUCG and community partners to direct resources
towards the heaviest emitters, and to identify opportunities for GHG negative
activities to help tip the balance toward net zero. Net zero can be achieved

110 | THEME B IMAGINE LEXINGTON 2045

in a variety of ways, including reducing emissions as much as possible 2035. Louisville Metro Council passed a resolution to support a 100% clean
through measures such as energy efficiency, use of renewable energy, renewable electricity goal for Metro Government operations by 2030.
and transitioning to low-carbon technologies, and offsetting any remaining
emissions by removing an equivalent amount of GHGs from the atmosphere Louisville and Cincinnati began this process with an inventory of all
through activities such as tree planting or carbon capture and storage. government-produced greenhouse gas emissions in order to establish which
functions were the most energy-intensive and released the most emissions.
A net-zero future is possible for Lexington largely due to a wide variety of LFUCG should follow their lead, identifying the highest emitting government
federal funds. The Inflation Reduction Act (IRA) became law in 2022, providing sources and then creating a plan to bring all LFUCG facilities, operations, and
$369 billion to address climate change. In Lexington, efforts are underway fleets to net zero.
to effectively utilize the IRA funds by fostering collaboration among different
departments and agencies, with a focus on planning strategies to reduce This policy should work in tandem with Sustainability Policy #1, which calls for
climate pollution. Efforts should also continue to actively explore opportunities a community-wide plan for all of Lexington-Fayette County to reach net zero
to access IRA implementation funds, and tools like "Climate Action and the emissions by 2050. LFUCG must take the opportunity to lead by example and
Inflation Reduction Act: A Guide for Local Government Leaders" can aid in this demonstrate to residents that a net zero future is possible.
process.
SUSTAINABILIT Y POLICY #2 ACTION ITEMS
A net zero city requires excellent planning, committed partners, and a 1. Conduct a detailed LFUCG greenhouse gas inventory and an
continuous effort. In order to achieve net-zero, Lexington must adopt a emissions reductions plan.
climate action plan that addresses reducing emissions in all aspects of the 2. Identify opportunities and commit funding for renewable energy
community in a way that is equitable and inclusive. generation (i.e. solar or wind).
3. Create an LFUCG Sustainability Policy and/or update LFUCG’s
SUSTAINABILIT Y POLICY #1 ACTION ITEMS Policy on Energy Efficiency.
1. Explore opportunities for federal funding for climate solutions.
2. Develop a community-wide greenhouse gas emissions inventory.
3. Create a community-wide emissions reductions plan to achieve
net zero by 2050 in Lexington-Fayette Urban County.

SUSTAINABILITY POLICY #2
ESTABLISH A PLAN TO REDUCE ALL LFUCG FACILITIES, OPERATIONS,
AND FLEETS TO NET ZERO GREENHOUSE GAS EMISSIONS.

With the growing urgency to mitigate climate change, cities around the
world are implementing plans to achieve net-zero greenhouse gas (GHG)
emissions. As of October 2021, a bipartisan group of U.S. mayors representing
more than 54 million Americans pledged to help the United States reach its
goal to achieve net-zero by 2050 in alignment with the United Nations Paris
Agreement.

Lexington’s peer cities have taken steps to move their government’s functions
towards net zero. For example, Cincinnati’s 2023 Green Cincinnati Plan
establishes goals of both operating the city government on 100% renewable
energy and making all city facilities, fleets, and operations carbon neutral by
SUSTAINABILITY POLICY #3 The challenges in Lexington for bicycle, pedestrian and mass transit are two-
fold:
REDUCE AIR POLLUTION AND GREENHOUSE GASSES THROUGH
COMPACT DEVELOPMENT AND COMPLETE STREETS THAT ENCOURAGE 1. Many Lexington neighborhoods do not provide a full range of
MULTIMODAL TRANSPORTATION OP TIONS. opportunities or services within a walk, bicycle or transit scale
distance from residences. Whether its employment or education,
Emissions from motor vehicles are one of the more significant sources of EPA services such as retail, medical or social services, or access to heathy
criteria pollutants such as particulate matter and ozone precursor chemicals food, in most cases access can only be reasonably accomplished
as well as atmospheric carbon related to greenhouse gas emissions. Therefore, through an automobile due to the trip distances involved.
the most effective methods of reducing these emissions are through efforts
to reduce travel by automobiles or trucks, especially those powered by fossil 2. Most Lexington roadways, especially those beyond New Circle Road,
fuels. This is especially true for short trips, those which are 2 miles or less. were designed primarily for travel by automobiles.
These trips are more reasonably accomplished by modes such as walking or
bicycling, which are inherently emission free, or public transit which has far In order to specifically address the second challenge, the City of Lexington
fewer emissions per passenger mile of travel. The other issue is that modern and the Lexington Area MPO have adopted complete street policies to identify
gasoline and diesel engines produce far greater emissions during the cold methods to make all roadways safe and comfortable for all potential users
start phase which occurs more frequently for several short trips than for of those facilities, including bicycles, pedestrians and transit services.
fewer longer distance trips. In fact, it’s estimated that 70% of emissions during Additionally, the Kentucky Transportation Cabinet has also adopted a policy
a typical commute occur during the first 60 seconds of vehicle operation. and has updated their design guidance to address complete street principles
for the state highway network.

While both challenges are not insurmountable for a sizeable portion of the
Urban Service Area, it is important to note that many regional trips will
likely continue to be made by automobile. Restoration Policy #4 discusses
transitioning the regional vehicle fleet to electric or low/no emission fuels to
address trips that will continue to be made by automobile. With that said, there
are significant tradeoffs associated with low/no emission vehicles related
to electric generation and producing fuels such as compressed natural gas
(CNG) or hydrogen (see table below). The extent to which trips can be made
through inherently zero or very low emission modes (bike, pedestrian, or mass
transit) reduces the associated negative tradeoffs with continued automobile
usage, regardless of fuel source. Prioritizing the development of walkable
and transit supportive development patterns remains key to improving air
quality and reducing emissions, especially in the near term.

SUSTAINABILIT Y POLICY #3 ACTION ITEMS

1. Identify opportunities to create complete neighborhoods that
provide a full range of opportunities and services within a 15
minute walk, bicycle or transit ride.
2. Update LFUCG roadway design manuals to incorporate complete
streets best practices for new roadways and design retrofits.
3. Conduct study to identify complete street deficient roadways and
prioritize retrofit projects to address deficiencies.

112 | THEME B IMAGINE LEXINGTON 2045

4. Identify opportunities to close connectivity gaps in the bicycle
and pedestrian facility network.
5. Conduct 25 year long-range plan for public transportation to
identify service gaps and opportunities for increased service.
6. Develop an E-Bike cost share/subsidy program.
SUSTAINABLE POLICY #3 PLACEBUILDER CRITERIA
• B-SU3-1: Development should provide compact and/or mixed use
development.

SUSTAINABILITY POLICY #4
REDUCE AND MITIGATE NEGATIVE ENVIRONMENTAL IMPACTS OF
IMPERVIOUS SURFACES AND VEHICLE USE AREAS.

Impervious surfaces are a necessary component of urban areas, however

there are various strategies available to minimize and alleviate their adverse
environmental effects. Impervious hardscapes such as streets, parking
lots, and driveways prevent stormwater from infiltrating the ground, which
causes flooding, erosion, and sanitary sewer infiltration and overflows,
which have historically been observed in Lexington. By reducing the amount low-income and minority areas where tree canopy is negatively correlated.
of paved surfaces, stormwater runoff can be decreased and flood control Additional analysis is needed to advance the report recommendations and
efforts improved with less dedicated infrastructure. Additionally, minimizing identify more specific priority areas for improving environmental equity
impervious areas helps enhance water quality by reducing the amount of through increased canopy and impervious area mitigation.
pollutants that are carried by stormwater runoff. Lexington has also recently adopted significant improvements to its parking
Along with parking lots, streets also have the potential to be designed to standards by allowing the number of spaces to be reduced, along with a
offset their negative environmental impacts. Narrower streets with median significant increase in the amount of landscaping and tree canopy required,
landscape areas containing trees and other plantings can act as a filter and however, additional steps should be explored to encourage or require
first line of infiltration before stormwater enters Lexington’s waterways. impervious pavement, bioretention, or other forms of parking lot green
Limiting the number of culs-de-sac, minimizing their diameter, and adding infrastructure Together, these provisions have the potential to address not
center landscape islands are just a few ways to modify neighborhood street only water quality and quantity related issues but also the worsening heat
design in order to improve water quality and reduce runoff. Lexington’s street island effects of vast paved areas.
design regulations and manuals should be reviewed for opportunities to SUSTAINABILIT Y POLICY #4 ACTION ITEMS
reduce environmental impacts. 1. Collaborate with LFUCG urban forestry to identify priority areas
In 2022, Lexington performed an Urban Tree Canopy Assessment in order to for improving environmental equity through increased canopy
map existing canopy and monitor changes since the last assessment in 2012. and impervious area mitigation.
It reported that while Lexington has a 23% (up from 20% in 2012) Urban Tree 2. Continue to refine street design, parking area, and vehicle use
Canopy, over 40% of the Urban Service Area was comprised of impervious area standards to reduce impervious surfaces and minimize
area. The associated Urban Tree Canopy Report Cards break down, by Council environmental impacts.
District, not just tree canopy but also pervious and impervious land areas SUSTAINABILIT Y POLICY #4 PLACEBUILDER CRITERIA
and its impact on stormwater runoff and heat mitigation. The report further • B-SU4-1: Development should minimize and/or mitigate
discusses planting prioritization factors including tailoring efforts to address impervious surfaces.

DIVISION OF PLANNING ENVIRONMENT | 113

SUSTAINABILITY POLICY #5 To further promote these activities across Lexington, in 2016 LFUCG launched
the Green Check Program, which recognizes businesses for their green
EXPAND AND PROMOTE ENERGY EFFICIENCY, RENEWABLE ENERGY, initiatives and helps them expand their sustainability efforts. As of January
AND ELECTRIFICATION INITIATIVES. 2023, 53 businesses have become certified. More recognition and awards
programs should be explored, such as green neighborhood awards or green
Lexington must prioritize sustainable and energy-efficient buildings and business operation pilot programs.
infrastructure, as well as renewable energy sources, to reduce the city's
greenhouse gas emissions, decrease energy consumption and costs, and SUSTAINABILIT Y POLICY #5 ACTION ITEMS
promote a more sustainable environment. Coordinated investment and 1. Establish Government/Community Targets For Renewable
commitment from both public and private sectors in sustainable buildings, Energy.
infrastructure, and energy sources will help Lexington pave the way towards
SUSTAINABILIT Y POLICY #5 PLACEBUILDER CRITERIA
a greener future.
• B-SU5-1: Developments should incorporate energy efficient
LFUCG established an Energy Management Plan in 2004 to promote systems and renewable energy resources (i.e. wind, solar, etc.).
conservation, reduce fuel and utilities consumption, and realize cost savings
for city-owned properties and facilities. In 2009, LFUCG created the Energy SUSTAINABILITY POLICY #6
Improvement Fund as a funding mechanism for energy efficiency and
APPLY FOR LEED FOR CITIES CERTIFICATION TO TRACK PROGRESS
renewable energy initiatives. The Fund acts as a revolving loan where utility
TOWARD SUSTAINABILIT Y, GREENHOUSE GAS EMISSIONS REDUCTION,
savings can be allocated to future public facility projects.
AND ENVIRONMENTAL EQUIT Y OBJECTIVES.
In the community, the city has partnered with the Kentucky Solar Energy
The U.S. Green Building Council (USGBC) is a non-profit organization that
Society to launch Solarize Lexington. This program helps property owners
is dedicated to promoting sustainability in the building and construction
reduce their reliance on the electric grid by making it easier to install solar
industry. It is best known for developing and administering the Leadership
panels and includes a grant program to assist low-to-moderate income
in Energy and Environmental Design (LEED) certification program for green
homeowners.
buildings, and recently has added a LEED certification program for cities and
Empower Lexington, a community-led voluntary plan launched in 2012, communities.
targeted community-wide sustainability and energy efficiency. The plan,
LEED for Cities assesses the sustainability performance of cities and provides
approved by the Urban County Council in 2012, allows for the implementation
a framework for cities to improve their sustainability efforts. The program
of its recommendations, with responsibilities for implementation varying
looks at a variety of factors that contribute to the sustainability of a city,
between local government, non-profits, and public/private partnerships.
including energy and water use, waste management, transportation, access
Steps were taken to update the plan in 2022, led by staff from the Division of
to greenspace, and overall quality of life. Cities are scored based on a set
Environmental Services.
of metrics and can earn certification at different levels, including Certified,
In 2018, the Council approved legislation that established an Energy Project Silver, Gold, and Platinum.
Assessment District (EPAD) in Fayette County. This allows commercial, non-
The program is designed to help cities identify areas for improvement and
profit, multi-family, agricultural, and industrial property owners to obtain
establish goals for sustainability, as well as track progress and demonstrate
special financing called PACE financing to fund energy-efficient upgrades
their commitment to sustainability community-wide for residents, businesses,
and improvements. The PACE financing covers the full cost of upgrades,
and visitors. It is intended to be adaptable to cities of all sizes and locations,
including solar panels, energy-efficient heating and cooling systems, water
and the program has been implemented in cities around the world.
conservation, and LED lighting. The long-term loan is repaid through a
voluntary assessment on the property owner's tax bill, with a fixed interest Lexington should pursue LEED for Cities certification to take full advantage
rate and no down payment required. of the resources and support USGBC provides for cities to implement

114 | THEME B IMAGINE LEXINGTON 2045

sustainability initiatives and to access the network of shared best practices One key benefit of developing and sharing educational materials and programs
with other cities. As a first step toward this goal, community-led working is that it can help to foster a culture of energy efficiency within a city. When
groups have reframed and updated a draft of Lexington’s 2012 Empower residents are educated about the benefits of using energy more efficiently,
Lexington: A Plan for a Resilient Community guided by the LEED for Cities they are more likely to adopt sustainable practices in their daily lives. This
framework. can lead to a wide range of positive outcomes, including reduced greenhouse
gas emissions, improved air quality, and lower energy costs for households
SUSTAINABILIT Y POLICY #6 ACTION ITEMS and businesses.
1. Update the Empower Lexington Plan guided by the LEED for
Cities framework Apply for LEED for Cities certification. Another key benefit of educational initiatives is that they can help to increase
access to energy efficiency services and programs. Many cities offer a range
SUSTAINABILITY POLICY #7 of services and incentives to help residents reduce their energy consumption,
but these resources are often underutilized. By providing clear, accessible
DEVELOP AND PROACTIVELY SHARE EDUCATIONAL MATERIALS AND information about these services and programs, cities can help to ensure that
PROGRAMS TO INCREASE PUBLIC AWARENESS OF ENERGY EFFICIENCY more residents take advantage of them.
BENEFITS AND SERVICES.
Materials should provide a consistent message about sustainable practices
Energy efficiency is a critical issue for modern cities, which face a range of and be tailored to each individual audience’s needs. This is especially
environmental and economic challenges related to energy consumption. To important for property owners with tenants who may be disproportionately
address these challenges, Lexington should develop and proactively share impacted by high utility bills. Lexington must also work to educate renters
educational materials and programs to increase public awareness of energy about the benefits of energy efficiency and how to reduce their energy
efficiency benefits and services. By doing so, they can empower residents consumption. This can involve providing information on simple energy-saving
with the knowledge and skills they need to make informed decisions about measures like turning off lights and electronics when not in use, as well as
energy use and conservation, while also reducing their greenhouse gas offering more comprehensive energy audits to identify areas where energy
emissions and saving money on energy bills. efficiency upgrades could have the biggest impact. Equity is therefore a key
consideration when it comes to energy efficiency, and cities must ensure that
their initiatives are designed with the needs of all residents in mind.

Increasing awareness and education about energy efficiency and conservation

programs can lead to higher implementation rates. To achieve this, the City
should launch marketing campaigns that highlight the benefits of energy
efficiency, including reduced energy consumption and real cost savings for
business owners, home owners, renters, and tenants. The campaign should
use various media platforms such as print, television, and social media to
communicate these benefits effectively. Programs should also encourage
the use of LEED buildings, appliances, and mechanical systems to further
promote energy efficiency.

SUSTAINABILIT Y POLICY #7 ACTION ITEMS

1. Develop and proactively share educational materials and
programs to increase public awareness of energy efficiency
benefits and services.

DIVISION OF PLANNING ENVIRONMENT | 115

SUSTAINABILITY POLICY #8 According to the 2018 draft report on Organics Feasibility, Lexington has the
opportunity to expand their organics collection program, by adding food waste
ENHANCE LEXINGTON’S RECYCLING, COMPOSTING, AND WASTE collection to the existing leaf and yard waste program. The report states that a
MANAGEMENT PROGRAMS. fully implemented, comprehensive food scrap recovery program in Lexington
has the potential to divert 30,000 tons a year from landfill. However, more
Lexington residents and property owners are offered urban services such information is needed to determine the net benefits of curbside compost
as refuse collection, streetlights, and street cleaning based on their location pickup, as additional roll-carts could require additional trucks to run each
within a specific tax district. This publicly controlled waste management route.
system consists of residential curbside collection of landfill-bound waste,
which is placed in green roll-carts for weekly collection. Residential bulky The City holds many special events throughout the year to assist residents in
items are placed curbside for regular collection days. Recycling is done waste disposal and other needs, such as compost workshops with subsidized
through blue roll-carts or drop-off centers, and yard waste is collected in composters, household hazardous waste collection, paper shredding, the
gray roll-carts or paper yard waste bags and sent to the City’s composting “Gobble Grease Toss” and mulch giveaways—the mulch being a product of
facility. Downtown businesses may choose to use roll-carts for solid waste a composting program for residential yard waste. Such events promote
and recycling collection or a privately managed dumpster service. The City community engagement and education in addition to their environmental
does not lease dumpsters, however all dumpsters require an LFUCG permit benefits. These programs should be continued and expanded.
before placement.

Lexington also has a privately managed waste system for those residing
SUSTAINABILIT Y POLICY # 8 ACTION ITEMS
outside of an urban service tax district, with multiple private haulers providing
1. Coordinate with LFUCG waste management, LiveGreenLex,
waste and recycling services for a fee. However, this parallel public-private
and community partners to expand residential and commercial
system means more trucks on the road, resulting in increased vehicle miles
composting opportunities.
traveled and greenhouse gas emissions. Efforts should be made to study this
2. Develop and implement a program to track and publicize landfill
duplicate system and identify opportunities to enhance efficiency and reduce
diversion efforts.
environmental impacts.

Another opportunity to create a more sustainable waste system comes from

diverting food waste from landfills. The EPA’s Inventory of U.S. Greenhouse
Gas Emissions and Sinks shows that food waste in the United States is causing
double the amount of greenhouse gas emissions as commercial aviation,
making it a major contributor to climate change. To combat this issue, an
increasing number of states and cities have implemented regulations to keep
food out of landfills, with most requiring residents or businesses to compost.

Composting releases significantly less methane compared to food waste that

ends up in landfills. The reason for this is that composting is an oxygen-
requiring, or aerobic process, which inhibits the activity of methane-producing
microbes. Conversely, when food waste is disposed of in a landfill, it lacks the
necessary oxygen supply, which leads to the growth of anaerobic microbes
that generate methane while breaking down the food waste.

Accordingly, one area where Lexington has the potential to make a substantial
positive environmental impact is by decreasing and redirecting food waste.

116 | THEME B IMAGINE LEXINGTON 2045

SUSTAINABILITY POLICY #9 URBAN GREEN INFRASTRUCTURE

INCENTIVIZE GREEN STORMWATER INFRASTRUCTURE BEYOND

REGULATORY REQUIREMENTS.

Green Stormwater Infrastructure (GSI) refers to a set of sustainable urban

development practices that aim to reduce the impacts of stormwater runoff
on the environment and improve water quality. These practices involve using
natural elements, such as vegetation, soils, and permeable surfaces, to capture,
treat, and store rainwater and snowmelt. Since 2016, the LFUCG Stormwater
Manual has required development projects to use green infrastructure for
stormwater management for both volume and water quality control.

Some examples of GSI practices include green roofs, rain gardens, bioswales,
permeable pavement, and wetlands. These features help to slow down the
flow of stormwater runoff, allowing it to infiltrate into the ground and recharge
groundwater supplies. They also filter out pollutants from the runoff, such
as sediment, heavy metals, and nutrients, which would otherwise flow into
streams, rivers, and lakes, causing water quality problems.

In addition to improving water quality, GSI offers many other benefits to cities
and communities, such as:

1. Flood Control: GSI practices can reduce the risk of flooding by

reducing the volume and velocity of stormwater runoff

2. Climate Resilience: GSI can help cities adapt to the impacts of climate
change by mitigating the effects of extreme weather events, such as
flooding and drought

3. Improved Air Quality: Vegetation in GSI practices can help to reduce air
pollution and improve air quality by filtering and absorbing pollutants,
reducing temperature, and producing oxygen

4. Aesthetic and Recreational Benefits: GSI practices can enhance the

aesthetic quality of urban landscapes and provide spaces for outdoor
recreation and community gathering

5. Economic Benefits: GSI can help to create jobs and stimulate local
economies by providing opportunities for green infrastructure design,
installation, and maintenance

GSI is an effective approach to improving the sustainability of urban

development practices, as it offers a range of benefits to both the environment

DIVISION OF PLANNING ENVIRONMENT | 117

and the community. Lexington should take steps to continue to incentivize GSI Even with these existing programs, additional incentives should be explored
that goes above and beyond baseline requirements to create an even greener, to encourage new development or redevelopment to achieve more advanced
more environmentally resilient city by updating land development regulations green building standards. For example, Cincinnati offers a 15-year LEED
to further incentivize GSI during development. property tax abatement. LEED, or Leadership in Energy and Environmental
Design, is a rating system created by the U.S. Green Building Council that
SUSTAINABILIT Y POLICY #9 ACTION ITEMS provides certification for buildings, site designs, operations, communities, and
1. Update the zoning ordinance to incentivize green stormwater cities that save money, improve efficiency, lower greenhouse gas emissions,
infrastructure elements during development and create healthier places for people. This incentive has been successful
SUSTAINABILIT Y POLICY #9 PLACEBUILDER CRITERIA in Cincinnati, resulting in the development of nearly 1,250 LEED projects in
• B-SU9-1 Green Stormwater Infrastructure (GSI) should be the region, and the construction of the nation's first net zero energy police
implemented in new development. (E-GR3) station. Moreover, Cincinnati requires all new municipal facilities to be built
to a LEED Silver standard or higher.
SUSTAINABILITY POLICY #10
SUSTAINABILIT Y POLICY #10 ACTION ITEMS
DEVELOP INCENTIVES FOR GREEN BUILDING PRACTICES AND 1. Explore permitting and zoning incentives for green building
SUSTAINABLE SITE DESIGN. design.
2. Explore tax abatements for LEED Certified Green Building Design.
Globally, building operations make up 27% and building construction makes 3. Explore opportunities to work with Kentucky building codes to
up 6% of all greenhouse gas emissions. Contributing 33% of all emissions incorporate green building principles.
makes buildings a significant contributor to climate change. Fortunately,
implementing green building practices and design principles can significantly SUSTAINABILITY POLICY #11
reduce these emissions.
REQUIRE LOW IMPACT LANDSCAPING AND NATIVE PLANTS SPECIES.
Green building involves creating environmentally responsible and resource-
efficient structures and processes throughout a building's life cycle. This With an estimated coverage of over 40 million acres, lawns represent the
includes everything from site design to construction, operation, maintenance, largest cultivated crop in America, accounting for about 2% of the country's
renovation, and deconstruction. When it comes to building sustainably, the land. Lawns require a significant amount of time and money in their
most viable options are often adaptive reuse of existing structures or creative maintenance, but their maintenance also results in indirect environmental
infill development of vacant or underutilized lots. Green building design should harm. For instance, mowing and leaf blowing contribute to greenhouse gas
consider all aspects of a site, including building mechanicals, positioning of emissions, fertilizers cause algal blooms, pesticides pollute, and watering
the building to optimize future renewable energy, use of sustainable materials, lawns strains freshwater resources. To combat climate change and prevent
inclusion of green infrastructure on-site, preservation of existing trees, and the extinction of species, Lexington should revise regulations to encourage
provision of smaller and bike-centric parking lots. the replacement of traditional lawns with native plantings and low impact
landscapes.
Lexington offers several programs and incentives for green design including
zoning incentives for adaptive reuse projects. The Stormwater Quality An increasing number of communities are now planting with a purpose, aiming
Projects Incentive Grant Program provides financial aid for green building and to help endangered wildlife, such as monarch butterflies, bees, songbirds,
infrastructure projects that improve water quality and reduce stormwater and to reconnect their cities to the local ecosystem. Low impact landscaping
runoff. The newly launched Solarize Lexington program connects participants is a term that refers to this approach to designing and maintaining gardens
with solar installers and offers discounted rates and funds for low-to- and landscapes in a way that generates environmental and wildlife benefits.
moderate income households. Additionally, Lexington has PACE financing for Policy changes at the local level can advance low impact landscaping,
commercial developments that use voluntary assessments to finance energy including passing native plant ordinances, updating weed and vegetation
efficiency projects. control ordinances, and designating no mow zones.

118 | THEME B IMAGINE LEXINGTON 2045

Passing native plant ordinances can make a big difference for wildlife, as they best practices for low impact landscaping.
rely on native plant communities for habitat. Cities, counties, and homeowners 3. Implement the Mayor's Monarch Pledge.
associations can control what plants are installed in landscaping, parks, 4. Work with the Urban County Council and community partners to
medians, and other open spaces. In 2018, both Westchester County, NY and establish and promote “No Mow May” as a city wide initiative.
New Castle, DE signed executive orders mandating that all county parks and
landscaping around county buildings include 100% native plants. The Township
of Lower Makefield, PA passed an amendment to their Subdivision and Land
Development provisions mandating 100 percent use of native plants used
in new developments. Lexington has made a commitment to protecting,
creating, and preserving Monarch Butterfly habitat throughout the community
by supporting the Mayor's Monarch Pledge and other initiatives, and passing a
native plant ordinance will help progress toward this commitment.

Updating weed and vegetation control ordinances is necessary to support

wildlife-friendly landscaping while ensuring public safety. Most cities and
counties have rules in place to ensure homeowners and businesses maintain
their landscapes, but these ordinances are typically designed to enforce a
conventional landscape aesthetic of close-cropped lawn and ornamental
plantings that provide no wildlife habitat. Lexington’s Code of Ordinances
regulate vegetation maintenance in a similar way, however an exception has
been added for native plantings for the purpose of intentional naturalization,
see Section 12-2(b) of the Code. Additionally, Lexington residents can also
apply for a Riparian Buffer Permit to establish no-mow or native vegetation
along streams. Lexington should promote and expand upon this work. The
City of Minneapolis has an excellent model that supports wildlife-friendly
landscaping while ensuring public safety which could serve as a guide.

Designating “no mow zones” can make a big difference for wildlife. Creating
and managing no mow zones in appropriate places across cities allows native
plants to grow and wildlife to flourish, while reducing maintenance costs. The
National Wildlife Federation encourages cities with no mow zones to post
signage and educate the public about the benefits to both wildlife and people.
Greeley, CO, and Pinellas County, FL are examples of cities that communicate
their "no mow" policy to residents, providing details about the timing of
mowing and which areas are on reduced mowing schedules. In Lexington,
the Bring Back the Bluegrass program aims to brings similar naturalization
efforts to parks.

SUSTAINABILIT Y POLICY #11 ACTION ITEMS

1. Require that plantings for publicly owned property include at
least 75% native species and decrease the area of mowed grass
and irrigated land.
2. Update codes, ordinances, plans, and manuals to require current

DIVISION OF PLANNING ENVIRONMENT | 119

PILLAR III RESTORATION
Environmental protection, sustainability, and restoration are interrelated To improve air quality, steps should be taken to reduce emissions of EPA-
concepts that all contribute to creating a healthier and more sustainable regulated pollutants. This can be achieved through a range of actions, such
environment. The first pillar of Theme B is environmental protection, which as promoting alternative transportation methods and supporting renewable
involves preventing harm to the environment and reducing negative impacts energy sources. Additionally, waterway quality should also be improved
on natural resources and ecosystems. Examples of policies and actions that through various measures such as reducing runoff and addressing pollution
support environmental protection include regulating pollution, conserving sources, and coordination efforts should be made to address litter abatement
natural resources, and protecting biodiversity and wildlife habitats. and ensure that the community is working together to keep Lexington clean
and litter-free.
The second pillar of sustainability aims to balance economic, social, and
environmental considerations to meet the needs of the present without Finally, ensuring environmental justice must be a top priority for all
compromising the ability of future generations to meet their own needs. This environmental restoration efforts. There is a clear link between environmental
involves creating a more sustainable and resilient society. And the final pillar restoration and justice, especially in addressing the disproportionate impact
of environmental restoration involves repairing, rehabilitating, and restoring of environmental degradation and pollution on marginalized communities.
damaged or degraded ecosystems, habitats, and natural resources to their Low-income communities and communities of color are often hit the hardest
original or desired state. Environmental restoration can also play a critical by environmental degradation, resulting in health problems, reduced quality
role in addressing environmental justice and equity by providing communities of life, and economic difficulties. To promote greater equity, it is crucial to
that have been disproportionately affected by environmental degradation with prioritize and involve these communities in the planning and implementation
access to clean air, water, and healthy ecosystems. of environmental restoration projects. This approach can lead to greater
social and environmental justice by promoting the equitable distribution of
It is essential for a city to focus on all three pillars of environmental protection, environmental benefits and reducing the burden of environmental harms.
sustainability, and restoration because they are mutually reinforcing.
Environmental protection is necessary to prevent further degradation of the
environment, sustainability ensures equitable use of natural resources, and
RESTORATION POLICY #1
restoration repairs and rehabilitates damaged ecosystems and resources. IMPLEMENT THE LFUCG URBAN FORESTRY MANAGEMENT PLAN TO
By focusing on all three pillars, Lexington can create a more resilient and RESTORE AND GROW LEXINGTON’S URBAN FOREST.
sustainable environment that benefits both present and future generations.
This can lead to an improved quality of life for residents, economic The City of Lexington has a rich history of recognizing and valuing the
opportunities, and a healthier planet overall. importance of trees. As early as 1931, the city's Comprehensive Plan
encouraged the planting of street trees, recognizing them as a valuable asset
To restore natural resources within the urban service area, the City’s Urban for the community. Today, the city continues to prioritize the preservation
Forestry Management Plan should be implemented to grow Lexington's urban and maintenance of its urban forest through its Urban Forestry Master Plan,
forest. This can help improve air quality and create a healthier environment for which includes regular assessments of the city's tree canopy to ensure its
residents. Community gardens and urban agriculture should be supported as long-term health.
these initiatives can help to increase access to fresh, locally-grown produce
while also promoting biodiversity and ecosystem health. Lexington relies on data to identify areas where existing tree canopy should
be preserved, opportunities to expand the canopy cover, and areas that would
To enhance and grow Lexington's green infrastructure network, it is important benefit most from investment in the urban forest. This type of data was first
to identify opportunities to strategically link parks, trails, complete streets, collected in 2012 and more recently through Lexington’s 2022 Tree Canopy
greenways, and natural areas across the urban and rural areas. Having a well- Assessment Report.
connected green infrastructure network is critical for increasing biodiversity
and ecosystem services. Creating corridors that link natural areas improves The Urban Tree Canopy Assessment found that within the Urban Service
the health of local ecosystems and supports a greater diversity of species, Area, Lexington’s tree canopy cover changed from 20% to 23% from 2012 to
while also creating greater recreational opportunities. 2020. Canopy cover increased within all of Lexington’s 12 city council districts

120 | THEME B IMAGINE LEXINGTON 2045

 2. Developing a proactive street tree maintenance program to plant and
manage street trees and ensure equitable distribution.

3. Preserving trees during development by evaluating codes to increase

tree preservation and creating space for existing and new trees on
private property and public right-of-way.

Urban trees can also serve as a tool for equity in a community. Lexington’s
Tree Equity Score, calculated by American Forests, indicates that canopy cover
gaps often coincide with income and race, highlighting the need for equitable
urban tree management. These findings are echoed by Lexington’s Urban
Tree Canopy Assessment and its associated TreePlotter web application. The
TreePlotter application shows urban tree canopy and NatureScore Priority
Indexes (NPI) by Census Block Group. Areas with high NPI scores are more
likely to have poor health, urban heat islands, poor air quality, low income,
and currently don’t benefit from the many co-benefits natural elements such
as the urban forest can provide.

The map shows that in Lexington, the areas with the highest priority for
additional tree canopy correlate with areas of persistent poverty and
historically disadvantaged communities. Additional effort and analysis
is needed to advance Lexington’s Urban Tree Canopy Assessment
recommendations and identify specific actions for improving environmental
equity through increased urban tree canopy.

RESTORATION POLICY #1 ACTION ITEMS

1. Implement recommendations from the Urban Forestry
Management Plan.
2. Strategically plant new trees to create walkable streetscapes.
except for District 1 which lost eight acres of canopy between 2012 and 2020. 3. Update the Planting Manual and Land Subdivision Regulations
The analysis found 33% of land area within the Urban Service Area is a to reflect best practices on street tree planting, placement, and
possible planting area. The 12,649 acres of tree canopy in Lexington provide a maintenance.
multitude of economic, environmental, and social benefits, valued at just over 4. Develop a program to implement and track progress on canopy
$6.5 million annually, as well as $111 million in carbon storage. coverage goals from the 2022 Urban Tree Canopy Assessment.
The City and its stakeholders can use the urban tree canopy change data to RESTORATION POLICY #1 PLACEBUILDER CRITERIA
identify areas to prioritize canopy expansion, focusing on planting the right • B-RE1-1: Developments should improve the tree canopy
tree in the right place and planting large-species trees where appropriate.
Recommendations from the assessment include:

1. Planting trees near impervious surfaces to offset the urban heat

island effect, stormwater runoff, and energy consumption. (See
Sustainability Policy #6 for more information on recent zoning
regulation changes to support this goal.)

DIVISION OF PLANNING ENVIRONMENT | 121

RESTORATION POLICY #2 that there is a plan in place to properly activate, manage, and/or conserve all
of Lexington’s greenspace assets ensures the wise use of land and efficient
IDENTIFY OPPORTUNITIES TO STRATEGICALLY LINK PARKS, TRAILS, use of tax dollars.
COMPLETE STREETS, GREENWAYS, AND NATURAL AREAS TO ADVANCE
LEXINGTON’S GREEN INFRASTRUCTURE NET WORK. Green infrastructure planning must also address environmental justice
and equitable access to greenspace by considering the needs and priorities
Green infrastructure refers to the natural or semi-natural systems and of all communities within the city, particularly those that are historically
features that provide a range of ecological, economic, and social benefits to underserved or marginalized. This requires identifying neighborhoods or
people and the environment. It can include forests, wetlands, grasslands, parks, communities with a shortage of greenspace and prioritizing engagement with
greenways, street trees, green roofs, green walls, permeable pavements, and those communities to understand their unique needs, values, and priorities.
other forms of vegetation or natural features that are integrated into the built To that end, green infrastructure planning should also involve creating
environment. Green infrastructure is used to balance the built environment programs and initiatives that promote equitable access to greenspaces, such
with natural systems, and to create more sustainable, resilient, and livable as providing transportation to underserved areas or offering programming
communities. that reflects the diverse needs and interests of local communities.
To ensure effective planning and management of the green infrastructure The benefits of a robust green infrastructure network extend far beyond
network, the City has maintained various plans and resources, including the aesthetics and recreation. It contributes to a healthier, happier, and more
1996 Greenspace Plan, 2002 Greenway Master Plan, 2018 Parks Masterplan, sustainable city, while also addressing issues of environmental justice and
2017 Urban Forestry Management Plan, 2017 Rural Land Management Plan, and equitable access to nature. With ongoing efforts to enhance coordination and
the 2018 Bike and Pedestrian Master Plan. Additionally, the 2020 Stormwater strategic planning, Lexington is poised to expand its green infrastructure
Manual includes site-based green infrastructure best management network and ensure that all residents are served by these vital resources.
practices to address stormwater runoff. However, there is a need to enhance
coordination across City Departments and Divisions to identify and make
recommendations for comprehensive green infrastructure planning across RESTORATION POLICY #2 ACTION ITEMS
all of Lexington. 1. Coordinate across LFUCG to develop a comprehensive planning
and implementation document for a community-wide green
The City of Lexington currently manages over 500 acres of greenways that infrastructure network.
serve as stormwater management, water quality, environmental conservation,
RESTORATION #2 PLACEBUILDER CRITERIA
and recreation areas. Additionally, the City maintains just over 5,300 acres in
• B-RE2-1: Lexington’s green infrastructure network, including
104 parks and golf courses across the county, and the Parks and Recreation
parks, trails, greenways, or natural areas should be highly visible
Master Plan calls for more parks and open spaces to be reserved or provided
and accessible.
during the development of new neighborhoods.

In 2021, Lexington joined the national 10-Minute Walk Campaign, which aims RESTORATION POLICY #3
to ensure that 100% of residents have access to a park or greenspace within a
SUPPORT COMMUNIT Y GARDENS AND URBAN AGRICULTURE TO
10-minute walk by 2050. This underscores Lexington's commitment to expand
RESTORE NATURAL RESOURCES WITHIN THE URBAN SERVICE AREA.
safe and equitable access to parks and greenspaces. An efficient way to achieve
this goal is to inventory the City's existing open space and greenspace assets Despite growing populations and the less advantageous soil structure, urban
and identify strategic opportunities to increase their usability and connectivity. farming has become popular in many cities in the United States. With the
Providing physical connections between greenspaces through intentionally growing market demand for organic locally grown food and the potential
conserved greenways, tree protection areas, and stream corridors increases for economic gains, residents of urban localities have sought to develop
neighborhood access to nature and amplifies the ecological benefits crucial small planting or farming operations. New opportunities including rooftop
for ensuring a sustainable future in Fayette County and beyond. And ensuring farming or living walls have added space for the cultivation of goods that

122 | THEME B IMAGINE LEXINGTON 2045

 can foster community engagement, while providing resources or amenities.
Additional education materials on the benefits of community gardening should
be developed in cooperation with LFUCG Parks and Recreation, Division of
Environmental Services, the Fayette County Extension Office, Seedleaf, and
the University of Kentucky, Department of Horticulture.

RESTORATION POLICY #3 ACTION ITEMS

1. Promote and develop public education and outreach materials
supporting urban agriculture, native plants and pollinator-
friendly community gardens.

RESTORATION POLICY #4
IMPROVE PUBLIC HEALTH AND REDUCE VEHICLE GREENHOUSE GAS
EMISSIONS THROUGH THE USE OF ALTERNATIVE FUEL VEHICLES.

Reducing vehicle emissions is essential for restoring air quality and

protecting public health. Emissions from motor vehicles are one of the more

can be harvested for personal consumption or sold at markets. Lexington

has a community base for organic locally grown agriculture, in which new
development and open spaces could play a major role.

While the potential for economic growth from local urbanized farming
operations is attainable, urban agriculture and community gardens are
likely more important to supplement personal diet and/or provide for a
social or community development activity. Organizations in Lexington like
Seedleaf have been on the forefront of public education and development of
community gardens. Seedleaf was founded in 2007 with a mission to nourish
communities by growing and sharing food in Lexington. The nonprofit grew
three gardens in 2008 and have expanded to 10 gardens in 2022, which provide
resources in areas of food insecurity in Lexington. They have also focused on
increasing their education opportunities and outreach over the last 15 years.
While neighbors come together to produce local food and improve social
connections, the process also restores natural resources within the urban
area, leaving ecological benefits for the environment.

In an effort to help promote civic development and restoration of the

environment, Lexington currently has a program for residents to apply to
build and maintain community gardens on public property, including parks and
greenways. Further development of community gardens on public property

DIVISION OF PLANNING ENVIRONMENT | 123

 Tradeoffs Associated with Various Low or No Emission Vehicle Power Sources
significant sources of particulate matter, ozone precursor chemicals as well
as atmospheric carbon. Exposure to these pollutants can cause respiratory
Vehicle Power Advantages Potential Disadvantages problems, exacerbate asthma symptoms, and increase the risk of heart
disease and lung cancer. Furthermore, these pollutants disproportionately
Limited battery range and loads affect low-income communities and communities of color, which often live
closer to highways and experience higher levels of traffic.
Current Electric Generation mostly through Fossil Fuels

As discussed in Sustainability Policy #5, the most effective methods of

Electric Generation through Renewable Sources:
reducing these emissions are any efforts to reduce travel by automobiles or
Solar
trucks, especially those powered by fossil fuels. However, many areas within
Lexington are currently accessible only by automobile and the automobile
o Requires large arrays covering many acres will likely remain the mode of choice for many Lexingtonians. Thus, migrating
o Limited generation during winter months and cloudy
vehicle power source from fossil fuels to either Battery Electric or some
Zero emissions from vehicle
days other alternative fuel is imperative in order to remain in compliance with EPA
Battery Electric
Potential recharging from
Wind
standards regarding criteria pollutants or for the region to meet the federal
renewable sources
goal of net zero greenhouse gas emissions by 2050.
Cost of Operations / Maintenance o Requires large number of windmills covering many
Significantly Reduced square miles
As of 2023, most vehicle manufacturers have announced significant
o Limited generation during calm days or damaging
wind events
investments in the development of battery electric vehicles (BEVs) to address
the impact fossil fuel engines are having on human induced climate change.
Hydroelectric Some automakers such as Volvo and General Motors have gone so far as
o Requires impounding of rivers or streams which to announce the discontinuation of gasoline powered vehicle sales in favor
adversely impacts stream ecology and potentially
displaces residents of electric-powered cars by 2030 and 2035 respectively. There are 2 big
o Limited generation during drought
advantages with BEVs: 1. BEVs result in significantly fewer emissions of both
greenhouse gases and EPA regulated pollutants (see air quality discussion)
Significantly less emissions of
particulate matter and ozone and 2. BEVs have far fewer moving parts than their internal combustion
engine cousins resulting in much lower maintenance costs. One important
precursor pollutants
Compressed Natural Gas Fuel provides sufficient energy for Being a fossil fuel, greenhouse gas reductions are less than
(CNG) freight / heavy trucks other fuel / power sources note, however, is that the level of reduced emissions varies depending upon
Distribution systems are already how the electricity is generated for a community (see Sustainability Policy
widespread
#5).
Zero emissions from vehicle Limited existing distribution systems
Vehicle battery technology has advanced significantly in the last 5 to 7 years
Hydrogen
Fuel provides sufficient energy for Due to volatile nature, requires very expensive safety such that the largest barrier to feasible operations, battery range, has to a
freight / heavy trucks systems for use, storage and refueling
large extent been overcome, with ranges varying between 150 to 400 miles
depending upon the vehicle. Considering that the average personal vehicle
Hydrogen production is expensive and requires significant
electricity (see battery electric above)
Can reduce emissions of weekly travels between 200 and 250 miles, a single overnight charge can now
particulate matter and ozone
precursor pollutants
Lower fuel efficiency relative to other fuels
permit continuous vehicle operation for an entire week.
Fuel provides sufficient energy for Being a fossil fuel, greenhouse gas reductions are less than

Propane
freight / heavy trucks other fuel / power sources The remaining challenge with widespread acceptance of BEVs as a personal
Distribution systems are already While emission of ozone precursors are reduced, it is not vehicle is the speed at which these vehicles recharge. While level 3 chargers
can provide a full charge in as little as 30 minutes, rapid recharging also
widespread zero

Reduced operational costs for high

mileage vehicles
significantly reduces the life of the battery and is generally used only to
Lexington Area MPO accomplish long distance travel (i.e. Lexington to Chicago). Most BEVs

124 | THEME B IMAGINE LEXINGTON 2045

currently recharge using level 2 chargers which provide a full charge in
approximately 10 hours. As a result, it is anticipated that most BEV recharging
will occur either at the owners place of residence or employment and not
through a gas station concept.

Regarding heavy duty trucks, such as those used for freight delivery, BEVs
are not currently a viable option as the size and weight of the battery needed
would appreciably reduce the payload and even with rapid recharging the
recharge time is too long to travel any significant distance. Compressed
Natural Gas (CNG) or Hydrogen power, however, provides sufficient energy
for propulsion of heavy loads with acceptable ranges, permits rapid refueling
similar to diesel and results in reduced greenhouse gas emissions especially
for renewable natural gas or RNG. These fuels are also one of the options
available for funding under the USDOT Discretionary Grant Program for
Charging and Fueling Infrastructure. Additionally, CNG or Hydrogen vehicles,
due to their low or no emission status, provide benefits to reducing pollutants
related to ground level ozone and particulate matter. With that said, both fuels
have certain disadvantages which need to be considered in coordination with
efforts being conducted on a statewide basis by KYTC (See Alternative Fuels
Tradeoff Table in Sustainability Policy #5). face major pollutants, including nutrients, pathogens, and sediment. Stream
segments in all nine of Lexington’s watersheds have been assessed to
RESTORATION POLICY #3 ACTION ITEMS
determine if they support designated uses for recreational contact, fish
1. Update regulations to require installation of Level 2 electric
consumption, drinking water, and aquatic habitat. Unfortunately, all nine
vehicle charging stations.
watersheds have streams that do not meet full support for at least one use,
2. Identify appropriate locations and funding opportunities for the
although Town Branch has improved from non-support in 2008 to partial
installation of Level 3 electric vehicle charging stations.
support in 2010.
3. Conduct a study to identify appropriate refueling locations for
freight vehicles utilizing alternative fuels. Lexington has several ongoing waterway improvement activities with a goal
of improving impaired waterbodies throughout Fayette County. These include
RESTORATION POLICY #5 government activities such as stream restoration projects at Coldstream
Park, West Hickman Creek at Veterans Park, and ReForest the Bluegrass—
IMPROVE WATERSHED MANAGEMENT AND WATERWAY QUALIT Y.
an annual event to engage the public in expanding the riparian buffers on
A watershed is an area of land that drains into a particular body of water, such local waterways. Additionally, LFUCG Division of Environmental Services is
as a river, lake, or ocean. Watershed planning is the process of developing a implementing the recently approved Watershed Management Plan for West
comprehensive plan for managing the natural resources and land use within Hickman Creek. There are also existing approved Watershed Management
a particular watershed or drainage area with the goal of protecting and Plans for the Cane Run and Wolf Run watersheds.
improving the quality of the water within the watershed. This process involves
The City currently has numerous ordinances, regulations, and activities in
working with various stakeholders to identify and address potential sources
place to protect and improve water quality. These include Chapter 16 of the
of pollution, such as urban runoff, agricultural runoff (examples of non-point
Code of Ordinances, which regulate stormwater discharges, erosion and
source pollution) and industrial discharges (point-source pollution).
sediment control, discharges to the sanitary sewer system, and maintenance
Like other cities of similar size, Lexington’s watersheds and waterbodies requirements for stormwater control devices; the Subdivision Regulations,

DIVISION OF PLANNING ENVIRONMENT | 125

which incorporate the Engineering Manuals by reference; and the Zoning RESTORATION POLICY #5 ACTION ITEMS
Ordinance, which contains provisions for floodplain conservation and 1. Update ordinances and regulations to reflect national best
protection. These documents should be continuously reviewed and updated practices on floodplain protections.
as needed to incorporate national best practices, especially as climate 2. Update regulations to refer to the Royal Springs Aquifer
change accelerates changes to local weather patterns. Additionally, the City requirements.
of Georgetown sources its drinking water from the Royal Spring Aquifer, RESTORATION POLICY #5 PLACEBUILDER CRITERIA
of which 80% recharges in Fayette County. For this reason, Lexington • B-RE5-1 Dividing floodplains into privately owned parcels with
developments within the Royal Springs Aquifer are requested to consult with flood insurance should be avoided.
the Royal Springs Water Supply Protection Committee prior to filing. • B-RE5-2 Floodplains should be incorporated into accessible
To further protect water quality from point-source pollution, the Division of greenspace, and additional protection should be provided to
Water Quality maintains an active Illicit Discharge Detection and Elimination areas around them.
(IDDE) program to respond to complaints of potential illegal discharges to • B-RE5-3: Developments within the Royal Springs Aquifer
the stormwater system, determine the source of the discharge, and conduct should consult with the Royal Springs Aquifer Supply Protection
enforcement activities against the source of the discharge(s). The Division also Committee.
oversees an active pretreatment program for industrial sanitary sewer users
to ensure industrial discharges to the sanitary sewer system do not contain
RESTORATION POLICY #6
constituents which may cause the treatment plants to exceed permitted COORDINATE TO ADDRESS LIT TER ABATEMENT.
discharge limits. Furthermore, the Division is interested in the creation of
a stormwater payment in lieu of program that, based on specific criteria, Cities have a responsibility to provide their residents with a clean and healthy
could allow developers flexibility with on-site stormwater management in living environment. However, litter, which encompasses trash, debris, and
exchange for additional funding for stream restoration projects. other waste, can negatively impact a city's aesthetics, create health hazards,

There are several volunteer groups and activities that residents with an
interest in watershed and waterway quality can join. For example, several of
Lexington's watersheds have volunteer groups, including Friends of Wolf Run,
Hickman Creek Conservancy, Neighbors United for South Elkhorn, and Cane
Run Watershed. Lexington works to coordinate and communicate with these
groups and others via the Stormwater Stakeholder Advisory Committee
which meets on a quarterly basis. You can learn more about these groups,
organized stream clean ups, and find out what watershed you live in by
visiting www.lexingtonky.gov/livegreen.

Significant efforts have been made in Lexington to improve watershed

management and waterway quality. However, there is still work to be done.
Local impacts of climate change, such as increased storm intensity and
rainfall followed by periods of drought and heatwaves, necessitate the need
to ensure that Lexington’s watersheds and waterways are resilient and able
to withstand these pressures. Continued investment in improving waterway
quality is essential to protect local ecosystems, support the economy, and
safeguard public health now and into the future.

126 | THEME B IMAGINE LEXINGTON 2045

and harm the environment and wildlife. Litter clean-up was a frequently- RESTORATION POLICY #7
cited concern in the On the Table survey, indicating that it is at the forefront of
many Lexington residents' minds. SUPPORT ENVIRONMENTAL JUSTICE AND EQUIT Y.

Addressing the litter problem requires a coordinated approach that brings Environmental Justice (EJ) is a social movement that seeks to address
together diverse stakeholders, including community groups, local businesses, the disproportionate negative environmental impacts experienced by
and government agencies, to achieve the common goal of maintaining a clean communities with lower incomes or predominantly composed of people of
city. A recent example, the Corridors Commission and Greenspace Trust have color or marginalized ethnicities. EJ recognizes that past and current policies
established the Joint Work Group on Litter to evaluate the extent of litter on have resulted in significant environmental, health, and economic harm to
major and minor arterial roads, review current ordinances and enforcement these communities and aims to correct these injustices through equitable
efforts, and develop proactive measures to prevent littering. and inclusive policy-making processes.

To encourage residents, property owners, and businesses to take responsibility By prioritizing community engagement, EJ initiatives aim to ensure that
for reducing litter, Lexington should continue to develop educational programs affected communities have a voice in decision-making and that their
and media campaigns that raise awareness and provide incentives for taking concerns are heard and addressed. Simultaneously, these initiatives strive
action against litter. A strategy should also be developed to increase recycling to improve the standard of living and quality of life for these communities
and the use of sustainable materials, with specific goals and initiatives while minimizing the risk of displacement or gentrification. This is achieved
focused on reducing single-use plastics, plastic recycling, and upcycling. By through sustainable and equitable development that considers the needs of
eliminating single-use plastic bags, the amount of plastic going to landfills all residents, particularly those historically excluded from decision-making
can be reduced significantly. Americans throw away approximately 100 billion processes.
bags each year, which is equivalent to dumping almost 12 million barrels of
crude oil. Some states and cities around the U.S. have banned or restricted An essential principle of Environmental Justice (EJ) is that no group of
the use of plastic shopping bags or implemented a fee on their use. Switching people should bear a disproportionate share of negative environmental
to reusable shopping bags can help eliminate this waste. consequences resulting from industrial, governmental, and commercial
operations or policies. However, evidence of historic practices such as
Many groups, including contracted crews, non-profits, volunteers, and city redlining and subsequent neighborhood disinvestment based on race and
workers, are working to clean up trash, and their efforts should be recognized class is still apparent in Lexington and many other U.S. cities. This can result
and encouraged. Groups such as Keep Lexington Beautiful host events such in measurable differences in environmental quality, such as unequal tree
as the Great American Cleanup, and the City hosts Creek Sweep events to canopy coverage in Lexington, as described more fully in Restoration Policy
protect local creeks through neighborhood, backyard and park litter cleanups. 1. This unequal coverage impacts urban heat island, air quality, and other
environmental factors that affect public health.
Finally, Lexington should study the potential need for additional trash and
recycling receptacles in high-traffic areas. However, merely installing these The physical environment is closely linked to public health, with up to 84% of
receptacles is insufficient. To ensure proper waste management, it's crucial overall health outcomes influenced by factors such as socioeconomic status,
to incorporate a scheduled pickup routine at a frequency that matches the health behaviors, and the built environment in which someone lives. This
level of traffic and typical trash quantities generated. highlights the importance of equitable access to nature, public spaces, and
community amenities that offer opportunities for people to exercise, learn,
RESTORATION POLICY #6 ACTION ITEMS and establish strong social connections. These are all crucial in promoting
1. Coordinate with LFUCG Waste Management, Environmental longer and healthier lives, underscoring the importance of promoting equity
Services, and other community partners to expand outreach on in access to these resources.
litter prevention and abatement.
To identify communities most likely to be impacted by environmental justice
concerns, the EPA has eleven indexes that can help guide EJ planning.

DIVISION OF PLANNING ENVIRONMENT | 127

Creating a countywide map and documenting these communities can serve as
a starting point for proposing plans to tackle environmental equity concerns.

Effective EJ planning can lead to numerous benefits for underserved

communities, such as more affordable and mixed-income housing, better
access to greenspaces and parks, strategic tree planting, and reliable
infrastructure that can improve quality of life and reduce environmental
burdens. However, it's crucial to involve impacted communities in policy-
making processes that directly affect them to avoid repeating the inequitable
decisions of the past. By centering the voices of these communities, Lexington
can ensure that EJ policies are not only effective but also equitable and just.

RESTORATION POLICY # 7 ACTION ITEMS

1. Develop education and outreach tools to link those most impacted
by environmental inequity to the decision making process.
2. Work with communities, local partners, and policymakers to
research and develop community benefit and anti-displacement
strategies in existing neighborhoods.
3. Develop resources to promote the development of affordable
housing with parks, greenspaces, and equitable transportation
options.
4. Monitor environmental inequity and collaborate with and support
community members within affected areas.

128 | THEME B IMAGINE LEXINGTON 2045

DIVISION OF PLANNING ENVIRONMENT | 129
THEME C.
CREATING JOBS &
PROSPERITY.
INTRO
Lexington is well-established as the Horse Capital of the World, and that title plays a large part in creating jobs
and prosperity. There is a storied past, a thriving present, and a promising future associated with the many horse
farms that call Lexington home. Many people choose to live in or visit Lexington because of the beautiful greenbelt
of farms and the equine-related entertainment, yet there are also a myriad of other draws like the University of
Kentucky, Bourbon and Brewgrass Trails, wineries, restaurants, healthcare, schools, and so many other attractions
that bring residents and visitors to the area. Many businesses also choose to locate in Lexington for these same
livability reasons, and Imagine Lexington seeks to capitalize on opportunities to build on these existing strengths.
Lexington is a city with a diverse economy, providing many employment options. That diverse economy is led by
the Healthcare and Social Assistance industry, which accounts for the largest quantity of jobs and provides the
most payroll tax revenue.

The Retail Trade and the Accommodations and Food Services industries follow with the second and third most
jobs, while the Professional, Scientific, and Technical Services and the Construction industries provide the second
and third highest payroll tax revenue (County Business Patterns 2020). Maintaining that diversity in industries
and occupations, while increasing opportunities for higher wages, will help provide long-term sustainability as
markets and the global economy change. Continuing to recruit employers, especially industries with higher paying
jobs, will be beneficial to Lexington’s revenue flow and should provide upward mobility opportunities for employees
in industries with lesser paying jobs. Lexington continues to appear on “top-ranked city” lists for everything from,
“Best City to Buy a House” to “Best City for New College Grads.” It is important for Lexington to leverage this
momentum and take the city to the next level as far as desirability is concerned.

During a series of Commerce Lexington community roundtable discussions, local business and industry
stakeholders highlighted several economic development challenges as Lexington emerged from the COVID-19
pandemic, the foremost concern being the attraction and retention of skilled employees. Many local employers
found it difficult to attract a competitive in-person workforce against larger national companies willing to offer
work-from-home policies. Employment woes were compounded by a large number of employees retiring or
exiting the workforce due to demographic shifts. Other factors, such as the rapidly increasing cost and reduced
availability of childcare, is further constraining the pool of available labor.

In November of 2021, Amazon opened a new 141,000 square-foot fulfillment center on Newtown Pike, hiring around
500 full and part-time employees. Clearly the evidence points toward Lexington being poised to take the next step
in creating an even more desirable place to live, work, and visit. As more employers look to livability and quality
of workforce in their locational criteria, this city will continue to be an attractive option to bring businesses of all
sizes and industries to the area.

JOBS & PROSPERITY | 133

WHERE ARE WE NOW?
AGRICULTURE Nearly everyone equates Lexington with horses, and while horses are not the
only thing that define this city, they are a critical component of the economy
Fayette County’s Rural Service Area (RSA) makes up 200 square miles of the and a primary driver of why many choose to live in and visit Lexington.
285.5 square mile county. In the Rural Land Use Inventory, Fayette County, Lexington’s picturesque farmland adds to the livability factor that attracts
Kentucky report (June 6, 2017), by Lynn Roche Phillips, PhD., AICP, and Priyanka people and businesses to the city. Every effort should be made to ensure
Ghosh, PhD., University of Kentucky, Department of Geography, roughly 86% continued support of the equine industry.
of Fayette County’s rural lands are used for agriculture and more than 50%,
or 101.43 square miles, are dedicated to equine-only operations (59.2 sq. mi.), As important as the agricultural economy is, it is also particularly vulnerable
and combined equine and crop operations (42.23 sq. mi.). This 2017 inventory to volatility related to climate change. Agricultural industries will have to
resulted in a total of 108,248 acres being utilized for agricultural uses within adapt as more frequent climate extremes, flooding, drought, and increased
the RSA. temperatures occur, and bring with it reduced production and quality, and
more pest and weed problems. The Fourth National Climate Assessment
By land mass, agriculture is the dominant land use in Lexington; it embodies (NCA4) in its chapter on “Agriculture and Rural Communities” finds that as
local heritage and provides a world-renowned sense of place, but it is also a climate change continues in the future, it is expected that there will be reduced
key component in the Lexington economy. According to the May 2017 report, agricultural productivity, degradation of soil and water resources, and health
The Influence of the Agricultural Cluster on the Fayette County Economy, challenges to rural populations and livestock. It is ultimately in the best
by Alison Davis, PhD., and Simona Balazs, MS, with the Community and interest of the agricultural community to address and mitigate the land use
Economic Development Initiative of Kentucky, College of Agriculture, Food, and transportation factors that lead to climate change, and recommendations
and Environment, University of Kentucky: for doing so are found throughout Imagine Lexington 2045.
“1 out of every 12 jobs [in Fayette County] is directly or indirectly TOURISM
associated with the Ag Cluster.”
The success and identity of the horse farms and natural beauty of Lexington’s
“… the Ag Cluster contributes approximately $8.5 million to the local agricultural areas factor high in the burgeoning tourism industry. Equine
tax base through the 2.25% occupational tax rate.” events and racing, tours of all kinds including: horse farms, pumpkins and
corn mazes, the Bourbon Trail, hotels, and restaurants are some, but not all,
“the Ag Cluster generates approximately $2.3 billion in output annually of the ways agriculture is connected to tourism and the overall Lexington
and $1.3 billion dollars in additional income, profits, and dividends.” economy. In particular, the horse farm tours are increasing; one company,
Horse Country Inc., has many tours to choose from, including horse farms
The “Ag Cluster,” as defined in this report, includes standard agricultural
and equine related facilities, such as an equine hospital. In the past, many
production impacts, as well as a variety of supporting operations such as feed
had remarked about the general public’s lack of accessibility to the iconic
mills, breweries, private riding schools, tourism, etc. Each of these are vital
horse farms. Whether real or perceived, it was a barrier to drawing tourists
components of the Cluster and play a role in Lexington’s overall economy.
and locals alike to experience the inner workings of these operations, and
The report provides a comprehensive look at the impacts of this portion of
contributed to an atmosphere of inaccessibility and disconnect between
the economy. Another key resource in inventorying and discussing the rural
urban Lexington and the rural area. New endeavors such as Horse Country
area is the Rural Land Management Plan, completed in 2017, as an element
have come online recently to bridge the gap, and have made huge strides.
of the 2013 Comprehensive Plan, and carried over to Imagine Lexington. With
the adoption of the 2023 Goals and Objectives, the Urban County Council In addition to the increased access to horse farms, tourism has been boosted
expanded the Urban Service Area between 2,700 and 5,000 acres. Policies by both bourbon distilleries and craft breweries that have been growing in
within this theme will seek to continue to promote the economic vitality of the both number and popularity. These have manufacturing, agricultural, retail,
community, while preserving Lexington’s signature industry and significant and entertainment components, and have proven to be a big draw to both
soils. Lexington and the Bluegrass Region. The Bourbon and Brewgrass Trails take
visitors through Lexington’s scenic roadways; many have said that it is as

134 | THEME C IMAGINE LEXINGTON 2045

 EMPLOYERS & INDUSTRIES
The top 10 employers in Lexington each employ at least 1400 individuals,
totaling 50,423 employed. Approximately 36.68% of Lexington’s labor force
work for entities employing 250 or more. The University of Kentucky, combining
the school and UK healthcare facilities, is the single largest employer in
Fayette County. The medical industry, including Baptist Health and Shriners
Hospital, provide the next largest pool of educated professionals within the
Urban County. As a city that is tied to the educational and medical industries,
Lexington has the advantageous position to draw a talented and educated
workforce from outside the community, while also providing a young,
homegrown employment pool.

much about the journey as it is the destination. Yet another reason protecting
the Rural Service Area is important is for economic, as well as historic, and
cultural purposes.

At the state level, the Kentucky Department of Agriculture’s Kentucky Proud

program continues to innovate ways to promote local food production by
supporting Farm to Fork events. These programs are charitable events
intended to further showcase locally sourced and grown products and the
larger overall Farm to Table initiatives.

DIVISION OF PLANNING JOBS & PROSPERITY | 135

 Retaining, supporting, and growing large employers is essential to maintaining
Employer # of Employees Lexington’s vibrant economy, but it is also imperative that Lexington be
an incubator for small businesses in emerging sectors and allow those
University of Kentucky 12,800 businesses to grow locally. The majority of the local workforce (63.32%) are
Fayette County Public Schools 5,900 employed by smaller businesses, which underscores the need to support
these enterprises, and create an environment where entrepreneurs can
Lexington-Fayette Urban County Government 2,945
thrive. Fifty percent of the small businesses with fewer than 250 employees
Amazon.com 2,700 in Fayette County have only one to four employees. Within Fayette County
Conduent 2,500 93% of businesses have fewer than 50 employees. Many of these smaller
businesses grow into larger businesses, and further contribute to the overall
Veterans Medical Center 2,086
economy (County Business Patterns 2020).
Baptist Health 1,852
KentuckyOne Health 1,847 While most of Lexington’s labor force work for businesses that employ
fewer than 250 people, loss or layoff from one of the larger employers has
Lexmark International Inc 1,600 a cascading impact on medium and small businesses, specifically those
Lockheed Martin 1,100 positions associated with retail and service industry. Greater than 26% of
Lexington’s population work in the retail and service industry, which are
Lexington Clinic 1,000
often the most economically insecure occupations. These positions have also
UPS 836 experienced a significant amount of insecurity due to shifts in the retail sales
Trane 800 market and changes in social interaction, as a result of the COVID-19 pandemic.
The symbiotic relationship between all sizes and types of businesses needs
Link-Belt 740
to be supported and proliferated so that Lexington can maintain a healthy
Webasto Roof Systems Inc. 660 economic balance, which can weather future economic insecurity.
Valvoline 650
REVENUE
Big Ass Fans 550
Lexington City Council Members approved a $473 million budget for fiscal
Schneider Electric 515
year 2022-2023, the largest in the city’s history. This was a significant budget
Cardinal Hill Rehabilitation Hospital 508 increase of 18% over the previous fiscal year. Sustaining such a large budget
Central Bank & Trust 501 as Lexington continues to grow requires a steady revenue. The City’s main
source of revenue are Licenses and Permits, Ad Valorem Taxes and Services
Galls LLC 500
making up roughly 86% of the revenue from which the city uses to operate.
Pepsi-Cola Bottling Co 460 This revenue generated is crucial for general operating expenses and fulfilling
Aramark Uniform Services 400 the project and programming needs of the city as it continues to improve
overall quality of life.
Tempur Sealy International 400
Creative Lodging Solutions 330 The 2021 US Census Bureau’s County Business Patterns (CBP) shows
Healthcare and Social Assistance to be both the leading payroll contributor
Georgia-Pacific 275
and employment provider at 48,800 employees. The CBP categories do not
J.M Smucker 270 include government employment at any level, UK Healthcare and the Veterans
Hospital are also not counted, indicating an even larger impact on the local
economy. In looking at the gains and losses in employment and payroll
by industry in Fayette County from 2017 to 2021, Lexington has had a fairly

136 | THEME C IMAGINE LEXINGTON 2045

 Percentage of Population
Median
Total Population
Area Household With High School In Labor Force
Estimate Of Labor Force With Bachelor's
Income Diploma or In Poverty Participation Rate
Unemployed Degree or Higher
Higher (age 16 and over)
Kentucky 4,512,310 $55,454 3.9% 87.7% 25.7% 16.5% 59.1%
Bourbon 20,093 $53,277 3.5% 85.8% 23.1% 15.1% 60.4%
Clark 37,061 $59,294 3.6% 89.2% 20.1% 11.6% 60.3%
Fayette 320,347 $61,526 3.1% 92.4% 45.6% 14.6% 67.9%
Jessamine 54,254 $65,196 3.2% 89.7% 29.6% 13.8% 62.7%
Madison 95,187 $55,002 3.6% 89.7% 33.4% 16.6% 62.7%
Scott 59,099 $73,113 3% 93.6% 29.7% 9.5% 67.9%
Woodford 27,062 $72,765 3% 91.8% 39.6% 8.6% 64.9%
2022 U.S. Census Quick Facts and U.S. Bureau of Labor Statistics

consistent payroll tax revenue stream with a noticeable dip coming during educated city.
the COVID-19 pandemic. Lexington is almost back to the pre-pandemic levels
in both payroll and employment numbers. In Lexington, the labor force participation rate is largely unchanged since
2016, proving stable through the pandemic. Longer term, as a larger share of
Lexington’s population and economy continue to grow, as evident from the our overall population retires, labor force participation is likely to continue
new budget and the trends indicated on the CBP charts. With an increase in a slow steady decline. Replacing our workforce with a younger generation
population, housing, and workforce, revenue is expected to go up, especially will depend heavily on reducing barriers to employment, lowering childcare
with the revenue collected from the 2.25% payroll withholding and Ad Valorem costs, and improving access to job training and education will become more
taxes, licenses and permits and service fees. important.

WORKFORCE CHARACTERISTICS
In comparing Fayette County to its surrounding counties, Woodford County
has the highest median household income; while it is almost $24,000 higher
than Fayette County, Fayette has almost 20% more people with a Bachelor’s
degree or higher.

Fayette County has a very high educational attainment. The University

of Kentucky, Bluegrass Community and Technical College, Transylvania
University, and other colleges in Lexington confer around 10,000 degrees
each year. According to Commerce Lexington, among cities over 300,000 in
population, the U.S. Census Bureau ranks Lexington as the 11th most highly
educated in the nation. Even more impressive, 19.3% of the population has
a graduate or professional degree, ranking Lexington the 10th most highly

DIVISION OF PLANNING JOBS & PROSPERITY | 137

VISION FOR JOBS
AND PROSPERITY.
 livability diversity prosperity

PILLARS & POLICIES

PILLAR I LIVABILIT Y
There are a number of reasons why corporations may locate in a city, but NEIGHBORHOOD:
according to findings in a 2022 study by the Ohio River Valley Institute, quality
of life is strongly associated with higher employment, population growth and Complete neighborhoods include the full range of goods, services and
lower property rates. Locating in a livable place where their employees will uses within close proximity. AARP lists two important qualities of livable
want to reside is key to employee satisfaction; corporate decision-makers neighborhoods: access and convenience. They further state that, “Compact
are also unlikely to select a location where would be unwilling to spend neighborhoods make it easier for residents to reach the things they need
time. Additionally, recent trends have shown that millennials and young most.”
professionals specifically are choosing locations first, and then finding
employment. Desirable places attract people. TRANSPORTATION:
Quality of life is synonymous with “livability.” The American Association of A livable transportation system is all about equitable options. Providing
Retired Persons (AARP) has developed a Livability Index for people to measure opportunities for people to access their jobs, parks, grocery stores, healthcare,
how livable their community is. Lexington has an overall Livability Score of etc., via a variety of modes is key.
57, just barely in the top half of all communities in the country. They consider
livability through the lenses of housing, neighborhood, transportation, ENVIRONMENT:
environment, health, engagement, and opportunity, and gauge access to
Clean air and water, a robust tree canopy, green infrastructure components,
opportunities in each of these categories.
and available open space are all crucial to a livable community.
HOUSING:
HEALTH:
It is crucial to have the full spectrum of housing options available for those
The welfare and health of Lexington is dependent on the environment and
in all phases of life. This means pursuing more compact housing types that
development patterns, as well as medical opportunities for all citizens.
constitute the “missing middle” of the housing stock in Lexington, as well as
Preventative and as-needed healthcare opportunities need to be accessible
senior housing options that might not already be available, such as accessory
to residents throughout the city.
dwelling units.
ENGAGEMENT:
Opportunities for social interaction are crucial for a successful community.
Parks and common spaces that facilitate this help to make Lexington a strong
city. Communication is the primary way to break down barriers and build
community.

OPPORTUNIT Y:
Equity is crucial in making sure that all citizens of Lexington have access to
opportunities for quality employment, housing, entertainment, and all facets
of the community.

All of the factors above contribute to the overall livability of the city. To the
extent Lexington is able to improve in these areas, it will be increasingly
successful in attracting world-class talent and employers to boost the
economy.

140 | THEME C IMAGINE LEXINGTON 2045

LIVABILITY POLICY #1 and other scenic roads, as well as scenic view sheds and the Paris Pike
Overlay area. The detailed lists of these roads are on pages 82 and 83 of the
ENCOURAGE ECONOMIC OPPORTUNITIES FOR A WIDE ARRAY OF RLMP.
AGRITOURISM WHILE PRESERVING THE BLUEGRASS IDENTIT Y.
Gateways identified by the RLMP are shown below, and the recommendations
Agritourism is an increasingly important part of Lexington tourism, with the described in pages 87 through 90 of the RLMP should be followed. From the
growth of Horse Country, bourbon trail distilleries and Boone Creek Outdoors RLMP:
zip line canopy tours, as well as continued interest in wineries. With Lexington’s
2022 acquisition of 33 acres along the banks of the Kentucky River and another “First impressions for those entering the Rural Service Area should be
30 acres in 2023 off of Paris Pike, there is greater opportunity than ever for favorable and lasting, whether arriving at the county line, Urban Service
the public to take part in expanded outdoor recreational activities. Continued Boundary, interstate or airport. Gateway planning and design should reflect
efforts should be made to ensure that the local Fayette County extension the values of the community to protect the beauty of the rural landscape
office and the Kentucky USDA know about the agritourism uses allowed in while welcoming visitors.”
Lexington’s rural service area, so farmers are aware of the options they may
The Rural Land Management Board should continue their work with the
have for additional revenue streams. These opportunities have the potential
Planning Commission to preserve areas of significance, while promoting
to supplement farmers’ primary business operations and may allow some
advancements in agricultural technologies and agritourism that draw both
farms to remain viable, where it might otherwise be difficult.
business and tourism into our rural and urban service areas.
However, these opportunities should be monitored and conditional uses closely
The zoning ordinance for the A-R Agricultural Rural, A-B Agricultural Buffer,
scrutinized, using the Rural Land Management Plan (RLMP) as a guide. It is
and A-N Agricultural Natural Areas zones currently allow several accessory
important that tourism uses for the agricultural land do not have a negative
uses that are related to agritourism. Further, tourism-related conditional
impact on the farming practices that are vital to the Lexington economy. It
uses are currently listed as options in the A-R zone with Board of Adjustment
is possible to have a thriving agritourism industry while maintaining the
approval; while some are permitted in the A-B and A-N zones, others require
integrity of the agricultural area, and it should be encouraged as a primary
environmental approval.
component of Lexington’s tourism strategy.

LIVABILITY POLICY #2
EMPHASIZE THE PRESERVATION, PROTECTION, & PROMOTION OF
THE ICONIC BLUEGRASS LANDSCAPE ALONG RURAL GATEWAYS &
ROADWAYS SERVING AS PRIMARY TOURIST ROUTES.

Visitors to Lexington frequently comment on the scenic beauty observed

while driving through the rural service area on the way to a destination. Trips
to horse farms, distilleries, breweries, outdoor recreation, or any of the other
tourist hot spots within Fayette County become as much about the journey
as the destination. The experience draws people in, and, in some cases,
influences visitors’ decisions to locate themselves or their businesses in
Lexington permanently.

The map above from the 2017 Rural Land Management Plan (RLMP) shows
historic turnpikes, State Designated Scenic Byways, turnpikes and byways,

DIVISION OF PLANNING JOBS & PROSPERITY | 141

 LIVABILITY POLICY #3
RURAL GATEWAYS PROMOTE SPORTS TOURISM THROUGH THE
DEVELOPMENT OF ATHLETIC COMPLEXES &
ENHANCE LEXINGTON’S EXISTING FACILITIES.

Over the course of the last two decades, sports

tourism has become increasingly important
economic driver for communities. In 2021,
approximately $39.7 billion of direct spending
has been documented from amateur and youth
sports tourism in the United States, with a total
economic impact of $91.8 billion (Sports Events
Legacy Trail and Tourism Association 2021). Lexington’s
Interstate location at the intersection of two major
Historic Turnpike interstates and the centralized location of the
City is advantageous to the establishment of
State Designated Scenic Byway state and regional events. The City has already
Turnpike and Byway been the beneficiary of state amateur or youth
Other Scenic Roads sports tourism, with the Kentucky High School
Existing Gateway State Basketball Tournament being held annually
Rural Activity Center at Rupp Arena, which has been a major economic
Potential Gateway
Bluegrass Stockyards
Athens Rural Settlement contributor to the hotel and accommodation
Fasig-Tipton Park or Golf Course industries, as well as the other tourism offerings
within the area.
Keeneland Scenic Viewshed
Focus Area/Greenway While public fields and amenities are available
Road within Lexington, privately operated sports
tourism developments and public-private
partnerships have become more commonplace
due to high construction costs. Within Lexington,
there are various privately operated facilities
for local, state and regional events including
the Lexington Tennis Academy, which includes
22 courts, and the newly constructed soccer
complex off of Athens-Boonesboro Road, which
includes 10 multi-use fields. Future inclusion of
2017 Rural Land Management Plan other sports or enhancement of existing local
or privately owned facilities can foster sports
tourism in Lexington and contribute to the
economic gains of the community.

142 | THEME C IMAGINE LEXINGTON 2045

While Lexington has a robust network of parks, with associated public sports are able to work remotely and choose where they live independent of where
fields, there is a current absence of facilities located in the eastern portion their company offices are located, it only further underscores the need to
of Lexington. Future public facilities should be planned and constructed create desirable, amenity-rich areas for people to live.
to provide public amenities to those in this area, as recommended by the
Expansion Area Master Plan and the Parks Master Plan. This area would also As the City seeks to enhance the livability of the downtown core, there is a
be advantageous for regional tournaments, as it is located within proximity continued need to provide accessible services and facilities to community
to an interstate roadway and has access to numerous amenities, including members and visitors. This includes the promotion and development of
retail, restaurants, hotels, and medical facilities. increased housing, private businesses, and public spaces, like Town Branch
Park and Town Branch Commons. However, what is often overlooked is the
provision of necessitates that are the base of livability. Public bathrooms with
LIVABILITY POLICY #4 changing facilities, drinking water fountains, and shaded seating all pay a
PROMOTE ECONOMIC DEVELOPMENT THROUGH IMPROVING THE significant role in making downtowns feel comforting and welcoming to all.
LIVABILIT Y OF DOWNTOWN TO SUPPORT MORE RESIDENTS AND LIVABILIT Y POLICY #4 PLACEBUILDER CRITERIA
COMMUNIT Y SERVING BUSINESSES. • C-LI4-1: Development should contain a mixture of land uses, with
a prioritization of residential.
For at least a decade, cities with economic and employment environments
similar to Lexington have recognized that attracting new and growing LIVABILITY POLICY #5
businesses is increasingly dependent on providing high quality of life places
to live for workers and customers. Compact, walkable urban cores attract ENHANCE PROGRAMS & ACTIVITIES BY LEXINGTON’S PARKS &
businesses and new residents alike. Providing abundant workforce housing RECREATION DEPARTMENT, & SUPPORT PUBLIC EVENT PLANNING,
with better access to transit, a problem identified by business leaders COMMUNIT Y EVENTS, & FESTIVALS.
in Commerce Lexington roundtable discussions, is critical to supporting
the employment needs of businesses. As Lexington’s economic growth Many of the festivals, parades, and events that Parks and Recreation hold
increasingly depends on producing and retaining an educated and skilled are in the same location each year. Events, festivals, parades, and the like
workforce, our land use policies and zoning regulations must be revised to are important in celebrating holidays, cultures, and community celebrations.
respond to these critical needs. These activities add to the livability of the city, attract tourists, and provide
entertainment options that appeal to people of all ages. Increasing the scope
For employers, a key driver of higher productivity and wages in large cities is of these events, and even creating a citywide festival, should be considered.
the economic benefit that comes from the geographic clustering of workers The special site needs for these annual events should be supported in
and firms in similar industries and sectors. The increased interaction and planning complementary land uses, such as restaurants and hotels, as well
physical proximity between workers in large cities facilitates the interchange as improving infrastructure such as roads, trail access, lighting, etc.
of knowledge and the learning of new skills from each other, which boosts the
productivity of local workers. A 2013 project by the EPA’s Office of Sustainable
Communities documented, in great detail, the productivity and innovation LIVABILITY POLICY #6
benefits for businesses that locate within these types of communities.
AT TRACT & RETAIN A VIBRANT WORKFORCE BY IMPROVING AFFORDABLE
However, for employees, the COVID-19 pandemic radically altered where HOUSING OPPORTUNITIES, AMENITIES, & ENTERTAINMENT OP TIONS.
and how people work. As a result, it has created new opportunities to re-
appropriate our urban space, adaptively reuse existing office buildings and In 2022, Commerce Lexington hosted a series of business engagement
steer new development in ways that can continue to attract businesses and roundtables in an effort to gather the perspective of the business community
employees in the key industrial sectors that will drive Lexington’s growth during the Goals & Objectives public input phase. Though each discussion was
well beyond 2045. If a greater number of higher paid, higher skilled workers focused on a particular sector of the local economy, the topic of staffing issues
was universal throughout them all. Employee attraction and retention was

DIVISION OF PLANNING JOBS & PROSPERITY | 143

top of mind for businesses large and small, citing difficulties with employees • C-LI6-1: ADUs and/or affordable housing options should be
returning to the office after the COVID-19 pandemic, competing with large incorporated into existing and new single-family residential
corporations based in other cities for employees that can work remote from development.
anywhere, and university students who leave the market after graduation,
among other issues. Further, the Urban County Council’s adoption of the LIVABILITY POLICY #7
Goals and Objectives established a need to identify strategies and methods to
increase the quantity of affordable housing options within Lexington.. CREATE A WALKABLE CIT Y WITH QUALIT Y TRANSIT THAT IS AT TRACTIVE
TO NEW BUSINESSES AND RESIDENTS.
In order to attract and retain employees and employers, the city must continue
to provide more housing options and remove barriers to constructing them. A key asset of cities is the relative ease with which people can access a
Rising housing costs are a concern for people in Lexington, as they are in wide range of jobs, goods, services and opportunities for social interaction.
cities all across the United States. Recently the Planning Commission and People and businesses value city locations for the accessibility they provide.
Urban County Council have worked to address some of these issues through Places that are walkable—that have a variety of services and destinations
revisions to the Zoning Ordinance, including increasing allowable floor area in close proximity to one another—are more convenient and lively. The
ratios in multi-family zones, eliminating parking minimums, adding multi- resurgent interest in downtowns and in promoting mixed-use developments
family housing as an option in the Commercial Center (B-6P) zone, and throughout metropolitan areas is, in part, driven by a recognition of the value
legalizing accessory dwelling units. Each of these are small pieces to a of walkability.
much larger housing puzzle, and city leaders should keep looking for ways to
increase available supply. Walkability is important for many reasons; walking to amenities, for errands,
and to employment is good for the environment, public health, and personal
An academic article, “Beyond the Jobs versus Amenities Debate: Understanding budgets. Studies indicate that 63% of young professionals and 42% of older
the Migration of Educated Workers and Implications for Planning”, by Marla adults want in live in areas where they can walk or bike to work, restaurants,
Nelson and Renia Ehrenfeucht, delved into understanding why educated and retail. According to Smart Growth America’s “Foot Traffic Ahead: 2016,”
workers move to other places and how to retain talent. The study found that the most walkable urban metros are also the most socially equitable, since
economic motivations extended beyond wage and employment differentials. better access to employment and lower transportation costs (no car expense)
Having meaningful and rewarding opportunities within a culturally rich offset the higher costs of housing. That is important because walkable
community were more important, and where compactness of a city creates neighborhoods often command higher real estate values, in part, because
relatively affordable housing and more accessible amenities, the social demand far exceeds supply.
networks facilitated from public socializing significantly helped retain talent.
Walk Score is a website that scores neighborhoods based on a formula that
The study also found that many relocated because they were able to find assesses a neighborhood’s walkability, bike ability, and multimodal service on
meaningful work, while some that left did so to advance their career because a scale from 1 to 100. In essence, Walk Score is a measure of the proximity of
there were limited long-term opportunities in their respective locations. a range of typical goods, services, and activities to a particular household. In
Some workers turned to entrepreneurship in order to remain in the cities reviewing local Lexington scores, areas built prior to the automobile, in and
that otherwise provided the benefits they wanted. It further indicated that surrounding downtown, scored much higher ranging from 85 to 95. Areas
having a diverse, robust economy can attract new workers and help retain outside of downtown, but inside New Circle Rd, average between 50 and 75
talent, and that building on a place’s unique cultural amenities helps recruit in walk and bike scores. However, outside of New Circle Rd, Walk Scores
and retain workers. generally drop to the range of 30 to 50. Outside of Man O War Blvd, walk
and bike scores hover around 30 or less. These scores indicate our city has
LIVABILIT Y POLICY #6 ACTION ITEMS become more car-dependent as it has grown, and that many job sites, goods
1. Prepare a report to the Urban County Council that identifies and services require a car to reach them.
mechanisms that create, construct, and fund affordable housing.
LIVABILIT Y POLICY #6 PLACEBUILDER CRITERIA In addition to walkability, quality transit service is also important to businesses,

144 | THEME C IMAGINE LEXINGTON 2045

 and workers broader access to jobs, essential services and our community
at large. Thus, the Comprehensive Plan seeks to encourage transit-oriented
development patterns along our major corridors. This will be studied through
comprehensive corridor studies executed through a partnership between
Long-Range Planning and the Metropolitan Planning Organization (MPO). To
date, plans have been completed for Nicholasville Road and Northeast New
Circle Road.

LIVABILIT Y POLICY #7 PLACEBUILDER CRITERIA

• C-LI7-1 Developments should create mixed-use
neighborhoods with safe access to community facilities,
greenspace, employment, businesses, shopping, and
entertainment.

LIVABILITY POLICY #8
PROMOTE QUALIT Y OF LIFE ASPECTS, INCLUDING INVESTMENT IN
PUBLIC SPACE, AS AN AT TRACTION TO NEW BUSINESSES & RESIDENTS.

Well-designed public spaces, such as parks, plazas, streetscapes, and

trail systems attract visitors, spur business development, and create jobs,
ultimately promoting economic growth. By creating a vibrant public realm,
cities can attract and retain talent, as well as encourage new businesses
to establish themselves in the area. Great public spaces also provide
opportunities for cultural and artistic expression, which can attract tourists
and further promote economic development. Investing in public space can be
a powerful tool for fostering economic vitality, improving quality of life, and
enhancing the overall livability of communities.

Many new businesses and residents factor the quality of a city’s public spaces
when making their company and home location decisions. Well-designed and
well-connected regional trail systems are largely well-received by current
and prospective residents of Lexington. Lexington’s Legacy Trail system is
one such example of a public space that has made major contributions to
the quality of life Lexington has to offer. The Legacy Trail is a shared-use
greenway trail that connects downtown Lexington with area neighborhoods,
small businesses, parks, and historic sites. The 12-mile trail begins at the
Isaac Murphy Memorial Garden and winds north to the Kentucky Horse Park.

particularly those that rely on workers, who rely on transit. Frequent Another example of Lexington’s strategic investment in public space is the
transit service, and short transit travel times, are key to increasing transit Town Branch Commons, a park and trail system that follows the historic Town
ridership and accessibility to jobs. Likewise, providing a mix of land uses and Branch Creek through downtown. It consists of continuous bike and walking
residential housing where it can easily be served by transit, allows residents paths, green spaces, and stormwater-managing green infrastructure,

DIVISION OF PLANNING JOBS & PROSPERITY | 145

 LIVABILITY POLICY #9
PROMOTE ECONOMIC DEVELOPMENT THROUGH THE PRESERVATION
OF STRATEGICALLY & APPROPRIATELY LOCATED INDUSTRIAL &
PRODUCTION ZONED LAND.

The creation and recent modification of adaptive reuse regulations was an

acknowledgment that many of Lexington’s older industrial zoned sites were
no longer suited for modern economic development purposes. As those
properties became vacant and dilapidated, it presented opportunities to
support the urban core with businesses and residential options better suited
for their urban environment. However, it is still critical to provide a base of
industrial zoned land, in strategic locations well served by appropriately
scaled infrastructure and available transit service. Where sites have existing
historically significant structures that can be reused or updated, all care
should be taken to do so.

Like the other major economic hubs in the region, Lexington has experienced
a significant growth in the industrial and flex space market. Due to the
advantageous location of the Urban County at the confluence of two major
interstates, Lexington’s 32.2 million square foot industrial market continues
to grow. Accounting for demolition and deliveries, net industrial space in
Lexington has increased by 3% since 2010. New construction has recently
increased, with 474,000 square feet developed across 14 buildings since 2019.
connecting downtown to the rural landscape. The project aims to preserve Two substantial new tenancies include GE Appliance’s 2021 occupancy of
history, connect neighborhoods, and promote sustainability and healthy 170,000 square feet and Amazon’s 2022 delivery of 143,000 square feet in their
lifestyles. It is a world-class park with diverse recreational, educational, arts, second fulfillment center in Lexington. In addition to those areas that have
and environmental programming and is a centerpiece of the community. The been constructed, several new projects have approved plans, located near
comprehensive system is made possible through a public-private partnership the intersection of Newtown Pike and Interstate 64/75. As new space is added
between the City of Lexington and the Town Branch Fund. to the market, it has been quickly absorbed by tenant demand. The market
has maintained a vacancy rate below 5% since 2013. Increased demand has
In addition to its recreational and environmental benefits, Town Branch
put upward pressure on rents, which have grown at a CAGR of 3% from $4.66
Commons serves as a transportation network and a huge step forward for
per square foot in 2010 to $6.85 per square foot in 2022 (Imagine New Circle
the community's public space. The project links the city's two major trails, the
Road).
Town Branch Trail and the Legacy Trail, providing 22 miles of uninterrupted
trail for residents and visitors. Town Branch Commons is a transformative While Imagine Lexington is in large part focused on designing places that can
project that combines history, connectivity, and sustainability, making it an accommodate a wide mix of uses, industrial and production land stands out
essential part of Lexington's urban infrastructure. uniquely in that there should be little encroachment by residential land on
these areas, and vice versa. Just as important as preserving the industrial
LIVABILIT Y POLICY #8 PLACEBUILDER CRITERIA
land is closely monitoring the adjacent land use development patterns.
• C-LI8-1: Development should enhance a well-connected and
Appropriate buffering and transitions should be applied so that there can be
activated public realm.
minimal use restrictions applied on these industrial properties. It is important

146 | THEME C IMAGINE LEXINGTON 2045

that production land remain flexible and wide-
ranging in the uses allowed. The vast majority of
heavier industrial and production uses are not
suited to be within close proximity to residential
and retail areas.

Other common themes of Imagine Lexington

are still very much a factor in future industrial
and production growth. These areas should pay
special attention to their design features as
well as potential impacts on the surrounding
environment. In meeting and discussing issues
with industrial business owners, transportation
for their workforce was identified as a serious
hurdle they have to find unique ways to overcome.
Many of the problems identified have their
origins in the initial site design and location of
the industrial corridor in which they are located.
While multi-modal transit infrastructure is not
typically associated with industrial development,
it is important to consider how employees might
get to industrial and production developments.
Full multi-modal infrastructure is an important
consideration of new development.

All new development and redevelopment

proposals should consider other design elements
so that all industrial land can be as efficiently
used as possible, thus ensuring there is growth
potential for the future. Minimizing parking,
appropriate landscaping and providing ample
connectivity are all a part of taking a strategic
approach to economic development areas.

LIVABILIT Y POLICY #9
PLACEBUILDER CRITERIA
• C-LI9-2: Industrial development
should be strategically located along
freight networks and/or adjacent to
established industrial.

DIVISION OF PLANNING JOBS & PROSPERITY | 147

PILLAR II DIVERSIT Y
There is strength in diversity, and Lexington is experiencing an increase in create a more just and inclusive society.
diversity within both the population and the workforce. This is evidenced by a
growing share of people of color, more women entering the labor force, and While a diversity of occupations can provide the foundation for upward
greater participation and visibility of LGBTQ+ individuals in the economy. As mobility, workplace Diversity, Equity, and Inclusion (DEI) practices can help
a result, companies that adopt and promote diversity are gaining a stronger to build upon this foundation by promoting a more inclusive and equitable
position in the marketplace relative to their counterparts. work environment that fosters growth, innovation, and career advancement
opportunities for all employees. By embracing diversity in the workplace and
Diversity in Lexington's employment opportunities and industry types can creating inclusive cultures, employers can attract and retain a diverse range
provide economic resilience to the community. This is similar to the concept of talent, which can lead to a diversity of ideas and perspectives. This, in turn,
of a diversified investment portfolio, where the overall performance can meet can lead to greater innovation and productivity, ultimately driving business
expectations even if one investment should falter. If the economy were solely growth and success.
focused on one industry, it would lack this resiliency, making it vulnerable to
economic downturns. By having a diverse range of industries and employment Increased diversity, in the population and workforce, is not only desirable, but
opportunities, Lexington can reduce economic risk and ensure greater it is essential to the economic strength of a city. The benefits of workplace
stability in the long term. and workforce diversity are undeniable, as it fosters innovation, increases
consumer demand, provides access to a wider talent pool, promotes
To this end, Lexington has 36 companies with over 250 employees, yet 63% greater cultural exchange and understanding, and leads to the economic
of the city's workforce is employed by smaller businesses. This means that advancement of historically marginalized groups. Therefore, it's critical for
Lexington has diversity in industry type but also in company size. Large cities like Lexington to prioritize diversity and inclusion in all aspects of their
employers like the University of Kentucky are crucial in providing a stable community, including the workplace, to ensure long-term economic success
foundation for the economy, given that they employ 15% of Lexington's and growth.
workforce. However, it's equally important for Lexington to continue fostering
a variety of smaller businesses that offer different employment options.
When small businesses are nurtured and encouraged, they have the potential
DIVERSITY POLICY #1
to grow and become the foundation for larger corporations in the future. CREATE OPPORTUNITIES FOR INCUBATORS. SEEK INCENTIVES FOR
A variety of business sizes and models leads to a diversity of occupations, OWNERS OF VACANT OFFICE/LABORATORY SPACE, & FOR DEVELOPERS
providing individuals with more opportunities to pursue their desired career WHO BUILD INCUBATOR SPACE FOR STARTUPS & FOR GROWING
paths and promoting equitable access to upward mobility. With a range of BUSINESSES.
available jobs, people from all backgrounds and demographics can gain
new skills and progress towards economic success. This can help reduce Lexington needs additional space to encourage more startup businesses, as
economic inequality by providing pathways for advancement to those who well as for startups who have outgrown their original space. As new ventures,
have been previously excluded from certain fields. Facilitating this upward there are barriers that these young companies must overcome, such as a lack
mobility requires providing training and education opportunities, especially for of credit and a need for mid-level space of about 1,000 square feet or larger.
vulnerable populations who may have grown up in poverty, have disabilities, Some companies engaging in research and development may require more
or are returning to the workforce after rehabilitation or incarceration. specialized and larger (around 5,000 square feet) spaces with water, hoods,
etc., while some only require Wi-Fi and a small space to occupy. New modern
Moreover, a diverse range of occupations fosters healthy competition co-working spaces like Base 110 in downtown Lexington provide flexible office
among employers, encouraging them to offer better wages, benefits, and space with shared common areas for like-minded professionals to work and
career advancement opportunities. This can benefit employees across collaborate. Additional similar creative working spaces should be pursued to
different occupations, particularly those in lower-paying jobs who may have encourage entrepreneurs and new small businesses.
been historically excluded from upward mobility. As a result, a diversity of
occupations can lead to more equitable access to upward mobility, helping to University of Kentucky’s on-campus business incubator, Advanced Science

148 | THEME C IMAGINE LEXINGTON 2045

& Technology Commercialization Center (ASTeCC), houses new and rising
technology based companies located within the engineering complex.
ASTeCC has 80,000 square feet and was funded by the Economic Development
Administration and Small Business Administration. It currently has about 25
companies, two-thirds of which are owned by UK faculty; the rest are from out
of state. Sixty-two companies have ‘graduated’ from ASTeCC since it began in
1994. The companies have access to other shared-use facilities on University
of Kentucky’s campus, such as the Electron Microscopy Center, Center for
Nanoscale Science and Engineering, and Mass Spectrometry Facility.

The Bluegrass Small Business Development Center (SBDC) serves Fayette

and 14 other counties in the region. The Bluegrass SBDC helps make dream
businesses come true by providing business consultants to assist with strategic
market research, access to capital and loan packaging assistance, business
and strategic plan development, and analysis and start-up assistance, among
other services. The consulting is free of charge. Commerce Lexington assists
in placing businesses, not only on new sites, but also in all types of existing
buildings.

Commerce Lexington keeps an inventory of available locations and works

with businesses and other agencies to place businesses looking for space to
rent. Landlords of large professional office spaces may be hesitant to divide
up those spaces to accommodate a business looking for smaller footprints.
However, there is an abundance of vacant office options of many sizes
throughout Lexington.

DIVERSITY POLICY #2
ENCOURAGE A DIVERSE ECONOMIC BASE TO PROVIDE A VARIET Y
OF JOB OPPORTUNITIES, ALLOWING UPWARD MOBILIT Y FOR LOWER
that is heavily skewed toward lower paying positions is that individuals and
INCOME RESIDENTS OF FAYET TE COUNT Y.
families are forced to choose between necessities like housing, food, or
When looking at the mix of employment in Lexington, excluding government medicine. This is not only a problem for the employees and their families.
jobs, the top three industries with the most employment were Healthcare but can result in the City needing to be more involved in the social services
and Social Assistance, Retail Trade, and Accommodation and Food Services. sector. Lexington should focus on providing a livable wage for everyone. (CBP
The average employee income for Healthcare and Social Assistance was 2020)
just below the median level income at $56,929; whereas the average income
Additionally, while unemployment remains low in Lexington, it
for Retail Trade was $28,109; and the average income for Accommodations
disproportionately impacts minority populations. Lexington’s workforce
and Food Services was $15,460, which were both well below the City median
development efforts located in the Charles Young Center in the city’s East
level income. While there are opportunities within each of these industries to
End are focused on providing job training, and connecting people with local
advance to higher paying jobs, individuals within these industries have a more
employers. Expansion of these programs to additional disadvantaged
difficult time achieving economic security. The impact of having an economy
communities in Lexington is planned over the next few years.

DIVISION OF PLANNING JOBS & PROSPERITY | 149

Funding and support for research and development campuses should
continue to be a priority, as they attract high-paying jobs and new talent, help
retain local talent, and create spaces for incubator businesses. Collaboration
should continue between the City, the University of Kentucky, and Commerce
Lexington to seek capital investment in this sector.

DIVERSITY POLICY #3
SUPPORT FULL FUNDING & ADEQUATE STAFF FOR THE MINORIT Y
BUSINESS ENTERPRISE PROGRAM (MBEP) WHICH INCREASES
DIVERSIFICATION OF CIT Y VENDORS THROUGH PROMOTING AN
INCREASE IN MINORIT Y, VETERAN, & WOMEN - OWNED COMPANIES
DOING BUSINESS WITH THE CIT Y.

Minority, women, and veteran owned businesses are underrepresented in

Lexington, and the MBEP, as well as other agencies, are making efforts to
help lessen this disproportion. The Minority Business Enterprise Program is
in place to help minority, women, and veteran owned businesses participate in
the city’s procurement process. The success of diverse businesses is vital to
the community because they contribute to the overall success and economic
viability of Lexington.” Lexington’s Central Purchasing division processes
millions of dollars of purchasing contracts for the city of Lexington. The city
has established a combined “Ten Percent Goal Plan” to increase the number
Information from the study will help LFUCG assess its efforts to encourage
of minority and women owned businesses, and a “Three Percent Goal Plan”
DBEs and minority- and woman-owned businesses to bid on the agency’s
for veteran owned businesses in the Diverse Business Management System
contracts and help inform what, if any, improvements are needed to optimize
powered by B2GNow. In addition, the MBEP offers a long list of services to
LFUCG’s contracting processes and the MBE Program. The study was
assist minority, women and veteran-owned businesses including, but not
conducted by BBC Research and Consulting, LLC (BBC) and completed in 2022.
limited to, events for networking, classes on the procurement process,
As part of the disparity study report, BBC presented 10 recommendations to
assistance with certification, training programs, communications about bid
remedy observed disparities, refine the City’s procurement processes, and
opportunities, and individual appointments.
enhance the Minority Business Enterprise Program. To access and view the
In 2020, Urban County Council approved funds to conduct the first Disparity and full report, visit the City’s disparity study webpage, Disparity study | City of
Availability Study. The disparity study is a result of recommendation #2, from Lexington (lexingtonky.gov).
the Economic Opportunity Subcommittee from the Mayor’s Commission on
Racial Justice & Equality report in 2020, “issue a disparity study to determine DIVERSITY POLICY #4
if there is disparity between the availability and utilization of MBE firms.”
ENCOURAGE TRAINING, PROGRAMS, ACCESS, & INCLUSION TO
The purpose of the study was to analyze the availability of DBE’s, minority EMPLOYMENT OPPORTUNITIES.
and woman-owned businesses in the Lexington –Fayette County area, and to
assess whether DBEs and minority- and woman-owned businesses face any Access to employment and a livable wage is a necessity for any resident
barriers as part of LFUCG’s contracting processes. of Lexington. Whereas many of the industries that are established within
Lexington seek to draw individuals from the well-known post-secondary

150 | THEME C IMAGINE LEXINGTON 2045

institutions (UK, BCTC), there are a growing number of programs that are these members of society, as opposed to precluding them from employment
focused on providing training and access to those who might benefit from entirely. The DV8 Kitchen’s goal is for one-third of their staff to be second-
different educational and training opportunities. While ensuring access chance employees. Imagine Lexington advocates for encouraging employers
to opportunity for everyone in Lexington is important, ensuring those who to provide job opportunities, returning hope to members of society who are
are experiencing challenges with or barriers to employment due to illness, struggling to recover from past circumstances.
addiction, or prior conviction should be promoted. Those who experience
challenges to employment are more likely to face periods of instability, Additionally, to help remove barriers to employment from felony records, the
including relapsing, homelessness, or lack of necessary health care. 2016 General Assembly passed House Bill 40, which provides for a process
Preventing such situations is important not only from a humanistic/moral that permits application to have a Class D felony conviction expunged. Clean
perspective, but also a social and financial perspective. Slate Kentucky has resources to help people expunge their criminal records,
both misdemeanors and Class-D felonies. Every opportunity to spread the
The Opportunity for Work & Learning (OWL) is a non-profit organization that word about this program and increase participation should continue to be
has helped over 26,000 people since 1961 to overcome mental and physical explored and expanded.
disabilities or prior incarceration to achieve growth in their personal, as well
as professional lives. OWL offers individualized support and programming, Lexington has sought to be a leader in helping individuals expunge past
including practical occupational training, such as customer service and fork misdemeanors and non-violent felony convictions during the Clean Slate
lift certifications. Their services extend to eleven counties. OWL also owns Expungement Clinic and Job Fair. In the spring of 2023, Lexington held the
the for-profit Lexington Manufacturing Center (LMC); many of the participants second annual clinic, which provides free legal help through Legal Aid of
in the OWL program are hired by LMC. the Bluegrass and private lawyers. During the first clinic, held in April 2022,
greater than 400 individuals attended and approximately 200 individuals were
The Workforce Recruitment Program for College Students with Disabilities able to have the records expunged. Individuals who have gone through the
(WRP) is a free resource that connects private businesses and federal expungement process are better able to shed the stigma associated with
agencies nationwide with qualified job candidates for temporary or permanent prior convictions and can have greater opportunities to the job market.
positions in a variety of fields. Applicants are highly motivated postsecondary
students and recent graduates with disabilities who are eager to prove their DIVERSITY POLICY #5
abilities in the workforce. Through WRP jobs, private employers interested
in gaining access to these individuals can post permanent and temporary MAXIMIZE CONTEXT SENSITIVE EMPLOYMENT OPPORTUNITIES
positions. WRP participants can then search and apply for these positions WITHIN THE OPPORTUNIT Y ZONE TRACTS, PROVIDING EQUITABLE
using an employer's standard application processes. COMMUNIT Y DEVELOPMENT, & PRIORITIZING LOCAL RESIDENTS FOR
Another company helping to remove barriers to second-entry employment is ADVANCEMENT OPPORTUNITIES.
DV8 Kitchen, a ‘fast-casual restaurant and bakery’ started by the owners of Established by Congress in 2017, the Opportunity Zones program allows
the Saul Good restaurants in Lexington. The company provides fresh, natural investors in certain communities to qualify for preferential tax treatment.
food designed to “change your life.” According to Rob Perez, one of the owners The primary goal of Opportunity Zones is to drive economic development, as
of DV8 Kitchen, there are barriers to people trying to make a second-entry into they have the potential to catalyze growth in the local economy and the job
the workforce after addiction or incarceration. Some of the employers do not market resulting from the influx of investor funds. By encouraging investment
want to pay for training for what they think will be short term employment, they from people both in and outside of the target area, Opportunity Zones create
worry about provision liability for workman’s compensation coverage (even positive growth and development that can aid in elevating distressed and
though it is already figured into liability insurance), and they have practicality historically marginalized neighborhoods, while simultaneously promoting
issues. Mr. Perez believes an employee certification program would alleviate community-wide connectivity and partnership. For more information on
many of these barriers by providing such things as required weekly drug tests, Opportunity Zones, individuals should look to Treasury.gov and IRS.gov.
counseling, 12-step programs, etc. He also indicated a need for government
incentives to educate employers about providing opportunities for jobs for

DIVISION OF PLANNING JOBS & PROSPERITY | 151

 allow for the greatest economic impact on Lexington’s local economy, the
government should partner with banking institutions and development groups
U.S. TREASURY DEPARTMENT to promote local investment in Opportunity Zones, specifically focused on
CERTIFIED OPPORTUNITY ZONE promoting business creation and expansion opportunities to those who have
been historically rooted in Opportunity Zones. Supporting and coordinating
TRACTS IN FAYETTE COUNTY different tax incentive programs can add to the vitality of financial support for
these programs.

Within the Opportunity Zones there are some small to medium vacant
properties, but the majority of the development potential will be the adaptive
reuse of existing buildings. This should provide opportunities for creative
place making that will enhance the existing neighborhood while respecting
the historical context of a neighborhood. The location of the Opportunity
zones within Lexington are also advantages as they allow the opportunity to
provide new employment prospects within areas that are denser and more
walkable, bikeable, or are located along a transit route.

Whereas Adaptive Reuse Projects within the Urban County are largely
associated with industrial land uses, the Division of Planning should work with
community members, the Historic Preservation Office, and the administration
to review landmark status for socially important structures, which can be
adaptively reused for mixed-use development.

DIVERSITY POLICY #6
INCREASE FLEXIBILIT Y ON T YPES OF HOME OCCUPATIONS ALLOWED.

The advances in communication and information technology, especially the

impact of home computers and the internet, allow for more mobile businesses
and working from home. Eliminating the commute to work, avoiding the cost
of leasing or owning space for a business, and being near loved ones are
among the reasons that make working from home attractive.

As documented by the U.S. Census Bureau’s report, Working at Home is on the

Rise, the number of home-based workers increased by 4.2 million between
1997 and 2010. This first big boom in work from home occupations was spurred
by the disruptive shifts in technology, as well as the growth of infrastructure
that allowed workers to access daily activities without the commute. Work
Lexington’s Opportunity Zones are located in some of Lexington’s older from home situations were further solidified by the emergence of COVID-19,
areas within New Circle Road. The placement of Opportunity Zones has been which forced companies and employees to change the way business was
criticized for being situated in areas that have been historically marginalized done and the traditional office setting. The 2021 American Community Survey,
by governmental, banking, and investment entities and not focusing investment by the U.S. Census Bureau, shows that, between 2019 and 2021, the number of
on those individuals who are long standing residents in those areas. To home-based workers tripled from 5.7%, or roughly 9 million people, to 17.9%,

152 | THEME C IMAGINE LEXINGTON 2045

or 27.6 million people, in the United States. In Fayette County, home-based
workers increased from 4.4% of county working population in 2019 to 13.7%
in 2021. This growth of home-based workers has also impacted surrounding
counties, including Madison County, which experienced an increase from 4.5%
in 2019 to 8.4% in 2021.

While the shift to home-based work environments can have positive effects
on the environment, lessening emissions and decreasing single occupancy
vehicular miles traveled, there are adverse effects on localized economies,
specifically downtowns, where the greatest concentration of offices in
Lexington are located. The shift to home-based work environments also
necessitates the greater review of the at home needs of a working population.
Ensuring adequate infrastructure, mitigating adverse impacts on residential
environments, and ensuring the legal framework is available for greater
utilization of residences.

Lexington‘s Zoning Ordinance allows home occupations as an accessory use

in its agriculture zones, as a conditional use in other zones, and home offices
as an accessory use in many zones. Technology, services, and products
are continually changing, so reviewing and updating the Zoning Ordinance,

especially the definitions for home office and home occupation, would be
advantageous for Lexington’s economic development to ensure as many
types of home offices and home occupations may be incorporated as can be
suitable and compatible.

Despite the endemic shift of COVID-19 and policies focused on getting

employees back into office settings, many of the shifts to work from home,
either full-time or part-time are here to stay. Lexington must be ready for the
next 20 years of change.

DIVISION OF PLANNING JOBS & PROSPERITY | 153

PILLAR III PROSPERIT Y
Thriving communities achieve prosperous economies in a number of ways, BEING IMAGINATIVE AND CREATIVE WITH EXISTING LAND
including attracting new businesses, taking care of existing companies, AND FACILITIES:
developing a highly-skilled local workforce, being imaginative and creative
with existing land and facilities, finding available land for new economic As Lexington continues to urbanize and develop, it is becoming more of an
development activity, and attracting a young and enthusiastic workforce. A infill and redevelopment community. There are many opportunities to utilize
multifaceted approach is necessary because local economies are complex, existing space for economic development purposes, whether that be adaptive
with many moving pieces that each require different levels of attention, and reuse, flexible parking arrangement, shared office space, or redevelopment
specifically tailored solutions. of underutilized property. It is important that these always be the first options
when looking to accommodate a new or expanded business.
AT TRACTING NEW BUSINESSES:
FINDING AVAILABLE LAND FOR NEW ECONOMIC
In addition to the livability factors mentioned earlier that are increasingly
important for bringing in new businesses, incentives also play a role. It is
DEVELOPMENT:
important, especially in a progressively more competitive market, to provide Economic development professionals often say there is a lack of inventory
the “icing on the cake” that may eventually win Lexington the deal. Incentives for larger clients who may want to locate to Lexington. The creative 250-
are not normally a primary factor for a business deciding to locate into acre land swap between UK and the City of Lexington should help to alleviate
a particular market, but they certainly can be a separator in a very close this issue and allow prime development land to be controlled by the city. The
competition. Any federal, state or local incentives that can be leveraged Coldstream campus (“Coldstream”) is home to the 200-acre Legacy Business
should be, as studies have shown that economic development land use has a Park as well as the 50-acre business development site, both located at the
much higher dollar per dollar return on investment than residential land uses junction of I-75 and I-64. The Master Plan for Legacy Business Park contains
that consume more services and pay less tax. approximately 135 acres of developable land across 13 parcels ranging from
8 to 21 acres in size. Parcel boundaries are intended to be flexible, and can
TAKING CARE OF EXISTING COMPANIES: accommodate a wide range of uses. A total of 45 acres are dedicated to open
space that connects to the existing 22-mile connected bike and pedestrian
Retaining an existing corporation is clearly not as flashy and does not grab the
trail, and the final 20 acres are dedicated to infrastructure for the project.
headlines quite like landing a big new business, but economic development
Infrastructure improvements are currently underway, and the City is actively
professionals will tell you that is a huge part of their job. Lexington cannot
marketing the property.
take for granted the investment these existing companies already have in
the community and the City needs to do whatever they can within reason to Additionally, the master plan that will be finalized per the adopted Goals and
ensure they are prospering and getting what they need. Objectives will identify future land for economic development. This new land
that will be added to the Urban Service Area must be appropriately located
DEVELOPING A HIGHLY - SKILLED WORKFORCE: and meet the need for higher paying jobs for Lexingtonians.
This is of critical importance for both of the headers above. The number
one reason listed for why companies choose to locate in a specific area AT TRACTING AND RETAINING A VIBRANT WORKFORCE:
is because of the presence of a highly-skilled workforce. It is also vitally Creating a livable city is an important part of attracting a vibrant workforce.
important for the existing companies to be able to fill the open positions they Lexington has a unique culture that can be expanded through branding
have. Efforts to match college and vocational school students’ curriculum opportunities. The beauty of the horse farms and the juxtaposition of urban
to specific local employment needs would be mutually beneficial for the and rural are attractors that ought to be protected and valued. They play a
students, the employers, and the City. Concerted efforts should also be made large part in creating a prosperous Lexington.
to train lesser-skilled employees and vulnerable populations to allow them
to achieve more financial stability. PROSPERIT Y FOR ALL:
As Lexington seeks to improve the overall economy and attract high-paying

154 | THEME C IMAGINE LEXINGTON 2045

jobs, it is critical to provide opportunities for everyone to succeed. Economic The Building Industry Association of Central KY has started a Building Institute
mobility should be improved, and health and socio-economic issues of Central Kentucky to train workers in certified Trades programs in HVAC,
addressed. Increased opportunities for workforce development, breaking Plumbing, and Electrical. Students completing their program are eligible to
down barriers to home-ownership, addressing food deserts, and improving take state licensure tests.
access to quality social services will all serve to increase prosperity and
equity throughout Lexington. PROSPERITY POLICY #2

PROSPERITY POLICY #1 SUPPORT CONTINUED FUNDING FOR ECONOMIC DEVELOPMENT.

PROMOTE HIRING LOCAL RESIDENTS, & RECRUIT EMPLOYEES LIVING The cost of development across the county has been a limiting factor in the
IN AREAS OF CONSTRUCTION PROJECTS. development of new jobs. Not only are the costs of materials for construction
of new facilities increasing, but the need to pay employees livable wages has
Hiring workers that live in the vicinity of a construction project builds a sense forced businesses to either slow growth or remain small. In efforts to alleviate
of ownership and empowerment in community development. It also allows the cost of development, provide public amenities, and ensure a livable wage,
some workers to walk or bike to work. If there is a lack of training, working Lexington provides various incentives for new and current businesses.
with local agencies and training programs to get workers trained before
construction begins would increase economic sustainability of the area and One such opportunity is the Economic Development Grant to help with “funding
its residents. Projects involving special financing, such as Tax Increment projects that will positively impact economic and workforce development
Financing(TIF), have to meet certain conditions to qualify for the financing; in the City of Lexington.” The funding will be used for training/ retraining,
those conditions include 40% of the households being of low-income. entrepreneurial support, employment re-entry, work-based learning and/or
skills certification scholarships, and/or potentially other services related to
economic development. The economic development grant is in its fifth year
of funding.

Another incentive provided by the Lexington-Fayette Urban County

Government is the Jobs Fund, for which businesses may apply in return
for a commitment to creating and retaining a minimum number of jobs for
a particular time period. Priority is given to those businesses involved in
advanced manufacturing, technology, professional shared service operations,
or healthcare. Industrial revenue bonds are also available for application
through the Economic Development office for the City of Lexington. Currently,
29 companies are taking part in the program, which promotes a minimum
average salary of $24 per hour.

Additionally, the City established the Lexington Public Infrastructure Program

in 2022, with a kick-off of the incentive program in January 2023. The program
is meant to assist in the development of infill and redevelopment projects
within the Lexington Urban Service Boundary that lead to long-term job
creation. The Program specifically targets projects that are redeveloping
underutilized sites, infilling vacant properties, providing a mix of land uses,
or are directly providing jobs. The program provides 0% interest loans for
a term not to exceed 10 years, to assist applicants in ensuring the public
infrastructure portion of the overall development project is completed for the

DIVISION OF PLANNING JOBS & PROSPERITY | 155

public benefit and would not have occurred “but for” the program funding. The
maximum amount of individual project funding will not exceed the lesser of
$500,000 or 10% of total project costs including private and public costs.

Finally, in 2018 Lexington established an Energy Project Assessment District

(EPAD) which allows applicants to access financing for energy saving projects.
The EPAD authorizes local governments to establish programs to advance
the conservation and efficient use of energy and water resources within
their jurisdictions, by allowing for energy projects to be financed by voluntary
assessments imposed upon the real property being improved through energy
projects. The associated PACE financing covers 100% of hard and soft costs of
an energy project for either commercial or residential projects. The financing
of projects alleviates some of the costs to applicants, while also promoting
more sustainable development within Lexington.

PROSPERITY POLICY #3
CONTINUE TO PROTECT THE AGRICULTURAL CLUSTER & EQUINE
INDUSTRY, & SUPPORT EXISTING AGRICULTURAL USES, WHILE
PROMOTING NEW INNOVATIVE AGRICULTURAL USES IN THE RURAL
SERVICE AREA.

Before the beginning of the 21st century, with world-renowned soils and
the risk of losing farmland to large lot residential and other development,
Lexington started a Purchase of Development Rights (PDR) program. The
program has been in existence for nearly 20 years, with PDR easements
protecting farmland for food security and for conservation of environmentally
sensitive lands. Currently, 25% of the Rural Service Area (33,157 acres) is
protected by PDR easements, with a stated end goal of 50,000 total acres, or
39% of the Rural Service Area, to be protected. Fayette County has committed tours hosted by Horse County and the expansion of activities at the Kentucky
millions to pay for PDR easements, which protects soils for the future. Horse Park.
According to Beth Overman, Director of the PDR Program, most of the PDR Another driver of the agricultural economy in Lexington is The Bluegrass
easements are equine farms. These famous soils in the Rural Service Area, Stockyards, founded in 1946. The Bluegrass Stockyards’ Lexington facility,
with many acres protected by PDR, provide nutrients that grow vigorous located on Iron Works Pike, was built after the company’s original Lisle
crops, as well as healthy, strong horses, cattle, and other livestock. Industrial Avenue facility was destroyed by an accidental fire in January 2016.
Bluegrass soil produces quality racehorses, which result in big purchase Bluegrass Stockyards employs about 50 people at the Lexington location; the
prices. Keeneland sales in 2022 were just under $700 million and the company also currently operates seven live sale locations and an internet
strongest since before the 2008 recession. While sales dipped in 2020 during sale system, with a total employment of over 200.
the Covid-19 pandemic, total sales since 2018 remained strong, indicating a The Lexington market “will handle $200-$250 million in business annually,”
continued interest in the racing and breeding sectors of the equine industry. and sells 100,000- 125,000 heads of cattle a year, with the entire network of
Continued interest in the equine industry is also reflected in the expansion of seven live sale locations and internet sales selling about 500,000 heads of

156 | THEME C IMAGINE LEXINGTON 2045

cattle annually, collectively. The Bluegrass Stockyards will handle over $600 education and research capabilities, ensure public safety, improve healthcare
million in transactions overall, with a customer base from 90 counties in delivery, and augment connectivity for libraries and communities across the
Kentucky and eight surrounding states. Hogs, goats, and sheep are sold at Commonwealth. KyWired’s work is still in progress in Fayette County.
other locations outside of Lexington.
At the national level, the Infrastructure Investment and Jobs Act (IIJA),
The Kentucky Commissioner of Agriculture, Ryan Quarles, supports also known as the Bipartisan Infrastructure Law, represents a historic step
expanding Kentucky’s diverse agricultural portfolio to include industrial forward toward the goal of providing broadband access to the entire country.
hemp, hops, and other crops. Kentucky Department of Agriculture has an The IIJA sets forth a $65 billion investment into broadband, with an emphasis
Industrial Hemp Licensing Program, which is authorized by state and federal on unserved and underserved areas, as well as community anchor institutions
law. The Agriculture Improvement Act of 2018 (2018 Farm Bill) authorized including schools and libraries.
the production of hemp and removed hemp and hemp seeds from the Drug
Enforcement Administration’s (DEA) schedule of Controlled Substances. Lexington has quietly been building a fiber-optic network over the last 30
Individuals and businesses that wished to be considered to join the Hemp years to service its traffic operations and signal timing system, and that long-
program to grow, handle, process, or market hemp were required to apply for term investment has positioned the city to be ready for the next wave of smart
a license by established deadlines. In 2021, 140 processors/ handlers obtained technologies, generally referred to as the Intelligent Transportation Systems
licenses in the KDA Hemp Program, which began in 2014. In 2021, there were (ITS). As cities become smarter, and with a future of connected vehicles
1,800 acres planted, with 1,700 acres harvested. While hemp production and self-driving cars, the digital infrastructure will allow streets to function
spiked sharply in 2019, it just as quickly saw a swift decline as 48 states more efficiently, such as traffic signals that adapt in real time to amount of
passed legislation regulating the crop as a consumer product. The national congestion on the street. This is just the beginning of the potential benefits
rush on hemp products far outpaced demand and as analysis by UK’s Center that high speed digital infrastructure will bring to Lexington.
for Business and Economic Research indicates, hemp is likely to remain only
MetroNet has a franchise agreement with the City to install fiber-optic
a minor factor in Kentucky’s overall agricultural economy.
network inside the Urban Service Area boundary, making gigabit speeds
PROSPERIT Y POLICY #3 PLACEBUILDER CRITERIA available to nearly all residences and businesses. Gigabit speeds move data
• C-PS3-1 Development potential in the Rural Activity Centers at 1,000 megabits per second. MetroNet began its construction in Lexington
should be maximized. in January of 2018 in the northeastern part of the city, and began providing
service to its first customers in late summer of 2018. While the majority of the
PROSPERITY POLICY #4 buildout has been completed, it is still imperative for the continued build out
and potential expansion outside of the Urban Service Area. The needed shift
ENCOURAGE INSTALLATION OF FIBER - OP TIC BROADBAND to a more technologically connected community only became more apparent
-
INFRASTRUCTURE FOR HIGH TECH & OTHER INDUSTRIES. during the COVID-19 pandemic and will become more important as we seek
to have a more robust and efficient agricultural industry.
Nearly every aspect of modern society is becoming increasingly web-
dependent, and like the Interstate highway system connects communities,
PROSPERITY POLICY #5
digital broadband infrastructure is essential for any 21st century community
to thrive in areas of commerce, health, education, entertainment, and CONTINUE TO RAISE AWARENESS OF FARMS & FARM TOURS.
government. Broadband fiber, also known as fiber optic cables, transmit huge
amounts of data, literally at the speed of light. VisitLex’s 2018 Visitors Guide and the VisitLex website are packed with
information about attractions, accommodations, dining, tours, events, and
KyWired, a public-private partnership, is positioning Kentucky to be a maps showing the locations of area horse farms. The VisitLex website includes
national leader in high-capacity internet service connections and is in the horse farms in both Fayette and other counties, which is beneficial for regional
process of providing the backbone of the service lines to all 120 counties. tourism. Lexington benefits when visitors stop in from other destinations, and
Improved internet service will promote economic development, enhance is generally the home base for people exploring the central Kentucky region,

DIVISION OF PLANNING JOBS & PROSPERITY | 157

meaning the bulk of the travel dollars are spent in Lexington’s local economy. assistance, promotional materials at cost, grants opportunities, no-cost meat
Horse Country, Inc. horse farm and horse business tours are getting very grading, international marketing materials, cost-share for wineries, veterans
popular. program, and restaurant reimbursements for using Kentucky Proud foods.
The logo is wide-spread and has become quite recognizable throughout the
Marketing and advertising for horse farm tourism in Fayette County should be Commonwealth.
maximized and prioritized. With 59.2 square miles of equine farm land in the
Rural Service Area, and another 42.23 square miles of farms with an equine Lexington/Fayette County should consider a logo program to identify locally
and crop mix, that is a total of 101.4 square miles. In future printed visitor grown/produced products and experiences. This logo could help identify
guides, adding more about the individual horse farm tours, corn mazes, etc. products and tours specifically from Lexington.
on farms located in Fayette County could help raise awareness of farms in
Lexington. Additional partnerships between farms and VisitLex should be PROSPERITY POLICY #7
considered.
SUPPORT & INCREASE NET WORKING OPPORTUNITIES FOR CAREER
PROSPERITY POLICY #6 RELATED INSTITUTIONS, ORGANIZATIONS, & AGENCIES.

PROMOTE KENTUCKY PROUD & LOCAL LEXINGTON PRODUCTS USING As part of the Imagine Lexington process, staff met with representatives
UNIFIED BRANDING. from many of the agency-types listed above to help inform the Plan’s
recommendations. At the time, multiple stakeholders indicated that they would
The Kentucky Department of Agriculture’s Kentucky Proud program is funded like to have regular meetings together to network, discuss, and brainstorm.
by the 1998 Tobacco Settlement. Registered members receive marketing
There was a concern that career path introductions need to be incorporated

158 | THEME C IMAGINE LEXINGTON 2045

 Degree Type

UK BCTC Transylvania
YEAR
Graduate/ 2 to 4 Year
Job Addition/Loss Trace AgriScience Center and Southside Technical Center. All these academic
Undergraduate Professional Associates Postsecondary Undergraduate achievements provided for a significant number of new skilled and qualified
Degree Candidates Certificate
people entering the workforce annually.
2017 3,680 1,767 1,272 10 215 5,730

2018 3,735 1,568 1,238 7 218 -906 With such a large number of qualified people entering the workforce,
2019 3,750 1,613 1,298 2 229 3,371
Lexington had only an increase of 16,454 jobs over that same time span. Some
2020 3,700 1,477 1,245 1 179 -11,447
of those graduates found jobs in their career fields in Lexington, others were
lured away for various reasons. The reasons for leaving Lexington for other
2021 3,599 1,574 1,826 1 220 6,771
job markets included: few job openings in their fields, the degrees do not
2022 3,625 1,721 203 5,831
match the job demand, and competitive compensation rates. According to the
22,086 9,720 6,879 21
Bureau of Labor Statistics, of the twenty-three major occupational groups,
Totals 31,806 6,900 1,264 9,350
Lexington ties or ranks better than the national average in only twelve
39,970
categories. The pay gap followed the same trend, Lexington workers had an
into the high school education to help students understand the demand for average hourly wage of about 14% below the national average with only one
employment and the day-to-day demands of full-time employment. An unmet category, production, better than the national average.
demand for skilled trade/industrial maintenance jobs that usually require a
vocational trade certificate/licensure or associate degree was also pointed The academic institutions are working on recruiting students and talent from
out. Additionally, there was a concern that high school students felt they only across the state, nation and even the world. A good example of this is The
had a binary choice of attending college or not, and that vocational trade and James W. Stuckert Career Center at University of Kentucky. It has a main
technical career paths were not considered. Education and outreach efforts office and three satellite offices: Engineering College, Business School, and
should be increased to publicize the demand for technical positions and the College of Agriculture, Food, and Environment. The career center is making
pay for those jobs. Meetings between Planning, Commerce Lexington, LFUCG efforts to recruit college students during junior and senior years of high
Economic Development and Purchasing, VisitLex, educational and training school. It offers students advise to help them pick a major and finish a degree
providers, and small business development agencies will continue to be in a timely manner; provide student internships and co-op opportunities; and
beneficial for business recruitment, workforce development, and economic hold several large job fairs in the fall, plus several smaller ones throughout
sustainability as Lexington’s economy grows. the year.

Working closely with academic institutions to match trends in college degrees

PROSPERITY POLICY #8 to the job market trends reveals insights into the jobs that are available.
These industries should be promoted to encourage more college graduates
PROVIDE EMPLOYMENT OPPORTUNITIES THAT MATCH THE to remain in Lexington. In 2022, Forbes’ ranked The University of Kentucky
GRADUATING MAJORS FROM LOCAL COLLEGES & VOCATIONAL fifth on the "Best Employers for New Graduates" list. As the largest employer
TRAINING INSTITUTIONS. in Lexington, collaborating with UK to work on ways to retain new graduates
can expand the labor market that will have a positive overall effect on Fayette
Lexington has both public and private education institutions awarding County.
thousands of degrees, diplomas and certificates each year. The four-year
plus degrees conferred from University of Kentucky and Transylvania
University from 2018 to 2022 total to over thirty-nine thousand college PROSPERITY POLICY #9
degrees. Furthermore, people got associate degrees offered by BCTC and
RECRUIT PROFESSIONAL SERVICES THAT UTILIZE VACANT OFFICE
degrees from other local colleges. Fayette County Public Schools reported
SPACE.
a graduation rate of 89% which translated to about forty thousand students
a year. Fayette County Public Schools also offers Career and Technical Several industry professionals in Lexington have indicated a surplus of
Education (CTE) programs at three centers, Eastside Technical Center, Locust vacant professional office space. Reviewing NAI Isaac’s 2022 Market Report,

DIVISION OF PLANNING JOBS & PROSPERITY | 159

 repurposed to more vibrant and welcoming spaces. Lexington should look
to find new types of smart uses for these spaces that are both updated
and competitive to boost the economy and workforce. Vacant offices can
be programed as shared spaces, reimagined as community or recreational
spaces, or the square footage could be modified to other uses that might be
complementary to the existing businesses. The options are endless and can
be successfully accomplished by approaching the use of available space from
a long-range plan and avoiding knee jerk reactions to the recent trends.

PROSPERIT Y POLICY #9 PLACEBUILDER CRITERIA

• C-PS9-1: Where possible, developments should modify current
office space to include complementary uses, with a specific focus
on the inclusion of residential.

PROSPERITY POLICY #10

ENCOURAGE FLEXIBLE PARKING & SHARED PARKING ARRANGEMENTS.

Parking demands operate on a peak and off-peak schedule depending on

the vacancy rate for office space in Lexington is around 12%. Lexington has related land use. While the recently adopted regulatory changes mitigate
approximately 12.1 million square feet of office space, with almost 1.5 million many of the environmental impacts of parking, next steps include making
square feet of available space throughout the urban service area. In addition better use of the abundance of parking that is currently available. Shared
to the existing office spaces, new construction of office space has slowed parking is a development strategy that optimizes parking capacity by allowing
down. Only 343,000 square feet developed overall since 2017, including complementary land uses to share spaces, rather than producing separate
roughly 30,000 square feet delivered since the start of the pandemic in 2020. spaces for separate uses. By taking advantage of distinct but complementary
The pandemic emptied offices not just in Lexington but around the world. land use patterns, such as office uses which do not traditionally utilize parking
Many more office spaces will remain empty as more employees demand to lots in the evenings and on weekends, and residential land uses, which are
work from home. generally utilize parking during the evenings, Lexington can better satisfy the
needs of residents and commuters without increasing parking supply.
“For the past four years, we have seen a steady decline in the demand for
office spaces, aggravated by Covid-19, and this trend is ongoing. While office Shared or flexible parking with adjacent users may offer opportunities to
vacancy rates started to rise before the pandemic, remote and hybrid work, better streamline maintenance costs, provided that the operational challenges
layoffs, and higher interest rates further increased office space availability of sharing such a critical resource can be alleviated. Future changes in
in the market. Overall, the office vacancy rate has risen by 3% since 2019 mobility decisions, including driverless cars and mass transit, may alleviate
(National Association of Realtors).” this problem altogether; but for now, shared and flexible parking should
be encouraged. Continued development of autonomous vehicle policies
Despite the pandemic’s impacts on office usage, the citywide office vacancy
throughout the next few years should lead to further zoning ordinance text
rate has remained relatively stable over the course of the last five years, and
changes to reflect the evolving market for that technology.
office rents have decreased only slightly at a CAGR of -5% from $17.50 per
square foot in 2019 to $14.89 per square foot in 2022 (Imagine New Circle). PROSPERIT Y POLICY #10 PLACEBUILDER CRITERIA
• C-PS10-1: Flexible parking and shared parking arrangements
Utilizing these available office spaces will require moving away from
should be utilized.
the traditional ways we view office space, which will involve reviewing
• C-PS10-2: Over-parking of new developments should be avoided.
and updating the zoning ordinances. These spaces can be transformed or

160 | THEME C IMAGINE LEXINGTON 2045

PROSPERITY POLICY #11
EXPAND JOB OPPORTUNITIES THROUGH EDUCATION & TRAINING TO
RETAIN EXISTING BUSINESSES & AT TRACT NEW ONES.

One of Bluegrass Community and Technical College’s (BCTC) 53 programs

of study is an Advanced Manufacturing Technician program, which prepares
students for high-wage, high-demand manufacturing maintenance technician
jobs. These students work part-time for their sponsoring employers, taking
classes two days a week in mechanics, robotics, electricity, fabrication, and
fluid power. Upon completion, they graduate with an Associate in Applied
Science degree in less than two years. BCTC also has a Computerized
Manufacturing and Machining program.

Some students may qualify for completely free tuition in the Work Ready
Scholarship program, where they can receive training for a higher paying, in-
demand job in four months or less, tuition-free. The Kentucky Community and
Technical College System has over 80 such programs, and BCTC has Work
Ready programs in Advanced Manufacturing (39 programs), Business and IT
(31 programs), Construction (21 programs), Healthcare (22 programs), and
Transportation and Logistics (3 programs), available for qualifying students.
Educational and training opportunities like these should be expanded upon
to maximize their impact. New programs and ideas should be developed to
continue to grow the talented workforce so many employers are seeking.
design phase. Groundbreaking for Phase I improvements is expected in late
fall of 2023.
PROSPERITY POLICY #12
IMPLEMENT THE LEGACY BUSINESS PARK MASTER PLAN FOR THE 250 PROSPERITY POLICY #13
ACRES OF PUBLICLY - CONTROLLED ECONOMIC DEVELOPMENT LAND
PROMOTE INCREASING THE SUPPLY OF FARM WORKERS, & THE
AT COLDSTREAM RESEARCH CAMPUS.
AVAILABILIT Y & AFFORDABILIT Y OF USING AGRICULTURAL TECHNOLOGY,
Ownership of the 200 acre Legacy Business Park site was transferred from & AGRICULTURAL EQUIPMENT.
the University of Kentucky (UK) to the LFUCG in July 2022 in accordance with
a Memorandum of Understanding that provided a total of 250 acres of land According to a 2017 report by Lynn Roche Phillips, PhD., AICP, and Priyanka
to the City for economic development purposes. The site, located southeast Ghosh, PhD., University of Kentucky, Department of Geography, titled “Rural
of the intersection of I-64 and Georgetown Road, has been rezoned to a Land Use Inventory, Fayette County, Kentucky,” Lexington is utilizing 108,248
restricted I-1 zone and will support approximately 1 million square feet of acres, or 86% of its Rural Service Area for agriculture. Having adequately
industrial uses that will create more than 2,000 jobs. The master plan for trained farm labor is crucial to continuing the success of this important part
Legacy Business Park is complete, and provides significant open space of Lexington’s overall economy. Nationwide there are two jobs in agriculture
amenities and connections to the Legacy Trail, with approximately 135 net for every new agriculture job seeker. Hiring has become increasingly difficult,
acres for industrial development. The City has invested $9.5 million in ARPA and while there is increasing reliance on new agricultural technology, there is
funds towards Phase I infrastructure installation, which is currently in the both a need for skilled, trained workers to operate the equipment, and a need

DIVISION OF PLANNING JOBS & PROSPERITY | 161

 WV state agriculture department, where veterans learn about Ag practices
to harvest crops and grow food. Such a program in Lexington would be a
positive, as it is the location of one of the two Veteran Centers in Kentucky.

Additionally, though not universally applicable due to costs, agricultural

technology and equipment could be an answer to a shortage of farm workers
for some types of farms. Programs and agencies that provide financial
assistance to farms in acquiring technology and equipment should be
promoted. Coordination with the Fayette County Extension Office, as well as
various local non-profits, can introduce and train farmworkers in emerging
agricultural technology and agricultural equipment which can increase
productivity and provide for a more sustainable and resilient local food
network.

In collaboration with and taking advantage of the trained professionals from

Kentucky’s nearby Land Grant Universities, the City should look at ways to
promote the continued development of agricultural technology, or Agritech,
to become a hub or leader for both the State and the Country. Agritech is the
use of technology in agriculture with the aim of improving yield, efficiency
and profitability. It includes products, services, and applications that improve
various input/output processes. It is innovations related to software/hardware,
robotics, sensors, precision agriculture, big data, artificial intelligence, state-
of-the-art equipment and related technologies that support the farms of the
for skilled farm workers conducting manual farm labor. Larger operations are future. Creating a designated program for the research and development of
more likely to use agricultural technology due to the cost of the equipment, Agritech will put Lexington on the cutting edge and can further support local
whereas smaller or specialized operations rely more on skilled manual farm agricultural industry.
labor.

Examples of efforts to increase the supply of farm workers that could be PROSPERITY POLICY #14
done locally (some presently undertaken), would be to recruit and retain
ENABLE EXISTING AND NEW NEIGHBORHOODS TO FLOURISH
seasonal/ temporary farmworkers from students enrolled or graduating
THROUGH IMPROVED REGULATION, EXPANDED OPPORTUNITIES
from Locust Trace AgriScience Center, UK College of Agriculture, KYSU
College of Agriculture, and other agriculture related education and training FOR NEIGHBORHOOD CHARACTER PRESERVATION, AND PUBLIC
programs throughout the United States. The proximity of Kentucky’s land COMMITMENT TO EXPAND OP TIONS FOR MIXED - USE AND MIXED - T YPE
grant institutions, the University of Kentucky and Kentucky State University, HOUSING THROUGHOUT LEXINGTON - FAYET TE COUNT Y.
provides the area with well trained and educated potential employees that
Homeownership within the United States has long been the gold standard of
can increase Lexington’s agricultural productivity.
accessing intergenerational wealth, as well as access to safety and security
Another possible source may be second-entry workers trying to re-establish over the course of an individual’s life. Multiyear research indicates that there
their lives during or following rehabilitation from addiction. There are also is a correlation between homeownership and increased graduation rates,
farm therapy programs for military veterans who have struggled with post- economic stability, and overall health benefits (Yun & Evangelou 2016). Over
traumatic stress disorder from their service. Examples of such programs are the course of the last five years, there has been a tremendous shift in the cost
the West Virginia Veterans and Heroes to Agriculture program through the of home ownership, as well as rental housing throughout the United States

162 | THEME C IMAGINE LEXINGTON 2045

and, more specifically, in Fayette County. Since 2018, the average median sale within Lexington, change will not be achievable. It is illegal to build anything
price of a home in Fayette County has increased by approximately $96,000 other than single family detached homes in greater than 57% of the Urban
(Redfin 2023), and the monthly median gross rent between 2017 and 2021 Service Area. The impact of this regulatory restriction is that those who
increased by $196. The dual increases in cost have both burdened Lexington’s are making less than $61,000 dollars are often unable to enter the housing
population, which has not experienced the same increase in wages. market without being burdened and needing to make cuts to other essentials.
Additionally, the increase in rent prices make saving for homeownership Changes to the regulations should include review of the current ADU
difficult, while the simultaneous increase in median sales price can disqualify ordinance, increased opportunities for missing middle housing, modification
many from entering into the market all together. of lot sizes and setbacks, and density bonuses for affordable housing across
all zones. In addition to local regulation changes, Lexington, in association
The cost of housing has resulted in discussion and an oft utilized talking point with surrounding communities and development advocates, should advocate
that those who cannot find housing opportunities in Lexington, due to the for a review of the state building codes to allow for more efficient construction
high cost of purchasing a home in Fayette County, will seek opportunities methods and variable housing types.
in nearby neighboring counties. Whereas that might have been true in the
past, the data does not fully support such assumptions currently. The five
year average median sale price for housing in neighboring Scott County and
PROSPERITY POLICY #15
Woodford County are greater than that of Fayette County, and the median sale COLLABORATE WITH DEVELOPERS, COMMERCIAL ENTITIES, AND
price for Jessamine County is less than 2% of the cost of housing in Fayette
NON - PROFITS TO ELIMINATE FOOD DESERTS THROUGHOUT THE
County (Redfin 2023). For those working in Fayette County and owning in
COUNT Y AND ENSURE THAT ALL RESIDENTS HAVE EASY ACCESS TO
neighboring counties, the annual transportation costs (fuel, maintenance,
etc.) quickly diminishes many of the cost savings that would be gained from AFFORDABLE AND NUTRITIOUS FOOD.
moving to surrounding communities. With the unanimous passing of the Market Garden ZOTA by the LFUCG City
The realities of the rental and ownership market, which are the result of Council, it is now easier for community gardens to sell their produce on site.
governmental and private restrictions on the market, the cost of construction This has been a positive step towards combating food deserts. According
and materials, and the lack of government oversight, results in the need to
include new forms of housing, that offer smaller square footages and differing
models of ownership. While the historical process of homeownership
typically began with the purchase of small, single family detached homes,
the competition for small residences is at an all-time high as those who
have retired and have already secured equity are looking to downsize. The
market competition. coupled with the builder focus on larger homes, so to
maximize profit during a turbulent construction market, forces new buyers
to either over-burden themselves or stay out of the market. Through the
inclusion of new housing types, like cottage houses and garden apartments,
and the promotion of new ownership regimes, like land trusts and community
ownership agreements, the costs for construction can be lessened and the
land ownership costs can be relieved. Any addition of new housing types and
ownership regimes will also take education and inclusion of the banking
industry or other financial institutions.

Additionally, it is not enough to promote the development of new housing

types and ownership regimes, it is also essential to review the restrictive
regulations within Fayette County. Without modification of the regulations

DIVISION OF PLANNING JOBS & PROSPERITY | 163

to the USDA, food deserts are areas where people have limited access to a As Lexington’s population grows, finding smart ways to tackle food deserts
variety of healthy and affordable food. The issue of food deserts arises from should be a priority, including the creation of incentives, and infrastructure
the lack of grocery stores, farmers’ markets, and healthy food providers in investments to connect neighborhoods to these necessities. As this is
certain areas. Lexington is not immune to growing populations suffering from worked out, there are locations that can be used to set up farmers markets,
food deserts. The U.S. Department of Agriculture’s website titled Food Access community gardens, or mobile markets. Guidelines and incentives on how to
Research Atlas displays the food deserts. make these feasible should be considered for the long-term benefits.

Following a recommendation made in late 2020 by the Mayor’s Commission PROSPERIT Y POLICY #15 PLACEBUILDER CRITERIA
for Racial Justice and Equality, Fayette County has placed more emphasis • C-PS15-1: Improve options for affordable and nutritious food
on improving food access and healthy food options. As policymakers where not currently available.
consider interventions to increase food access, it is important to understand
the characteristics associated with these areas, such as income, vehicle PROSPERITY POLICY #16
availability, and access to public transportation.
CREATE A CENTRAL COORDINATING FUNCTION FOR ALL SOCIAL
Ongoing strategies to eliminate food deserts in Lexington is a collective SERVICES IN THE COUNT Y, INCLUDING NON - PROFIT, FAITH - BASED,
effort. Different organizations are taking different approaches to this issue. AND GOVERNMENTAL SERVICES.
Seedleaf is a nonprofit organization that serves its neighborhoods by
developing a network of community gardens throughout Lexington especially Recent economic, food, and housing insecurity has forced many communities
in food deserts. Seedleaf is reconnecting people with their food, the soil, and throughout the United States to acknowledge a long history of social and
each other. Currently Seedleaf's biggest garden is London Ferrill Community economic inequities. Social strife has an impact across all of Lexington and
Garden located on Third Street. This space features both free u-pick areas it is the responsibility of the City to plan the most for those with the least.
and individual plots. Utilizing long term vacant lots for food is an idea that is Lexington’s Department of Housing Advocacy and Community Development
easy to adopt as a policy. has worked to establish programs and assistance for residents throughout
the community. Housed within this Department are the Divisions of Affordable
God’s Pantry Food Bank has opened a pantry inside the Northside Branch of Housing, Community and Resident Services, and Homelessness Prevention
the Lexington Public Library, where people can look around and take home and Intervention. Each of these Divisions works to provide services to the
the food that they need. The food bank is open to the public Monday through community for those in need.
Friday. According to God’s Pantry, one in six people in central and eastern
Kentucky don’t know where their next meal will come from. Public buildings In addition to the programs housed within the Urban County Government,
are considered community assets and setting up spaces like God’s Pantry did there are numerous non-profit and faith-based services picking up where
can expand this program to further reduce the distance to fresh food. This the government is unable. These organizations range in the target population
same idea can apply to parking lots on weekend or after hours. and can be more direct in the aid that they provide at a person to person level.
While the government and the non-governmental organizations overlap in
In Louisville, The Kroger Company's "Zero Hunger Mobile Market" aims to the approach and interact routinely, for a robust response to the needs of
make a difference for people who live in some Louisville neighborhoods. community members, a central coordination of social services in the county
The Zero Hunger Mobile Market is a single-aisle grocery store on wheels. can be beneficial.
The Mobile Market visits neighborhoods that have limited or no access to
fresh fruits, vegetables, and other nutritious foods. For the fiscal year 2022-
2023, the mayor allotted $260,000 for a new mobile food grocery store for
neighborhoods that have limited access to food. This is an example of how
incentive programs for eligible groups to partner with other groups, including
farmers’ markets, community-supported agriculture programs, or retail food
stores participating in SNAP can help.

164 | THEME C IMAGINE LEXINGTON 2045

THEME D.
IMPROVING A
DESIRABLE
COMMUNITY.
166 | THEME C IMAGINE LEXINGTON 2045
INTRO
Developing a more desirable community for current and future residents requires new policies and continued
efforts that build upon the work that Lexington has done in the past. It requires raising the bar on both the public
and private sector to deliver ever better and more equitable outcomes. Lexington residents have come to expect
a community that continually seeks to raise the standard of living, through comprehensive planning policies that
address community wants and needs. That is both the burden and the benefit of being a progressive leader in
urban planning since the 1950’s.

How Lexington chooses to raise the bar is an important statement about the values of the community. Through
numerous public input processes, Lexingtonians have made it clear that they want more places and ways to
connect with each other. They seek more areas for social interaction that acknowledge the history of the City,
while also setting a tone for the creation of new places that embrace what Lexington can be. As the global
retail economy and workplace environment shift, and spaces are being reassessed and reconfigured, it is vital
that the City ensures community preferences are considered and addressed. Through the implementation of the
following pillars and policies, Lexington will continue to build a community that meets the needs and expectations
of residents and attracts new residents, which is critical to the sustained economic growth that the City has
experienced over the course of the last 65 years.

As the population of Lexington continues to grow, policies must ensure that historically marginalized and
vulnerable residents are not left behind. Lexington, like many cities throughout the United States, has long grown
in ways that more greatly benefit those with economic means, as represented by the prevalence of single-family
residential zoning and disconnected areas that require a single-occupancy vehicle to access jobs, services, and
necessities. Public input clearly indicates a need to move away from traditional suburban expansion that plans for
the movement of cars rather than people, and shift to a model that supports more connectivity and human-scale
development. The following pillars, Connectivity, Placemaking, and Support, provide the framework for public
facilities that form the foundation for the development of a desirable community.

WHERE ARE WE NOW?

The path to a desirable community is and will always be an ongoing endeavor. Lexington is continually looking
to improve the quality of life for its residents. While there are best practices that apply across communities,
Lexington’s unique environmental, natural, and cultural constraints, restrict the traditional onward march of
suburban expansion that other cities enact. These very qualities that make Lexington a planning and public policy
challenge, are also what make it a unique and special place, one that enhances the lives of current residents
and draws visitors and potential future residents. Those challenges and constraints are also opportunities for
innovation. They lend urgency to the need to be progressive and innovative in our solutions, and call for leadership
and vision by appointed and elected officials to implement those solutions.

Connecting people by creating opportunities for Lexington’s citizens to interact with each other through better
transportation infrastructure is a fundamental way to improve the overall community. A great effort has already

COMMUNITY | 169
been expended to build robust trail systems for pedestrians and bicyclists. The dividends are realized through
national attention and rankings in various livability categories. Since the adoption of the 2018 Comprehensive
Plan, the City completed the Legacy Trail, and completed significant portions of the Town Branch Trail. These
portions include the Town Branch Commons, a linear park that extends from Rupp Arena to the Isaac Murphy
Burns Memorial Art Garden, located intersection of the Legacy Trail located, E. Third Street and Midland
Avenue / Winchester Road. Despite the establishment of these trails, greater connectivity is needed to ensure
that we are providing a robust transportation system that provides options and serve all Lexington residents.

In addition to the enhancement of the transportation network, Lexington has been focused on providing
meaningful and economically viable places. While social interaction, the base of placemaking, was hindered
during the COVID-19 pandemic, the City, businesses, and neighborhoods made it a priority to make safe space
for social interaction. During the period of uncertainty, the City and local businesses turned their attention to
the outdoor realm. Parking lots were no longer just places to store vehicles, but became outdoor cafes and
restaurants. The relaxing of regulations for the provision of parking and the utilization of the public streetscape
allowed for the community to realize that mobility, access, and interaction can occur outside of cars, stores,
and restaurants. This realization lead to regulation changes to the City’s Code of Ordinances to allow outdoor
dining and retail, as well as the modification of the Zoning Ordinance to eliminate parking minimums. The
elimination of parking minimums can have a tremendous impact by allowing for new businesses and residential
opportunities in the community with a people first orientation, while also mitigating the negative impacts of
large parking lots.

The concentration on people and the support for all members of the Lexington community was also a policy
emphasis over the last five years. During periods of social, political, and economic uncertainty, those who are
the most vulnerable bear the brunt of that uncertainty. Since the adoption of the 2018 Comprehensive Plan,
the City was forced to reflect and act to protect the most vulnerable members of the community and continue
to create a desirable community for all. School systems needed to innovate new ways of learning, the City
was forced to acknowledge historical racial bias and seek new solutions, and the needs of economically
uncertain populations were acknowledged and reforms to supportive systems were modified to provide a
more comprehensive safety net for Lexington’s most vulnerable.

The following pillars, Connectivity, Placemaking, and Support, as well as the associated policies, will guide the
next twenty years of change within Lexington to continue to create a more desirable community.

170 | THEME D IMAGINE LEXINGTON 2045

DIVISION OF PLANNING COMMUNITY | 171
VISION FOR COMMUNITY.
connectivity placemaking support

PILLARS & POLICIES

PILLAR I CONNECTIVIT Y
Designing a connected street system is essential to improving the livability of
a city on a number of fronts. While many residents feel that traffic is a concern,
Lexington commute times are over 20% lower than the national average, POLICIES TO SUPPORT
according to the U.S. Census Bureau. Lexington’s relatively low commute
times have not been by accident. Lexington's high quality of life has been
achieved through a land use planning framework, focused on connectivity and
COMPLETE STREETS
policies that contain sprawl. Despite the compact design of the community
and an emphasis on best practice solutions, Lexington has averaged 32 LEXINGTON AREA MPO
BICYCLE & PEDESTRIAN
traffic fatalities, with another 153 serious or life-threatening injuries, each 4
MASTER PLAN
6
year since 2012. Residents and policymakers alike have agreed that anything
greater than zero is unacceptable and have expressed frustration over the
lack of progress on significantly reducing these numbers. As such, Imagine 21
Lexington organizes the connectivity pillar around three central ideas: 5

1. Appropriate transportation infrastructure should be dependent upon

1 3
what place-type is desired, and the intended uses and users.

2. The public realm should be designed so that all potential users

Adopt a Vision Zero Strategy Create Safe Walkways and Bikeways in
can access important regional destinations comfortably and in a 1 4 Construction Zones
reasonable amount of time. Vision Zero is the concept that no loss of life is acceptable Walkways in construction zones should be routed on the
on our roadways. Jurisdictions across the nation and same side of the street, run on or parallel to the closed
across the world are adopting Vision Zero policies to sidewalk, and must comply with the Americans with
3. The transportation network should be created in ways that eliminate eliminate preventable traffic deaths. Disabilities Act and the Manual on Uniform Traffic Control
traffic related fatalities and serious injuries by the year 2050. Devices.
Update Land use and Development Codes Establish Speed Reduction Policies
The linkage between land use and transportation infrastructure has largely 2 5
Local codes that encourage or require short block Traffic speed disproportionately threatens people
been reactive to shifts in transportation trends over the years. During early lengths, mixed use developments with street-fronting walking and biking so speed should be managed through
periods of development, a mixture of land uses was born out of necessity due retail, and a connected network of streets with speed limit enforcement and traffic calming where
high-quality sidewalks form the bedrock of livable appropriate.
to a lack of efficient and affordable transportation options. People needed communities.
to live in close proximity to places of employment and centers of commerce
Rethink Parking Requirements Adopt a Complete Street Policy
because it allowed them to a complete life within walking distance. This 3 6
resulted in the creation of dense city centers and central business districts Parking policy reform includes better management of A complete street policy asserts that all new street
existing parking, pricing that reflects demand, lowering projects should accommodate all people who use the
designed for, and centered around, people. The development of the streetcar parking requirements for commercial and residential street, whether traveling on foot, bike, transit, or car.
began to increase the distance people could live from their jobs. The streetcar Lexington Area MPOandBicycle
development, & Pedestrian
bike parking minimums. Master Plan
led to the creation of many of Lexington’s oldest suburban neighborhoods,
like Penmoken Park and Southern Heights. While there were other smaller to depart from this model and utilize a more multi-modal approach, which
shifts in mobility patterns within urban environments, ultimately, the wide utilizes a design for all users, and incorporates a people-first perspective.
affordability and availability of the automobile dramatically changed how To accomplish this realignment of priorities, the undeniable link between
people moved, and shaped modern development. transportation and land use must be acknowledged. Good street design
The typical street design and development site layouts have largely been begets desirable land uses and active, vibrant spaces that add to quality of
unchanged since the periods following World War II. Transportation networks life. Well-designed streets become desirable spaces that provide better travel
and developments have been planned primarily with cars in mind, and little experiences for motorists, walkers, bicyclists and transit users. Elements,
to no thought given to the people using the space. Imagine Lexington plans including street trees, landscaping, shade, lighting, building scale, building
orientation, setbacks, and buffers from traffic, contribute to that design quality.

174 | THEME D IMAGINE LEXINGTON 2045

 Context Sensitive Approach
Bikeway Facility Type Street type/Speed/Volume Design Specifications Implementation Strategies

• Identification signage and pavement markings

• 85th percentile speed <25 mph
• Local • Use access management and speed reduction tools to
Bicycle Boulevard • ADT <3000
• Residential collector achieve desired motor vehicle volumes and speeds.
• Crossing treatments at local streets, avenues and
boulevards

• Works best on streets with speeds of 30 mph or

• Shared lane markings pair well with Bikes May Use Full
lower. May be used on streets up to 35 mph
• Local Lane (R4-11) signs.
Shared Roadway • Minimum placement of shared lane marking is 11 feet
• Commercial Main Street • Modifications to signal timing help induce a bicycle-
from curb where on-street parking is present (4 feet
friendly travel speed for all users
from edge of curb with no parking)

• Local • 6’- 7’ preferred bike lane width • Lane narrowing

On-Street Bike
• Collector • 5’ minimum bike lane width (when adjacent to • Travel lane reconfiguration
Lane
• Commercial Main Street parking) • Parking lane reconfiguration

• Collector • Lane narrowing

• 5’ minimum bicycle travel area
Buffered Bike Lane • Commercial Main Street • Travel lane reconfiguration
• 18” minimum buffer area
• Arterial • Parking lane reconfiguration

• 7’ travel area • Lane narrowing

One-Way • Collector
• 3’ or wider buffer • Travel lane reconfiguration
Separated Bike • Commercial Main Street
• 18” minimum buffer adjacent to travel lanes • Parking lane reconfiguration
Lane • Arterial
• 3’ minimum buffer adjacent to parking lanes • Curb reconstruction

• 12’ preferred operating width • Lane narrowing

Two-Way • Collector
• 10’ minimum travel width (8’ width in constrained • Travel lane reconfiguration
Separated Bike • Commercial Main Street
conditions) • Parking lane reconfiguration
Lane • Arterial
• 3’ minimum buffer adjacent to parking lanes • Curb reconstruction

LEXINGTON AREA MPO BICYCLE & PEDESTRIAN MASTER PLAN

DIVISION OF PLANNING COMMUNITY | 175

Streets designed for cars alone do not create an environment conducive to CONNECTIVITY POLICY #1
other users. Roadways are designed for higher speeds, destinations are too
far removed from any pedestrian access points, accesses to buildings are STREET DESIGN SHOULD REFLECT & PROMOTE THE DESIRED PLACE-
blocked by parking lots, crossing locations are often too spread out, and T YPE.
lighting is typically out of scale with pedestrians. Without a realignment of
The recent changes to the Comprehensive Plan continue to build upon the
who is utilizing different spaces, the type of development will continue to be
policies developed in previous iterations, which incorporate a more dynamic
focused on the car.
and equitable outlook on urban planning. The shift away from a land use map
At the most fundamental level, streets are public rights-of-way, and therefore represented a modern approach that allows for dynamic change that is in
are public spaces just like Lexington’s parks. They belong to everyone, not context to a place. This approach also acknowledges the historic structures of
just automobile users, and must be made inviting to all users. Significant inequality that form the basis of land use maps, and allows innovation and infill
improvements can be made inexpensively and can be done in a timely associated with smart growth principles. The context of place necessitates a
manner. The responsibility for those improvements does not just fall on review of the urban form, including the street environment, the surrounding
private development, but also on LFUCG to target and identify the parts of land uses, and current and potential transportation networks. By understanding
Lexington that are most in need of improvements. Large public projects that the built context and incorporating the public wants, which overwhelmingly
add sidewalks, incorporate trails, and connect our community for all should focused on safe and visible multi-modal streets, the City will be able to develop
be prioritized. a more desirable community that meets the needs of all residents.

Finally, it is important to remember that almost every person is, was, or will be When designing or modifying a street, it is crucial to consider the current
a pedestrian. Not everyone is a driver. The cyclist is a pedestrian. The transit and potential future adjacent land uses for the site and block. Streets should
user is a pedestrian. The right-of-way elements need to create a street that not be singularly designed for automobile efficiency, but should give due
serves all users. These are not additional or special design features, but are consideration to the surrounding context, and the goals for the place-type
critical infrastructure to a community similar to pavement and curb inlets. where it is located. They should add to an area’s sense of place and promote
Shifting the public thought processes about multi-modal infrastructure the desired development patterns, rather than discourage them with designs
starts at the highest conceptual levels. No transportation element should be that are out of scale and counterproductive to the preferred result. The health
finalized without considering the full context of its application. and safety of all users should always be considered.

Different land uses and development types generate varying amounts of

COMING FULL CIRCLE vehicular traffic, onstreet parking, pedestrian traffic, and have different
Implementing a fully integrated street network is more than just connecting frontage and multi-modal needs. The land uses adjoining a street are integral
the streets. While that may be one critical element, it is much more. It requires to predicting the volume of multi-modal demand and the best allocation of
a total commitment to connecting land use, desired place-types, the built right-of-way to support those needs. Consideration should be given to both
environment, and all users with a complete transportation system. Imagine existing and potential future land uses when reviewing development. Although
Lexington intends to direct policy in such a way that, over time, this approach many neighborhoods and corridors currently have auto-oriented land use
becomes a natural and intuitive process. There are significant implementation patterns and site designs, the development of greater flexibility in mobility
steps required to get there that will take community, development industry, through the incorporation of multi-modal options in Lexington’s transportation
and political support to achieve. system is intended to diversify access to housing, jobs, goods, and services
over time. The focus on multi-modal transportation is designed to work in
conjunction with infill and redevelopment efforts that emphasize a greater
mix of uses, walkabilty, and transit-oriented development. As older and
unimproved neighborhoods and corridors evolve over time, there must be
a greater emphasis on creating opportunities for walkability, even in areas
where the development of facilities is added piece by piece.

176 | THEME D IMAGINE LEXINGTON 2045

 Automobile Association, the average annual cost of owning and operating
an automobile was $10,729 in 2022. Considering that the 2021 ACS Census
Poverty Threshold estimate for a family of four in 2022 was $29,960, owning
and operating one automobile minimally constitutes 36% of income for a
family in poverty. As approximately 14% of Lexingtonians live at or below the
Census defined poverty level, providing affordable transportation options is
critical for this portion of our community to access essential services, as
well as educational and employment opportunities. As a result, a multi-
modal approach to regional mobility is essential to the creation of a desirable
community, because it allows people of all means and abilities to access
viable and connected transportation opportunities.

A successful transportation network connects people to places. Many areas

lack sufficient connections between public streets and building entrances.
Multimodal street scenario. Image courtesy of Alta Planning + Design. This inadequacy of development is contrary to the requirements of the
Americans with Disabilities Act and can affect the ability of some residents’
independence. All new developments and modifications to existing facilities
should be designed with these users in mind.
CONNECTIVITY POLICY #2
Some important considerations in addressing equity:
CREATE MULTI - MODAL STREETS THAT SATISFY ALL USER NEEDS AND
1. Streets should be designed in a manner that is safe, enjoyable,
PROVIDE EQUITABLE MULTI - MODAL ACCESS FOR THOSE WHO DO NOT
accessible and comfortable for ages 8-80 and those with limited
DRIVE DUE TO AGE, DISABILIT Y, EXPENSE, OR CHOICE.
mobility.
A safe, fully-connected multi-modal transportation system is not only
about moving vehicles, but about moving people and goods, which supports 2. Design elements should be incorporated that enhance walkability
the community by improving the quality of life for everyone. Achieving this and accessibility, which include sidewalks wide enough for two
goal requires all modes of transportation be considered equally during the wheelchairs to pass each other, shade from street trees, and short,
design of rights-of-way. From the earliest stages of development, it should direct, connected routes.
be acknowledged that all potential users of public roadways are entitled to
safe and accessible transportation options, whether that be a bicyclist, a 3. Commercial and mixed-use areas should incorporate narrower
pedestrian, a transit user, a freight delivery vehicle, an automobile driver or streets lined with buildings that have little to no setback, frequent and
some other user of that right-of-way. safe crossings, pleasing furnishings, store fronts, pedestrian scale
lighting, and buildings oriented toward and adjacent to the street and
Additionally, mobility, social interaction, and physical activity enhance the sidewalk.
quality of life of children, the aging population, persons with disabilities,
and low-income populations. The removal of barriers to independent travel 4. Commercial, mixed-use and higher density residential areas should
reduces the need for more costly alternatives, such as paratransit, private be connected to public transportation routes via ADA accessible
transportation services, and ‘hazard’ busing for school students who live facilities that lead to transit stops with appropriate shelter from the
within a mile of schools, but do not have access to safe walking or biking weather.
routes. Accessibility to transportation options is an equity issue; designing 5. Horizontal and vertical scale should be proportioned to the pedestrian
streets for only one user group assumes that everyone has access to that when designing streets.
specific mode of transportation. According to statistics from the American

DIVISION OF PLANNING COMMUNITY | 177

 6. The 2018 Bicycle and Pedestrian Master Plan should be utilized as a to various different studies, TOD provides multiple health and environment
minimum starting point to inform the decision-making process on benefits:
necessary transportation infrastructure.
REDUCE TRAFFIC CONGESTION AND VEHICLE RELATED EMISSION:
In addition to equity considerations, the Centers for Disease Control has
People who live or work within TOD options drive 20-40% less and reduce
strongly advocated for improved multi-modal infrastructure, due to the
greenhouse gas emissions by 2.5 to 3.7 tons annually per household.
over 100 studies that have shown the strong connection between obesity
and automobile dependence. It is not the goal of Imagine Lexington to end
car culture, but it is absolutely a goal that Lexington become known for its REDUCE IMPERVIOUS SURFACE OCCUPIED FOR ROADWAY AND
abundant transportation options that encourage safe, and healthy behaviors. PARKING FACILITIES: TOD promotes a dense and walkable built environment
that dissuades the expansion of roadway facilities and reduces the need for
Changing behaviors does not happen simply because people know there is large portions of land dedicated to parking infrastructure.
a healthier alternative. When each new development incorporates safe and
convenient transportation options, and as-needed retrofits are completed, CONSERVE ENERGY AND REDUCE ENERGY - GENERATING EMISSION:
the multi-modal network becomes more robust and alternative forms of Compact design that integrates mixed-use development can reduce overall
transportation become more attractive and viable. Providing convenient transit energy consumption and driving by up to 85%.
options and alternatives makes individual neighborhoods more desirable—
and creating neighborhoods that are more desirable makes Lexington more
STRENGTHEN TRANSIT SYSTEM: Neighborhood patterns and transportation
attractive to employers and employees alike.
go hand in hand. TOD with well-designed developments that blend land uses
CONNECTIVIT Y POLICY #2 ACTION ITEMS and promote alternative infrastructure will encourage residents to use mass
1. Implement Projects from the Lexington Area MPO Bike and transit and stabilize transit ridership, thus reducing transportation cost to
Pedestrian Master Plan. families and negative impacts on the environment.
2. Implement Lexington’s Complete Street Policy.
SUPPORT HEALTHY LIFEST YLES: Transit users are 3.5 times more likely
CONNECTIVIT Y POLICY #2 PLACEBUILDER CRITERIA
to achieve and exceed the target amount of walking per day, as opposed to
• D-CO2-1: Development should create and/or expand a connected
people who do not use transit on a particular day.
multimodal transportation network that satisfies all users’ needs.
• D-CO2-2: Development should comply with Lexington's Complete
Streets Policy. IMPROVE SAFET Y: Residents within proximity to TOD have about a quarter
of the per-capita traffic fatality rate compared to residents of automobile
CONNECTIVITY POLICY #3 dependent sprawl, taking into account all traffic deaths, including pedestrians
and transit passengers.
ENCOURAGE TRANSIT - ORIENTED DEVELOPMENT, INCREASE DENSIT Y
ALONG MAJOR CORRIDORS, AND SUPPORT TRANSIT RIDERSHIP, THUS There are also many other neighborhood, community and economic benefits
of TOD, which are explored in the other related Themes and Policies of
REDUCING VEHICLE MILES TRAVELED (VMT).
Imagine Lexington. While this is particularly true along our corridors, it is
Transit-Oriented Development (TOD) refers to areas with high quality public also important to realize the cascading benefits of locating TOD within the
transit services, good walkability, and compact, mixed land use. This type of Infill and Development area.
development allows people to choose the best option for each trip: walking
and cycling for local errands, convenient and comfortable public transit for CONNECTIVIT Y POLICY #3 PLACEBUILDER CRITERIA
travel along major urban corridors, and automobile travel to more dispersed • D-CO3-1: Development should increase density and access to
destinations. People who live and work in such communities tend to own transit.
fewer vehicles, drive less, and rely more on alternative modes. According

178 | THEME D IMAGINE LEXINGTON 2045

CONNECTIVITY POLICY #4 Within disconnected street networks, traffic is concentrated along major roads
because there are no alternative routes for commuters. Additionally, the lack of
DESIGN STREET NET WORKS THAT PROVIDE ALTERNATIVE ROUTE internal circulation between or within many developments forces drivers onto
OP TIONS AND REDUCE TRAFFIC CONGESTION. busy arterial intersections to travel short distances. Alternatively, well-connected
streets provide direct, continuous routes and multiple route options, which are
Public surveys consistently identify traffic congestion as a major perceived concern
proven to effectively reduce roadway congestion. Connectivity also reduces
in Lexington. While there are periods of slower traffic within the community, these
response times for emergency vehicles and improves access and efficiency for
are typical within economically vibrant city during peak hours of travel. Additionally,
transit, school buses, and service vehicles, including solid waste trucks and street
there is often insufficient understanding by the public regarding the function of
sweepers.
roadways and how a more connected street network could help alleviate traffic
congestion throughout the community. When traffic is concentrated to fewer roads, the typical strategy for alleviating
congestion is to widen the roadway and add lanes to accommodate the greater
volumes of traffic. Wider streets encourage faster speeds, especially outside of
the morning and evening peak travel periods. There is a direct correlation between
increased road widths and increased speeds and collisions. Wider and faster
roadways are more dangerous for all users, especially for pedestrians or bicyclists,
as crossing a wider street can be difficult. According to Earnst and Shoup more
than 50% of pedestrians killed in 2007 and 2008 were on wide roadways.

Instead of wider streets with multiple lanes, roadway capacity should be increased
by providing multiple, smaller parallel streets. With a more connected street
network, traffic will be dispersed along alternative routes, and the demand for
wider streets will lessen. This will also promote safer solutions for all users and
reduce collisions.

For the above reasons, and in order to lessen traffic congestion and make
Lexington’s street network safer for all modes of transportation, dead-end
streets and culs-de-sac should be discouraged except where connections are
not topographically or environmentally feasible. In places where connections are
not feasible for topographic reasons, safe non-vehicular access should still be
provided.

CONNECTIVIT Y POLICY#4 ACTION ITEMS

1. Review the use and regulation of access easements.
CONNECTIVIT Y POLICY #4 PLACEBUILDER CRITERIA
• D-CO4-1: Dead-end streets and cul-de-sacs should be
discouraged.
• D-CO4-2: Provide multiple route options (grid type structure)
to alleviate congestion in lieu of additional lanes upon existing
roadways.
• D-CO4-3: Street pattern and design should consider site
topography and minimize grading where possible.

DIVISION OF PLANNING COMMUNITY | 179

EXAMPLES OF TRAFFIC CALMING DEVICES:
Source: Urban Street Design Guide, National Association of City Transportation Officials

Chicanes: curb extensions that add curve in the road; provide more public Gateway: curb extension at the entrance of a low speed street that helps
space & slow down traffic indicate transition to incoming cars

Narrower lanes: provide traffic calming effect & allow for space for all user Speed hump: slow speeds on low volume, low speed roads. Reduce speeds
needs (bike lanes, sidewalk, etc.) to 15-20 mph.

180 | THEME D IMAGINE LEXINGTON 2045

CONNECTIVITY POLICY #5
STREETS SHOULD BE DESIGNED FOR THE DESIRED SPEED, USING
BUILT - IN TRAFFIC CALMING MEASURES SUCH AS ROUNDABOUTS,
NARROWER STREET WIDTHS, CHICANES, MEDIANS, ETC.
In Lexington, speeding is a common complaint, particularly for those streets
classified as arterials or collectors. These roadways, which are wider by
design to address perceived congestion during the peak hours of traffic in
the mornings and evenings, create faster vehicle speeds during other times
of the day. These greater speeds occur regardless of the posted speed
limit due to the driver’s perception of a wide open space. The perception of
congestion notwithstanding, a publication by Rosén and Sander indicates that
the most efficient speed to move the greatest volume of vehicles in urban
environments is between 25 and 35 miles per hour (mph). However, nearly all
arterial streets within Lexington have a posted speed limit of at least 35 mph,
with many posted at 55 mph.

Reductions in vehicle speed significantly decrease injuries and fatalities for

both vehicular and non-vehicular users alike. A study developed by Kröyer CONNECTIVIT Y POLICY #5 PLACEBUILDER CRITERIA
indicates that each 1-mph reduction in average traffic speed reduces vehicle • D-CO5-1: Streets should be designed with shorter block lengths,
collision rates by 3 to 6 percent. Additionally, studies have shown that 80 narrower widths, and traffic calming features.
percent of pedestrians struck by a car going 40 mph will suffer a fatality,
while at 30 mph, the likelihood of death is reduced to 40 percent. At 20 mph,
that figure drops to just 5 percent, illustrating the importance vehicle speed
plays in pedestrian safety. The likelihood of a pedestrian collision occurring at
lower speeds is also reduced due to shorter braking distances. CONNECTIVITY POLICY #6
In contrast to what has been built in the past, streets should be designed DEVELOP A MULTI - MODAL TRANSPORTATION NET WORK AND
so that bicyclists, pedestrians, mass transit riders and other users feel INFRASTRUCTURE; SEEK COLLABORATION WITH REGIONAL TRANSIT
comfortable and encouraged to freely utilize Lexington’s transportation PARTNERS FOR THE COMMUTING PUBLIC.
network. This can be accomplished through lessening speeds and the
appropriate use of traffic calming features, such as roundabouts, medians, When people decide how to get from one point to another, it is very important
street trees, chicanes, reduced building setbacks, shorter block lengths, and to provide them safe and competitive options. According to walkscore.com,
narrower street widths. Rather than addressing Lexington’s roadways after Lexington has an average walk score of 34, indicating a community that
the fact, designs should be initiated at the development and planning phase is car-dependent, where most errands require a car; a transit score of 27,
to create the appropriate street width to restrict vehicle speed. Employing demonstrating that only a few nearby public transportation options exist; and
traffic calming techniques, such as those previously mentioned, increases a bike score of 46, which falls within the lowest range, meaning Lexington is
motorists’ attentiveness to the surrounding context, and, if considered early only somewhat bikeable, with minimal bike infrastructure.
in the design process, they carry the additional benefit of eliminating the need Vehicles (or mobile sources) are also a significant contributor to urban
for costly traffic calming retrofits. air pollution. Technology in the form of cleaner vehicles and cleaner fuels
will continue to reduce vehicle pollution, but more people living in an area

DIVISION OF PLANNING COMMUNITY | 181

generally equates to more vehicles on the road. Recent national trends show PLAN FOR THE LONG - TERM LAND USE AND TRANSPORTATION IMPACTS
a decrease in personal vehicle miles of travel per person, and it is likely OF CONNECTED AND AUTONOMOUS VEHICLES (CAV).
that this trend will continue. However, the population is also increasing,
Automakers are continuing to advance efforts to automate various aspects of
and the economy is entering a period of growth. Thus, it is anticipated that
the operations of motor vehicles. As of 2023, vehicles with certain aspects of
overall travel demand will continue to grow. If the community does not meet
automation are available through the marketplace, such as parallel parking
this increased demand in an efficient and multimodal manner, additional
or adaptive cruise control, but these vehicles still require most operations
congestion may ensue, potentially compromising air quality.
to be performed by the human driver. Fully autonomous vehicles, while still
From the public input analysis of the Lexington Area Bicycle and Pedestrian many years from being available within the marketplace, are nevertheless
Master Plan, results show more than 60% of Lexington residents are advancing rapidly and may be deployed in significant numbers by the 2045
interested in biking, but are concerned about using bicycles in the urban planning horizon for Imagine Lexington.
area. People report that biking seems difficult and dangerous, due to driver
There are a number of reasons why CAVs would be of significant benefit to
behaviors, such as speeding, inattention, failure to yield at intersections, etc.
Lexingtonians:
Most people think biking is important for transportation and recreation, and
they praised projects like Legacy Trail and the Town Branch Trail. 1. Safety - CAVs are expected to have a much lower crash history due
to nearly instantaneous reaction times, a 100% compliance rate with
Mass transit options should be competitive in terms of economic value,
traffic laws and no potential for distracted or impaired operations.
comfort level and time consumption. Transit parking facilities, development
As one of the central ideas of this pillar is to eliminate traffic related
within walking distance and pedestrian accessibility to transit stops are some
fatalities and serious injuries by 2050, CAVs could play a pivotal role
of the tools to encourage people to take advantage of the mass transit option
in accomplishing this goal.
for commuting.
2. Enhanced Mobility and Accessibility - CAVs can provide new mobility
Regional commuting tools have great potential to expand those options,
options for the approximately 1/3rd of Lexingtonians that either
and additional organizations to collaborate on regional commuting should
cannot operate a motor vehicle due to legal reasons or physical
be explored. Lexington is a major employment hub for the Bluegrass area.
limitations (i.e. blindness) or have chosen not to operate a motor
Estimates from the 2023 Kentucky Commuting Patterns Report indicate
vehicle by personal choice.
that 51% of Lexington workers live outside of Fayette County and commute
into Lexington every day, while 49% are employed and live in Lexington. 3. CAVs have the potential to improve traffic flow and reduce congestion.
Commutes into and out of Fayette County primarily take place along the With their ability to communicate with each other and infrastructure,
major arterial roadways. As population and employment growth continues CAVs can optimize routes, adjust speeds, and coordinate movements,
into the future, these major arterials will continue to serve these commuting leading to more efficient and smooth traffic patterns. This can result
patterns at the regional level. Recent data shows Lexington workers still rely in reduced travel times, fewer bottlenecks, and improved overall
highly on single-occupant vehicle driving. The infrastructure for multi-modal traffic management.
commuting is in the MPO plan of the 2040 Metropolitan Transportation Plan.
4. Parking Efficiency - CAVs can optimize parking with the ability to drop
Developers and employers should explore options to provide priority parking off passengers and park in less central locations. This can reduce the
spaces for car-share vehicles, design for safe and easy ingress/ egress during need for large parking lots in urban areas, freeing up land for other
peak hours, and provide shuttles for residents to and from transit stops. New uses or green spaces.
transit stop shelters should be designed with improved user comfort, such as
clean, durable and comfortable seating, weather protection, and police signs 5. Emergency Response - CAVs can enhance emergency response by
to avoid illegal behaviors. enabling faster and more efficient routing of emergency vehicles.
Through communication with traffic management systems, CAVs
CONNECTIVITY POLICY #7 can be alerted to emergency vehicles approaching and make way

182 | THEME D IMAGINE LEXINGTON 2045

 for them, helping to reduce response times and improve overall
emergency services.

CAVs, however, have the potential to disrupt many aspects of transportation,

land use and society in general. Below are some of the more significant
disruptions which Lexington may need to consider:

1. Job Displacement – The introduction of CAVs may lead to job

displacement in certain sectors, such as truck driving, taxi services,
and delivery services. Autonomous vehicles could replace human
drivers, impacting employment opportunities for many individuals.
Lexington may need to consider strategies for retraining and
workforce transition to mitigate the social and economic impacts of
job displacement.

2. Equity and Accessibility – While CAVs have the potential to improve

transportation accessibility, there is a risk of exacerbating existing
inequities. Lexington should ensure that CAV deployment strategies
prioritize equitable access for all communities, including underserved
populations, people with disabilities, and low-income households.
Addressing issues such as affordability and serving vulnerable
populations should be a priority.

3. Economic Impacts – The introduction of CAVs can have broader

economic impacts beyond job displacement. Lexington should
consider the potential economic shifts and disruptions in various
industries, such as parking and public transportation, and develop
strategies to support businesses, promote innovation, and address
potential economic inequalities.

Parking – While CAVs may be able to optimize parking, especially in areas with
high demand, CAVs, since they will not operate continuously, will nevertheless
require parking somewhere. Lexington will need to consider and collaborate
with stakeholders regarding appropriate locations and facilities for these
vehicles.

DIVISION OF PLANNING COMMUNITY | 183

PILLAR II PLACEMAKING
Imagine Lexington is the evolution of Lexington’s policy based Comprehensive
Plan, which eschews the traditional land use map, that is rooted in historic
structures of inequality, in order to focus on creating quality places that are Eleven Principles for Creating Great Community Places
sustainable and accessible to all. The goal of Imagine Lexington is to turn the
concept of placemaking into a fully fleshed-out set of principles that will clearly
define future growth. Realizing these principles start with understanding that 1. The Community Is the Expert
this concept is a fundamental shift in the way that development is conceived
and implemented.
2. Create a Place, Not a Design.
The concept of placemaking, or the process of creating quality places
that people want to interact with for all facets of their lives, is not new. In 3. You Can't Do It Alone.
many cases it came out of unguided development of communities in urban
landscapes, but as the field of urban planning began to establish itself, an
organized process of placemaking took root. These planning practices 4. You Can See a Lot Just By Observing.
sought to create areas of activity with safe connections, a variety of uses,
and different housing options. However, over time the process of creating 5. Have a Vision.
places for people went out of fashion. From the mid-1940s through the 1990s,
planners became less focused on people and became more focused on
ensuring cars could access space with the least restriction on movement, 6. Start with the Petunias.
as indicated by Thomas Sugrue’s work. This shift concentrated on the start
and end points of vehicular travel, without much attention to everything in- 7. Triangulate.
between. Practices often neglected to take into account people who were not
able to access vehicles or were barred from areas that received the greatest
attention of planners and lawmakers. This concentration on the start and end 8. They Always Say, "It Can't Be Done."
points of travel often resulted in the demolition of historical land uses and
neighborhoods to make way for vehicular movement. 9. Form Supports Function.
Over the course of the public outreach from the last two Comprehensive Plans
in Lexington, there has been a demand to refocus efforts to provide equal 10. Money Is Not the Issue.
consideration for a variety of forms of mobility, including the addition of more
walkable pedestrian facilities, multi-use trails and pathways, and a safer
11. You Are Never Finished.
vehicular system. Tied to comments made during the public outreach, and
representative of a transition back to a more people-first urban form, is the
need to create places that people can use and benefit from. However, when
considering these changes and the reemergence of placemaking, the impact
active community input and integration into the natural, social, and historical
must not only target Lexington’s newest developments, but help reimagine
environments, we can create authentic places that are open to those who live
our current landscape by reevaluating the policies and regulations that limit
in the community and are inviting to those visiting or seeking to move here.
the creation of these desired places.
The stiff competition for jobs and workers has cities around the world
The process of placemaking does not simply rely on a ‘sense’ of place or an
addressing what they can do to attract new residents and retain those
emotional response to a specific space. It has elements that can be defined and
already within the community. Those with the ability to choose where they live
promoted through intentional design. Accessibility, visibility, and activation all
and work unquestionably elect to live in cities with high quality places that
act together to create a strong foundation for placemaking. Combined with

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 As Lexington continues to develop places for people, recognition of the
different types of placemaking is essential to creating inviting and interesting
places. These types of placemaking were initially categorized by Ann
Markusen and Anne Gadwa in the publication for the National Endowment
for the Arts. Since the publication of this important document, practices have
been expanded and implemented throughout the United States.

1. STANDARD PLACEMAKING
This is the catch-all term that covers the other three more specialized
areas. Each type of placemaking requires projects and activities. It is
the scope type of both of those keys that define the other types of
placemaking.

they can afford. This is especially true of talented and in-demand individuals.
Communities with quality places are an asset to businesses looking to locate in
an area. From an economic development standpoint, developing quality places
is critical to future economic growth and retention of a skilled workforce.
Big demographic shifts drive the need for placemaking, as younger workers
seek active urban centers with effective transit, while the aging population is
looking for easy access to amenities that include activities.

While the basics of placemaking are well known, quality places rarely
happen by accident. They often develop over time organically, as a result
of numerous small, seemingly inconsequential decisions by residents and
policymakers. Imagine Lexington seeks to accelerate that time-frame,
and replicate the outcomes, through a carefully implemented placemaking
process. The outcomes of this process are quality public and private spaces
that complement each other in order to provide opportunities for social
interaction.

DIVISION OF PLANNING COMMUNITY | 185

 2. TACTICAL PLACEMAKING follow talented workers. Highly-skilled and in-demand employees have the
ability to pick where they want to live and then create new opportunities,
This type of placemaking involves a short-term commitment that which can attract new employers to the area. These studies also find that both
can begin almost immediately by focusing on a public space. It people and jobs are attracted to natural and cultural amenities. The creation
includes a number of small, low cost projects that are used to build a of places that reflect a community and allow them to grow are helpful at
constituency for more substantive placemaking projects. attracting new and retaining established populations.

3. CREATIVE PLACEMAKING While Lexington should always be looking to attract a wide array of
employment opportunities, shifts in where people live compared to where
This type of placemaking is when different participants from the people work have changed how cities must market themselves. While
public, private, nonprofit, and community sectors strategically shape working remotely was already a trend, the COVID-19 pandemic accelerated
the physical and social character of an area around the arts and the prevalence of working from home. This puts a greater emphasis on the
cultural activities. The focus of Creative Placemaking is to incorporate need to develop more attractive and unique places. Cookie cutter designs or
a more diverse group of people to collaborate and spark a dialogue references to layouts that work in other cities are no longer what people are
regarding space. This iterative process can result in places that attracted to. Through the development of distinctive places focused on the
celebrate communities, and inspire future populations. This form of local community and embracing people from different walks of life, Lexington
placemaking attempts to provide sustaining activity in underutilized will be better able to retain and attract its talented population.
public spaces.

4. STRATEGIC PLACEMAKING
PLACEMAKING POLICY #1
This type of placemaking includes a comparatively small range of CREATE DEVELOPMENT STANDARDS AND BEST PRACTICES FOR LAND
specialized projects and activities that must be pursued by the public, ADJACENT TO SHARED USE TRAILS AND TRAIL CORRIDORS.
nonprofit, and private sectors for a period of 5 to 15 years. These
are large projects targeted in downtowns and key nodes along major Since the 2018 Comprehensive Plan, Lexington has consistently pursued the
corridors. These projects are key to attracting talented workers over planning and construction of shared-use trail connections, aiming to improve
the long term and result in job retention and creation in the near connectivity and foster a strong sense of place throughout the community. A
term. Recent projects like the Town Branch Commons or the Town standout example of these efforts is the Town Branch Commons, a public-
Branch Park are an example of strategic placemaking. private park and trail system that traces the historic Town Branch Creek
through downtown Lexington.
For any of the different types of placemaking to occur, the inclusion of and
collaboration with the public at the earlier stages of project development The Town Branch Commons corridor system offers uninterrupted bike and
will help create places that people will actually use. All forms of successful walking paths, native plantings, water quality bioswales, and convenient
placemaking depend on broad citizen support and engagement in the design connections to both new and existing parks—including the future Town
of projects and activities. The public should be at the forefront of developing Branch Park. It effectively connects two of the city's major trails, the Town
quality places in their community, with their ideas and visions incorporated Branch Trail and the Legacy Trail, resulting in an impressive 22-mile stretch
into the development plans or studies that will drive implementation by the of continuous pathway that seamlessly integrates downtown with Lexington’s
private sector. internationally renowned rural landscape.

Intentional strategies in the creation of places for people have direct economic Other notable trail projects underway include the Brighton Rail Trail connection
impacts on communities as well. There are countless examples of cities, from East Lexington into Downtown. This project will link the Brighton Trail
including Lexington, that have shown the economic benefits that placemaking in Hamburg to the Isaac Murphy Memorial Art Garden Trailhead in downtown
has within communities. It is clear that knowledge and creative-based jobs Lexington, where the Town Branch and Legacy Trails meet. This project is
currently in the research phase, continuing the city's efforts to address gaps

186 | THEME D IMAGINE LEXINGTON 2045

 ACTIVE TRANSPORTATION INFRASTRUCTURE: Provide
supporting infrastructure along the shared-use paths and trail corridors,
such as bike racks, bike-sharing stations, and pedestrian-friendly amenities.
These additions make the area more accessible and convenient, attracting
both residents and visitors.

ACCESS MANAGEMENT: Vehicular crossings should be limited to

maintain the safety and aesthetics of the trail.

TRANSIT INTEGRATION: Integrate shared-use paths and trail corridors

with the public transportation systems. Providing convenient connections
between trails and transit stops encourages more people to use both modes
of transportation, making the areas surrounding the paths more attractive for
development.

ECONOMIC DEVELOPMENT: Offer economic incentives to businesses

and developers interested in locating along shared-use paths and trail
and create a trail network across Lexington. corridors. This can include tax breaks, grants, or streamlined permitting
processes to encourage investment and development. Study the direct
In order to safeguard and prioritize Lexington's trail corridors as the economic impact of current and potential redevelopment along primary
overarching focal point of the community, it is essential to protect and promote trail corridors, as well as the potential social and economic impact to the
the following critical elements, especially as future development takes place surrounding neighborhoods and downtown as a whole. This study should also
along these vibrant public spaces: explore incentive feasibility and policy changes that may assist and guide
future development along corridors.
ZONING AND LAND USE REGULATIONS: Implementing zoning and
land use regulations that promote mixed-use development and higher density GREEN INFRASTRUCTURE: As trail corridors often follow streams,
along shared-use paths and trail corridors can encourage businesses, continue to make design and development decisions that work to improve the
residential properties, and public amenities to locate in these areas. This overall water quality and urban ecology of the surrounding properties. This
approach allows for easier access and increased activity along the trails. is especially important for the Town Branch Commons water quality green
infrastructure to help to maintain the performative landscape established in
PLACEMAKING AND URBAN DESIGN: Establish development the Town Branch Commons Master Plan.
standards for existing and future development adjacent to trail corridors with
attention to aesthetics, safety, and usability. Adjacent development should HISTORY & EDUCATION: Enhance the experience of trail corridors
enhance trails by incorporating landscaping, public art, seating areas, and
through ongoing way-finding and educational signage that highlights history
lighting. Development standards should include pedestrian entrances and
along the trails as well as the surrounding neighborhoods, people, and public
active facades that face the trail, avoiding structures that turn their backs
spaces.
to it; define appropriate and inappropriate uses along the corridor, including
guidelines for the location of back-of-house areas, dumpsters, and drive- MARKETING AND PROMOTION: Develop marketing campaigns to
through facilities; and ensure access to surrounding open space and trail highlight the benefits of the shared-use paths and trail corridors, showcasing
systems. the opportunities for businesses and residents. Emphasize the connectivity,
health benefits, and recreational opportunities that these pathways offer.

DIVISION OF PLANNING COMMUNITY | 187

PLACEMAKING POLICY #1 ACTION ITEMS examples of parks and trails that utilize public art to activate these spaces and
1. Update the Zoning Ordinance and Land Subdivision Regulations create a destination. Partnerships with the public and non-profit organization
to create development standards for land adjacent to shared-use like LexArts and the Public Arts Commission can help integrate local artists
trails and trail corridors. in the placemaking processes for our built and naturalized environments.

PLACEMAKING POLICY #2 PLACEMAKING POLICY #2 PLACEBUILDER CRITERIA

• D-PL2-1: Development should provide active first floor uses
ACTIVATE BUILT AND NATURAL ENVIRONMENTS TO PROMOTE whenever adjacent to a street, pedestrian facility, or community
ECONOMIC DEVELOPMENT AND CREATE SAFER SPACES. focused open space.

Part of a complete streets policy is to activate the ground floor of the built PLACEMAKING POLICY #3
environment along public streets. This activation often slows vehicles, forces
drivers to focus on the act of driving, and promotes a sense of walkability by ESTABLISH DESIGN STANDARDS FOR PLACEMAKING.
creating inviting and interesting places. The sense of place that is created can
promote economic development through development of different commercial Having thoughtful design standards that are flexible and responsive to the
opportunities, while also adding safety measures for pedestrians through diverse conditions of Lexington is an essential component of moving toward a
natural surveillance or “eyes on the street.” While historically, the concept of community filled with inviting and interesting places that are memorable. Such
eyes on the street safety was questioned and empirical studies were lacking, standards are needed for the benefit of government projects involving public
several recent studies by the University of Pennsylvania and the University of spaces, as well as for private entities striving to build quality developments
Illinois show the reduction of crime, specifically violent crime and theft, for on adjoining private lands. Without comprehensive standards that address
areas that include active street frontages. both the public and private realms, even hard work and the best intentions
will frequently not result in the high level of quality placemaking that the
The same principles of street activation that are applied to the built environment community expects and deserves.
must also be applied to our parks, greenways, and other natural areas. Many of
these more naturalized environments have been disregarded or placed to the Creating vibrant and inclusive public spaces requires the consideration of
rear of properties in areas that have little to no accessibility and activity. The various design elements that promote diversity, equity, and accessibility.
historical placement of these spaces creates two different issues. First, if a This involves designing accessible streets and walkways, fairly distributed
park or open space is situated to the rear of properties, access is often limited green spaces, and stormwater management practices that benefit everyone.
or there is a feeling that it is part of someone else’s property and a potential Additionally, fostering a diverse street life and art scene, celebrating cultural
user is trespassing. This minimizes the utilization of community spaces and heritage and diversity through events and festivals, and providing accessible
can ultimately result in property owners expanding into and coopting these transportation options are crucial. In the private realm, designing buildings
public spaces, which can also negatively impact environmentally sensitive that cater to diverse communities, integrating mixed-use spaces, and
areas. Next, without public activity within community spaces, there is a higher promoting equitable access to housing and amenities are also essential for
potential for the degradation of these spaces, as well as the potential of creating thriving and resilient communities. To achieve the best outcomes
crime or unsafe activities. The eyes on the street principles still apply when for public spaces, it is important for both public and private entities to work
reviewing the development of parks, greenways, and naturalized areas. collaboratively towards common goals. Through public-private partnerships,
diverse perspectives and expertise can be integrated to develop and maintain
In addition to visibility into and activity within parks, greenways, and other public spaces that serve the needs of all community members.
more natural areas, inclusion of focal points into these areas can add to the
sense of place. Whether that is through the inclusion of playgrounds, public Historically, government regulations and policies relating to development
art, or interpretive signage (signs for species of plants, trees, etc.), the use of have been fairly rigid and not responsive to diverse conditions. Also, in many
an active landscape can create more attractive spaces, while promoting public instances there are conflicting goals between different arms of government
engagement and dissuading inappropriate activities. There are numerous that ultimately discourage, rather than encourage, the creation of unique

188 | THEME D IMAGINE LEXINGTON 2045

 PLACEMAKING POLICY #4
CREATE QUALIT Y & USABLE OPEN SPACE FOR ALL DEVELOPMENTS.

Whether a commercial development, place of employment, or residential

neighborhood, well-designed open spaces provide the physical setting
for people to gather and create a sense of community. Access to safe and
welcoming open spaces fosters better health through outdoor activity, and
open green space is key to addressing access to nature, improved air quality,
stormwater mitigation, and reduction of heat island impacts.

Following a directive from the 2018 Comprehensive Plan, a Zoning Ordinance

text amendment was created to address Lexington’s outdated zoning
regulations related to open space. After over two years of research and
community and stakeholder outreach, the new open space regulations were
unanimously passed by the Planning Commission and unanimously adopted
by Council in January 2023.

The new open space regulations (Article 20 of the Zoning Ordinance) require
small-scale, developer-provided and maintained open spaces to be located
within a ten minute walk of new development that provides 25 or greater
dwelling units or for commercial or industrial projects over three acres.
places. This discontinuity must change and regulations must be updated. The requirements ensure common open spaces are safe, visible, and usable
These elements of change, which will likely require amendments to the by people—not the patch of lawn behind the dumpster or inaccessible
Zoning Ordinance and Land Subdivision Regulations (and related regulations greenspace behind a row of houses. The new regulations also include
and policies), should be pursued with a high expectation of what needs to be requirements for vegetated areas, with developer incentives for innovative
accomplished as both public and private lands are developed. green infrastructure, like green roofs and rain gardens. It should be noted,
however, that the Article 20 regulations do not currently apply to any of the
While regulations must be modified to allow for placemaking to occur, 1996 Expansion Area Master Plan zoning categories.
without guidance on best practice, the development of desired places can
be hampered. Having thoughtful and flexible design standards is essential to To build upon this work, steps should be taken to enhance the usability of
creating inviting and memorable public spaces that promote diversity, equity, common areas through the provision of programmatic elements and amenities.
and accessibility. Without comprehensive standards that address both public Such elements can be play areas, active recreation areas, pedestrian scale
and private realms, even the best efforts and intentions may not result in the lighting, water features, integrated community-serving commercial uses, or
high-quality placemaking that communities expect and deserve. Collaboration other creative designs that create highly useful, visible, and accessible open
between public and private entities is crucial to achieving the best outcomes spaces with a sense of place and community. Additionally, modification to the
for public spaces, and government regulations and policies need to be Expansion Area zones should be reviewed to allow for greater activation of
responsive to diverse conditions and goals. As both public and private lands open spaces and to bring the zones in line with modern practices.
are developed, amendments to the Zoning Ordinance and Land Subdivision
Regulations should be pursued with a high expectation of creating thriving PLACEMAKING POLICY #4 PLACEBUILDER CRITERIA
and resilient communities that serve the needs of all community members. • D-PL4-1: Enhance open space through the provision of
By working together towards common goals, Lexington can create vibrant programmatic elements and amenities.
and inclusive public spaces that promote the wellbeing of all.

DIVISION OF PLANNING COMMUNITY | 189

PLACEMAKING POLICY #5 planning, design, and policymaking to create well-designed public spaces,
pedestrian-friendly streets, and mixed-use development. While cars may be
REVIEW ZONING ORDINANCE & SUBDIVISION REGULATIONS TO CREATE accommodated in walkable neighborhoods, they should not dictate the scale
MORE WALKABLE PLACES. or urban form.

The act of placemaking is intrinsic to the development of desirable To create the most walking-friendly places and streets possible, it is essential
neighborhoods (see Theme A). Neighborhoods are meant to be inviting, to consider five key elements of walking-friendly street design. These include
walkable, and accessible to neighborhood services and facilities. A focus ensuring enough space for walking, creating a safe environment, designing
on creating pedestrian-friendly streets and walkable blocks that make streets to be attractive for pedestrians, connecting streets and places to
traversing through neighborhoods on foot a desirable activity is essential. By the rest of the city for pedestrians, and prioritizing pedestrian-friendly
reducing setbacks and shortening block lengths, the walking experience will policies and practices. By prioritizing pedestrian-friendly design and policies,
be easier for people to get around their neighborhoods and access to public Lexington can create more accessible, attractive, and livable communities for
and private amenities will be more attainable and attractive. everyone.

In order to promote more walkable places, it is necessary to revise the It is worth noting that humans are wired to focus on what is in front of
Zoning Ordinance and Subdivision Regulations. The development of excellent them, which means that the street-level experience is crucial to a building's
neighborhoods should prioritize the creation of streets and blocks that are accessibility and appeal. As such, a building's height is less important than
friendly to pedestrians and easy to traverse on foot. While Theme A underscores creating a rich and accessible street-level experience that includes great
the need for developers to submit plans addressing this issue, Planning and ground floors, flexible retail spaces, and residential stoops.
other divisions should also address regulations that could impede pedestrian-
friendly development. This requires a multidisciplinary approach that involves PLACEMAKING POLICY #5 ACTION ITEMS
1. Update the business zones to create more walkable commercial
opportunities.

PLACEMAKING POLICY #6
PROMOTE A MORE RESILIENT POWER GRID WHILE MAINTAINING
URBAN CANOPY AND ENHANCING THE VISIBLE CHARACTERISTICS OF
LEXINGTON.

Over the course of the last 20 years there have been numerous storm events
that resulted in major power outages, the most recent of which occurred in
March of 2023. The anticipated increase in frequency and intensity of storms
caused by climate change puts a greater onus on the need to promote a more
reliable and resilient grid system. While the extreme cost of replacing above
ground electric and internet lines has been an oft quoted rationale for keeping
lines where they are, the cost for not burying facilities can also result in
major costs for users over time. The March wind storm knocked out power for
approximately 380,000 customers, with many losing power for five days. The
lack of power impacts community members’ ability to live and work, and can
result in major damage to properties. The Environmental Quality and Public
Works Committee have been presented with information from providers
regarding making our grid more resilient, including the burying power lines,

190 | THEME D IMAGINE LEXINGTON 2045

vegetation management, overhead hardening (stronger poles, wider cross- expenses from all facets of the development process.
arms, larger covered lines, etc.), and distribution automation.
From the very beginning, applicants should clearly lay out the physical
While vegetation management has been a recent focus of providers within limitations and economic realities of their property, and neighbors should
Lexington and elsewhere, there is a growing concern that the impacts of express the needs and desires of their community. Going forward, there is
vegetation management can negatively impact Lexington’s tree canopy. The an expectation that applicants and neighborhoods will engage in good faith in
concerns regarding the topping of trees or the destruction or clearcutting of a visioning process regarding how the needs of the developer, surrounding
trees within the public right-of-way and on private property raises issues neighborhoods, and the community as a whole can be met.
regarding removing one important piece of infrastructure, tree canopy, to
promote another piece of infrastructure. Retaining trees within Lexington is The first steps in the creation of a more collaborative system have been
imperative in reducing the heat island effect, which has a complementary developed by the Planning Commission via The Placebuilder page 261 and the
impact by reducing the drain on our power grid during summer months. The Urban County Government via AgencyCounter (lexingtonky.agencycounter.
City must continue to work with providers to provide a vegetation management com). A key purpose of The Placebuilder is to start the conversation between
program that protects our valuable infrastructure and habitat. developers, neighbors, and Planning Staff by strongly encouraging engagement
at the beginning of the process and providing guidance for development
In addition to developing a more resilient city in the face of major storm justifications. AgencyCounter is an online application that allows anyone
systems, there is also the negative visual impact that overhead power and with an account to track and review development activity throughout Fayette
internet lines have within the city. There are many examples throughout County. The application allows users to create alerts regarding development
Lexington of wires that hang down within the right-of-way, of doubled electric in their area and provides an efficient way to track the status of projects
poles, and electric poles that are not serving a purpose, but are still within the from Development Plan submittal to Certificate of Occupancy. In addition to
public right-of-way. Additionally, alternative overhead hardening practices these tools, Planning Staff is always be available in a support role to explain
promoted by providers can distract from neighborhoods rather than promote process, the Zoning Ordinance, and agreement with the Comprehensive Plan.
the built and environmental context. The City must work with the providers to
eliminate issues that negatively impact the public right-of-way and distract In 2022, an online One Stop Shop was established to assist the public by
from the beauty of Lexington. providing easy to find information regarding zoning, the development process,
and permitting fees and procedures.
PLACEMAKING POLICY #7 There are numerous remaining action items from the Public Engagement
Toolkit that should be further considered and implemented. Community
CULTIVATE A MORE COLLABORATIVE PREDEVELOPMENT PROCESS feedback has indicated that the Planning Commission and Staff should look
BY IMPLEMENTING THE RECOMMENDATIONS OF THE PUBLIC at ways to make meetings more accessible to a broader audience by looking
ENGAGEMENT TOOLKIT. at when meetings are held and in what format. Meetings held during the
COVID-19 Pandemic were online and took community input in that fashion
In 2020, the Planning Commission created the Public Engagement Toolkit,
as well. Exploring ways of allowing a combination of in-person and online
a resource guide that outlines best practices for improving communication
meetings or hearings has logistical and legal issues, but is something the
and outcomes in the development process. Often when developers submit
community supports.
proposed developments, affected communities hear about them for the first
time when they receive the required public notice. Though some developers Additional efforts should also be made to improve and evolve how information
do communicate in advance, it does not always result in a productive regarding ongoing development activities is shared. It is imperative that
conversation. By utilizing the strategies outlined within the Public Engagement further analysis be conducted and potential new solutions implemented to
Toolkit, developers can ensure community awareness and build support from best provide public notice regarding ongoing development activities and
the outset of a project. The results of engagement that is started early and government-led initiatives. Utilizing community groups like CivicLex to
continued throughout the process can save considerable time and reduce partner in enhancing public notice, as well as soliciting input and feedback

DIVISION OF PLANNING COMMUNITY | 191

would significantly improve upon the statutory requirements and greatly the space, and those tactical placemaking projects can transform an area.
exceed the outcomes that local government could achieve on its own. Positive impacts may be slow to materialize, but they often come at a much
lower cost. This form of placemaking can also be used to build consistent
PLACEMAKING POLICY #7 PLACEBUILDER CRITERIA demand for more substantive or long-term standard, creative, or strategic
• D-PL7-1: Stakeholders should be consulted to discuss site placemaking projects or activities.
opportunities and constraints prior to submitting an application.
The NoLi CDC’s Night Market is an example of tactical placemaking that
PLACEMAKING POLICY #8 has moved beyond the lower investment high impact process to become
an established part of the community. The initial program activated an
DEVELOP A TACTICAL PLACEMAKING PROGRAM WITHIN THE DIVISION underutilized public space, created a buzz around an area of Lexington, and
OF PLANNING TO WORK WITH INTERESTED NEIGHBORHOODS & AID IN then was instilled in a more formalized space with the creation of the Julietta
THE ORGANIZATION OF ACTIVITIES. Market within the Greyline Station Adaptive Reuse Project. The essence of
the Night Market is still being acted upon with monthly “Clock Parties,” which
According to Placemaking as an Economic Development Tool by Michigan expands the Juliette Market onto the sidewalks surrounding the development
State University, “tactical placemaking” is a process of creating quality places and promotes local artisans and craftspeople.
that uses a deliberate, often phased approach to physical change or new
activation of space. The process begins with a short-term commitment and The recent changes to Lexington’s parking minimums and the development
realistic expectations that can start quickly (and often at low cost). It targets of the street café ordinance can allow for more of tactical placemaking
public spaces (right of way, plazas, etc.) that are low risk, with the possibility projects to occur and can help revitalize areas of development that were
of high rewards. It can be used continuously in neighborhoods, with the previously underutilized. Interested neighborhoods and business owners are
involvement of many stakeholders. It includes a mix of small projects and encouraged to initiate similar activities.
short-term activities, which over a long period of time can become part of
To increase communication between the Division of Planning and
neighborhoods, Planning should create an internal tactical placemaking
program. This program will require additional staff and a budget for materials,
but that investment will improve sense of place for neighborhoods, create
community-building opportunities, and increase awareness of planning issues
in neighborhoods through educational materials and interaction. Initiating
low-cost neighborhood pilot projects that can lead to permanent installations
and grant opportunities should yield a high return on the investment.

PLACEMAKING POLICY #9
HONOR LEXINGTON’S HISTORY BY REQUIRING NEW DEVELOPMENT
& REDEVELOPMENTS TO ENHANCE THE CULTURAL, PHYSICAL, &
NATURAL RESOURCES THAT HAVE SHAPED THE COMMUNIT Y.

Lexington’s history can be told in many ways, but none better than to look
around and see the cultural places, the significant structures, and the natural
landscapes that helped shape this community. In order for the community to
continue to move forward, there must be recognition of the importance of
the past, while promoting and enhance the area to ensure that it lives on for
future generations.

192 | THEME D IMAGINE LEXINGTON 2045

 that are, in many cases, indefinable. These buildings, neighborhoods,
rural landscapes and other places are resources that are important
to protect and preserve.

2. Cultural Tourism, which includes historic, cultural, and preserved

sites, is one of the major reasons that people travel to selected
destinations. The rich historic and cultural heritage of Lexington
includes a variety of sites making it a prime destination for cultural
tourism.

3. Economic Benefits from historic preservation accrue in a variety

of ways. Federal and State Historic Tax Credits may be available as
an incentive for historic restoration and to offset some of the costs.
Preserved buildings can be put to use as economic generators, for
both public and private use, as the renovated Courthouse Square
demonstrates.

4. Community Pride & Accomplishment are byproducts of preservation

efforts as citizens of the community become involved in projects that
protect or enhance important symbols of their heritage.

Lexington has protected assets through National Register designation of

historic districts (26), landmarks (3), and individually listed properties.
Lexington has a rich and diverse cultural history that began before statehood. Numerous other structures throughout the community have been voluntarily
This heritage is evidenced in the natural environment of the County’s rural preserved, and recognized by the Blue Grass Trust for Historic Preservation,
landscape and the built urban environments of its urban areas. The cultural a local non-profit organization that strives to protect, revitalize and promote
landscape includes agricultural and horse farms, landscape features, barns, the special historic places in our community in order to enhance the quality
outbuildings, fences, and archaeological sites. Historic and architecturally of life for future generations.
significant buildings are important in that they create a unique place to live and
Lexington designated its first local historic district in 1958, with the protection
work. A well planned community incorporates both the new and the historic;
of Gratz Park, a small near-downtown neighborhood between West Second
a balance that attracts businesses, residents, and tourists who seek a unique
and West Third Streets. Since that time, 15 districts and two landmarks
environment. Historic properties and sites are resources that provide citizens
have been so designated, and are under the jurisdiction of the Board of
not only with places to experience and enjoy, but also economic development
Architectural Review. The districts are as follows: Ashland Park, Aylesford,
and tourism opportunities.
Bell Court, Cadentown, Constitution, Elsmere Park, Fayette Park, Gratz Park,
The preservation of historic buildings, neighborhoods, landscapes and other Mulberry Hill, Northside, Penmoken Park, Seven Parks, South Ashland/
cultural resources provide benefits to the citizens that in many ways cannot Central Avenue, South Hill, Western Suburb, and Woodward Heights. The two
be measured. These benefits include: locally protected landmarks are Helm Place in the Rural Service Area and
St. Paul A.M.E Church located on N. Upper Street near West Third Street. The
1. Sense of Place provides a visible symbol of our heritage, a community has continued to designate local historic districts at the pace of
connection to the past, and a source of pride. Historic buildings, about two per decade, and in recent years, even expanded the Western Suburb
neighborhoods, significant rural landscapes and other places have local historic district. Although local historic district designation is one way
unique characteristics, define the community, and have qualities to protect historic structures and the neighborhoods that surround them, the

DIVISION OF PLANNING COMMUNITY | 193

 are expensive to maintain; however, stone fences have also been found within
central Kentucky farms, and such fences should be identified and preserved
because they are an important asset to the cultural history of the community.

While Lexington should continue to promote the preservation of our historic

districts and structures, there must also be a focus on helping owners and
renters with the costs of preservation activities. While the establishment of
historic districts typically increases the value of a home, there are implications
on the cost of materials for homeowners when there are needed repairs. The
financial impact of repairs can result in properties either falling into disrepair
or forcing owners to sell. The Federal and State governments have recognized
the potential insecurity that these programs can have on households and,
in an effort to maintain important historic areas, have provided resources
that can help owners with costs of repairs (tax credits, grants, low interest
loans, etc.). These programs should be promoted and the City should work
with households and landlords to couple these funding sources with other
funding opportunities like Low Income Housing Tax Credits (LIHTC), which
would promote economic diversity within historic neighborhoods.

PLACEMAKING POLICY #10

community should continue to work to encourage preservation of structures COORDINATE WITH NON - PROFIT ORGANIZATIONS TO DESIGNATE
that have value within the community, and to support adaptive reuse or PUBLIC ART EASEMENTS ON NEW DEVELOPMENT.
incorporation of such structures into redevelopment projects. Consideration
should also be given to existing historic neighborhoods that are adjacent to The creation of the adaptive reuse ordinance in 2008 was the first time the
proposed development. Infill and redevelopment projects should take extra Zoning Ordinance considered any provision for public art on private property.
care to acknowledge the architectural character, materials, height and mass, Since that time, public art in Lexington has become a substantial part of the
scale and connectivity of historic neighborhoods, and create developments urban fabric. The installation of numerous pieces of art, including the Stand
that enhance these areas. statute along the Town Branch Commons, the painting of Sweet Evening
Breeze on North Limestone, and the Horse Mania event are examples of how
A number of roadways throughout the community have been recognized for art activates spaces, created interest in the community, and celebrates the
their cultural and scenic value. Such designation includes scenic byways, stories of Lexingtonians. Having the non-profits work with HOAs, neighborhood
historic turnpikes, scenic roadways and corridors, and rural scenic roads. groups, or businesses to designate locations in existing development, as well
These corridors are a critical asset to the community’s aesthetic and branding as rotate public art installations for display, would assist those groups that
as the Horse Capital of the World, and should continue to be protected are interested in supporting the arts, but are not sure where to begin. Further
through building setbacks, maintenance of stone fences and preservation of engagement with the LexArts or other entities to curate areas designated on
tree canopy, all of which add to the quality of these roadways and corridors. development plans for public art would allow for the promotion of new artists
in the community and keep those spaces fresh and popular for visitors.
Stone fences continue to be a resource along rural corridors, and even within
the farms around the community. These limestone fences were built by hand, PLACEMAKING POLICY #10 ACTION ITEMS
many by enslaved peoples, and have been used in new developments to create 1. Initiate discussions with the public art partners about potential
a connection to the past. Such fences are often on state rights-of-way and ordinance revisions to increase public art opportunities.

194 | THEME D IMAGINE LEXINGTON 2045

PLACEMAKING POLICY #10 PLACEBUILDER CRITERIA 2045: Projects was added to allow greater utilization of Lexington’s industrial sites
• D-PL10-1: Activate the streetscape or publicly visible areas by that are outside of our oldest areas of town, but are no longer appropriate due
designating public art easements in prominent locations. to their location.

PLACEMAKING POLICY #11 While there is still the need to continue the work to create vibrant places
of activity by converting the less operable industrial spaces to community
UPDATE THE ADAP TIVE REUSE ORDINANCE. and entertainment serving land uses, it is also time to look at Lexington’s
older, yet still viable, structures in other zones. The next potential spaces to
The creation of the adaptive reuse provisions in the Wholesale/Warehouse and review for adaptive reuse are our historic commercial and community serving
Industrial zones was a boon to Lexington’s economy. Adaptive reuse projects structures (churches, offices, etc.). There are numerous buildings throughout
are typically located in areas of industrial development where the original the urban service area that are viable, but are less desirable due to the cost
land uses are no longer appropriate due to the lack of proximity to major of conversion and the cost of a zone change to allow for greater land use
freight corridors. While most modern zoning seeks to separate residential flexibility. By eliminating the zone change process and the inherent cost for
and industrial land uses, many of these older industrial sites are located very projects, developers can focus their efforts on the development of the site
close to well established neighborhoods, because, historically, it allowed itself. This has an added benefit for the developer, from a cost perspective,
employees to easily walk to their job. Over time, some of these places were while also being a benefit for the community. The reuse of these structures
long forgotten by the public and written off as “old industrial areas”, or worse, allows for the maintenance of the built context within neighborhoods and
perceived to be vacant brownfields or blighted areas that residents feared to is more sustainable, as the greenest building is often the structure that is
drive through. However, there were others in the community who had a vision already there.
for renovation and reinvigoration of these areas, but were hampered by strict
zoning requirements. PLACEMAKING POLICY #11 ACTION ITEMS
1. Review Adaptive Reuse Ordinance to consider additional zones.
In 2008, Lexington adopted the ordinance to create specialized Adaptive
Reuse Projects , which allowed underutilized areas to find new life as retail, PLACEMAKING POLICY #12
residential and commercial space, softening the blow to the local economy by
relatively quickly returning that land to productive and desirable land uses. ANALYZE UNDERUTILIZED COMMERCIAL PROPERT Y THROUGH
The creation of the Distillery District, the West Sixth Brewery, and the National CORRIDOR LAND USE & TRANSPORTATION STUDIES.
Avenue Warehouse District were all the direct result of this ordinance change.
Each of these projects foster entrepreneurial development and support local The goals and objectives of Imagine Lexington very plainly call for an
businesses that blend the production of goods with neighborhood supporting intensification of the major corridors. Other proposed policies throughout
and entertainment land uses. However, as Lexington grew and new the document have taken aim at the regulatory side of the equation. Another
opportunities arose, the ordinance needed to be amended again to allow for critical aspect of this policy framework is to engage the public along these
increased opportunities, correct deficiencies, and promote the enhancement corridors about these issues and what forms these intensifications may take.
of neighboring properties. The Division of Planning has already begun meeting with various commercial
landowners, developers and property managers about their visions for their
In 2021, the City updated the Zoning Ordinance to modernize the Adaptive sites and how they can take advantage of the already modified zoning tools.
Reuse Project and added the Industrial Reuse Project. The modification of the
Adaptive Reuse Project was specifically tied to the unintended consequences Since the adoption of the 2018 Comprehensive Plan, corridor plans have been
of the development of these sites, including a greater focus on pedestrian an ongoing partnership between the Division of Planning, the Metropolitan
connectivity, preventing the expansion of project areas to non-contributing Planning Organization, the Kentucky Department of Transportation and the
properties, and increasing amenities associated with the projects. Additionally, respective corridor’s numerous stakeholders about future land uses and
whereas the Adaptive Reuse Projects allowed for the reuse of structures and transportation needs.
sites within the defined Infill and Redevelopment Area, the Industrial Reuse

DIVISION OF PLANNING COMMUNITY | 195

In May of 2021, the Imagine Nicholasville Road corridor plan was adopted and should be a priority for Lexington. First and foremost, the master plan
as an element of the Comprehensive Plan. The plan set forth a number provides an updated, clear vision and direction for Lexington’s downtown area
a recommendations to prepare for redevelopment and transportation and serves as a roadmap for future growth and transformation. It provides
investment. Implementation began in 2023 with a next step feasibility project a framework for land use, zoning, and urban design, ensuring that new
to analyze options for the establishment of Bus Rapid Transit (BRT) along the developments align with the city's vision and contribute to a cohesive, vibrant
corridor. The future of Nicholasville Road does not include additional driving downtown. This strategic approach helps attract investment and stimulate
lanes, but instead a focus on how to move additional people more sustainably economic development. It creates a positive environment for businesses,
and efficiently. Additional implementation projects that focus on land use and developers, and entrepreneurs by providing certainty and clarity about the
zoning will be vital to realizing the vision laid out in the plan as well. city's expectations and development objectives.

In June of 2023, the Imagine New Circle Road corridor study was also adopted Furthermore, an updated master plan can integrate principles of resilience
as an element of the Comprehensive Plan. The plan identifies needed roadway and sustainability into downtown development. It can address environmental
improvements, establishes corridor design guidelines, and recommends considerations, energy efficiency, green spaces, and climate adaptation,
specific zoning regulation changes. The study also creates mechanisms creating a more sustainable and resilient downtown. An up-to-date
for better integration with adjacent residential neighborhoods, which have master plan also facilitates coordination and collaboration among various
historically been separated from the corridor. stakeholders. It promotes a unified approach to downtown development and
encourages partnerships for successful implementation.
Continuing public involvement will be critical to cultivating buy-in, just as it
has been on every previous small area plan. Of the utmost importance will be Without an updated plan to guide the development, infrastructure, and
setting milestones to achieve a level of commercial and residential intensity services needed to support downtown growth, Lexington risks missing
to support mass transit along these corridors. The goal will be to think big out on opportunities for sustainable development, economic vitality, and
and for the long-term, while allowing policymakers to act incrementally.
These studies will very likely continue over the next 10 to 15 years, with
implementation lasting even longer. However, the guidance of these studies
will be long lasting for LexTran and the property owners in how they plan
their future growth and development.

PLACEMAKING POLICY #13

UPDATE THE DOWNTOWN MASTER PLAN.

Lexington's existing Downtown Master Plan was finalized in 2007, which

means it has been over fifteen years since its adoption. The plan primarily
concentrated on outlining specific projects and suggesting infill locations.
However, many of the identified projects have either been completed or
abandoned due to various reasons. Moreover, the plan's broad emphasis on
identifying infill lots offered limited guidance on the desired development
approach for those properties. As a result, there is a pressing need for a more
refined approach that considers land use and architectural form, as well as
a thorough examination of how infill projects can seamlessly integrate with
and enhance surrounding areas.

Creating an up-to-date downtown master plan offers several key benefits,

196 | THEME D IMAGINE LEXINGTON 2045

improved quality of life. Therefore, it is crucial for Lexington to prioritize
the creation of an up-to-date downtown master plan. This plan should
not only address the immediate needs but also establish a timeline for
future reviews and updates to ensure its ongoing relevance. By doing so,
Lexington can better reflect the evolving needs and aspirations of the
community, providing a strategic framework for future development and
guaranteeing a dynamic, thriving downtown for years to come.

PLACEMAKING POLICY #14

DEVELOP A NEW CIT YWIDE FESTIVAL TO ENTICE VISITORS &
PROVIDE ADDITIONAL DRAW DURING THE TOURISM OFF - SEASON.

The 2023 Kentucky Festival Guide lists thirty-nine festivals in Lexington,

with only one festival, the Land Rover Kentucky Three-Day Event, making
the top twenty festivals in Kentucky. In comparison, Louisville has the
world-renowned Kentucky Derby, which has been a staple since 1875,
with an economic impact of about $400 million and an average attendance
of over 150 thousand. Moreover, less than an hour north of Lexington,
Cincinnati hosts the Blink festival, which attracts over two million visitors
diverse programming and outreach efforts, Lexington can celebrate its
from all over the world, with an economic impact of about $126 million.
rich cultural heritage and diverse population, while attracting visitors
In Lexington, festivals like Railbird Music Festival, Roots and Heritage, from all around the world. With a large marketing effort, Lexington can
Festival Latino de Lexington, St. Patrick's Day Parade and Festival, Pride, follow through with a world-class festival that could have widespread
and Woodland Art Fair draw thousands of attendees. Lexington can build national and international appeal.
on or collaborate with these festivals to develop a major citywide festival.
As many communities worldwide have unique festivals that draw visitors PLACEMAKING POLICY #15
from around the globe, Lexington can determine the focus of the festival
based on its internationally recognized quantities in the horse and REDUCE / DISCOURAGE VEHICLE - ORIENTED DEVELOPMENT
bourbon industries. Thus, Lexington can provide a unique and authentic PAT TERNS, SUCH AS DRIVE - THROUGH BUSINESS AND GAS
experience for its visitors. STATIONS, WITHIN NEIGHBORHOODS AND THE URBAN CORE.

It's crucial to note that diversity is a critical aspect of any community Over the course of the last five years, the City has amended regulations
celebration or festival. Lexington's cultural festivals like Roots and to promote more walkable development. Regulations now discourages
Heritage, Festival Latino de Lexington and Pride exemplify the City's large swaths of parking with little buffering, encourage pedestrian and
diversity by celebrating and honoring the different cultures and identities bike connectivity, and promote greater connections to transit facilities.
that make up the community. Incorporating diverse elements into a Continued review of land uses in terms of walkability and the promotion
festival, such as food, music, art, and other cultural expressions, can of Place-Types must also be reviewed, including but not limited to
make the event a celebration of not only the community's unique identity, discouraging vehicle oriented development patterns, drive through
but also of the broader human experience. businesses and gas stations, in areas that are meant to be pedestrian
focused.
To create an inclusive and engaging festival, it's essential to ensure
that all members of the community feel welcome and included. Through Over the last 20 years, there has been a trend in the retail and restaurant

DIVISION OF PLANNING COMMUNITY | 197

industry towards drive-through facilities. Whether it is the parent seeking restaurants, which both often utilize drive-through facilities, the servicing and
to grab food for the family between work, afterschool programs, or other refueling of vehicles is the primary purpose. In additional to the air pollution
community engagements, or someone trying to grab a coffee while taking caused by the cycling and fueling of vehicles, there is also an emerging noise
a road trip, the drive-through facility provides people quick and convenient impact caused by bright video screens and amplified outdoor speakers in
options. The shift to this model of consumption was only heightened during newly constructed and remodeled gas and convenience stations. This new
the COVID-19 pandemic, as people were seeking to grab food or goods on the technology has been causing issues where theses land uses are adjacent to
go, without the need for social or physical interaction. While the shift to this lesser intense land uses.
model of consumption is and will be part of the commercial landscape, the
negative impact on the community caused by the proliferation of such land Creating and promoting walkable spaces in neighborhoods and Lexington’s
uses must be reviewed. urban core requires a thorough reconsideration of allowable land uses
within those areas, including drive-through facilities and fueling stations.
The negative impacts caused by drive-through facilities can be boiled down The City must better define the conditions and locations where vehicle
to three primary concerns: air pollution, congestion/access management, oriented development is appropriate so that it can be successfully and safely
and pedestrian/cyclist safety. Recent studies have shown that there are incorporated, without negatively impacting pedestrian infrastructure and
significant environmental impacts caused by drive-through facilities. Vehicle neighboring development.
idling for greater than 10 seconds uses more fuel and produces more CO2
compared to turning off the vehicle and restarting the engine. The negative PLACEMAKING POLICY #15 ACTION ITEMS
impacts of idling have continued to climb, as individuals are willing to wait up 1. Update Zoning Ordinance regulations for business zones.
to 13 minutes for goods in drive-through and pick up lanes. The air pollution PLACEMAKING POLICY #15 PLACEBUILDER CRITERIA
caused by idling has led to the development of new technologies that control • D-PL15-1: Drive through facilities and gas stations should not be
fuel consumption when a vehicle has been idling for greater than 30 seconds; within neighborhoods or the urban core.
however, this advancement in technology does not mitigate the effects of long
idle times. Avoiding unnecessary idling is a universal approach to reduce the
environmental impact of vehicles.

Additionally, drive-through facilities can have extensive negative impacts on

the surrounding transportation networks. Recent studies have proven that
the quantity of commercial access points on urban roadways increases crash
rates. This is largely tied to two factors. First, any unregulated access points
onto roadways creates potential points of conflict (vehicle to vehicle, vehicle
to pedestrian, vehicle to cyclist). Access management is key. By funneling
all access from commercial development to predictable points of access/
egress, there is a greater awareness of potential conflicts by drivers. Next,
drive-through facilities have historically been designed solely for vehicular
use, which is reflected in motorist behavior. The creation of space for vehicles
only often causes conflicts with pedestrians who are walking on sidewalks,
as well as those who have parked in the businesses parking lot to go to the
business. Design can mitigate some of the complacency caused by drive-
through facilities (i.e. location to the rear of buildings, clear separation
between public and private spaces, calming devices, etc.), but proper location
of the land use is equally important.

Similar to drive-through facilities, gas stations are an essential part of

infrastructure within our community, but can result in negative impacts to
both the environment and the adjacent transportation network. While there
has been an increasing reliance on convenience stores and associated

198 | THEME D IMAGINE LEXINGTON 2045

PILLAR III SUPPORT
Traditional comprehensive plans focus on how different public facilities
provide the infrastructural backbone on which development occurs. While
these obvious improvements are often apparent to the casual observer and
create a more desirable space (trail networks, stormwater improvements,
safer roadways), there are also many other policies that can provide the
less visible, but equally important supportive facilities, which are targeted at
providing opportunities and protecting those with the least. Within the first
two pillars of Theme D, Imagine Lexington discusses some of the needed
facilities or crucial infrastructure that creates the base for building a
desirable community. Within the Support Pillar, Imagine Lexington discusses
the supportive services that truly make a livable and desirable community
for all. Education, healthcare, public safety, and social services are among
the facets of a community that can truly determine Lexington’s success,
long-term viability, and ability to retain and attract residents, visitors, and
employees.

To ensure a desirable and just community, which recognizes the ongoing

social and geographic inequalities, Lexington must advance support
policies that can have a positive impact on all members of the community.
Acknowledging some of the harmful implications of historic planning policies
(redlining, active/passive displacement, infrastructural disregard, etc.), the
City must make intentional and tangible policy changes that can provide a schools and other services. Alternative modes of transportation should be
more desirable community for all. However, it is imperative to not separate encouraged via walking and biking for those living nearby. To ensure these
the policies or consider each of them a cure-all for incredibly complex issues. new concepts are effective, the sites must be designed appropriately with
Support policies are intersecting elements, which must be viewed in context. pedestrian accessibility as a priority.
Early in Lexington’s formative years, this city earned the reputation as the Site design is fundamental to the integration of new or expanded school sites
“Athens of the West” for its advanced culture and educational offerings, into a neighborhoods. The integration of those facilities must be harmonious
illustrating that the City has always placed a priority on providing a quality with the surroundings, promote the protection and safety of students, and
education. As more people came to the region, different educational provide an engaging and calming space that fosters learning. Continued acts
facilities were established and, beginning in 1949, educational opportunities of violence directed at children within United States demands that Lexington
in Lexington were available to a more diverse population. While times and ensure the security of its facilities. Fayette County Public Schools have been
educational methods have changed over the years, schools still play a pivotal very sensitive to issues of school safety, resulting in different county and state
role, not only in imparting knowledge to young students, but also as centers safety plans. These plans enable quick response by local first responders
of activity and neighborhood cornerstones. to crises. While there are different physical designs for safer schools, it
is critical to avoid walling schools off entirely from the community where
As Lexington continues to grow, additional school facilities will be required
they reside. Schools should continue to be welcoming spaces conducive to
to educate the growing population of school-aged children. It is projected
learning and should avoid becoming cold institutional spaces. Additionally, the
that Lexington’s K through 12 grade population will increase by greater than
incorporation of natural components into new school designs is important,
7,000 students by 2045. New schools to support these students will be places
as they provide relief from an often bustling urban area and foster calming
of instruction, recreation, after school activities, and community gathering
effects that support mental health for students.
spaces, and must be accessible, with connections to the neighborhoods.
Access and transportation is key for connecting students and families to

DIVISION OF PLANNING COMMUNITY | 199

 integrated approach, many individuals will relapse, be reliant on the system,
or be left in unsafe situations. Programs are needed that provide permanent
housing solutions, transitional housing, temporary housing, substance use
prevention, and harm reduction strategies that promote healthy and safe
outcomes.

While more services are needed, ensuring access to social services to the
populations that need them is critical. A great many of the individuals requiring
services for substance abuse, homelessness, etc., rely on public transit or
alternative means of transportation. It is imperative to ensure services are
adequately served with transit, as it has been reported that there are marked
increases in customers for supportive services after scheduled Lextran drop-
off times nearby. It is also important to provide extra care and thought into the
pedestrian accommodations surrounding these sites and the destinations to
which they might connect. It is incumbent upon the city to provide safety for
this clientele that is more likely to utilize these other modes of transportation.

Another strong support element for Lexington is access to the healthcare

industry. This sector of Lexington’s economy has continued to see strong
growth in both the public and private realm since the 2018 Comprehensive Plan.
Over the course of the past five years there has been extensive construction
of medical facilities throughout Lexington. The Lexington Clinic completed
As the City provides educational and community resources to our developing
several new buildings on their campus, with two new structures planned for
populations, Lexington must also consider the needed resources that support
over the next three years. In 2020, Baptist health started construction of a
aging adults, our largest population segment. The demographic trends show
new campus located on Polo Club Boulevard that will include an emergency
that seniors will continue to be the fastest-growing sector of the population.
room, cancer center, outpatient surgery center, and diagnostic imaging and
In anticipation of the growing aging population in Lexington, the City plans to
physician offices and is anticipated to open in 2024. Similarly, the University of
add a new community facility targeted at providing services and activities on
Kentucky Heath Care is planning a $2.4 billion expansion of facilities to serve
the south side of town in Shillito Park. New and dynamic support services for
both local and regional patients. The UK Health Care expansion will include
the aging population will only become more important as Lexington continues
the expansion of Chandler Hospital, and the Kentucky Children’s Hospital, as
to grow.
well as new facilities located in underserved areas, including a large facilities
In addition to ensuring Lexington’s youngest and oldest populations are located on Polo Club Boulevard. The expansion of health services across
provided with safe and accessible resources, it is imperative to make certain many areas of Lexington is important in improving access to healthcare in
that Lexington’s other vulnerable populations are a priority, and needed general.
social services are accessible and available. Domestic violence, abuse
While physical access to support services is essential, over the course of
of prescription and illegal drugs, physical and mental health struggles,
the COVID-19 pandemic, digital access to services became equally essential.
and homelessness continue to be real issues in Lexington, and should be
The provision of high-speed and high-quality internet became an imperative
recognized and addressed head-on. The City and a number of non-profit
element for everyday life including work, school, and entertainment. In 2017,
and faith-based organizations are offering quality services in a variety of
LFUCG announced that a new internet service provider, MetroNet, planned
ways, but there are improvements that can be made, as the issues are often
to build out a city-wide fiber optic network, which would provide additional
overlapping and become exacerbated over time. It is crucial to treat the root
competition to the city’s traditional single provider model. While the provision
problems and not only address the symptoms. Without a more robust and
of the fiber optic network has reached the whole of the urbanized area,

200 | THEME D IMAGINE LEXINGTON 2045

establishing adequate infrastructure for our rural area is essential to ensure can accommodate the bus and vehicle traffic associated with the site.
Lexington is a resilient community.
Site design for publicly owned properties, whether they be government
The final element of support that must be discussed are the services properties, utilities or public schools, require a Public Facility Review (PFR) to
surrounding our changing climate. Lexington has already experienced some determine compliance with the Comprehensive Plan. Typically, an applicant,
of these changes including increased storm intensity, and dramatic shifts such as Fayette County Public Schools (FCPS), Bluegrass Field (airport) or
in temperature. The US Environmental Protection Agency reported that the other public entity, provides a site plan, along with a detailed description
impacts of climate change will impact everyone, regardless of socioeconomic of the project, for the Planning staff to review as it relates to the current
status. However, a growing amount of data and literature shows that Comprehensive Plan’s goals and objectives, as well as text. At this stage in the
socially vulnerable groups (low income, minority, and aging populations) process, the staff reviews the general land use and the site design. FCPS and
disproportionately experience the risks that are caused by climate change. Planning staff always communicate during the Public Facility Review process;
New services that reduce the risk of the effects of climate change must however, prior to the submission of materials, input by the Planning staff into
be incorporated not only into emergency management plans, but all of the site design would help to ensure compliance with the Comprehensive
Lexington’s plans and ordinances, as they will become a regular part of life Plan on multiple levels – not just with regard to the use of the land as a public
over the course of the next 20 years. school. Imagine Lexington calls for building upon existing collaboration
between FCPS and Planning, and engaging earlier in the process to continue
SUPPORT POLICY #1 to serve the needs of Lexington’s students, neighborhoods, and community.

ENSURE SCHOOL SITES ARE DESIGNED TO INTEGRATE WELL INTO SUPPORT POLICY #1 PLACEBUILDER CRITERIA 2045:
• D-SP1-1: Elementary and middle schools should be located
THE SURROUNDING NEIGHBORHOOD.
within residential neighborhoods, and high schools primarily
Theme A (Growing Successful Neighborhoods) highlights the large role that along collector streets. (A-EQ7)
design plays in successful neighborhoods, whether it be on a large or a small • D-SP1-2: School design should prioritize a high percentage of
scale, and Lexington’s schools are no exception. The design and integration of open and accessible street frontage.
schools into the surrounding neighborhood is as important to the desirability
of an area as is the design, layout and architecture of the streets and SUPPORT POLICY #2
residences.
INCORPORATE NATURAL COMPONENTS INTO SCHOOL SITE DESIGN TO
The school property itself, as well as its location within and relationship to FURTHER THE GOALS OF THEME B (PROTECTING THE ENVIRONMENT),
the surrounding neighborhood, is crucial. Schools should be developed by BUT ALSO TO PROVIDE CALMING ELEMENTS THAT REDUCE STUDENT
connecting to and continuing established street and trail networks so that STRESS & ANXIET Y.
they are both physically and visually accessible. Elementary and middle
schools should locate in residential neighborhoods on local streets with With many Fayette County schools due for expansion and/or renovations
provisions for safe pedestrian and bicycle accessibility. This will minimize in the coming year(s) and the additional group of new schools slated
walking distances and reduce traffic congestion in these areas. High schools for construction, consideration must be given to the significance of site
and small higher education campuses, which produce a higher volume of design that extends beyond the building and into the natural landscape
school generated traffic, should locate along collector streets. Schools with that immediately surrounds the property. While emphasis must be placed
frontage along single-loaded streets, whether local or collector, are strongly on creating classroom spaces with layouts and technology that support
encouraged, as they provide better public access, improved visibility, and students’ intellectual growth, it is just as important to consider the influence
a means for buffering adjacent residential properties. The site design of of the natural landscape in creating an ecosystem where students can foster
each school should facilitate all modes of transport to and from the school growth and resilience.
property and should include sidewalks, shared-use paths, and roadways that
It has become increasingly apparent that a fast-paced, urban environment

DIVISION OF PLANNING COMMUNITY | 201

 can have significant effects on students’ mental health. With children
ATTENTION TEST SCORES AT spending a greater amount of time indoors and in front of electronic screens
THE END OF CLASS ACTIVITY – both at home and at school – there has been a marked increase in levels
of stress, anxiety, and mental fatigue. If those concerns are left unmitigated,
& CLASS BREAK students may not be able to maintain the stamina, motivation, and attitude
that is necessary for them to achieve a productive school day. The relatively
6.40 cost-effective and surface-level solution of incorporating visible and usable
greenspace on schools’ property has shown to foster a deep impact on
6.20
student attitude and performance.
Mean Test Scores

6.00
Studies have shown that classroom views and experiences with nearby
5.80
nature may have a causal relationship to students’ mental wellness, cognitive
5.60 performance, and overall resiliency to stress and anxiety. The United States
Forest Service published a research summary that synergized the findings
5.40
of multiple studies for the purpose of effectively communicating the health
5.20
End of Class Activity End of Class Break
benefits of both urban trees and greenspace. While much of the findings
therein apply to people of all ages, particularly the linkages between natural
Green No Window Barren areas, active living, and physical health, the relationship between children
D. Li, W. C. Sullivan / Landscape and Urban Planning 148 (2016) 149-158 and nature was a topic of targeted investigation. The significant outcomes
in multiple studies alluded to nature access as a potential vehicle for the
Attention test scores at the end of class activity & class break improvement of cognitive function and stress recovery, specifically within the
D. Li, w.C. Sullivan / landscape and urban planning 148 (2016) 149–158
school setting.
PHYSIOLOGICAL STRESS One study, conducted by researchers at the University of Illinois, found that
RATING AT THE END OF CLASS classroom views of green landscapes can promote attention restoration and
stress recovery. The results were obtained by placing students in different
ACTIVITY & CLASS BREAK classrooms, without windows or with windows, which revealed either a build
space or a green space. They were then subjected to various conditions that
1.50 simulated classroom tasks and activities and completed questionnaires and
Physiological Stress Means

attention tests to assess attention restoration and stress recovery. The study
1.00 by Dongying and Sullivan found that students with a green window view
.50
scored “significantly higher on tests of attentional functioning and recovered
significantly faster for a stressful experience than their peers who were
0.00 assigned to rooms without view to green spaces.” Such results indicate a
major impact on the importance of thinking quite literally outside of the box
-1.50
when it comes to school design.
-1.00
End of Class Activity End of Class Break Qualitative studies have highlighted these effects as well by narrating the
positive mental impacts of schoolyard nature play through the lens of student
Green No Window Barren experiences. Recent research from the University of Colorado and the National
D. Li, W. C. Sullivan / Landscape and Urban Planning 148 (2016) 149-158 Institute of Health utilizes direct observations and interviews with students in
Physiological stress rating at the end of class activity & class break different age groups to emphasize how the natural components surrounding
D. Li, w.C. Sullivan / landscape and urban planning 148 (2016) 149–158 their schools helped them find havens from stress, increase competence, and

202 | THEME D IMAGINE LEXINGTON 2045

form healthy social interactions with their peers. For this reason, a balance of
both active and passive recreation opportunities that involve interaction with
nature within the schoolyard can yield measurable benefits.

In tuning into the implications presented by research in this area, Imagine

Lexington gives weighted consideration of how greenery in the urban
landscape, and the multi-faceted benefits it provides, plays an important
role in shaping our future generations. There is great opportunity for
renovation and expansion of Lexington’s centers of learning to further reflect
environments that are conducive to the intellectual growth and emotional
well-being of the students who learn and play in these spaces each day.
Equal importance should be placed on creating and maintaining both built
and natural components that inspire young minds.

SUPPORT POLICY #2 PLACEBUILDER CRITERIA

• D-SP2-1: Visible, usable greenspace and other natural
components should be incorporated into school sites.

SUPPORT POLICY #3
SUPPORT THE MAINTENANCE & EXPANSION OF A ROBUST WIRELESS
COMMUNICATIONS NET WORK CREATING RELIABLE SERVICE in for new towers, applicants should include buffering and seek to reduce
THROUGHOUT LEXINGTON’S URBAN & RURAL AREAS. the visual impact of the facility. Every situation will be different, but every
application should illustrate how the tower will either blend into the existing
In previous Comprehensive Plans, as well as in the adopted Rural Land surroundings through context sensitive camouflaging, or how it can function
Management Plan, the importance of wireless communication has been as a piece of public art that will complement the surrounding area. Given how
recognized as integral to the safety and welfare of the community. The prevalent these facilities have become, it is vital they do not detract from the
prevalence of wireless devices and the increased reliance on wireless data landscape, but enhance it or have zero impact. If an applicant does not feel
has changed how Lexington considers this form of critical infrastructure. they can utilize these stealth techniques, they must be able to demonstrate
Access to such services are now considered equivalent to how the community a compelling and legitimate reason, other than strictly financial, that they
views water, gas or electricity. Beyond the daily use for community members are unable to do so. Design elements should be considered with any type of
and businesses, the construction and maintenance of a robust and reliable development in Lexington, including cell towers.
wireless system throughout the urban and rural areas is essential to the
operation of Lexington’s emergency services. The e911 system can only exist In addition to the typical uses of wireless communication, the growth of 5G
if a reliable wireless service system is in place for all areas, so that first technologies and the potential impact on our transportation system cannot
responders can receive the most accurate information and respond in the be overlooked. As the advancement of automated or “driverless” vehicles
shortest amount of time. continues, one of the fundamental needs for the development of such
technologies is a seamless 5G network. This network allows vehicles to
While wireless communication infrastructure is incredibly important as recognize where they are and react to both mapped and real-time aspects
noted above, it is also crucial to minimize the intrusion and negative aesthetic of the transportation network. For Lexington to stay in the forefront of
impacts it can have on the community. Cell towers come in many shapes and technological advancement, the 5G network and future advancements must
sizes, but the technology to camouflage them through stealth concealments be integrated to our transportation network.
has existed for many years. When new public or private applications come

DIVISION OF PLANNING COMMUNITY | 203

SUPPORT POLICY #3 PLACEBUILDER CRITERIA hospitals and the regional trauma center at Chandler Medical Center. While
• D-SP3-1: Adequate right-of-way, lease areas and easements there are numerous facilities throughout Lexington, many in the community
for infrastructure, with emphasis on wireless communication are unable to access the healthcare that they need to live a full and healthy
networks should be provided to create reliable service throughout life. Currently, 7.3% of Lexington’s population does not have health insurance
Lexington. coverage, and with increases in the cost of healthcare, housing, and everyday
• D-SP3-2: Cellular tower antennae should be located to minimize goods, more individuals are having to make hard decisions regarding what
intrusion and negative aesthetic impacts, and stealth towers and they spend their money on. A greater understanding of the existing barriers
landscaping used to improve the visual impact from the roadway to healthcare will help develop a healthier community.
and residential areas.
While there are concerns regarding the cost of and access to healthcare
SUPPORT POLICY #4 for some members of our community, Lexington is a healthy community in
general. According the County Health Rankings and Roadmaps, provided by
PROVIDE EQUITABLE HEALTHCARE OPPORTUNITIES THROUGHOUT the University of Wisconsin Population Health Institute, Fayette County is
LEXINGTON TO ALLOW FOR THE WIDE RANGE OF MEDICAL NEEDS OF ranked 8th in the state for health outcomes, which includes length of life and
EVERYONE. quality of life factors, and 4th in the state for health factors, which includes
those things we modify to improve the length of life like health behaviors,
The 2021 Census indicates that the healthcare industry is one of Lexington’s clinical care, social and economic factors, and the physical environment.
primary economic drivers, comprising 29% of jobs within the City and drawing The access to a robust trail system, a connected public park system, and an
patients from throughout the state and region. Lexington is a hub for medical activated public realm are very important to promoting a healthy community.
services of all levels, ranging from small clinics and doctor’s offices to Each of which are aspects described within this Theme.

A HEALTHY COMMUNIT Y HAS THREE BASIC ELEMENTS:

1. It starts with a healthy environment in which to live and work; one
with clean air and water, opportunities for physical exercise and
open space for citizens to enjoy and relax. On a national level, public
health officials and planners have been working to develop tools and
information to help plan communities to support physical activity.

2. A healthy community also includes preventive health, which means

that citizens seek healthcare throughout their lives in order to stay
healthy. Preventive health initiatives will ensure our citizens attain
high-quality, longer lives free of preventable disease, disability, injury,
and premature death.

3. Lastly, a healthy community includes healthcare services of various

types, to address various needs. Lexington does have a range of
healthcare services that have recently been expanded or are in
the process of expanding, which will help to achieve health equity,
eliminate disparities, and improve the health of all groups.

A partnership with the Lexington Fayette County Health Department should

be forged to develop planning initiatives that will improve the community’s
public health.

204 | THEME D IMAGINE LEXINGTON 2045

SUPPORT POLICY #4 ACTION ITEMS to get to social service agencies, such as the Lexington-Fayette County
1. A partnership with the Lexington Fayette County Health Health Department or the Social Security Administration office, impacts
Department should be forged to develop planning initiatives. whether individuals will use these services or remain in unhealthy or unsafe
situations. It has been proven that if services are not centrally located or
SUPPORT POLICY #5 within proximity to adequate transit, users will be less able or likely to seek
help. While historically, this has meant the location of services are found
PROVIDE EQUIT Y IN SOCIAL SERVICES BY ENSURING THOSE IN NEED almost entirely in downtown or near downtown areas, there is a growing
ARE SERVED BY SOCIAL SERVICE COMMUNIT Y FACILITIES THAT amount of suburban poverty and drug addiction within communities across
ADDRESS HOMELESSNESS, SUBSTANCE ABUSE, MENTAL HEALTH, & the United States. Further research is necessary to determine where gaps
OTHER SIGNIFICANT ISSUES. exist and how such services should be distributed to promote the overall
health and wellbeing of all residents. Where gaps do exist, Lexington should
The typical community facilities that serve Lexington, including libraries, review options for removing barriers to providing social services.
schools, fire and police stations, sanitary sewers and stormwater facilities,
have been addressed in planning documents and discussed over the course
of many decades in great detail. The social service community facilities that
SUPPORT POLICY #6
address homelessness, substance abuse, mental health and other significant ENSURE ALL SOCIAL SERVICE & COMMUNIT Y FACILITIES ARE
issues that plague communities have not been given the same consideration.
SAFELY ACCESSIBLE VIA MASS TRANSIT, BICYCLE, & PEDESTRIAN
Recent community focus on the need to expand social service facilities within
TRANSPORTATION MODES.
Lexington led to the creation of the Department of Housing Advocacy and
Community Development, which currently houses the Divisions of Affordable Whereas the location of facilities and the need to remove barriers are
Housing, Community and Resident Services, and Homelessness Prevention fundamental to adequate support for social services and community facilities,
and Intervention. The consolidation of these divisions under one department it is equally important to provide access or connections to those facilities.
allows greater collaboration to address overlapping issues and provide While connectivity and accessibility are important for all places within the
integrated services for those in need.

The complexity of homelessness, substance abuse, mental health, and other

interrelated issues also necessitates the collaboration between governmental,
quasi-governmental, and non-profit organizations. Without the support
of non-profit organizations like the Hope Center, the Community Action
Council, or the Nest, Lexington would not be able to provide the full support
necessary to ensure the health, safety, and welfare of all residents. Greater
documentation of the non-governmental organizations and integration of
those organizations should be organized to create a more robust approach
to meet the needs of Lexingtonians. Centralized and streamlined efforts
for affordable housing has already been created by the government. By
submitting a “common application” an individual or family could apply for
housing by different agencies, but not have to jump through numerous hoops
to get housing. Reducing barriers in the process is essential to helping as
many people as possible, while also reducing wasted time and effort.

As Lexington’s social service providers seek to meet the social and physical
needs of community members, they must also be located in areas where
people can easily access the services. The distances people must travel

DIVISION OF PLANNING COMMUNITY | 205

community, they are especially vital for the places that provide services. Many stresses the need for collaboration with non-profit organizations, who “know
individuals and families who are seeking social services rely on alternative the needs of the people they serve” and are necessary if Lexington hopes
forms of transportation aside from single-occupancy vehicles. The Census to help the City’s unhoused population. The Strategic Plan was developed
indicates that in 2021 approximately 8% of Lexingtonians do not own a vehicle. by the administration and was supported by Council, both in spirit with the
While there is a growing population of urban dwellers in Lexington that make adoption of Resolution No. 312-2021, and with the continued support of the
the choice not to own a vehicle, for the majority of those who do not own a activities of the Affordable Housing Fund and the Innovative Sustainable
car it is the result of economic hardship or physically limitations that prevent Solutions to Homelessness Fund (Ord. No. 103-2014). The success of the
driving a vehicle. As of 2022, the annual cost of owning a car in the United Strategic Plan, the Affordable Housing Fund, and the Innovative Sustainable
States is over $10,000, which can significantly limit an individual or family’s Solutions to Homelessness Fund are heavily reliant on the non-profit and
ability to pay for necessitates. not-for-profit sectors within the community to provide services to those
in need. By incentivizing the production of more affordable housing and by
As such, all community and social service facilities should be accessible via reducing or eliminating barriers for community partners to establish facilities
sidewalks and should be within walking distance (½ mile) of a transit stop throughout Lexington, the City can meet the goals of these plans and better
or shelter. Development should also include adequate “end-of-trip” facilities, serve Lexingtonians in need.
such as bike lockers or racks. Lexington’s community service providers
should seek to improve their sites and facilities to allow for greater access, While those experiencing homelessness span racial and ethnic lines, the
and new locations should incorporate these standards into their plans. If a racial composition of homelessness and income insecurity in the United
transit line does not serve these sites, discussions with LexTran should be States, which is reflective of Lexington, is heavily weighted to people of color.
initiated to ensure safe access and added infrastructure including enhanced Specifically, those individuals who identify as Black or African American are
stops (benches, shelters, etc.). All properties that are owned by the City and more likely to suffer periods of homelessness or income insecurity. As of
are providing services should be improved in this manner. 2021, 24% of those experiencing homelessness in Lexington identified as
Black or African American. This is a particularly striking number, as those
Additionally, programs to alleviate the cost of transit should also be pursued. who identify as Black or African American comprise 14.6% of Lexington’s
Currently, LexTran runs a programs specifically focused on alleviating the population. Adding new social services that are focused on helping people
economic impact that transit has on the aging population, who are generally find housing, obtain food, and get into safe spaces can drastically impact the
restricted by a fixed income. Half priced fare should also be considered for Black or African American population.
other demographics, including school aged children who are more likely to
take transit where safe and adequate infrastructure is put into place. Furthermore, recent studies show that approximately 24% of individuals
who experience chronic homelessness, are homeless for at least a year,
SUPPORT POLICY #6 PLACEBUILDER CRITERIA or experienced at least four periods of homelessness adding up to twelve
• D-SP6-1: Social services and community facilities should be months in a three year period, possess a disability. Disabled individuals suffer
accessible via mass transit, bicycle and pedestrian transportation a higher risk of homelessness due to high cost of care, inaccessible housing,
modes. and unaffordable housing. For those who are able to obtain housing or social
services, like those provided by community centers and adult daycare facilities,
SUPPORT POLICY #7 the costs of necessitates, like food or medicine can be reduced to help make
other parts of life easier. The inclusion of such facilities in neighborhoods or
PROTECT AND PROMOTE SOCIAL SERVICES AND TAKE ACTIVE
where people live is essential, as difficulties in mobility, access to vehicles,
MEASURES TO REDUCE HOMELESSNESS. and costs inhibit access (Support Policy #6).
In 2021, Lexington published the Five-Year Strategic Plan to Enhance Reducing barriers to community-serving facilities that disproportionally
Affordable Housing and Reduce and Effectively End Homelessness in Fayette impact people of color and those who are protected under the Americans
County. This document develops a comprehensive community plan to end with Disabilities Act (ADA) would ensure that the City is protecting the health,
homelessness and enhance affordable housing options in Lexington. This plan safety, and welfare of the community. Additionally, by promoting equitable

206 | THEME D IMAGINE LEXINGTON 2045

solutions to housing affordability, the City will be available to receive County 60 years and older. Each center is unique in its specific offerings, but
increased funding from the Federal Government through new programs all provide a safe and inviting environment for senior adults to spend their
that promote the reducing or removing barriers for the creation of housing. leisure time enjoying recreation, social, art and educational opportunities in a
By promoting and protecting supportive uses for some of Lexington’s most place that preserves their dignity and values each as individuals.
vulnerable community members, the City can ensure a more equitable and
just community. The expansion of services and programs that serve people as they age, and
those of all ages with disabilities, will be important for the community. To
that end, included in the 2023 proposed budget, funding is established for the
SUPPORT POLICY #8 design of an additional satellite location in the Shillito area. This location will
BUILD UPON THE SUCCESS OF THE SENIOR CITIZENS’ CENTER TO fill a needed programming and activity gap in this portion of Lexington for
seniors. This new planned facility is expected to have roughly 20,000 square
PROVIDE IMPROVED QUALIT Y OF LIFE OPPORTUNITIES FOR THE
feet dedicated to therapeutic recreation targeted for those with disabilities
LARGEST GROWING POPULATION DEMOGRAPHIC.
of all ages. It will also provide additional fitness programming opportunities,
As Lexington’s population demographic shift continues and those aging and employ 7-8 new staff. The next satellite center is expected to open in the
workers leave the workforce, the need for meaningful social interaction 2025-2026 timeframe.
opportunities for seniors will be increasingly important. The Lexington Senior
Finally, Lexington’s actions and inclusion in the AARP Age Friendly
Center and its three satellite sites (Charles Young Center, Bell House, and
Communities network should be supported throughout planning and in all
Eldercrafters at the Black and Williams Center) serve residents of Fayette
projects. Additionally, development throughout the city should include age-
friendly amenities and development patterns that provide opportunities to
improve the quality of life for Lexington citizens at all stages of their lives.

SUPPORT POLICY #9
IMPLEMENT ADDITIONAL CREATIVE COHOUSING OPPORTUNITIES
THAT ARE BOTH ACCESSIBLE & AFFORDABLE FOR SENIORS & PEOPLE
WITH DISABILITIES.

The 2015 Housing Market Demand Study projected that one of the greatest
housing needs facing Lexington was to address the growth of the aging
population with housing products more suitable to their needs. Since the
adoption of Imagine Lexington, the Senior Services Commission has been
a vocal advocate of addressing the needs of both the aging population
and peoples with disabilities, with a specific focus on expanding housing
choice. Their work on and support for Accessory Dwelling Units (ADUs) was
instrumental to the approval of this housing option throughout the community.

ADUs were only a first and small component of beginning to address varied
housing options and the need to support Lexington’s aging population. ADUs
often, though not always, fall into the realm of what is called cohousing.

DIVISION OF PLANNING COMMUNITY | 207

Cohousing is defined broadly as clustered residential units that share facet that makes cohousing a particularly attractive option for those that need
community space. These neighborhoods are collaboratively planned, with that support.
managed activities to create a uniquely tight-knit shared living experience.
In a cohousing development, every unit is fully self-sustainable and includes None of these housing types are intended to be a panacea for addressing
every aspect of a traditional dwelling unit, including its own kitchen. Typical affordable housing needs, however creating numerous, zoning supported
cohousing developments fall in the 30-40 unit range with an intentionally housing options can have a meaningful impact on meeting Lexington’s
designed layout that supports shared common spaces and resident demand.
interaction. Often this involves additional facilities for regular daily use like a
SUPPORT POLICY #9 ACTION ITEMS
common house that provides amenities like a shared kitchen, guest quarters,
1. Update the Zoning Ordinance to allow for greater diversity in
as well as flexible community gathering and meeting spaces.
housing type.
As seniors continue to face rapidly rising costs for traditional managed care at SUPPORT POLICY #9 PLACEBUILDER CRITERIA
senior or assisted living facilities, the desire for a housing option where close • D-SP9-1: Encourage co-housing, shared housing environments,
relationships with nearby residents that can meet the same needs becomes planned communities and accessory dwelling units for flexibility
a much more attractive and affordable housing option. Just as ADUs allow and affordability for senior adults and people with disabilities.
seniors the option to age-in-place, in the neighborhoods they’ve known and
lived in for years, cohousing provides new options where aging-in-place may SUPPORT POLICY #10
not be available. Cohousing is not defined as an entirely senior development
type, in fact it is widely seen as a way for multigenerational living where the INCORPORATE STREET TREES AS ESSENTIAL INFRASTRUCTURE.
community provides basic supportive services to their neighbors. It is this
Street trees are often appreciated for their aesthetic appeal, but their
true value as infrastructure is often overlooked. Like all investments in
infrastructure, there are upfront and ongoing costs associated with planting
and maintaining street trees. However, municipalities rarely consider the
multitude of benefits that street trees can provide. A holistic perspective on
street trees as essential infrastructure highlights the numerous advantages
they offer, and Lexington should develop new policies and practices to ensure
these benefits are fully realized.

MICROCLIMATE COOLING AND CLIMATE RESILIENCE: Street trees

provide natural shade, reducing heat absorption by surrounding surfaces
and lowering air temperatures underneath their canopy. Transpiration, a
tree's cooling mechanism, can reduce air temperature by up to 10 degrees
Fahrenheit, making a significant difference in human comfort that can lead to
more people choosing to walk over drive.

STORMWATER MITIGATION: With the increase in extreme precipitation events

in Lexington, street trees can play a crucial role in managing stormwater. The
impacts of stormwater runoff can be minimized by increasing tree canopy
over paved roadway surfaces to increase interception of rainfall. A single tree
can capture hundreds of gallons of rainwater, reducing the volume and flow of

208 | THEME D IMAGINE LEXINGTON 2045

stormwater that can flow off of roadways and enter stormwater management SUPPORT POLICY #10 PLACEBUILDER CRITERIA
systems. When roadside bioswales are included, street trees can also absorb • D-SP10-1: Prioritize street trees in the planting strip.
harmful chemicals from road runoff, transforming them into less harmful
substances and improving water quality. SUPPORT POLICY #11
DEVELOP A CLIMATE ADAP TATION PLAN.
POLLUTION REDUCTION AND HEALTH BENEFITS: Street trees contribute
to air pollution reduction by filtering dust and absorbing volatile organic Through the adoption of the Goals and Objectives, Lexington has made a
compounds from roadways. They mitigate light pollution by shielding vehicular commitment to community wide net zero greenhouse gas emissions by 2050.
lighting and alleviate noise pollution by blocking and attenuating sound. This action is a starting point to the development of a more resilient community
Neighborhoods with street trees improve human health by reducing stress in the face of dramatic shifts in our climate, which will change how Lexington
and encouraging physical activity, leading to improved overall well-being. grows. Climate change is a global problem that is affecting every region of the
world. Cities, including Lexington, are particularly vulnerable to the impacts
TRANSPORTATION AND ROAD DESIGN: Contrary to traditional beliefs, of climate change due to their high population densities, reliance on complex
street trees can enhance safety outcomes by reducing crash rates and infrastructure systems, and concentration of economic and cultural assets.
fatalities. The assumption that wider clear zones devoid of trees are safer Within cities, certain populations, such as low-income communities, the
does not always hold true in urban settings. Street trees encourage slower elderly, and marginalized groups, are particularly susceptible to the adverse
and more attentive driving, making roads safer for pedestrians and promoting effects of climate change due to factors, such as limited access to resources
alternative modes of transportation. Additionally, shaded asphalt pavement and inadequate infrastructure.
lasts longer and requires less maintenance due to reduced exposure to
sunlight. Rising global temperatures increase the number of extreme weather events
such as floods, droughts and storms—which Lexington and the surrounding
To fully appreciate street trees as infrastructure, decision-makers must region are already experiencing. These impacts of climate change can have
undergo a shift in thinking. Steps must be taken to educate road agencies, costly impacts on cities' basic services, infrastructure, housing, human
engineers, utilities, planners, and developers on the full benefits of street livelihoods and health. However, by planning for climate adaptation, Lexington
trees. Various groups must come to the table, including arborists, tree can reduce the risks posed by climate-related events and ensure that they
advocacy groups, and proponents of walkability, to prioritize the inclusion of are able to continue functioning in the face of these challenges. A climate
street trees early in roadway designs and infrastructure layouts. Street trees adaptation plan serves as a strategic blueprint for cities and communities
support a range of benefits from environmental and transportation equity to to effectively prepare for, withstand, and recover from the increasingly
fiscal responsibility, and they are essential to the long term sustainability of frequent and severe impacts of extreme weather and climate-related events.
Lexington’s future. These plans not only help save lives but also mitigate the economic costs
associated with extreme weather events. For instance, investing in resilient
A wealth of research, advocacy, and guidance on valuing trees as infrastructure designed to withstand floods or storms can significantly reduce
infrastructure already exists. Proven design approaches and engineered the risks of damage to facilities and disruption of service. Furthermore,
products facilitate the growth of urban trees without causing negative developing contingency plans and emergency response systems enables
impacts on other surrounding infrastructure. The National Association of City cities to respond swiftly and efficiently during climate-related emergencies.
Transportation Officials (NACTO) published The Urban Street Design Guide,
which offers recommendations for spacing based on tree species, property Beyond the immediate benefits, climate adaptation planning also fosters
lines, and other roadside features. This guide takes an urban and multimodal long-term sustainability. By identifying and addressing vulnerabilities to
approach, suggesting the inclusion of street trees in all but the most extreme climate change, Lexington can enhance overall resilience, allowing residents
cases. Lexington can benefit from adopting these resources and proactive to thrive in a rapidly changing world. However, an equitable approach is vital
embedding the value of street trees into routine design, operations, and to ensure that the benefits of adaptation efforts are accessible to all.
investment decisions.

DIVISION OF PLANNING COMMUNITY | 209

By integrating equity into climate planning, Lexington can prioritize the Due to the magnifying issues caused by evictions, it is important and
needs of marginalized communities, ensuring that resources and strategies beneficial that landlords, property managers, and tenants understand their
are allocated in a fair and inclusive manner. This means taking into account rights and the legal processes. However, recent research shows that the
the specific vulnerabilities and challenges faced by low-income groups, legal understanding and representation is currently one sided. Despite the
the elderly, and other marginalized populations. By promoting fairness and fact that legal representation for tenants facing eviction has proven effective
inclusivity, climate planning can help reduce disparities and empower these at preventing evictions, a review of 28 cities and states found that only 3%
communities to adapt and thrive in the face of climate change. of tenants are represented in eviction cases. This small percentage is even
more problematic compared to the representation by landlords, which was
“Invest in infrastructure to mitigate the effects of climate change, such as over 80%. Often, renters are unaware that representation can aid in a solution
storm and flood preparations, enhancing the power grid to handle heat waves for their situation, while access to financial resources is also typically far
and ice storms, and providing shelters for those without AC or heat in times less of an issue for individuals who own property.
of severe weather.” – Lexington Resident, 2022 OTT Community Survey
To combat the inherent disparities in the representation of tenants and
SUPPORT POLICY #11 ACTION ITEMS promote security for vulnerable populations, many cities have developed a
• Develop a Climate Action Plan. right or access to counsel program. Lexington recently established a pilot
program that will provide access to counsel for tenants during the eviction
SUPPORT POLICY #12 process. The program has been funded with $1.9 million in one-time federal
funds meant to expand services for tenants facing eviction and is operated
SUPPORT PROGRAMS THAT PROTECT THE RIGHTS OF TENANTS DURING
in partnership with Legal Aid of the Bluegrass and Kentucky Equal Justice
THE EVICTION PROCESS Center. These services include mediation with landlords, and access to legal
As housing throughout the United States has grown more expensive and counsel. Lexington should monitor the program and seek further revenue
access to a livable wage for families is harder to come by, many within that will protect the rights of tenants during the eviction process and promote
Lexington have been forced to make difficult decisions about how to spend a more equitable solutions in the rental market.
limited income. Unreliable income, late payments, increased rental rates, or a SUPPORT POLICY #12 ACTION ITEMS
host of other reasons has resulted in an increase of evictions within the City. 1. Work with Department of Housing to enhance tenant protection
The results of the eviction process are not only jarring to families, as it leaves programs.
them without housing, it has a continual impact that creates further barriers
to housing for individuals and families. Currently, landlords and property
management companies are able to consider previous evictions to justify
rejecting applicants for housing, creating a cycle of displacement.

The reverberations of this displacement extend beyond the loss of housing,

but can also have an impact on other aspects of life and more dramatically
impact specific populations. A recent study in Wisconsin showed that
workers who experience eviction or an involuntary move are 20% more likely
to lose their jobs. Evictions also have a more dramatic impact on minority
populations, children, peoples with disabilities, and our aging population.
Research indicates that approximately one in every five Black and Latino
children have experienced an eviction by the age of 15, women experience
eviction 16% more than men, and Black women are experiencing eviction two
times more than White women. This uncertainty negatively impacts health,
education, employment, and community ties.

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THEME E.
URBAN AND
RURAL BALANCE.
214 | THEME E IMAGINE LEXINGTON 2045
 INTRO
At the heart of every discussion regarding Lexington’s future is the balance between urban growth and rural
protection and preservation. The earliest negotiation of this balance resulted in the establishment of the Urban
Service Area in 1958, which proved essential to creation of the vibrant community that the City has become.
Continued smart growth policies that uphold the Urban Service Area concept are prevalent throughout the Goals,
Objectives, and Policies of Imagine Lexington. The balance between the growth of the urban landscape and the
preservation of Lexington’s agricultural assets continues to be necessary, as both play an important role in the
health and welfare of the whole of the community. By growing intelligently through compact, fiscally responsible
development patterns, the foundation of the nation’s first Urban Service Area will continue to allow the city to
prosper.

The development types promoted by Imagine Lexington 2045 reduce infrastructure costs, promote desirable
placemaking opportunities, enhance multi-modal transportation options and connectivity, create healthier
communities, encourage vibrant neighborhood-serving businesses, and preserve irreplaceable farmland. Smart
growth patterns and rural preservation go hand in hand; therefore, growth is not inherently a bad thing. In fact, when
accommodated in this way, growth can be a boon to the economy, the environment, and society at large. Vibrant
cities have growing economies, competitive housing markets with a diverse housing stock, and amenities that
improve the lives of current community members and entice new ones. Declining cities are often representative of
struggling economies, insufficient housing options, and limited amenities. Lexington continues to be a vibrant city,
but that does not mean the City should not strive for more and better.

During the Urban County Council’s review of the Goals and Objectives, councilmembers determined there was a
need to expand the urban service area, citing concerns regarding increased housing costs, low housing stock,
needed land for job development, and a deep concern with housing affordability. Whereas the cost of housing in
surrounding counties is similar to Lexington, the need for a variety of housing options and a specific focus on
providing housing for all community members is essential to the development of an equitable community. By
focusing on affordability and the need to provide different housing options, the Council reiterated their support for
smart growth that prioritizes socially, fiscally, and environmentally responsible principles and policies.

To achieve the Goals and Objectives adopted by the Council, it is essential that Lexington take a modern approach to
jobs, housing, and affordability. These approaches must include transit oriented development (TOD), interspersed
housing types, integrated neighborhood businesses, and targeted budgets that promote the development of privately
and publicly operated affordable housing. Traditional single family detached housing, which has historically been
the primary housing type in Lexington, cannot be the primary housing type for future expansion areas. Single
family detached should be developed along with townhouses, duplexes, fourplexes, condos, and apartments.

While the prominent focus of the Council discussion regarding the Goals and Objectives was on the expansion of
the Urban Service Area, community members, the Planning Commission, and the Urban County Council continued
to stress the need for active infill and redevelopment. Despite the continued support for infill and redevelopment,
there remains a myriad of concerns regarding how new development can coexist with and complement existing
neighborhoods and historic assets. Some of these concerns are addressed through contextually appropriate
development; however, there are often misunderstandings or misrepresentations regarding the goals and benefits
of new development and their effect on the community. The Division of Planning must increase education and
outreach efforts; elected and appointed officials must uphold the vision of this document, even when highly

DIVISION OF PLANNING BALANCE | 215

216 | THEME E IMAGINE LEXINGTON 2045
At the heart of every discussion regarding Lexington’s future is the balance that promote the development of privately and publicly operated affordable
between urban growth and rural protection and preservation. The earliest housing. Traditional single family detached housing, which has historically
negotiation of this balance resulted in the establishment of the Urban Service been the primary housing type in Lexington, cannot be the primary housing
Area in 1958, which proved essential to creation of the vibrant community that type for future expansion areas. Single family detached should be developed
the City has become. Continued smart growth policies that uphold the Urban along with townhouses, duplexes, fourplexes, condos, and apartments.
Service Area concept are prevalent throughout the Goals, Objectives, and
Policies of Imagine Lexington. The balance between the growth of the urban While the prominent focus of the Council discussion regarding the Goals
landscape and the preservation of Lexington’s agricultural assets continues and Objectives was on the expansion of the Urban Service Area, community
to be necessary, as both play an important role in the health and welfare members, the Planning Commission, and the Urban County Council continued
of the whole of the community. By growing intelligently through compact, to stress the need for active infill and redevelopment. Despite the continued
fiscally responsible development patterns, the foundation of the nation’s first support for infill and redevelopment, there remains a myriad of concerns
Urban Service Area will continue to allow the city to prosper. regarding how new development can coexist with and complement existing
neighborhoods and historic assets. Some of these concerns are addressed
The development types promoted by Imagine Lexington 2045 reduce through contextually appropriate development; however, there are often
infrastructure costs, promote desirable placemaking opportunities, enhance misunderstandings or misrepresentations regarding the goals and benefits of
multi-modal transportation options and connectivity, create healthier new development and their effect on the community. The Division of Planning
communities, encourage vibrant neighborhood-serving businesses, must increase education and outreach efforts; elected and appointed officials
and preserve irreplaceable farmland. Smart growth patterns and rural must uphold the vision of this document, even when highly organized, but
preservation go hand in hand; therefore, growth is not inherently a bad thing. narrowly focused interests are advocating for a different future. Imagine
In fact, when accommodated in this way, growth can be a boon to the economy, Lexington calls for the government to be held accountable for upholding
the environment, and society at large. Vibrant cities have growing economies, the vision, be good stewards of Lexington’s precious agricultural, historic,
competitive housing markets with a diverse housing stock, and amenities environmental, economic and cultural resources, and allow the city to grow
that improve the lives of current community members and entice new ones. and evolve.
Declining cities are often representative of struggling economies, insufficient
housing options, and limited amenities. Lexington continues to be a vibrant
city, but that does not mean the City should not strive for more and better.

During the Urban County Council’s review of the Goals and Objectives,
councilmembers determined there was a need to expand the urban service
WHERE ARE WE NOW?
area, citing concerns regarding increased housing costs, low housing stock,
needed land for job development, and a deep concern with housing affordability. Since the adoption of the 2018 Comprehensive Plan, Lexington, like many
Whereas the cost of housing in surrounding counties is similar to Lexington, of America’s largest cities, experienced a slight drop in overall population.
the need for a variety of housing options and a specific focus on providing The Census Bureau reported that, between 2020 and 2021, over half of the
housing for all community members is essential to the development of an United States’ 88 largest cities, which includes Lexington, experienced
equitable community. By focusing on affordability and the need to provide a drop in population. However, as the impacts of the pandemic begin to
different housing options, the Council reiterated their support for smart subside and the broader national, state, and local economies stabilize,
growth that prioritizes socially, fiscally, and environmentally responsible current research suggests that the population within Lexington is likely to
principles and policies. rebound and previously anticipated growth trends will continue. To prepare
for the continued growth of Lexington, the City must remain committed to the
To achieve the Goals and Objectives adopted by the Council, it is essential that development of a desirable community that supports the current population
Lexington take a modern approach to jobs, housing, and affordability. These and attracts future populations.
approaches must include transit oriented development (TOD), interspersed Part of what makes Lexington a unique and desirable community are
housing types, integrated neighborhood businesses, and targeted budgets

DIVISION OF PLANNING BALANCE | 217

the progressive planning practices that have balanced the urban built city’s land. With the proposed maximum modification of the Urban Service
environment and the protection of the surrounding rural lands. Through the Area, the total area of urban development will be approximately 33% of the
establishment of the Urban Service Area and progressive steps to promote city’s land. While the expansion is planned, this boundary will continue to keep
infill and redevelopment, the City has been able to establish policies that development patterns relatively compact and minimize sprawling suburban
are meant to promote environmentally, socially, and fiscally responsible developments that that are common throughout the United States.
development strategies. These strategies also protect the irreplaceable soils
that are located within much of the rural areas, while also promoting the Roughly 25% of Lexington’s 200 square miles of the current Rural Service Area
equine and tourist industries. Lexington has received international recognition are protected through the Purchase of Development Rights (PDR) program.
for its horse industry, and a growing following of visitors who are drawn to This program protects farmland for food security and helps conserve
the beautiful scenery, historic resources and the variety of amenities and environmentally sensitive lands. Eventually the city hopes to conserve 50,000
entertainment options. Lexington is a city deeply rooted in history, with a acres, or almost 40% of the current Rural Service Area. These protections
thoughtful, consistent planning strategy. have largely contributed to the City’s identity as Horse Capital of the World
and the relatively fiscally responsible development patterns.
Lexington’s long history is showcased in the many historic properties
throughout the city. From Boone Station State Historic Site, where Daniel The amount of vacant land available for infill projects throughout the city
Boone and his family lived for 10 years in the rural area near Athens, to is roughly 5,509 acres of the Urban Service Area. This indicates that there
the historic Lexington Courthouse in the middle of downtown, there are are development opportunities of all types within the current Urban Service
historically significant assets throughout the city. These important assets Area, though some are perhaps more complicated than others. To promote
must be protected as the community continues to grow. Proactively and such development, the Division of Planning, Planning Commission, and Urban
comprehensively identifying these icons and historically contributing County Council have sought to reduce barriers to development, while also
buildings, sites, and districts should be an integral part of the planning providing aid and incentives to the development of projects. There are also
process before development applications are proposed. New development significant redevelopment opportunities, primarily on underutilized property
should be required to enhance and supplement them, writing the next chapter concentrated on the city’s major arterial corridors. While Lexington’s
in Lexington’s storied history. commercial and retail sales market has been bolstered by shoppers from
surrounding counties, the consumer trends have shifted within the commercial
While the adoption of the Goals and Objectives for Imagine Lexington has and retail landscape to online sales and deliveries. This has resulted in the
set a new direction for growth through the expansion of the Urban Service reduction in large scale anchor tenants, which were once more prominent
Area, there is still a need to be progressive with development practices along major corridors. This has been a loss for many communities but can be
through the City. The previous Comprehensive Plan was explicit regarding turned into an advantage for cities that are willing to implement smart growth
the need to promote the removal of exclusionary restrictions, allow for strategies.
infill and redevelopment, and ensure new development meets the policies
of all Themes of the Comprehensive Plan. Infill and redevelopment must There are vacant and/or underutilized sites on almost every major roadway
continue to be the foremost development strategy for Lexington. Many new within Lexington that are surrounded by large swaths of parking. These
developments throughout the urban area can attest to the success of that areas can benefit from the inclusion of new uses and substantial increases
strategy. Whether through the development of new housing options that allow in floor area. These increases would allow for better utilization of the City’s
aging in place or the creation of new commercial opportunities or services current land for residential, retail, professional office, and other mixed-
which allow residents the ability to walk to amenities in their neighborhood, use developments. By coupling the redevelopment of these properties with
Lexington has enjoyed the success of infill and redevelopment policies and greater transportation options, the City would not only be more efficient, but
practices. also more environmentally sustainable and equitable. Utilizing transportation
corridors in this way would also promote a broader shift towards transit
The city of Lexington is comprised of 285.5 square miles, 85 squares miles oriented development and create opportunities for Lexingtonians to live in
of which are currently included in the Urban Service Area. That means that more accessible spaces.
Lexington’s urban development must generally take place within 30% of the

218 | THEME E IMAGINE LEXINGTON 2045

Overall, Lexington is a growing and vibrant
community that has historically provided a very
healthy balance between urban development
and rural interests. The result is a desirable
community with a much more fiscally
responsible development pattern than is typical
of other Kentucky counties and suburban areas
throughout the United States.

DIVISION OF PLANNING BALANCE | 219

VISION FOR BALANCE.

220 | THEME E IMAGINE LEXINGTON 2045

 Accountability Stewardship Growth

PILLARS & POLICIES

DIVISION OF PLANNING BALANCE | 221
PILLAR I ACCOUNTABILIT Y
Imagine Lexington is a product of and for the people of Lexington. The ensure future smart growth patterns, efficient infrastructure use, and the
implementation of this plan must reflect the best interests of those same preservation of farmland. This is a bedrock policy of this comprehensive plan.
community members. Ensuring the outlined vision is followed is crucial to the
success of Lexington, and placing safeguards and checks to make the needs Another cornerstone of Imagine Lexington is the Placebuilder, which includes
and desires of Lexingtonians a reality is important to protecting the integrity criteria for zone change applications to ensure compliance with all applicable
of the Plan. The responsibility of upholding the vision lies with the Division of portions of the comprehensive plan. Feedback from neighbors, the Planning
Planning, the Planning Commission, and the Urban County Council. Imagine Commission, and even Planning staff indicated that there was a need to
Lexington is designed to be transparent regarding the expectations of this more explicitly spell out what it means to be “in agreement with the adopted
policy-based plan. If followed, even when difficult decisions are necessary, comprehensive plan,” as required by state statute. The criteria included in this
the plan will result in a desirable and livable community that is progressive plan focuses on building places, rather than separating land uses. Through
and sustainable. context-sensitive design and appropriate placemaking, these standards will
build upon the well-documented momentum that shows Lexington nationally
The ultimate source of accountability for this plan is the citizens of Lexington, trending as a desirable location. The Placebuilder, paired with intentional
who should have an active role in its development. It is no secret that the City and incremental text amendments that set the regulatory boundaries for
is rapidly growing and changing, and public participation is essential to help development, will further reflect the Imagine Lexington vision.
guide this change as this occurs. Creating a citizen advisory panel to provide
input into its implementation, to contribute educated and informed opinions
ACCOUNTABILITY POLICY #1
from diverse backgrounds, demographics, and geographies, is of the utmost
importance. As an extension of the massive 2022 public input mechanism, On COMPLETE THE NEW PROCESS FOR DETERMINING LONG TERM LAND
the Table, this panel will provide the input, buy-in, education, and advocates USE DECISIONS INVOLVING THE URBAN SERVICE AREA AND RURAL
this city needs.
ACTIVIT Y CENTERS.
In addition to direct citizen involvement, increased accessibility of information The Urban Service Area concept, while instrumental in retaining Lexington’s
and continued education regarding the planning process and practice is key compact form and preserving farmland, is not without its drawbacks.
to this Plan. The Imagine Lexington website serves as a clearinghouse for Throughout the years, there have been many contentious debates about
all information related to the comprehensive plan, growth and development the size and location of the boundary. The same conversations have been
metrics, public information and input opportunities, and all other data. It will occurring for years, with development interests insisting there is not enough
provide a singular resource, for information on the planning process for land to develop, while others advocate for preserving farmland and halting
citizens, developers, and public officials. This informational resource coupled suburban sprawl. In fact, the debate begins anew every five years with the
with community outreach is meant to reduce barriers to involvement. This state statute-required update to the Comprehensive Plan. Increasingly, these
regularly updated resource should be easy to find, interpret, and use for all deliberations dominate the proceedings, and, though vitally important, they
interested parties. distract from many of the other crucial issues that face a city with steady
growth and trending desirability. The conversations turn from how Lexington
This information will be of great interest as development changes occur should grow, to whether or not the Urban Service Area should be modified,
throughout the city, but also as the Division of Planning undertakes one of with each interested property owner in the Rural Service Area making their
the more significant projects since the development of the nation’s first individual pitch. The resulting plans are not as robust as they could otherwise
Urban Service Area in 1958 – the creation of a new process for determining be if additional time were dedicated to other important topics and issues. It
long term land use decisions involving that boundary. Currently the state- also increases the overall time required to spend on the update. Now, staff
mandated comprehensive planning process, which takes place every five spends roughly two years updating the plan, leaving only three years to
years, is heavily dominated by the question of whether or not to modify the implement.
existing growth boundary that has kept the city relatively compact in its
development patterns. This current model is inefficient, unsustainable long- Additional difficulties exist with expanding the Urban Service Area through
term, and short-sighted. A true long-range plan and process is required to the current five-year structure. There is uncertainty on all sides of the issue,

222 | THEME E IMAGINE LEXINGTON 2045

 In 1958, Lexington created the nation’s first Urban Service Area. Throughout
the years, this boundary has seen many evolutions; it has been expanded, it
has been contracted, and it has been effectively maintained for decades at a
time. The American Planning Association designated the Urban Service Area
as a “National Planning Landmark” in 1991, an award for projects at least 25
years old that are “historically significant, initiated a new direction in planning
or impacted American planning, cities or regions over a broad range of time
or space.” Fewer than 100 of these landmark awards have been granted
nationwide, illustrating the significance of the boundary and the impact it has
had nationwide, as well as locally.

The Urban Service Area has served Lexington well and has provided a number
of benefits over the years. Most people immediately recognize the role it
has played in preserving the signature horse farmland for which Lexington
is internationally known; however, it has, first and foremost, provided for
more compact development patterns that reduced suburban sprawl, created
infrastructure efficiencies and budgetary savings, and resulted in more
sustainable development overall. For these reasons, this mechanism has
been replicated in areas all over the United States and is one of the urban
and therefore a heightened sense of anxiety and concern. Also, given that planning profession’s standard growth management tools. Improving how
several major landholdings within the Urban Service Area are currently held Lexington addresses such a critical part of what defines the community is
by a few large developers, some of the development interests believe that one of the most important policy goals of Imagine Lexington.
expanding the Urban Service Area could provide additional opportunities for
The 2018 Goals & Objectives for Imagine Lexington called for creating a new
the smaller developers or builders to work. However, there is no indication
process for determining the when, where, why, and how of future Urban
that simply adding new land to the Urban Service Area would alleviate this
Service Area modifications. This advocacy for a new way of looking at the
concern, as many of the same large landholders would have the means to
Urban Service Area is the cornerstone of this Comprehensive Plan, and is
acquire those properties as well.
intended to be the next evolution of the nation’s first Urban Service Area. It
However, the primary issue with the current system of determining whether should be a revolutionary take on the concept, which could create a nationally
or not to modify the Urban Service Area is the unsustainability of the method replicable model. It should also separate the question of whether or not to
long-term. This system will eventually lead to consuming all land in Lexington modify the Urban Service Area from the Comprehensive Plan, and will create
for development, even if that is decades or centuries in the future. It is crucial a long-term plan for Lexington’s sustainability.
to create a long-range plan now; if Lexington continues to make ad hoc
Work began in December 2019 with the Mayor’s Sustainable Growth Task
decisions about whether or not to alter the boundary without such a plan in
Force producing a set of annually replicable ongoing growth trends to assist
place, city leaders and citizens might not realize the potential negative impacts
in future land use decisions. It further produced a draft evaluation framework
of additional development until it is too late. Instead, a controlled release of
to help identify methods and criteria for expansion decisions by developing
smaller amounts of land as truly needed to meet the Comprehensive Plan
multiple growth scenarios to consider. While this product was not formally
goals and objectives, understanding ahead of time which land can be used
adopted by either the Planning Commission of the Urban County Council, it did
and which land is off limits, will create a much more intentional development
inform a follow up project.
pattern. Infrastructure can be more efficiently planned, and everyone will
understand what the future of Lexington development is to look like. In June of 2022, Vice Mayor Steve Kay convened a workgroup to build upon
the work of the Sustainable Growth Task Force by developing a set of

DIVISION OF PLANNING BALANCE | 223

recommendations to complete the rest of the identified tasks in Theme E, 2. Strong and Authentic Neighborhoods: The aim is to increase the
Goal 4 of the 2018 Comprehensive Plan Goals and Objectives. This Goal 4 number of neighborhoods that have convenient access to transit,
Workgroup specifically set about to establish the procedures for how future jobs, and retail, thereby fostering vibrant local communities.
expansion land is identified, where land is to be permanently preserved, and 3. Connected, Safe, and Accessible Places: This metric seeks to reduce
how decisions will be made for including newly identified land intended to the reliance on single-occupancy vehicle use, promoting alternative
meet specified growth needs. The recommendations included in the final transportation options and enhancing safety and accessibility.
report were presented to the Urban County Council and Planning Commission
with no formal action to implement taken. 4. Economically Diverse and Vibrant: The goal is to increase the
proportion of jobs that contribute to a diverse and innovative economy,
With the adoption of the Imagine Lexington 2045 Goals and Objectives, the ensuring economic vitality for the city.
Council once again affirmed a commitment to the Planning Commission 5. Environmentally Resilient: This metric measures the city's progress
adopting a new process for making future expansion decisions by setting a in reducing its impact on climate change and fostering sustainability.
new completion date of August 1, 2026. This will require building on the work
of both previous efforts while also continuing to build needed consensus with 6. Healthy and Active: This metric aims to reduce health inequities
a broad coalition of community stakeholders. across different neighborhoods within the city.

While each metric alone may not capture the entirety of a specific vision
ACCOUNTABILIT Y POLICY #1 ACTION ITEMS element, collectively they form a helpful framework for evaluating progress
1. Complete the new process for determining long-term land use over time. By utilizing the annual data and trends analysis from the ongoing
decisions involving the Urban Service Area and Rural Activity Sustainable Growth Task Force as well as developing a set of similar metrics
Centers. based on the priorities set forth in Imagine Lexington 2045, Lexington can gain
a yearly snapshot of its implementation progress and determine whether it
ACCOUNTABILITY POLICY #2 aligns with the goals outlined in the Imagine Lexington 2045 visions.

DEVELOP GROW TH BENCHMARKS AND DETERMINE BEST MEASURABLE ACCOUNTABILIT Y POLICY #2 ACTION ITEMS 2045:
METHODS TO MONITOR THEM AND REPORT PROGRESS ON A REGULAR 1. Develop a series of Comprehensive Plan metrics.
BASIS.
ACCOUNTABILITY POLICY #3
Plans are only as good as their ability to gauge measurable results in a timely
fashion. To know if a plan is reaching desired outcomes, it is imperative to IMPLEMENT THE PLACEBUILDER TO ENSURE DEVELOPMENT
track the successes and failures so future adjustments can be made and COMPLIANCE WITH THE GOALS, OBJECTIVES, AND POLICIES OF THE
successes replicated. Imagine Lexington is crafted as a policy-based plan with
COMPREHENSIVE PLAN.
very specific goals in mind. Basic metrics are included as a component of this
comprehensive plan but should be supplemented by additional benchmarks While traditional comprehensive plans set the stage for the location of land
identified in the process discussed in Accountability Policy #1. uses within the community, there is often little to no discussion as to how
a proposed development will meet the Goals, Objectives, and Policies that
The city of Denver Colorado has created a simple but insightful set of metrics provide the framework for the needs and desires of a community. Lexington’s
called “Comprehensive Plan Measuring Success”, which emphasizes the shift to a policy-based plan allowed for greater flexibility in the zone change
careful and deliberate tracking of key indicators. Denver's plan encompasses process, and it alleviated some of the issues surrounding historical roots of
six metrics that the city commits to measuring on an annual basis. These segregation inherent in a land use map.
metrics are:
The addition of the Placebuilder element to the Comprehensive Plan in 2018
1. Equitable, Affordable, and Inclusive: This metric focuses on reducing provided greater transparency and guidance during the planning process to
the number of households burdened by high housing costs. ensure adjacent property owners and community stakeholders were aware

224 | THEME E IMAGINE LEXINGTON 2045

 Since the adoption of the 2018 Comprehensive Plan, the Placebuilder
element has been an essential tool to enhance public engagement, clarify
the zone change process, modernize regulations, and streamline discussions
regarding future development. The majority of discussions regarding
development within Lexington since the inclusion of the Placebuilder have
become more focused on the development of places that are in context, which
THE in turn leads to greater agreement with the Comprehensive Plan. This update
to the Comprehensive Plan is reflective of the current context of the City,
PLACEBUILDER incorporates the changing perspectives of the public, and promotes modern
planning solutions.

ACCOUNTABILIT Y POLICY #3 ACTION ITEMS 2045:

1. Continue a public outreach program for ongoing community
education on Imagine Lexington and the Placebuilder.

ACCOUNTABILITY POLICY #4
of which policies were being considered for a particular application, and
MODERNIZE THE ZONING ORDINANCE TO REFLECT THE DIRECTION OF
what types of development they could expect. The Placebuilder is a primary
component of Imagine Lexington. It was designed to initiate conversations THE 2045 COMPREHENSIVE PLAN.
regarding how proposals further urban planning best practices and meet Since the adoption of the 2018 Comprehensive Plan, it has been the Goal
the needs and desires of community members. In essence, the Placebuilder of the Division of Planning and the Planning Commission to modernize the
provides a transparent process by which an applicant can show the Zoning Ordinance. The last major overhaul of Lexington’s Zoning Ordinance
community, the Planning Commission, and the Urban County Council that they was in 1983, which also included significant revisions to the Land Subdivision
are “in agreement with the adopted comprehensive plan,” per state statute. Regulations. Despite various changes that have been made since 1983,
the Zoning Ordinance is still reflective of many of the best practices and
As a distillation of the Goals, Objectives, and Policies of the plan, The philosophies from the 1980s. Future changes to the Ordinance must be
Placebuilder illustrates the types of development that are appropriate in reflective of a much larger city with different needs, while raising the bar for
various contexts. The element offers a menu of Place-Type options that are future development and ensuring that public infrastructure will be built to
meant to describe the context of the area of proposed development, while standards that address modern public health and safety.
recommending suitable Development Types that fit that context. This differs
from a traditional land use map because the goal is no longer focused Imagine Lexington 2045 is continuing a significant shift in Lexington’s planning
on the separation of land uses, but instead the building of integrated and direction. These are steps that promote facilitating urban growth, enhancing
complementary places. Each type of development has associated criteria existing places, and creating new desirable spaces. Realizing these goals
that represent the generalized needs and desires of community members will require updating regulations within the Zoning Ordinance to make new
and relate back to specific Themes and Policies. These criteria should be projects feasible. Creating abundant new opportunities for varied housing
addressed or shown to be inapplicable, to illustrate how proposals will meet types in order to attract new residents and businesses is critical and will
the Comprehensive Plan. Imagine Lexington acknowledges that different require a top to bottom review of every section of the Ordinance. Many of
parts of the City have their own unique contexts. Every site has its own the past iterations need to be evaluated for efficacy, as well as reviewing
unique opportunities, constraints, and challenges, and not every criterion will the Ordinance considering Imagine Lexington’s emphasis on equity and
be applicable. The Placebuilder element is not a checklist for developers to affordability.
satisfy, rather it provides guidance and a process to ensure conversations
occur regarding the policies present throughout Imagine Lexington. Additionally, over the last 30 years, changes to the Zoning Ordinance have taken

DIVISION OF PLANNING BALANCE | 225

on a more design-based approach, which raises the bar for future growth.
Residents are increasingly more concerned with the quality of the place
where they live. Revisions to the Zoning Ordinance will focus on creating great
new places for people to live, work and experience. These text amendments
are called for throughout the adopted 2045 Comprehensive Plan. To facilitate
the comprehensive and imposing effort required to amend these ordinances
in a meaningful way over the coming years, text amendments emanating
from Imagine Lexington will first be presented for formal consideration at
the Planning Commission committees. The text amendments will follow the
remainder of the process as directed by KRS 100 and the Zoning Ordinance,
including mailed notice, a public hearing with the Planning Commission, and
final adoption by the Urban County Council.

Whereas the 2018 Comprehensive Plan stressed the need for consistent
incremental change, the adoption of Goals and Objectives that expand the Urban
Service Area necessitates that the modernization of the Zoning Ordinance be
prioritized. Whereas previous changes were focused on the right sizing of the
Ordinance, while removing restrictive or exclusionary elements, many of the
changes resulting from the 2045 Comprehensive Plan must be reactive to
the existing Urban Service Area, while ensuring best practices for the future
areas of expansion. The Division of Planning staff, Planning Commission, and
Urban County Council must work to create an Ordinance that ensures transit
oriented development, prioritizes higher density developments and a mixture driving, which further decreases walking, bicycling and transit use even
of housing types, incentivizes affordable housing, and promotes employment when sidewalks or bike lanes are present. Despite the historic decisions,
opportunities. an increasing number of people utilize these streets in different ways. Some
ACCOUNTABILIT Y POLICY #4 ACTION ITEMS users make the personal choice to step outside of cars, but many others have
1. Modernize the Zoning Ordinance to reflect Imagine Lexington no other choice due to the of car ownership or a restriction that bars them
priorities. from physically operating a motor vehicle.

The Lexington Area MPO has estimated that approximately 1/3rd of

ACCOUNTABILITY POLICY #5 Lexingtonians do not operate an automobile either due to age, physical
REDESIGN AND RETROFIT THE LEXINGTON ROADWAY NET WORK TO limitations, cost, legal reasons or personal choice. The Lexington Area
Bicycle & Pedestrian Master Plan 2018 showed that 30% of all car trips could
SAFELY AND COMFORTABLY ACCOMMODATE ALL USERS SO AS TO
be easily covered by a 10-minute bike ride or a 30-minute walk. In addition,
ENCOURAGE WALKING, BICYCLING AND TRANSIT USAGE.
nearly the entire population within the Urban Service Area resides within
Since World War II, most transportation infrastructure has been designed to the Federal Transit Administration’s (FTA) defined walking distance of the
encourage the use of single-occupancy vehicles. This resulted in abundant Lextran bus route. As a result, a combined effort to construct new roadways
wide lanes of pavement to address peak hour congestion, but made walking, along with a comprehensive effort to retrofit the existing roadway network to
bicycling and transit usage undesirable and potentially unsafe. In some areas meet complete streets design standards would provide mobility equity to all
choices made to promote automotive movement eliminated other modes of Lexington residents regardless of their income, age or abilities. Additionally,
transportation altogether. Additionally, these wide highways are underutilized since the best design practices for complete streets incorporate the ‘Safe
during off-peak periods, encouraging excessive speeds and aggressive Systems Approach’, as promoted by the Federal Highway Administration, this

226 | THEME E IMAGINE LEXINGTON 2045

effort to redesign and retrofit Lexington’s roadways would be an important
part of accomplishing the Lexington Area MPO goal of working towards zero
traffic fatalities and serious injuries by the year 2050.

ACCOUNTABILIT Y POLICY #5 ACTION ITEMS

1. Work with the Division of Traffic Engineering and neighborhoods
to develop prototype street retrofit and traffic calming projects.

ACCOUNTABILITY POLICY #6
PARTNER WITH OTHER AGENCIES AND ORGANIZATIONS TO CREATE
PUBLIC EDUCATION AND OUTREACH OPPORTUNITIES.
Comprehensive planning plays a significant role in shaping the community
and impacts various aspects of daily life. Given the broad scope of its impact,
it is crucial to recognize the importance of including diverse perspectives
in the planning process. Engaging as many voices as possible is essential
to ensure that the resulting plans truly reflect the needs, aspirations, and
respectful and informed discussions about community issues and
concerns of the entire community.
planning decisions contributes to a more vibrant and informed public
To ensure a comprehensive and inclusive approach to planning, Lexington discourse.
should actively partner with other agencies, community organizations, and
leaders to facilitate public education, outreach, and engagement opportunities. 4. PROVIDE EDUCATIONAL OPPORTUNITIES: Partnering with
By doing so, the following objectives can be achieved: agencies and organizations allows for the provision of educational
opportunities to enhance public understanding and knowledge about
planning-related topics. This empowers residents to provide informed
1. REPRESENT DIVERSE VOICES: It is essential to ensure that input input and contribute to the planning process effectively.
is heard from voices that are representative of the city's population
at large, rather than solely relying on highly organized interests. A successful example of community engagement that achieved these
Collaborating with community organizations and leaders can help goals was the On the Table (OTT) event. OTT was a city-wide conversation
reach a broader range of individuals and groups, ensuring a more that facilitated community members getting to know each other better and
inclusive and equitable planning process. discussing what is and isn't working in Lexington. OTT was the primary public
input source for the 2018 and 2045 Comprehensive Plans. During the 2022
2. DEVELOP FUTURE NEIGHBORHOOD LEADERS: Partnering with weeklong event, thousands of residents across Lexington gathered in homes,
agencies and organizations provides an opportunity to develop businesses, libraries, and parks to discuss the present and future of the city.
and nurture future neighborhood leaders. By offering educational Participants not only engaged in conversations but also completed a survey
programs and mentorship initiatives, the city can empower individuals about the future of Lexington and its growth and changes. The data collected
to actively participate in the planning process, fostering a sense of through this process played a crucial role in shaping the 2045 Comprehensive
ownership and stewardship within their neighborhoods. Plan, with over 15,000 usable question responses guiding the plan's update.

ACCOUNTABILIT Y POLICY #6 ACTION ITEMS

3. IMPROVE CIVIC DISCOURSE: Through collaborative efforts, the
1. Partner with other agencies, community organizations, and
city can improve the level of civic discourse by creating platforms leaders to facilitate public education, outreach, and engagement
and spaces for constructive dialogue and engagement. Encouraging opportunities.

DIVISION OF PLANNING BALANCE | 227

ACCOUNTABILITY POLICY #7 (NEW) should regularly track progress towards equity and environmental justice
goals and make necessary adjustments along the way.
ESTABLISH A COORDINATING OFFICE TO ADVANCE CLIMATE ACTION
AND SUSTAINABILIT Y PLANNING EFFORTS. In 2022, Lexington hired its first Sustainability Program Manager. To effectively
meet the challenges and opportunities ahead, the city should continue
All cities, including Lexington, face significant challenges due to climate investing in and advancing these efforts by expanding staffing and allocating
change, pollution, resource depletion, and population growth. These issues more resources to coordinate and advance climate action and sustainability
require long-term planning and coordinated efforts to address the anticipated planning.
impacts. Establishing a city agency focused on sustainability demonstrates
a commitment to advancing sustainable development goals, encompassing ACCOUNTABILIT Y POLICY #7 ACTION ITEMS
environmental, social, and economic factors. 1. Establish a coordinating office to advance climate action and
sustainability planning efforts.
An office of sustainability serves as a central hub for developing and
implementing policies, programs, and initiatives that promote sustainable ACCOUNTABILITY POLICY #8
practices across all sectors of the City. This includes efforts to reduce
greenhouse gas emissions, improve energy efficiency, promote renewable ESTABLISH A COORDINATING OFFICE TO IMPLEMENT RECOMMENDATIONS
energy, minimize waste, enhance transportation systems, and implement OF THE MAYOR’S COMMISSION FOR RACIAL JUSTICE AND EQUALIT Y.
sustainable land use planning. Through collaboration with city departments,
In June 2020, the Mayor's Commission for Racial Justice & Equality was
community organizations, businesses, and residents, an office of sustainability
established and it engaged a diverse range of community members in
can foster a resilient and equitable city, improving the overall quality of life.
dialogue and collaborative efforts aimed at dismantling systemic racism.
By coordinating and prioritizing sustainability efforts among different The commission's comprehensive report examined how systematic racism
departments and initiatives, a sustainability office enables more efficient use of impacted different segments of Lexington, including its history, education
resources, facilitates communication and collaboration among stakeholders, and economic opportunities, housing and gentrification, health disparities,
and acts as a single point of contact for residents and businesses seeking law enforcement, justice and accountability, and racial equality. Anchored
information and support for sustainable practices. The engagement of the in the principle of equity, Lexington endeavors to ensure fair and unbiased
community helps foster a culture of sustainability throughout the City and can treatment for all individuals, particularly those from historically marginalized
draw more engaged individuals into discussions. communities. The city should actively embrace and celebrate diversity,
encompassing various communities, races, ethnicities, abilities, backgrounds,
Developing an office of sustainability is also crucial to enhancing cultures, nationalities, and beliefs, recognizing the multitude of benefits
competitiveness in securing state and federal funding. Dedicated staff can derived from a diverse population. Committing to fostering a just and inclusive
establish partnerships with agencies and seek technical assistance from society, Lexington should strive for fairness, civil rights, racial justice, and
experts, leveraging existing and future funding programs. Additionally, having equal opportunities across all levels of its government structure. Lexington
dedicated staff enables the collection and utilization of data to measure and should strive to create a thriving community that uplifts and serves all its
report the progress of initiatives, demonstrating their effectiveness and residents by cultivating a diverse workforce that appreciates and harnesses
impact to funders. the talents and skills of employees from different backgrounds.

Furthermore, it is essential to allocate adequate time and resources to ensure State and local governments are increasingly creating offices with a focus
that climate action and sustainable development decisions are accompanied on equity, aiming to give priority to equity in government policies and
by comprehensive equity and inclusivity practices. Equity should be integrated procedures, as well as to support equity initiatives within their communities.
into all decision-making processes, from policy development to program It is important for Lexington to acknowledge comprehensive and sustainable
implementation. An equity focus amplifies the voices of marginalized and equity measures and strive to implement a well-funded framework that can
vulnerable communities and address their concerns. An office of sustainability efficiently document, track, and monitor equity initiatives. The Broward County

228 | THEME E IMAGINE LEXINGTON 2045

 Lexington to create an Office of the Housing Advocate, by ordinance and with
permanent funding, to centralize and provide oversight of the full spectrum
of housing needs in our community. This office has been helpful to the
community as a centralized place for the community to go to for their housing
needs. This is an example of how the government can approach issues on
equality and diversity. To truly prioritize equity, it is necessary for Lexington
to adopt additional measures that establish a comprehensive, well-funded,
and sustainable framework for documenting, tracking, and monitoring
equity initiatives. It is crucial to establish a centralized office responsible for
overseeing all equity related efforts within the community. This office would
coordinate the implementation of programs, promote community advocacy,
circulate information, and foster collaboration with relevant departments
and partners. By taking these steps, Lexington can ensure that equity is at
the forefront of its planning and development endeavors. The office should
employ knowledgeable staff who can contribute to key policy speeches,
articles, essays, and presentations aiding the mayor and other City officials.
By establishing measurable benchmarks based on leading policies and
practices, Lexington ensures the effectiveness of its diversity and equity
initiatives, cultivating a transparent and equitable environment that values
and leverages the strengths of a diverse workforce.

(Florida) Racial Equity Task Force, led by the Senior Advisor for Innovation and ACCOUNTABILIT Y POLICY #8 ACTION ITEMS
Performance and situated within the Mayor's Office, is tasked with identifying 1. Establish a coordinating office to implement recommendations of
and addressing systemic racial inequities through policy recommendations the Mayor’s Commission for Racial Justice and Equality.
to eradicate racism and foster racial equity. Miami-Dade County in Florida
has the Office of Equity and Inclusion, comprising members appointed by ACCOUNTABILITY POLICY #9
County Commissioners for 2-year terms, dedicated to fostering equity and
ENHANCE DIVERSIT Y IN LEXINGTON'S BOARDS AND COMMISSIONS.
inclusion in the government and beyond. The Office of Diversity and Equity
in Multnomah County, Oregon, was created by a county ordinance and is Local boards and commissions play a vital role in shaping policies, making
overseen by the Diversity and Equity Manager, who reports directly to the decisions, and advising the City of Lexington on various matters. The
chair of the County Board of Commissioners. Olympia, Washington houses Lexington Boards and Commissions website provides information on 68
an eleven-member Social Justice and Equity Commission whose mission boards and commissions, covering crucial areas like land use planning,
is to eliminate racism and unlawful discrimination while promoting human parks, environment, public safety, and public health. As of June 2023, across
rights for all residents through a fair and equitable approach. Lexington all boards and commissions, occupied seats were 20% African American, 2%
should implement comprehensive policy reforms and enhance existing ones Asian, 3% Hispanic, and 71% White.
to create a well-funded framework to establish a centralized authority within
the government that can effectively address equity issues and strive towards While the overall membership generally reflects Lexington's population
building a community that is fair and equitable for all its residents. demographics, it is essential to ensure that each individual board and
commission has a diverse membership that truly represents the community
Lexington’s Commission For Racial Justice And Equality Housing And they serve. Diversity encompasses more than just race; it includes factors
Gentrification Subcommittee report had eight recommendations on how such as age, income, education level, housing tenure, gender, and more. By
to deal with the housing issues in Lexington. Recommendation #1 was for fostering diversity within boards and commissions, the City of Lexington can

DIVISION OF PLANNING BALANCE | 229

 PILLAR II STEWARDSHIP
incorporate a wide range of perspectives, experiences, and expertise into Lexington was founded in 1775, meaning there has been almost 250 years
the decision-making process. This leads to more equitable and inclusive of rich history that laid the foundation for the current inhabitants of the City.
outcomes that benefit all residents. Each generation of Lexingtonians is tasked with ensuring the prosperity of
the community and being good stewards of the available resources. Lexington
Board and commission members are entrusted with important responsibilities, has a long history of proactive planning, from the first comprehensive plan
including attending regular meetings, actively participating in committee in 1931 (Imagine Lexington 2045 is the 92-year update), to the nation’s first
work, reviewing materials, and staying informed about relevant industry Urban Service Area in 1958. The thoughtfulness that went into the forward-
developments. Their dedication and time commitment come with opportunity thinking policies of the past should continue as this generation plans for the
costs as they may forgo other professional or personal pursuits. future.
Attracting highly qualified candidates to these demanding positions can be Sustainable development is perhaps the best way to discuss the stewardship
challenging. To foster a diverse pool of candidates, it is essential to consider of Lexington’s land and resources. The Goals and Objectives of this Plan call
incentives, such as fair compensation. Offering fair compensation recognizes for all future development to be sustainable from an economic, environmental,
the value of individuals' time, effort, and expertise, making these roles more and social perspective. This means the Lexington must provide for the needs
appealing and accessible to a wide range of qualified candidates. of current community members without compromising the needs of future
generations. Development that is economically sustainable promotes fiscally
By providing equitable compensation, Lexington can help remove barriers
responsible development patterns that do not negatively impact current
and create an environment that encourages individuals from diverse
taxpayers, while also providing various employment opportunities.
backgrounds, particularly those from marginalized communities, to actively
participate and contribute their unique perspectives. Fair compensation also Environmentally sustainable development uses the available natural and
addresses potential financial burdens that may limit participation, ensuring built environment responsibly and prioritizes compact and sensitive design.
that these positions are more accessible and inclusive. This, in turn, leads It is vital that Lexington ensure the continued availability of clean air, water,
to more inclusive decision-making processes and ensures that boards and and soils, so that we are not depleting our environment for immediate gains.
commissions truly reflect the diversity of the community they serve.
The third leg of the sustainability stool is social sustainability, which requires
the implementation of equitable land use policies. Ensuring opportunities
exist so that all Lexingtonians can thrive is critical to the long-term success of
the community. Incentivizing socially responsible development that promotes
affordability is necessary to promote an inclusive community that embraces
individuals from a wide range of backgrounds.

It is also essential to consider the potential unintended consequences of

different policies and land use decisions. The City and development partners
should always be evaluating the underlying thought-process or roots of
land use decisions and regulations. Exposing unintentional or intentional
bias against low income and historically marginalized people will lead to the
development of equitable solutions that promote a diverse, sustainable, and
resilient community.

While it is easier to promote the development of greenfield sites, infill and

redevelopment opportunities are typically the most sustainable locations for
future growth. Lexington’s arterial or corridor roadways offer some of the
best opportunities for sustainable and equitable development. To ensure that

230 | THEME E IMAGINE LEXINGTON 2045

 for urban uses and have defined boundaries. These should be seen as
opportunities to accommodate growth in the community. As the Rural Land
Management Plan states, the City should “maximize employment potential
within the existing boundaries of the Rural Activity Centers while avoiding
impacts to surrounding agriculture, Rural Settlements and viewsheds.”
Developing these sites fully could relieve development pressure on rural
properties, similar to the focus on infill and redevelopment within the Urban
Service Area.

In addition to the impacts of growth on a local level, regional planning is

important to ensure that Lexington grows with the surrounding communities.
Such collaboration can result in improved land stewardship on a larger scale.
Collaboration across county lines has been extensively discussed but has
not produced long-term execution and tangible results. Recently, Bluegrass
Tomorrow has made progress towards connecting the Bluegrass Region’s
counties through a shared set of goals, but there is still a lot of work to be
done.

STEWARDSHIP POLICY #1
UPHOLD AND MODERNIZE THE URBAN SERVICE AREA CONCEP T.
these areas are developed to their fullest and to promote economic vibrancy, In Lexington, the natural boundaries that separated urban and rural land uses
Imagine Lexington recommends the revitalization of corridors through remained relatively stable until the period following World War II. Emerging
thoughtfully designed transit oriented development (TOD). An emphasis on employment opportunities, coupled with the government’s investment into
density, increased connectivity, and a mix of land uses, all within proximity, housing and large federal projects, like US highways, allowed people greater
will help the City utilize the precious land available for development, while freedom to move throughout the country. Lexington, like many other cities,
also enhancing opportunities for individuals and families to obtain greater was the beneficiary of such development. Between 1940 and 1950, Lexington’s
access to housing, goods and service. population grew from 78,809 to 100,746.
While much of the Comprehensive Plan is focused on developing a livable Community leadership saw the problematic trends in the unrestricted
community within the Urban Service Area, an equally important element is growth of the community. Specifically, City officials were concerned with
the preservation of Lexington’s quality agricultural soils and the promotion “leapfrog development”, where parcels of land were being skipped over. This
of the region’s historic farming culture. The rural areas play a significant practice resulted in large swaths of undeveloped lands separating pockets
role in the City’s economy, identity, quality of life, and international acclaim. of development and creating inefficiencies in the construction and supply of
While this plan has identified a need for expansion, it is important that any sewer infrastructure and utilities. The inefficiencies of irregular development
expansion be carefully master planned, diligently deliberated, and include patterns and unregulated growth also resulted in a greater financial burden
robust public input. Steadfast stewardship of Lexington’s rural landscape on the government and the established populations, who were being taxed
through compact, efficient, and fiscally responsible growth patterns is one of at a greater level to pay for the expansion of services (police, sewers, fire,
the key components of this Plan. schools, etc.). Finally, leapfrog development and unregulated expansion
produced continued pressure on the rural land uses that remained vital to
Another tool in preserving precious agricultural assets is to make full use
the sustainability of the community.
of the existing Rural Activity Centers, rural areas that are already slated

DIVISION OF PLANNING BALANCE | 231

In 1958, Lexington acknowledged the detrimental impacts of unregulated STEWARDSHIP POLICY #2
expansion and established the nation’s first Urban Service Area, effectively
changing how development occurred and leading the way for many other CAPITALIZE ON THE DIVERSE ECONOMIC DEVELOPMENT, HOUSING,
communities throughout the United States. This growth management AND TOURISM OPPORTUNITIES THROUGHOUT THE BLUEGRASS REGION
strategy codified the two broad forms of land use and located the areas AND ENGAGE IN DISCUSSIONS TO FURTHER CONNECT REGIONAL
either within the Urban Service Area or within the Rural Service Area. As ECONOMIC HUBS.
with any innovation that impacts private property, the Urban Service Area in
Lexington has been tested and modified to ensure that it was legally sound As Lexington’s economic and social capital grows, there will be impacts
and practically applicable. The establishment of the Urban Service Area was on surrounding counties and cities. The latent effects of these successes
instrumental to Lexington’s growth and continued viability. can change neighboring communities in a variety of ways, including their
economies, housing stock, and industrial development. In an effort to produce
Since 1958, the Urban Service Area has expanded and contracted to meet a regional vision for the future which allows all communities to benefit, a
the needs of the community. The boundary of the Urban Service Area has policy of collaboration should be developed with Lexington’s neighboring
been modified a total of eight times (1962, 1964, 1967, 1973, 1980, 1996, 1998, cities. The initial step toward the development of a comprehensive regional
and 2001), resulting in an increase of just over 17 square miles of urban land planning initiative can be done by first connecting economic hubs or centers
uses. With each modification, it has been the responsibility of the Planning of economic activity, which are generally located in the downtowns of
Commission to identify the need and appropriate locations of urbanized land communities.
uses, which were as elements of the Comprehensive Plan. While Lexington’s
built environment has changed dramatically and the City has grown in Connecting economic hubs can be done on two separate levels: economically,
population by over 190,000 individuals over the course of the last 65 years, the through principles of business cooperation and coordination, and physically,
Urban Service Area concept remains a necessary tool to help build a more through the establishment of transit that provides multimodal opportunities
sustainable, resilient, and viable community. Following the adoption of this for citizens to move between communities (see Stewardship Policy #3).
Comprehensive Plan, it will again be the duty of the Planning Commission to By linking Lexington with the nearby economic hubs or the downtowns of
identify between 2,700 and 5,000 acres for future urban development. surrounding communities, the city will be able to better tie the economic
interests of the Bluegrass Region and develop a collaborative planning
While the Urban Service Area concept remains critical to Lexington’s success, process. Regional perspective has already been initiated within the tourist
and the previous modifications of the Urban Service Area in Lexington have industry (see Stewardship Policy #4) and through Commerce Lexington’s
generally been a success, the process of determining when and where to regional marketing, but there is still room for improvement through additional
expand has not changed since the establishment of the Urban Service Area promotion of other opportunities and industries.
in 1958. It has led to hard conversations that often polarized the community
and minimized other elements of the Comprehensive Plan that are equally Through partnerships with organizations like the Bluegrass Area
important. Following the adoption of a master plan for the future areas of Development District and their Bluegrass Regional Planning Council, as well
expansion, as called for by the Urban County Government, the Planning as direct collaboration with surrounding economic hubs like Nicholasville,
Commission and staff must continue efforts to modernize how Lexington Paris, Winchester, Versailles and Georgetown, Lexington can begin to develop
modifies the boundaries of the Urban Service Area and where it is appropriate lasting planning relationships that benefit the region. The development of
to expand to in the future. an inter-city summit, focused on fostering dialogue between communities,
can be the first step in such a relationship. The establishment of downtown
STEWARDSHIP POLICY #1 ACTION ITEMS: collaboration between Lexington and surrounding communities can also lead
1. Educate the public regarding the Urban Service Area concept and to additional economic development, planning, and infrastructure cooperation
the process for managing urban growth. in the future.

Furthermore, by connecting business opportunities, the Bluegrass Region

can begin to increase levels of economic security through a diverse economic

232 | THEME E IMAGINE LEXINGTON 2045

 an interconnected regional transportation system that promotes efficiency
and sustainability. The key to a thriving public transport network lies in
providing high-quality services that are reliable, frequent, fast, comfortable,
accessible, convenient, affordable, and safe, catering to demand-driven
routes. Establishing scheduled and dependable connections between public
transit systems can bolster a regional vision.

By outlining a well-defined program for future transit investments, cities

can rally political support, coordinate various stakeholders involved in
planning and implementation, and secure funding from government and
private sources. Enhancing the bus transit experience through reliable and
user-friendly services and establishing an attractive identity for the public
transport system, while embracing new technologies and apps, will contribute
to a sustainable and efficient public transport ecosystem.

STEWARDSHIP POLICY #2 ACTION ITEMS

1. Collaborate with surrounding counties to connect transit between
economic hubs.

STEWARDSHIP POLICY #3
INCREASE REGIONAL TRANSPORTATION COOPERATION AND PURSUE
MULTIMODAL TRANSPORTATION OP TIONS TO FACILITATE INTERCOUNT Y
base, reducing instability caused during periods of downturn. While it is
CONNECTIVIT Y.
imperative to have a diversity of industries within Lexington, collaborating
with surrounding communities can also entice diverse industries that link A regional transportation network provides for the movement of goods and
the communities and utilize the full advantages of the region. By nurturing people though a multimodal system, which includes aviation, trains, trucks,
regionally inclusive initiatives, Lexington and the surrounding communities buses, cars, bikes, and pedestrian options. As of 2020, approximately half of
can also seek to avoid population dislocation and dispersal out of the region the city’s labor force commutes from outside of Fayette County, a trend that
through the provision of superior employment opportunities across all skill is expected to continue as populations in Clark, Scott, Madison, Jessamine
and education levels. and Woodford Counties grow. As this regional population grows, a connected
transportation network providing accessible alternatives becomes important
A regionally comprehensive mass transit system holds immense potential in for not just residents and commuters, but also to ensure regional connections
both inter-county mobility and the ongoing battle against climate change. A to state, national and international networks. This includes complete streets
successful public transport system is necessary for an effective emissions that give consideration to bicycle and pedestrian traffic in addition to cars,
reduction strategy in the transportation sector. To ensure success, planning trucks, buses, and ride sharing options while utilizing the latest innovative
for the future of mass transit requires partnerships. Public transit agencies advancements in technology.
can partner with transportation network companies to enhance service
availability, leverage technology, and improve mobility choices. Additionally, As interaction between Lexington and neighboring counties & regions
expanding the mass transit network to neighboring jurisdictions, such as increases, planning coordination on key transportation corridors and facilities
Georgetown, Danville, Nicholasville, and Frankfort, through cooperation should be encouraged along with collaboration with KYTC. This includes
with organizations like Blue Grass Ultra-Transit Service, which is operated services and facilities such as intercity bus services and the growth and
by the Blue Grass Community Action Partnership (BGCAP), would create development of Bluegrass Airport.

DIVISION OF PLANNING BALANCE | 233

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heritage and history. With the two incorporated cities of Richmond and Berea,

234 | THEME E IMAGINE LEXINGTON 2045

this county offers a unique blend of urban, suburban, and rural environments, potential of this area, and a small area plan should be undertaken for more
attracting both residential and industrial growth. specific recommendations.

Visitors, particularly those arriving through Bluegrass airport who are The Avon RAC is 271 acres and is primarily under the ownership of the
drawn to Lexington's urban offerings and desire to explore nearby counties, Commonwealth of Kentucky, with the exception of 79 acres which are privately
contribute to the mutual benefits of both Lexington and the surrounding owned. This RAC includes several tenants, including Lockheed Martin, which
areas. Those traveling for attractions in outlying counties will probably stay contracts for the U.S. Department of Defense.
and spend a good portion of their tourism money in the City. Additionally, the
added visibility and attractiveness of the region creates enhanced livability Spindletop’s Research Campus is an office park owned by the Commonwealth
and amenities for employers in all counties. of Kentucky and includes tenants such as the Council of State Governments
and the Asphalt Institute. This RAC is zoned for professional office land uses.
While the area is limited and contains no privately owned parcels, there are
STEWARDSHIP POLICY #5 opportunities for additional professional office developments, which would be
FULLY REALIZE THE DEVELOPMENT POTENTIAL WITHIN LEXINGTON’S well suited for corporate headquarters. Economic development opportunities
should be pursued though amendments to the City’s agreement with the
RURAL ACTIVIT Y CENTERS WHILE AVOIDING NEGATIVE IMPACTS TO
Commonwealth of Kentucky regarding the provision of sanitary sewer which
SURROUNDING AGRICULTURE, RURAL SET TLEMENTS, AND SCENIC
would be required.
RESOURCES.
The 2017 Rural Land Management Plan promotes the full development of The Blue Grass Airport is largest of the RACs, containing 707 acres. This
the Rural Activity Centers (RACs) located within the Rural Service Area. RAC includes warehousing and office uses to support the airport facilities,
The concept of the Rural Activity Center was initially developed in the 1980 as well as a shooting range for Lexington Police. As the airport has added
Comprehensive Plan. The four RACs; Blue Sky, Avon (Blue Grass Station), new facilities, they have acquired new land surrounding the established
Spindletop, and the Airport, were areas of existing employment that were RAC. The Airport Board acquired 314 acres outside the RAC and constructed
located outside the Urban Service Area and were in operation or had zoning/ an additional runway that allowed expansion of service. However, to avoid
development commitments prior to the comprehensive rezoning of the City complications that could arise through future property sales, the boundary
and County in 1969 and the merger of the City and County Governments in was not expanded.
1974.
While the RACs make up a relatively small percentage of the RSA, they still
The 1980 Comprehensive Plan stressed that these areas were planned for provide significant opportunities for economic growth and development,
non-residential development and were meant for commercial, warehousing, primarily in Lexington’s job-creating industries. Opportunities for industrial and
manufacturing, or office land uses. Each RAC was further outlined in the professional office growth are available, and the city should explore creative
1999 Rural Service Area Land Management Plan and again within the 2017 opportunities to promote the development of employment opportunities.
Rural Land Management Plan (RLMP). The 2017 RLMP recommends that the These opportunities should be pursued, but with thorough consideration
City seek to maximize the potential for jobs within each of the RACs while given to the integrity of the Rural Service Area and the recommendations of
maintaining their boundaries and minimizing impacts to the rural area. The the Rural Land Management Plan.
RLMP recommends the protection of the scenic resources along roadways
STEWARDSHIP POLICY #5 ACTION ITEMS
that were identified in the Corridor Enhancement Study.
1. Conduct a Blue Sky Small Area Plan.
The Blue Sky Industrial Park is the lone privately owned and operated RAC and 2. Explore the development of comprehensive scenic resource
has been identified as an underutilized site, with much of its area occupied by analysis with VisitLex and the Corridors Commission.
surface car lots. Its recommended uses are primarily for warehousing, light
industrial, and interstate commercial development due to the proximity to
the I-75 corridor. There are significant opportunities to more fully realize the

DIVISION OF PLANNING BALANCE | 235

STEWARDSHIP POLICY #6 adjacent counties, Lexington should foster a unified approach to planning
that maximizes resource efficiency, enhances coordination, and promotes the
IDENTIFY NEW COMPATIBLE RURAL LAND USES THAT WOULD well-being of the region as a whole.
ENHANCE LEXINGTON’S ECONOMY AND PROVIDE ADDITIONAL
INCOME - GENERATING POSSIBILITIES FOR LOCAL FARMERS. To achieve a coordinated planning approach, Lexington and adjacent
counties should work collaboratively to develop and implement coordinated
The 2017 Agritourism Zoning Ordinance text amendment was important in plans, policies, guidelines, and strategies. These efforts will encompass
further establishing protections for the agricultural industries, including the various areas, including land use planning, transportation infrastructure,
equine industry. The impact of that text amendment should continue to be environmental protection, resource management, and other relevant aspects
monitored to identify opportunities to add further complementary uses that of planning. Through coordinated policy implementation, the region can achieve
expand tourism options without negatively affecting existing industries. There consistency, avoid duplication of efforts, and maximize the effectiveness of
remains considerable rural land that is geographically and topographically planning initiatives.
unsuitable for standard agricultural uses that should be considered for
additional agritourism uses. While the community was not prepared during Furthermore, as the largest municipality in the region, Lexington should
the last text amendment to make those changes, Imagine Lexington envisions actively explore opportunities for resource sharing, including the exchange
a future where those opportunities will become more acceptable, when of data, best practices, expertise, and technical resources, with adjacent
coupled with sufficient protections to the rest of the agricultural area. counties. This collaborative approach will enhance the planning capacities
of Lexington and adjacent counties, enabling them to achieve more impactful
In addition to the tourism elements of rural communities, there is a need to outcomes. Additionally, Lexington should proactively seek state and federal
identify new compatible uses attributed to the ag-tech industry. Ag-tech is funding opportunities that support collaborative regional planning efforts,
defined as any innovation used across the value chain to improve efficiency, aiming to leverage additional resources for the region's planning initiatives.
profitability and/or sustainability of the agricultural industry. Over the course
of the last 20 years, there have been significant advancements in hardware and For instance, in 2023, Lexington took the initiative to assume a leadership
software, business models, new technologies and new applications targeted role within the Lexington-Fayette Metropolitan Statistical Area (MSA).
at increasing yield, efficiency, and profitability of agricultural operations. By garnering support from other jurisdictions, Lexington became the
Kentucky and, in particular, the Bluegrass Region, is poised to attract, develop, lead organization and opted-in to participate in the EPA Climate Pollution
and sustain ag-tech companies over the coming decades. It is imperative to Reduction Grant program. This program will provide funding to develop and
promote these advancements to enhance Lexington’s economy and provide implement plans aimed at reducing greenhouse gas emissions and mitigating
additional income-generating possibilities for local farmers. other harmful air pollutants in the region.

STEWARDSHIP POLICY #6 ACTION ITEMS To facilitate effective regional collaboration, Lexington should encourage and
1. Update the Zoning Ordinance provisions for Agritourism and Ag- participate in regular communication, coordination, and information sharing
tech. among the planning departments of adjacent counties. This collaborative
framework can serve as a platform for shared decision-making, policy
STEWARDSHIP POLICY #7 development, and the implementation of coordinated planning efforts. By
identifying shared priorities, Lexington and adjacent counties can develop a
ENHANCE REGIONAL COLLABORATION FOR COORDINATED PLANNING cohesive vision and a unified planning approach that transcends jurisdictional
EFFORTS. boundaries.
Lexington recognizes the importance of regional collaboration to achieve
STEWARDSHIP POLICY #7 ACTION ITEMS
collective goals and ensure a sustainable and prosperous future for the entire
1. Work with adjacent communities’ planning departments to
Lexington-Fayette Metropolitan Statistical Area (MSA). The MSA comprises
foster a unified approach to planning that maximizes resource
the six counties of Fayette, Bourbon, Clark, Jessamine, Scott, and Woodford
efficiency, enhances coordination, and promotes the well-being
Counties. By working together with the planning departments of these

236 | THEME E IMAGINE LEXINGTON 2045

 of the region as a whole. advances the overall sustainability objectives of the community.
2. Develop and implement plans aimed at reducing greenhouse
gas emissions and mitigating other harmful air pollutants in the Lexington also recognizes that social sustainability is vital in creating
region. equitable and inclusive communities. Building upon the principles of Imagine
Lexington, the city prioritizes the development of land use policies that
STEWARDSHIP POLICY #8 promote access to social and economic resources for all residents. This
includes addressing public transportation needs, implementing initiatives
ENSURE FUTURE DEVELOPMENT IS ECONOMICALLY, ENVIRONMENTALLY, to support the homeless population, ensuring access to healthcare and
AND SOCIALLY SUSTAINABLE. mental wellness programs, and promoting inclusivity through additional zone
change criteria. A commitment to sustainability requires both the private
Lexington recognizes the importance of sustainable development for
sector and the government to rethink their approaches to community issues,
the well-being of its residents, the environment, and the local economy.
understanding the interconnectedness between policies and actions and
Sustainable development refers to a holistic approach that seeks to raise the
their broader impact. By fostering social sustainability, the city aims to create
standard of living for current residents while ensuring the same opportunity
a community that supports the well-being and quality of life for all residents,
for future generations. . Sustainability hinges on the City requiring all future
embracing diversity and meaningful community engagement.
development to prioritize connecting people to places and each other through
compact and well-designed development. This ensures the long-term balance Achieving sustainable development requires partnerships and collaborations
between growth, conservation, and community well-being. with stakeholders, including developers, community organizations, educational
institutions, and other government agencies. It also involves updating zoning
In terms of economic sustainability, reducing the fiscal impact of growth is
and land use regulations to align with sustainable development principles,
a key consideration. Lexington must promote and implement policies and
creating area master plans, conducting impact assessments for major
regulations that yield development patterns aimed at saving taxpayer dollars.
projects, and establishing metrics and benchmarks to track progress towards
This involves strategies such as encouraging infill development, promoting
sustainability goals. The Division of Planning should explore opportunities
compact and mixed-use development, and prioritizing the efficient use of
existing infrastructure. Economically sustainable development must also
ensure that goods and services are equitably distributed and that there are
sufficient job opportunities to support the provision of government services.
By focusing on cost-effective development practices and job creation, the city
can optimize resources, enhance fiscal resilience, and ensure the long-term
financial sustainability of the community.

Lexington is also committed to environmentally sustainable land development

patterns that support the goal of reaching net zero greenhouse gas emissions
by 2050. Recognizing the crucial role of land use in carbon reduction, Lexington
must prioritize strategies that require compact, encourage infill development,
and prioritize the efficient use of existing infrastructure. Compact development
is characterized by higher density buildings that contain a mix of uses, which
utilizes the least amount of land for development and enables walkability.
Greenfield development in new development areas will have to incorporate
sustainable design principles, such as energy-efficient building practices,
green infrastructure, and the preservation of natural areas, to contribute to
the city's sustainability goals. By integrating these practices, the city aims
to ensure that future development minimizes its environmental impact and

DIVISION OF PLANNING BALANCE | 237

and expanded staffing to monitor progress and ensure transparency and 4. Infrastructure measures that both improve the quality of life for
accountability in the implementation of sustainable development practices. residents of the rural settlements and are compatible with the Rural
Service Area should be explored, including transportation and public
STEWARDSHIP POLICY #8 PLACEBUILDER CRITERIA transit, tourism, and internet/ Wi-Fi connection;
1. E-ST8-1: Development should be high density and contain a mix
of uses. 5. Consider adjusting the PDR program’s evaluative point system so
2. E-ST8-2: Development should provide community oriented applications which include farmland adjacent to rural settlements
places and services. are awarded additional points;
6. Identify local land use advocacy groups to partner as stakeholders in
STEWARDSHIP POLICY #9 the development of policy and education/outreach efforts within rural
settlements;
FOLLOW AND IMPLEMENT THE RECOMMENDATIONS OF THE 2007
7. The policy recommendations for rural settlements from the 2007
STUDY OF FAYET TE COUNT Y’S SMALL RURAL COMMUNITIES AND THE
Study of Fayette County’s Small Rural Communities and the 2017
2017 RURAL LAND MANAGEMENT PLAN TO PROTECT AND PRESERVE
Rural Land Management Plan should be implemented.
LEXINGTON’S RURAL SET TLEMENTS.
Lexington has 19 rural settlements that are essential to the history and The City has recently launched “A Sense of Place’ campaign to further
fabric of the rural community. Three of the historic settlements, Bracktown, document the rural hamlets of Lexington. The project will seek to document
Cadentown, and Jonestown, have been absorbed into the Urban Service Area, rural Black hamlets but also to preserve and educate the community
while 16 reside in the Rural Service Area, totaling 505 acres. about those hamlets. Future recommendations produced by the steering
committee should be reviewed by the Planning Commission for inclusion in
The majority of the rural settlements were settled by free African Americans the Comprehensive Plan.
following the Civil War. Many descendants of those who first settled these
communities still remain on the same land today and operate small farms STEWARDSHIP POLICY #9 ACTION ITEMS
and businesses. The rural settlements also comprise a significant portion of 1. Review buffering requirements for the Rural Service Area.
the African American homeownership in Fayette County.

A three-year study of Fayette County’s rural settlements documented the

context and history of the different areas and gave policy recommendations
to protect each of their unique identities. The study with the recommendations
were adopted as part of the 2007 Comprehensive Plan. While some actions
have been taken as a result of these policy recommendations, many of these
small rural settlements remain threatened. Threats include urban expansion,
population decline, gentrification, and loss of identity.

To protect and preserve Lexington’s rural settlements:

1. The current lotting patterns should be maintained, unless the action
taken would restore the parcel’s historic condition;
2. New housing opportunities on vacant lots should be promoted to
ensure the longevity of the rural settlements;
3. An ND-1 or H-1 overlay, tailored to the needs of these individual
communities, should be considered;

238 | THEME E IMAGINE LEXINGTON 2045

PILLAR III GROW TH
There are many challenges and opportunities related to urban growth in for development throughout the city are outdated, reflecting a more suburban
Lexington, but ultimately growth is inevitable, encouraged, and invited, as model that does not fit with current realities and vision. It is important to
it is an indicator of a vibrant and desirable community. Imagine Lexington revise these as expeditiously as possible, to ensure the desired development
has made mention of Lexington’s well-documented and consistent growth in is possible throughout Lexington.
numerous locations throughout the plan, realizing that many approach this
fact with trepidation; however, if proper planning and implementation are As all growth and urban development can be exciting and is important to
executed, it should enhance the community on the macro and micro levels. the success of Lexington, it is also necessary to remember that quality
Neighborhoods can become more complete with a mix of uses and amenities open space is a basic human need. This was highlighted during the Covid-19
to provide for quality of life for all citizens throughout all seasons of their pandemic when these spaces were safe respites from uncertain futures.
lives; development patterns can be fiscally responsible with taxpayer dollars; The public input for this comprehensive plan very clearly indicated that the
overall community health can improve with multimodal options; and, through incorporation of quality open space was a priority for community members
these practices, Lexington can protect its signature farmland. of the City and were draws for businesses seeking to establish themselves
in the city. It is key to ensure that the open space and parks provided by new
Through an inclusive and comprehensive public engagement process, the developments is designed so as to maximize the utility and visibility of the
Urban County Council has recognized a crucial need to acquire more land space. Making open space and greenspace provision a primary objective of
within the Urban Service Area to cater to housing and job creation. While developments, and not simply an afterthought, is crucial to making the most
the 2045 Comprehensive Plan upholds the Urban Service Area concept, it of the land within the Urban Service Area.
also bears the responsibility of addressing current demands and planning for
future expansion to meet the needs of the people of Lexington until 2045. On No statement on growth within Imagine Lexington would be complete without
June 1st, 2023, the Urban County Council officially sanctioned the enlargement discussing the importance of the major corridors to the overall development
of the Urban Service Area. Subsequently, the Planning Commission was strategy. This Plan calls for the continued study of Lexington’s major arterial
tasked with evaluating potential new land for inclusion, and by December 1st, corridors, to identify opportunities for redevelopment that will support mass
2024, an Expansion Area Master Plan is expected to be adopted. This Master transit initiatives and account for the changing reality of the retail industry.
Plan endeavors to ensure responsible development while considering the The City has taken the first steps with the review of Nicholasville Road and
preservation of agricultural land and meeting the evident requirements for New Circle Road. However, these studies cannot languish, and the other
additional acreage to facilitate housing and economic progress in Lexington. studies must move forward. As more and more retail dollars go to online
shopping, and consumers become increasingly interested in finding unique
It is important to acknowledge that this expansion will not immediately experiences at their brick-and-mortar stores, it is incumbent upon the City
resolve the housing shortage, particularly the lack of affordable housing to take a proactive look at the future of these sites. This means reaching
that Lexington currently faces. There is still a pressing demand for housing out to property owners and managers, initiating comprehensive studies of
development within the existing Urban Service Area, necessitating a more the areas, and embarking upon government-initiated zone changes to spur
efficient and compact approach due to the consistent growth experienced redevelopment activity. If there is a desired outcome for the city, every effort
by Lexington. With approximately 90% of the area within the boundary should be taken to proactively clear hurdles to that outcome.
already developed, Lexington must optimize the remaining 10% and prioritize
redevelopment efforts to their fullest potential. With all the changes anticipated in the next 20 years, including the expansion of
2,700 to 5,000 acres, the opportunities for Lexington are immense. Preemptive
To maximize the potential for development, Lexington must take a holistic planning through the vision outlined in Imagine Lexington will continue to
approach to infill and redevelopment across the whole of the Urban Service guide the City along a path that builds on past successes, acknowledges
Area. While initially recommended through the 2013 Comprehensive Plan, historic biases, and embraces a future for all Lexingtonians.
Imagine Lexington continues this approach, realizing that the community’s
land use policies make all development within the community vitally
important, and that every development must achieve community goals.
Unfortunately, many of the ordinances and regulations setting the parameters

DIVISION OF PLANNING BALANCE | 239

GROWTH POLICY #1 GROW TH POLICY #1 ACTION ITEMS
1. Update the Zoning Ordinance to implement Imagine Lexington’s
MODERNIZE REGULATIONS THAT SUPPORT INFILL AND infill policies.
REDEVELOPMENT. 2. Evaluate the effectiveness of current policies surrounding the
provision of services and how it affects the built environment.
In the late 1990s and early 2000s, the City acknowledged the historical
development patterns of Lexington’s oldest portions of town and sought to
promote the infill and redevelopment of properties that did not and could not
GROWTH POLICY #2
meet the modern zoning ordinance. In 2001, the Planning Commission adopted IDENTIFY AND ENHANCE OPPORTUNITIES FOR INFILL AND
the Infill and Redevelopment Area Boundary as part of the 2001 Comprehensive
REDEVELOPMENT IN DOWNTOWN AREAS.
Plan. The I/R Area boundary is based on the 1934 urbanized area of Lexington
and its surroundings, which was primarily developed in traditional patterns Lexington’s downtown area is defined by specific landmarks, stretching from
prior to the adoption of the Zoning Ordinance. The special provisions in the the Isaac Murphy Memorial Art Garden to forthcoming Town Branch Park.
Zoning Ordinance for this defined area are designed to complement those Prominent recent projects, including Town Branch Commons, the LexLive
historical patterns, by allowing and promoting opportunities for compatible entertainment complex, the Lexington Convention Center, and the recently
growth in older neighborhoods. The changes were intended to promote approved High Street Redevelopment project, exemplify the momentum
development that enhances the livability of the neighborhood, add appropriate behind developments in the downtown area. Therefore, as Imagine Lexington
density, and promote affordable housing, all while adding value to areas of 2045 takes shape, it should actively explore ways to incentivize and support
town that were previously overlooked because the primarily suburban Zoning these types of projects.
Ordinance provisions were out of place in these neighborhoods.
To maintain the ongoing revitalization of the urban core, it is important to
Since the establishment of the I/R Area and the subsequent modifications establish a new Downtown Master Plan (Theme D, Placemaking Policy 13) that
to the Zoning Ordinance, Lexington has sought to better implement infill specifically focuses on identifying opportunities for redevelopment along with
and redevelopment practices throughout the Urban Service Area. The need supported strategies. A revised plan will hopefully be a catalyst for attracting
to enhance the livability of the neighborhoods, add appropriate density, and new development, while also meeting the needs of existing downtown
promote affordable housing throughout Lexington is essential to creating interests. Furthermore, it is essential to set a regular update to the master
a sustainable and resilient community for everyone. The public comment plan and explore the possibility of expanding the boundaries of downtown
process gathered during Comprehensive Plan process makes clear that to accommodate the continuous growth occurring in the surrounding areas,
Lexingtonians would like to live and work in places are walkable, allow a which is steadily pushing against the current boundaries.
mixture of uses in neighborhoods, and allow the growth of the community
Downtown residents have repeatedly expressed a desire for more
without substantial loss of the surrounding rural service area. To do so,
neighborhood-serving commercial development. Turning those wishes into
Lexington must modernize the Zoning Ordinance to reduce barriers to
reality requires working with Lexington’s urban neighborhoods to address the
new housing, allow for neighborhood businesses within areas dominated
provision of additional housing to support further commercial opportunities.
by exclusive zoning, and promote a mixture of housing options within the
With the substantial private investment in student housing in the near-campus
established context.
areas, Lexington has seen commensurate development of new commercial
In addition to the Zoning Ordinance, it is important to review the various options intended to serve residents. The redevelopment of the Euclid Kroger
departmental policies and manuals that impact how the City is built and and the construction of the five/six story mixed-use Hub developments
functions. These policies and practices can be in conflict with the development on Pine Street/Upper Street and Virginia Avenue/South Limestone Street
of compact and mixed-use communities. The City should evaluate the indicate that providing substantial housing opportunities does attract further
effectiveness of current policies surrounding the provision of services and economic development.
how it affects the built.
The growth in the university population, in this case, is having a positive impact

240 | THEME E IMAGINE LEXINGTON 2045

 GROWTH POLICY #3
IMPLEMENT THE RECOMMENDATIONS OF THE 2018 YOUR PARKS, OUR
FUTURE MASTER PLAN.
Lexington's Division of Parks and Recreation currently meets residents’ and
visitors’ needs with a diverse recreation portfolio comprising more than 105
parks, seven community centers, five golf courses, and seven plaza spaces.
Furthering the implementation of Lexington’s 2018 Parks and Recreation
Master Plan is crucial for maintaining and enhancing the overall quality of life
for Lexington’s residents, especially as the city continues to grow.

As noted in the Parks and Recreation Master Plan, the spatial distribution of
parks throughout Lexington is a critical factor, as residents are more likely to
utilize facilities that are near their homes, especially those who rely on walking
or public transportation. To plan accordingly, the Parks and Recreation Master
Plan provides differing metrics for neighborhood, community, or regional/
in attracting businesses that students and neighborhood residents need, and nature parks, with each type fulfilling an essential role in the overall park
that increase their quality of life. Acknowledging the need to provide additional system.
future student housing in the near-campus area is critically important, in that
it serves to relieve housing pressures from adjacent neighborhoods. However, Neighborhood parks, typically ranging from 2.5 to 15 acres, serve residents
part of the process of identifying new opportunities will be analyzing existing within a 10-minute walk service area. At present, neighborhood park service
areas that have already seen substantial irreversible change and may be in areas in older parts of Lexington (inside New Circle Road) exceed newer areas
need of full redevelopment. of development. As of 2018, approximately 40% of Lexington residents inside
the Urban Service Area lived within a 10-minute walk of a neighborhood park.
To bolster the vitality of new and existing small businesses in the area, it The Parks and Recreation Master Plan identifies the need for walkable access
is beneficial to concentrate efforts on enhancing Jefferson, High, Main, to neighborhood parks in the rapidly developing residential areas outside of
Broadway, and Limestone streets. Limestone Street already serves as a existing neighborhood park service areas. These areas include northwestern
thriving hub for small businesses. The Rupp Arena Arts & Entertainment neighborhoods outside of walking distance to Masterson Station Park, the
District Masterplan proposed the extension of safe streets throughout Hamburg Area, east of Jacobson Park, the Polo Club area east of I-75, and any
downtown, connecting the University of Kentucky and Transylvania campuses future growth areas along the current Urban Service Area.
to the heart of the city, and promoting a wider array of mixed-use activities.
Additionally, Lexington’s one-way streets should be evaluated within the For community parks, which are typically over 16 acres (often exceeding 40
context of a new Downtown Master Plan (Theme D, Placemaking Policy #13), acres), the Parks and Recreation Master Plan recommends that residents
in light of the numerous changes of the last decade (Oliver Lewis, complete have access within a five-minute drive or a 10-15 minute bike ride of their
streets policy, Town Branch Commons, Covid-19 commuter/land use changes) home. Most land within the current Urban Service Area falls within an existing
and the expected development for the next five years (Rupp District, Town community park service area, except for central sector neighborhoods near
Branch Park, Midland Fayette County Schools). By revitalizing public spaces Picadome, east sector neighborhoods in the Hamburg area, southwest sector
and attracting more people, Lexington's central business district (CBD) can neighborhoods east of Veteran's Park, and the rapidly developing Polo Club
undergo transformative changes. Area.

Regional parks and nature parks, which are usually over 100 acres in size,
offer a wide array of amenities and attract visitors willing to travel greater

DIVISION OF PLANNING BALANCE | 241

 collaboration between the City and developers to ensure sufficient park
services in future residential developments. These strategies involve
acquiring land in projected residential growth areas for neighborhood and
community-scale parks and natural areas using developer fees. Another
approach is to encourage the dedication and development of parkland as
part of the residential development process. According to the Parks and
Recreation Master Plan, the ownership and operation of these future parks
and recreational features do not necessarily need to be assumed by the
city or the Division of Parks and Recreation. In many cases, particularly for
smaller parks, ownership and operation by non-governmental organizations
may be preferred.

Implementing these strategies will require collaboration across the Divisions

of Planning and Parks and Recreation to identify potential locations for
future parks. The Divisions of Planning and Parks and Recreation must also
coordinate on policy and regulation updates that ensure new park acquisition
and development maintains and enhances access to meet the recreational
needs of the relevant neighborhood(s).

GROW TH POLICY #3 ACTION ITEMS

distances. Since most regional parks in Lexington exceed 200 acres, they
1. Amend regulations to establish a Park Dedication Ordinance.
are typically located in suburban and rural areas where land is available.
Approximately 60% of Lexington residents live within a 10-minute drive of a
Regional Park. The Parks and Recreation Master Plan suggests the addition GROW TH POLICY #3 PLACEBUILDER CRITERIA
of new regional and nature parks. It identifies four new or expanded parks • E-GR3-1: Development should meet recreational needs by
in Lexington, including the development of one existing park (Cardinal Run following the recommendations of the Parks Master Plan
North, currently underway), one private park (Town Branch Park, currently
underway), and two new future acquisition areas in the northwest and GROWTH POLICY #4
northeast rural areas.
PROMOTE THE ADAP TIVE REUSE OF EXISTING STRUCTURES.
As Lexington’s population continues to grow and new residential subdivisions Structures often outlive the function that they were built to serve, and there
are developed both within and beyond the current Urban Service Area, the is nothing new about stabilizing and rehabbing an old structure; however,
demand for additional parks will continue to increase. Most new developments under modern Zoning Ordinance provisions, refitting an old building for a new
in Lexington are situated beyond the service areas of existing parks, so it is use is often problematic, particularly given the existing suburban parking
essential to establish new parks in these growing areas. This ensures that requirements. The most drastic examples of this in Lexington were in the
new residents have comparable access to the facilities and proximity to open older industrial areas located within the defined Infill and Redevelopment
spaces that current residents enjoy while maintaining a consistent level of Area.
service for residents across Lexington. The Parks and Recreation Master Plan
considers parks and open spaces as vital infrastructure for new residential Historically, major employers wanted to be near railroad access and housing
developments and emphasizes that land for new parks should be set aside that would allow their employees to walk to work, which contrasts with
during the development process. more recent suburban-style priorities of having easy highway access and
separation from residential properties. Many older industrial buildings
The Parks and Recreation Master Plan outlines strategies to facilitate nationally have become highly underutilized, due to the need for most new

242 | THEME E IMAGINE LEXINGTON 2045

industrial uses to locate in large buildings that are more cost-effective when GROWTH POLICY #5
built new, with better access to transportation corridors. Several small users
could utilize the abundant vacant square footage, but a common problem was IDENTIFY AND PRESERVE LEXINGTON’S HISTORIC ASSETS, WHILE
that the combined parking requirements of several small users could rarely MINIMIZING UNSUBSTANTIATED CALLS FOR PRESERVATION THAT CAN
be met onsite, or even in the general vicinity, without major demolition to HINDER THE CIT Y’S FUTURE GROW TH.
provide new surface parking lots.
With any future development of Lexington, reverence and critical review of
In 2012, the city partnered with the developers of the Distillery District and the city’s history is imperative. Through the utilization of existing preservation
National Avenue to pass a first-of-its-kind Zoning Ordinance provision that policies, specifically through the Division of Historic Preservation, and
would allow flexible uses and lower parking standards, providing a type of through partnership with organizations like the Blue Grass Trust for Historic
redevelopment flexibility second only to the core downtown zones. From Preservation and the National Register of Historic Places, Lexington can
inception, the adaptive reuse provisions of the Zoning Ordinance were protect, preserve, and enhance its stock of historic properties and structures,
designed to further the Goals and Objectives of the Comprehensive Plan, which act as a bridge between present day and Lexington’s 243-year history.
promoting the sustainable practice of reusing existing buildings, minimizing
While the preservation of Lexington’s historic properties is important, it is
the need, in some cases, for new construction. The provisions were written
equally critical to distinguish between properties that contribute to the
with large-scale redevelopment in mind, allowing phasing of the development
historical record, and those that are less significant historically. During
to occur, recognizing that large scale redevelopment projects rarely happen
the development process, the age of properties is frequently utilized as a
overnight. In 2021, the Planning Commission and Urban County Council
guideline for preservation in opposition to new construction. However, the
adopted an update to the Adaptive Reuse regulations to modernize the project
50-year test, which is often referred to as the test of longevity, must be
requirements. These modifications were specifically targeted at correcting
corroborated with levels of historic significance. Historical significance of a
some of the unintended negative consequences of the earliest projects, while
site considers the impact on or importance to American history, architecture,
also raising the bar to create better development. In addition to the update to
the Adaptive Reuse Projects, the Planning Commission and Council modified
the Flex Space Project to the Industrial Reuse project to allow for the reuse
of industrial buildings located outside of the defined Infill and Redevelopment
Area.

In addition to those older structures located on industrially zoned land,

Lexington must now turn its attention to other zones and potential structures.
Lexington has a diverse construction history, which includes large office
structures and project sites located along collector roadways. The ability to
adaptively reuse structures that are currently vacant will allow for in context
development, which can revitalize areas and be more environmentally
sustainable.

GROW TH POLICY #4 ACTION ITEMS

1. Review additional zoning categories for adaptive reuse projects.
GROW TH POLICY #4 PLACEBUILDER CRITERIA
• E-GR4-1: Developments should incorporate reuse of viable
existing structures.

DIVISION OF PLANNING BALANCE | 243

archeology, engineering, and/or culture, and can be attributed to districts, The stone fence inventory should be updated to catalogue their condition and
sites, buildings, structures, and/or objects. reflect their current status. Advancements in technology should be utilized
to digitally map the stone fences through Geographic Information System
The significance of the property can generally be broken down into four (GIS). Other issues concerning stone fences identified by the 2017 Rural Land
primary criteria of influence: an area of important events, association with Management Plan should be considered when updating current policies and
significant persons, a unique or distinctive type, or the potential to yield regulations protecting limestone fences.
important information. Furthermore, the property must possess high levels of
integrity regarding location, design, setting, materials, workmanship, feeling, GROW TH POLICY #5 PLACEBUILDER CRITERIA
and association. These criteria for preservation and/ or enhancement of a • E-GR5-1: Structures with demonstrated historic significance
structure should be employed to analyze the importance to the history and should be preserved or adapted.
character of Lexington.
GROWTH POLICY #6
Through this crucial evaluation process, properties and districts that
contribute to the historical record, as well as representative samples of ADDRESS NEW DEVELOPMENT CONTEXT ALONG THE BOUNDARIES
architectural stylings, will be preserved for future generations to experience. OF EXISTING HISTORIC DISTRICTS WHILE ENCOURAGING INFILL AND
However, without a critical review of a property’s contribution, Lexington will REDEVELOPMENT.
see a proliferation of unsubstantiated calls for preservation that can hinder
Traditionally, the application of zoning has been almost universally about
the growth and densification within the Urban Service Area.
softening the edges of varying land uses against each other. Shifts in
Additionally, a proactive and comprehensive inventory of historic assets industrial production in the United States have resulted in less need for
should be undertaken by the Department of Planning, Preservation, and stepdown zoning that was pervasive from the 1930s through the 1990s.
Development to identify architecturally and historically significant properties. Modern planners are less likely to need to address mitigating the impacts of
This should result in the initiation of additional H-1 Districts, as appropriate, manufacturing and industrial uses on less intense areas directly adjacent but
to supplement the 15 existing districts that fundamentally contribute to are now focused on how to integrate different land uses within neighborhoods
Lexington’s urban fabric. Ideally, this assessment should be completed prior and developments. However, as preservation efforts of the last few decades
to development proposals to eliminate confusion as potential developments have increased, there has also been an increased desire to mitigate issues
are evaluated. of different contexts between old and new development. Lexington’s local
economy has undergone a similar transformation over the last few decades.
One historical asset that should be both documented and preserved is While the tobacco industry has waned, the city’s service and healthcare
Lexington’s iconic stone fences. They play a unique role in the region’s identity industries have grown significantly. The more urban land uses of the new
and contribute to the scenic views, rural corridors and rolling hills. Despite economy are increasingly complementary to existing residential land use
the role stone fences play in defining the sense of place within the Inner patterns. Greater consideration to site design can make those transitions
Bluegrass Region, they are in critical danger of being lost to development and even more complementary and of greater benefit to neighborhoods.
neglect.
Redevelopment of older industrial sites near historic areas creates an
Stone fences are made of Kentucky Limestone collected from fields, streams, opportunity to enhance those spaces. Historic preservation efforts have
or quarries and demonstrate sustainable farming practices from the 1800s. succeeded in making some areas attractive for new growth around them,
The 1990 Stone Fences of Fayette County study estimated that 90% of the which is a testament to their success. However, creating a market for new
stone fences in the region are gone. The development of adjacent properties projects is not without its own issues to monitor. Imagine Lexington supports
has been the primary reason for their demise since 1950. The 1994 Stone the preservation of existing historic districts, while encouraging new infill
Fence Ordinance protects those stone fences located in the public right-of- and redevelopment projects both within these areas and around them.
way from demolition. However, as the 2017 Rural Land Management Plan
finds, “the fate of stone fences remains in peril.” Development criteria within Imagine Lexington seek to address some of these

244 | THEME E IMAGINE LEXINGTON 2045

contextual issues to better provide guidance to historic property owners and
developers regarding what to expect along the boundaries of historic zones.
The primary goal will be to enhance the historic areas by creating new dynamic
places where people will want to live, work and visit. These new developments
must not attempt to mimic or recreate the past. They should be contextual to
their surroundings, but also be distinct from historic developments. In the
urban core and surrounding second tier urban locations, increases in land
use intensity are to be expected. However, that intensity should still enhance
the aesthetics and established built environment of directly adjacent historic
areas.

GROWTH POLICY #7
ENSURE STORMWATER AND SANITARY SEWER INFRASTRUCTURE IS
PLACED IN THE MOST EFFICIENT AND EFFECTIVE LOCATION TO SERVE
ITS INTENDED PURPOSE.
Development significantly affects the hydrological functioning of an area
in two primary ways: first, development usually increases impervious
surfaces, resulting in a higher volume of stormwater runoff; and second, by for sanitary sewer infrastructure minimize the number of pumping stations
necessitating the installation of sanitary sewers. As a result, stormwater and and treatment plants by defining the catchment service area upstream of
sanitary sewer systems must be installed. These sewer systems operate convergence points where streams and natural drainage channels meet.
most efficiently when their physical layout mimics the topography of their Figure A provides a visual representation of this approach, where a treatment
service area. Following the service area topography allows the pipelines and plant or pump station located at point 1 would effectively serve all the land
channels to flow by gravity at minimum depths below the ground surface, upstream from that point, while point 2 would handle the land draining into
saving money by minimizing the need for pumping and the cost of deep both points 1 and 2. The "outlet" serves the entire catchment.
excavations.
As urban development progresses, the unavoidable increase in impervious
Service areas for stormwater and sanitary sewer systems are most efficiently surfaces within catchments significantly impacts the conveyance of
defined by catchments, which are areas of land where rainwater collects stormwater. Efficient stormwater conveyance systems work to minimize
when it rains. Catchments are defined by elevation contours, not property the negative impacts of impervious areas by utilizing a system of green
lines or geopolitical boundaries. A service area boundary should never be infrastructure and detention basins to control the increase in peak stormwater
defined by a stream or channel, leaving one side of the catchment served and flow rates and durations. The peak flow control infrastructure is throughout
the other side unserved. Instead, it should cross a stream or channel so that the catchment being served, working to limit increased flow and cumulative
the downstream service point serves the entirety of every upstream sub- impacts at points 1 and 2 and at the outlet shown in Figure A.
catchment. Figure A illustrates this concept, with the black lines delineating
topographical service areas—the catchments—with points 1 and 2 showing To effectively address these requirements, it is necessary to review and
drainage convergence points and the main drainage outlet in red. update Lexington's codes, policies, and ordinances regarding the placement
of stormwater and sanitary sewer infrastructure. This will help ensure that
In the case of sanitary sewers, it is crucial that all sanitary liquid waste the placement of infrastructure is optimized to serve its intended purpose
undergo treatment before being discharged into the environment. To achieve in the most efficient and effective manner. It is also important to review its
this, the lowest elevation point in the system must be a treatment plant or a placement relative to the Urban Service Area, to anticipate and accommodate
pumping station that directs the waste to a treatment facility. Efficient layouts

DIVISION OF PLANNING BALANCE | 245

future growth needs in the area, as appropriate, and avoid unintended the associated Urban County Councilmembers and property owners once
development pressure in areas designated for long-term rural preservation. again to ensure a broad overall desire to implement the plans.
It is the intention of this policy to minimize the impact of infrastructure cost
on taxpayers throughout Lexington. It is not the intention of this policy for Recently completed corridor studies for Nicholasville Road and North New
infrastructure investment to impact short-term growth and Urban Service Circle Road both have identified a handful of catalyst site locations that could
Area decisions, but to plan for long-term infrastructure needs, timing, and benefit from a zone change to prepare for future redevelopment and to assist
efficiency. with needed infrastructure improvements.

Over the past decade, this community has invested nearly $400 million in GROW TH POLICY #8 ACTION ITEMS
improving stormwater and wastewater management systems. Undertaking 1. Work with the Planning Commission and Council to proactively
this review and update would enable the city to continue upholding high pursue government-initiated zone changes recommended by
standards for stormwater and wastewater management while minimizing the corridor studies.
economic and environmental impacts associated with these systems.
GROWTH POLICY #9
GROWTH POLICY #8 SUPPORT MISSING MIDDLE HOUSING T YPES THROUGHOUT LEXINGTON.
IDENTIFY CATALY TIC REDEVELOPMENT OPPORTUNITIES TO Lexington, like nearly every city in America, was historically built with
PROACTIVELY REZONE PROPERTIES, CLEAR REGULATORY HURDLES, neighborhoods that included a mix of housing types such as single-family
homes, small fourplexes, carriage houses, stacked duplexes, courtyard
AND EXPEDITE REDEVELOPMENT.
apartments, and larger apartment clusters, all with fewer off-street parking
Previous small area plans, which contained future land use recommendations, spaces in walkable neighborhoods that were the fundamental building blocks
have been critical to facilitating future development in those locations. of the city. As many overt forms of racial housing discrimination were made
Recommendations in the South Nicholasville Road Small Area Plan led the way illegal, zoning stepped in to fill the same role as cities implemented zoning
for The Summit at Fritz Farm, an area that had been the subject of numerous reforms to make many of these types of mixed housing neighborhoods became
failed zone change attempts in the past. While in the Winburn-Russell Cave non-conforming. Mixed housing neighborhoods disappeared, replaced with
Small Area Plan, specific recommendations for public improvements were newly created single-family zoning categories designed to separate people
immediately implemented through Urban County Council action, approving along racial, class, and socio-economic lines.
funds for constructing the completion of Winburn Drive to Citation Boulevard.
Today, those remaining mixed housing neighborhoods, such as Chevy Chase
Looking forward, as the planned corridor studies that are a major component and Kenwick, which were developed during periods where racial covenants
of Imagine Lexington are completed, property owners interested in served the purpose that zoning would later supplant, are highly sought
implementing the recommendations should be afforded an opportunity after, due to their ability to provide amenities like walkability and achieving
to take part in a Planning Commission initiated Zone Map Amendment. a higher density without the perception of overcrowding. As this type of
Leveraging the partnerships forged during the study period, a government housing in these and other neighborhoods becomes more popular, there will
sponsored zone change that reflects the recommendations would expedite be additional opportunities to provide compatible housing, new uses such as
the land use changes needed along the respective corridors. If the City has a live-work units, and walk-to businesses to support the residents. The low
desired outcome in these areas, proactive measures should be taken to lay intensity business uses need to be integrated with the existing neighborhood,
the groundwork for their implementation. and should favor mixed-use corridors, such as Jefferson Street or Loudon
Avenue, where they add neighborhood character and become focal points for
Taking steps to clear the path for future development can signal to the
neighborhood gatherings.
development community that there is substantial buy-in on the planned path
forward, minimizing both the risk and cost associated with redevelopment Missing middle housing types often have some of the same regulatory and
projects. Part of the corridor study process would include engagement with provision of service issues that were identified in Theme E, Growth Policy

246 | THEME E IMAGINE LEXINGTON 2045

 recommendations regarding the location of future development, specifically
indicating that properties with existing frontage along corridors, arterials and
collector roadways be given priority.

Existing/infill corridors are typically served by transit and often include

underutilized land such as large parking lots and commercial land uses that
are prone to evolve and change over time. Corridor-based growth provides
an opportunity to locate new housing in these areas, close to existing
goods and services, and to support transportation needs through enhanced
transit service. Additionally, as Lexington expands the Urban Service Area,
it is important to ensure that development maximizes the available land
and established infrastructure so to remain socially, economically, and
environmentally sustainable and resilient.

One solution is to prioritize Transit-Oriented Development (TOD) along major

corridors and new development. TOD refers to areas with high quality public
transit services, good walkability, and compact, mixed land use. This type of
development allows people to choose the best option for each trip: walking
and cycling for local errands, convenient and comfortable public transit for
travel along major urban corridors, and automobile travel to more dispersed
#1. Lexington should evaluate and address the regulations and policies that destinations. People who live and work in such communities tend to own
make missing middle housing difficult to develop and serve. fewer vehicles, drive less, and rely more on alternative modes.
GROW TH POLICY #9 ACTION ITEMS While TOD should be an important component of all new development, it
1. Evaluate and address the regulations and policies that make should also be a major theme within all redevelopment, particularly along
missing middle housing difficult to develop and serve. major corridors. As a city with a larger than average retail footprint, it is
GROW TH POLICY #9 PLACEBUILDER CRITERIA fair to assume Lexington will be disproportionately affected by changes in
• E-GR9-1: Live/work units should be incorporated into residential the retail market. In recent years, Lexington has already experienced the
developments. trickling effects brought on by shifting consumer habits and preferences,
• E-GR9-2: Low-intensity business uses that will provide with the closure of several prominent national retailer locations. In response,
neighborhood amenities should be incorporated into existing Imagine Lexington brings to the forefront the flexibility and creativity needed
neighborhoods. to facilitate the reuse, revitalization, and/or enhancement of existing retail
• E-GR9-3: Less intense multi-family residence types should be space, both utilized and underutilized.
incorporated into primarily single-family detached areas.
This type of redevelopment can be mutually beneficial for the city, the future
GROWTH POLICY #10 tenants, and the property owners. This additional development opportunity
will allow the landowners greater return on their properties and should also
ESTABLISH TRANSIT ORIENTED DEVELOPMENT (TOD) FOR NEW bolster the success of the remaining retail entities on the site, building in
DEVELOPMENT AND INFILL ALONG MAJOR CORRIDORS. a customer base within close, walkable proximity, as well as connecting
other parts of the city to the development through enhanced transit. Existing
The adoption of the Goals and Objectives by the Urban County Council
retail developers interested in strengthening their customer base should
instructed the Planning Commission to identify land for the expansion of the
consider the incorporation of not only residential uses, but less traditional
Urban Service Area. Within Goal #3, Objectives a and b, the Council provided
retail services such as small groceries, pharmacies, gym/fitness centers,

DIVISION OF PLANNING BALANCE | 247

and locations for medical and senior care. As mentioned throughout previous recommends them.
themes, a growing number of residents now prefer to live and spend time in
areas that are walkable and well-incorporated. Applicants justifying a zone map amendment with language regarding
unanticipated changes must do so with evidence outside of land use changes
Coordinating land use planning with appropriate transportation infrastructure approved by the Planning Commission, which should speak to much larger
and services is critical to achieving these outcomes. Thus, Lexington should economic, physical or social shifts from forces greater than local planning
continue to establish corridor-specific land use and transportation plans decisions.
for each major arterial. Evaluation of future expansion areas must also
closely consider how land use patterns and transportation infrastructure will Land use changes are expected to occur throughout Lexington as infill and
be coordinated to reduce trip lengths for all modes, and make daily trips redevelopment continues as the primary strategy. These changes will occur
convenient via walking, bicycling and public transit. and be approved primarily based upon their ability to demonstrate compliance
with the Goals and Objectives and associated policies, as well as the zone
GROW TH POLICY #10 ACTION ITEMS change criteria of Imagine Lexington.
1. Develop zoning regulations that ensure appropriately located
Transit Oriented Development (TOD). GROWTH POLICY # 12
2. Develop Transit Oriented Development (TOD) resources.
GROW TH POLICY #10 PLACEBUILDER CRITERIA ADOP T A MASTER PLAN FOR THE EXPANSION OF THE URBAN SERVICE
• E-GR10-1: Transit oriented development (TOD) should be provided. AREA THAT ADDRESSES LEXINGTON’S GROW TH NEEDS THROUGH
SUSTAINABLE AND EQUITABLE DEVELOPMENT.
The Goals and Objectives for Imagine Lexington 2045 call for the identification
GROWTH POLICY #11
of between 2,700 and 5,000 acres of land for inclusion to the Urban Service
IMAGINE LEXINGTON 2045 ANTICIPATES A VARIET Y OF LAND USE Area. Once this land is selected, the Planning Commission will begin a
CHANGES WILL OCCUR THROUGHOUT THE URBAN SERVICE AREA AND comprehensive master planning process for the defined areas. This master
plan will guide future growth and development, with a focus on addressing a
RECOMMENDS THOSE THAT ARE IN AGREEMENT WITH THE GOALS,
wide spectrum of community needs as well as the infrastructure and facilities
OBJECTIVES, AND POLICIES WITHIN THIS COMPREHENSIVE PLAN.
necessary to support the sustainable and equitable development envisioned
LAND USE CHANGES ALONE IN AN AREA ARE NOT SUFFICIENT TO by Imagine Lexington 2045.
CONSTITUTE MAJOR CHANGES OF AN ECONOMIC, PHYSICAL, OR
SOCIAL NATURE AS PROVIDED IN STATE STATUTE FOR THE APPROVAL
SUSTAINABLE DEVELOPMENT
OF A ZONE MAP AMENDMENT.
State statue provides direction on the findings necessary for proposed Imagine Lexington 2045’s critically important goal of reaching net zero
map amendments or zone changes. The primary threshold to clear is that greenhouse gas emissions by the year 2050 will require a considerable shift
the proposal must be in agreement with the adopted comprehensive plan. in development practices in comparison to previous expansions. To meet this
However, it also allows that, in the absence of such a finding, the Planning goal, the master plan will set forth rigorous standards for future development
Commission can approve an application if there have been, “major changes that at minimum should encompass:
of an economic, physical, or social nature within the area involved which
were not anticipated in the adopted comprehensive plan and which have 1. EMISSIONS REDUCTIONS
substantially altered the basic character of such an area.” Due to the adaptive Prioritize carbon-neutral development and building practices by
and flexible nature of Imagine Lexington, this should be a very difficult including guidelines for reducing emissions and exploring carbon-
argument to make successfully. Imagine Lexington not only anticipates land sink technologies such as reforestation.
use changes throughout much of the urban service area, it calls for and

248 | THEME E IMAGINE LEXINGTON 2045

 2. NATURAL SYSTEMS single-family homes, townhouses, apartments, and accessory
The identification, preservation, and conservation of environmentally dwelling units (ADUs). The plan should encourage architectural
sensitive areas such as streams, wetlands, floodplains and forests diversity and innovative design approaches that cater to different
must be a key organizing principle of new development. These areas household sizes, lifestyles, and stages of life, fostering a vibrant and
should be well-integrated into the fabric of the new growth area so inclusive community.
that they are both protected from development but also serve as key
focal points and passive recreation areas. 3. CLOSE TO JOBS
Prioritize the proximity of residential areas to job opportunities.
3. TRANSPORTATION By strategically locating housing developments near employment
The master plan must promote a transportation network and land use centers, the plan can reduce commuting distances and promote
patterns that support efficient transit, as this is integral to reducing walkability, cycling, and the use of public transportation. This
emissions from personal vehicles. Off-road bicycle paths should be approach not only reduces traffic congestion and emissions but also
provided along all collector and arterial streets. enhances the work-life balance for residents, allowing them to spend
more time with their families and participate in community activities.
4. COMPLETE NEIGHBORHOODS
Neighborhoods should be designed so that residents are no more than 4. SOCIAL INTERACTION
a ten-minute walk to a neighborhood-serving retail area, elementary Emphasize the importance of social interaction and community
school, and a park or public space as described in the Placebuilder. engagement within the new growth area. It should encourage the
development of public spaces, gathering areas, and community
EQUITABLE DEVELOPMENT facilities that foster social connections and facilitate recreational
activities. This can include the provision of parks, plazas, community
Of equal importance, the master plan should ensure that new developments centers, and other amenities that promote a sense of belonging,
in these areas are accessible to all individuals who desire to reside or work encourage social interactions among residents, and enhance the
there. It should also ensure that housing options catering to different income overall quality of life in the community.
levels are available, providing a safe environment with convenient access to
services and community facilities within walking distance. The master plan While the master plan will guide private development, it will also identify
will propose mixed-use neighborhoods that incorporate commercial hubs, additional regulation changes that will be needed for these projects to be legally
promoting a greater mix of differing housing types at the block level. constructed. A great deal of progress has been made since the completion
of the 2018 Comprehensive Plan, but additional reform is needed to address
inconsistencies across some residential and business zones. Establishing
1. HOUSING AFFORDABILIT Y
a business zone that is widely viewed by residents as complementary to a
Address the issue of housing affordability by implementing strategies
neighborhood and that also supports the inclusion of residential development
that ensure a range of housing options are available to residents
is critical to addressing many of the goals, objectives and policies of Imagine
at various income levels. This includes exploring initiatives such
Lexington 2045. Creating neighborhoods that are walkable and bikeable to
as mixed-income developments, affordable housing subsidies,
employment, community facilities, and vibrant public spaces is not possible
incentives, and/or requirements for developers to include affordable
with many of the zoning tools Lexington currently possesses.
units.
While the 2018 Comprehensive Plan called for a new approach to expansion
2. HOUSING OP TIONS decisions, it doesn't imply that pursuing expansion in Lexington, as historically
Promote a diverse range of housing options to accommodate the done, cannot be accomplished with excellence. Some property owners may
varying needs and preferences of residents. This includes considering still choose not to develop, and timing issues could pose challenges in
the development and mixing of different types of housing such as providing infrastructure, as seen before. However, Imagine Lexington 2045

DIVISION OF PLANNING BALANCE | 249

sets the highest standard yet for future development in Lexington, and a GROWTH POLICY # 14
master plan that sets out to implement this Comprehensive Plan will certainly
set a new standard for future expansions to follow. IDENTIFY AND PROVIDE MECHANISMS THAT PRODUCE AFFORDABLE
HOUSING.
GROW TH POLICY #12 ACTION ITEMS
1. Adopt the Urban Growth Management Master Plan. Over the course of the last 15 years, there has been a consistent housing strain
throughout the United States. This strain was made worse during the Covid-19
GROWTH POLICY # 13 pandemic, which highlighted the limited economic resources of many within
our communities, as well as the economic burden of housing. While there is
ESTABLISH MINIMUM RESIDENTIAL DENSITIES AND COMMERCIAL a typical assumption that 30% of a household’s income should be allocated
INTENSITIES FOR NEW GROW TH AREAS SO THAT DEVELOPMENT to housing relating expenses, this reference number is outdated. First, the
COVERS THE COST OF THE PROVISION OF INFRASTRUCTURE, percentage does not consider the significant increase in non-housing related
COMMUNIT Y SERVICES, AND FACILITIES. debt carried by most individuals. As of the first quarter of 2023, student debt
was $1.3 trillion higher than it was in the same quarter of 2004. In comparison,
As Lexington grows, any new development must address how it will impact credit card debt has only increased by $300 billion in the same time span.
the current population, while also providing access to housing, goods and
services for all income levels. The essential function of the Urban Service Area Next, the 30% does not account for the slow growth of wages in comparison
is to ensure that development is fiscally and environmentally sustainable. to the increased cost of other goods and services. For instance, the annual
That same essential function must be applied to future greenfield expansion, cost of new car ownership increased by over $1,000 between 2021 and 2022
so that the economic impact of new development does not burden current to $10,728. Additionally, the monthly anticipated cost to feed a 1-year old child
community members. Historically, Lexington has placed a greater focus on has increased by almost 23% over the course of the last five years.
offsetting development costs through either increased tax burden on current
residents or the use of developer exactions. The exaction program provided While debt and the cost of non-housing related expenditures are higher,
the opportunity for developers to build major infrastructure and earn credit the cost of housing has also increased. These costs can also be increased
against fees imposed on property for the funding of services. by the restrictions or limitations on density, form, and function by the local
government that act a barrier to adequate supply. While there are ways to
Should a program like the exaction program not be part of future expansion, promote the construction of greater housing options and greater affordability,
there must be a guarantee that current residents do not foot the bill for Lexington must comprehensively review the mechanisms to promote
the construction of future development. There are opportunities that would affordability for all residents throughout the current and future Urban Service
allow for the offsetting of costs by new development, including impact fees. Area.
However, impact fees are not currently allowable for the Urban County and
would necessitate State legislation. Until such legislation is passed, Lexington RENT
is left with limited options to offset costs beyond relying on the future density
and development of expansion areas. Absent a fee/credit system to address As described in the 2017 Housing Demand Study, greater than 50% of
this issue, it is imperative that all future development be constructed at a Lexington’s population is comprised of renters. This high rental population is
density that would cover the costs of services that development will produce. representative of both being a larger city, as well as being the location of a
Additionally, any future expansion must not make the same mistakes from large university. Since the adoption of the 2018 Comprehensive Plan, the rental
previous expansions. Affordability must be a primary component of growth, rates have increased at rapid rate. Between 2017 and 2021 the monthly median
so that those who seek to move to new areas of Lexington are financially able gross rent increased by $196. This has caused residents to either compete
to locate there. for a limited amount of housing in their price range or make hard choices
regarding daily needs. The high demand for rental housing within Lexington,
coupled with a low inventory, is the primary reason for the increase in rental
costs. However, additional factors have limited the supply of available rental

250 | THEME E IMAGINE LEXINGTON 2045

housing within Lexington. According to short-term rental tracking platform a first time homeowner is 36 years of age. Data shows that increased non-
AirDNA, there are currently 1,170 whole dwelling units that are being operated housing costs (college debt), coupled with increased competition from older
as short-term rentals. While these amenities do play a role in the tourism populations who are more financially stable, as well as lagging construction,
market, they take away needed housing for local residents. has precluded many from entering the housing market for the first time.

To promote the development of affordable housing, there must be an underlying To boost the access to home ownership, Lexington must acknowledge that
focus on promoting more housing in general. The 2017 Housing Study stressed first time ownership may not be in the form of a traditional single family
the need for denser housing types, with a particular focus on multi-family detached structure. Other more affordable housing options like single family
residential dwelling units. Some of the best ways to promote multi-family attached dwelling units (commonly referred to as duplexes and townhomes)
is to remove the stigmas associated with the housing type. While Lexington or condos allow for individuals to access housing without the underlying land
started to fill the housing gaps through the addition of attached single-family value cost. Minimizing the land value impact can be accomplished through
dwelling types and larger multi-family residential opportunities, the middle the decrease or elimination of minimum lot sizes, the promotion of varying
level of housing (four-plexes, six-plexes, eight-plexes), which is often at the housing types, density bonuses where true affordable housing is offered,
same scale as a detached single family dwelling unit, is still missing. and/or expanding Lexington’s land trusts.

While adding housing to the community can start to slow the increase in the
rental rates, the mechanisms to produce more truly affordable housing must
GOVERNMENT
also be explored. Through collaboration with public and private affordable In addition to reviewing legislation and funding opportunities to help the
housing operators, Lexington can seek to incentivize the production of production of affordable housing, Lexington must also explore the historic
affordable rental opportunities. Density bonuses, monetary support, or roots of concentrating different housing options and people. Due to the
dedicated land for the development of truly affordable rental opportunities exclusionary impact of historical single family residential zoning, the ability to
should be considered as part of any expansion to the Urban Service Area. be part of different neighborhoods or to age in place is greatly limited. While
the adoption of the accessory dwelling unit (ADU) ordinance has promoted
HOME OWNERSHIP the development of new options, there is considerably more work that must
be done to allow for new populations to access areas that were barred to
Since the 1940s, the typical introductory housing type has been a smaller them historically. Access to a neighborhood can mean better schools, better
single-family detached dwelling unit. Affordable land costs, standardization services, and better futures. Exclusion as a practice was wrong historically,
of construction techniques, and accessible and low-cost materials boosted and the continuation of such practices would be abhorrent.
the construction of new housing throughout the United States following
World War II. Coupled with the GI Bill and an industrialized post-war United GROW TH POLICY #14 ACTION ITEMS
States, many white lower income and middle income populations were able 1. Provide recommendations to the Planning Commission and
to purchase homes for the first time. The expansion of home ownership had Urban County Council, which identify mechanisms to fund and
the added effect of producing generational wealth for families. Recent studies build affordable housing.
show that land and home ownership is a major contributor to continuous
wealth between generations, and is also representative of the inequities that
have developed over time.

While the single-family detached dwelling unit was historically a starter

home, that history is no longer a reality or possibility for many young
households. Increased values for land, increased costs for materials, and
greater competition for smaller sized properties have priced out many
first-time homeowners. Whereas in the 1980s, the majority of first time
home buyers were in their 20s, recent data shows that the median age for

DIVISION OF PLANNING BALANCE | 251

THEME F.
IMPLEMENTATION

252 | THEME F IMAGINE LEXINGTON 2045

IMPLEMENTATION TABLE: ACTION ITEMS
Also listed throughout the policies of Imagine Lexington 2045, the following implementation items stand as short- and long-term tasks for the Planning Division
once Imagine Lexington is put into action. Progress on these items will be tracked and actively updated to promote public awareness of our progress.

PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

THEME A - DESIGN
DESIGN 2 Conduct a comprehensive road connectivity assessment. MPO, Planning Near-Term

DESIGN 3 Update the Zoning Ordinance to adopt elements Planning Developers, Neighborhood Ongoing
of the Multi-Family Design Standards. Associations
DESIGN 4 Create guidelines for massing and design. Planning Local Developers, Ongoing
Neighborhood Associations,
AIA Local Chapter
DESIGN 5 Conduct a pedestrian accessibility audit. MPO, Planning, Traffic Bicycle and Pedestrian Near-Term
Engineering Advisory Committee, Access
Lexington Commission
DESIGN 9 Review and update plans, regulations, and policies Planning, Parks Parks Advisory Board, Near-Term
to establish consistent level of service standards for and Recreation Neighborhood Associations
neighborhood-focused open spaces and parks.
DESIGN 9 Develop resources to promote the development Planning, Parks and Lextran, Advocacy Long-Term
of affordable housing with parks, greenspaces, Recreation, Housing and Groups, Developers
and equitable transportation options. Community Development
DESIGN 10 Conduct a city wide study to identify Planning FCPS, Fayette County Public Long-Term
opportunities for community anchors. Library, Neighborhood
Associations, Non-
profit Organizations,
Business Associations
DESIGN 12 Amend the Zoning Ordinance to encourage Planning Ongoing
greater residential opportunities within existing
neighborhood-serving business districts.

THEME A - DENSITY
DENSITY 2 Evaluate and amend residential zones to Planning Ongoing
allow greater housing opportunities.
DENSITY 3 Perform gap analysis of existing neighborhoods to identify Planning, Housing and Mid-Term
enhancement opportunities for new supportive uses. Community Development
DENSITY 4 Update Zoning Ordinance to allow Planning Ongoing
for compact housing types.

DIVISION OF PLANNING IMPLEMENTATION | 253

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

THEME A - EQUITY
EQUITY 1 Educate the public, rectify historical discrimination, Planning, Housing and Mayor's Racial Justice and Near-Term
and ensure equitable development through workshops, Community Development Equality Commission, FCPS,
education campaigns, zoning policies, affordable Fayette County Public Library,
housing initiatives, and community engagement. Neighborhood Associations,
Non-profit Organizations
EQUITY 1 Work with communities, local partners, and policymakers Planning, Housing and Mayor's Racial Justice and Mid-Term
to research and develop community benefit and anti- Community Development Equality Commission, FCPS,
displacement strategies in existing neighborhoods. Fayette County Public Library,
Neighborhood Associations,
Non-profit Organizations
EQUITY 2 Create an ongoing educational curriculum on Planning, Housing and Mayor's Racial Justice and Near-Term
historical planning practices and policies' impact Community Development Equality Commission, FCPS,
on marginalized neighborhoods in Lexington. Fayette County Public Library,
Neighborhood Associations,
Non-profit Organizations
EQUITY 3 Review regulatory changes and incentives Planning, Housing and Affordable Housing Ongoing
to produce affordable housing. Community Development Developers, Developers
EQUITY 9 Support expansion of ESP and REAL Parks and Recreation FCPS, Fayette County Near-Term
programs to more schools. Public Library

EQUITY 9 Collaborate with libraries to improve access to Planning, Housing and Fayette County Mid-Term
additional community services and engagement. Community Development Public Library
EQUITY 9 Develop resources to promote the development Planning, Parks Lextran Near-Term
of affordable housing with parks, greenspaces, and Recreation
and equitable transportation options.
EQUITY 10 Collaborate with government agencies to develop Planning, Housing and Mayor's Racial Justice and Mid-Term
comprehensive assistance programs. Community Development Equality Commission, FCPS,
Fayette County Public Library,
Neighborhood Associations,
Non-profit Organizations

THEME B - PROTECTION
PROTECTION 2 Develop a county wide inventory of Planning, Environmental Kentucky Geological Survey, Mid-Term
Special Natural Protection Areas. Services Rural Land Management
Board, Conservation
Organizations
PROTECTION 2 Update land development regulations to Planning, Environmental Greenspace Trust, Near-Term
include best practices for greenway access and Services Conservation Organizations
implementation of conservation easements.

254 | THEME F IMAGINE LEXINGTON 2045

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

PROTECTION 2 Update the 2002 Greenway Masterplan. Environmental Services Greenspace Trust, Ongoing
Conservation Organizations
PROTECTION 6 Review the Zoning Ordinance for new Planning Rural Land Long-Term
agritourism and ecotourism opportunities. Management Board
PROTECTION 6 Work with local partners to establish a program linking Planning Lextran, Rural Land Long-Term
public transit to experiences in Lexington's rural Management Board
parks, natural areas, and agritourism offerings.
PROTECTION 7 Update Article 26 of the Zoning Ordinance. Planning, Environmental Tree Board Ongoing
Services
PROTECTION 8 Complete a county-wide biodiversity Planning, Environmental Kentucky Dept. of Fish Mid-Term
inventory and action plan. Services and Wildlife Resources,
Kentucky Conservation
Committee, Rural Land
Management Board
PROTECTION 9 Update regulations to include best practices Planning, Environmental Fayette County Mid-Term
for soil preservation and management Services, Engineering Conservation District
during the construction process.
PROTECTION 10 Develop a lighting ordinance that regulates the type Planning, Traffic Neighborhood Associations, Near-Term
and intensity of lighting used in outdoor spaces. Engineering Business Associations
THEME B - SUSTAINABILITY

SUSTAINABILITY 1 Explore opportunities for federal Planning, MPO, Conservation Organizations Ongoing
funding for climate solutions. Environmental Services
SUSTAINABILITY 1 Develop a community-wide greenhouse Environmental Services Conservation Organizations Ongoing
gas emissions inventory.
SUSTAINABILITY 1 Create a community-wide emissions Planning, MPO, Conservation Organizations Ongoing
reductions plan to achieve net zero by 2050 Environmental Services
in Lexington-Fayette Urban County.
SUSTAINABILITY 2 Conduct a detailed LFUCG greenhouse gas Environmental Services Conservation Organizations Near-Term
inventory and an emissions reductions plan.
SUSTAINABILITY 2 Identify opportunities and commit funding for Environmental Services Conservation Organizations Near-Term
renewable energy generation (i.e. solar or wind).
SUSTAINABILITY 2 Create an LFUCG Sustainability Policy and/or Environmental Services Conservation Organizations Mid-Term
update LFUCG’s Policy on Energy Efficiency.
SUSTAINABILITY 3 Identify opportunities to create complete neighborhoods Planning, MPO Lextran, Bicycle and Mid-Term
that provide a full range of opportunities and services Pedestrian Advisory
within a 15 minute walk, bicycle or transit ride. Committee, Neighborhood
Associations

DIVISION OF PLANNING IMPLEMENTATION | 255

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

THEME B - SUSTAINABILITY
SUSTAINABILITY 3 Update LFUCG roadway design manuals to Planning, MPO, Traffic Bicycle and Pedestrian Near-Term
incorporate complete streets best practices Engineering Advisory Committee
for new roadways and design retrofits.
SUSTAINABILITY 3 Conduct a study to identify complete street MPO, Traffic Engineering Bicycle and Pedestrian Long-Term
deficient roadways and prioritize retrofit Advisory Committee
projects to address deficiencies.
SUSTAINABILITY 3 Identify opportunities to close connectivity gaps MPO Bicycle and Pedestrian Ongoing
in the bicycle and pedestrian facility network. Advisory Committee
SUSTAINABILITY 3 Conduct 25 year long-range plan for public MPO Lextran Mid-Term
transportation to identify service gaps and
opportunities for increased service.
SUSTAINABILITY 3 Develop an E-Bike cost share/subsidy program. MPO Bicycle and Pedestrian Near-Term
Advisory Committee
SUSTAINABILITY 4 Collaborate with LFUCG urban forestry to identify priority Planning, Environmental Tree Board, Neighborhood Mid-Term
areas for improving environmental equity through Services Associations
increased canopy and impervious area mitigation.
SUSTAINABILITY 4 Continue to refine street design, parking area, and Planning, Environmental Stormwater Stakeholder Ongoing
vehicle use area standards to reduce impervious Services, Traffic Advisory Committee,
surfaces and minimize environmental impacts. Engineering Business Associations
SUSTAINABILITY 5 Establish Government/Community Environmental Services Conservation Organizations Near-Term
Targets For Renewable Energy.
SUSTAINABILITY 6 Update the Empower Lexington Plan guided Environmental Services Conservation Organizations Ongoing
by the LEED for Cities framework and apply
for LEED for Cities certification.
SUSTAINABILITY 7 Develop and proactively share educational materials Environmental Services Conservation Organizations Ongoing
and programs to increase public awareness of
energy efficiency benefits and services.
SUSTAINABILITY 8 Coordinate with LFUCG waste management, Environmental Services Conservation Organizations Mid-Term
LiveGreenLex, and community partners to expand
residential and commercial composting opportunities.
SUSTAINABILITY 8 Develop and implement a program to track Environmental Services Conservation Organizations Long-Term
and publicize landfill diversion efforts.
SUSTAINABILITY 9 Update the zoning ordinance to incentivize green Planning, Water Quality Stormwater Stakeholder Mid-Term
stormwater infrastructure elements during development. Advisory Committee
SUSTAINABILITY 10 Explore permitting and zoning incentives Planning, Building US Green Building Council, Mid-Term
for green building design. Inspection AIA Local Chapter
SUSTAINABILITY 10 Explore tax abatements for LEED Planning US Green Building Council, Mid-Term
Certified Green Building Design. AIA Local Chapter

256 | THEME F IMAGINE LEXINGTON 2045

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

SUSTAINABILITY 10 Explore opportunities to work with Kentucky building Planning, Building US Green Building Council, Long-Term
codes to incorporate green building principles. Inspection AIA Local Chapter
SUSTAINABILITY 11 Require that plantings for publicly owned property Planning, Environmental Ongoing
include at least 75% native species and decrease Services, Parks
the area of mowed grass and irrigated land. and Recreation
SUSTAINABILITY 11 Update codes, ordinances, plans, and manuals to require Planning, Environmental Ongoing
current best practices for low impact landscaping. Services
SUSTAINABILITY 11 Implement the Mayor's Monarch Pledge. Environmental Services, Conservation Organizations Near-Term
Parks and Recreation
SUSTAINABILITY 11 Work with the Urban County Council and Planning, Environmental Conservation Organizations Mid-Term
community partners to establish and promote Services, Parks
“No Mow May” as a city wide initiative. and Recreation

THEME B - RESTORATION
RESTORATION 1 Implement recommendations from the Planning, Environmental Tree Board, Neighborhood Ongoing
Urban Forestry Management Plan. Services Associations
RESTORATION 1 Strategically plant new trees to create Environmental Services Tree Board, Neighborhood Near-Term
walkable streetscapes. Associations
RESTORATION 1 Update the Planting Manual and Land Subdivision Planning, Environmental Ongoing
Regulations to reflect best practices on street Services
tree planting, placement, and maintenance.
RESTORATION 1 Develop a program to implement and track Planning, Environmental Tree Board, Neighborhood Near-Term
progress on canopy coverage goals from the Services Associations
2022 Urban Tree Canopy Assessment.
RESTORATION 2 Coordinate across LFUCG to develop a comprehensive Planning, Environmental Greenspace Trust Mid-Term
planning and implementation document for a Services, Parks
community-wide green infrastructure network. and Recreation
RESTORATION 3 Promote and develop public education and outreach Environmental Services Conservation Organizations Ongoing
materials supporting urban agriculture, native plants,
and pollinator-friendly community gardens.
RESTORATION 4 Update regulations to require installation of MPO, Planning Mid-Term
Level 2 electric vehicle charging stations.
RESTORATION 4 Identify appropriate locations and funding MPO, Planning KYTC, FHWA Mid-Term
opportunities for the installation of Level
3 electric vehicle charging stations.
RESTORATION 4 Conduct a study to identify appropriate refueling MPO KYTC, FHWA Mid-Term
locations for freight vehicles utilizing alternative fuels.
RESTORATION 5 Update ordinances and regulations to reflect Planning, Environmental Stormwater Stakeholder Mid-Term
national best practices on floodplain protections. Services Advisory Committee

DIVISION OF PLANNING IMPLEMENTATION | 257

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

THEME B - RESTORATION
RESTORATION 5 Update regulations to refer to the Royal Planning, Environmental Stormwater Stakeholder Near-Term
Springs Aquifer requirements. Services Advisory Committee
RESTORATION 6 Coordinate with LFUCG Waste Management, Environmental Services Corridors Commission, Ongoing
Environmental Services, and other community partners Advocacy Organizations
to expand outreach on litter prevention and abatement.
RESTORATION 7 Develop education and outreach tools to Planning, Environmental Mayor's Racial Justice Ongoing
link those most impacted by environmental Services, Parks and Equality Commission,
inequity to the decision-making process. and Recreation Advocacy Organizations
RESTORATION 7 Develop a plan to address environmental Planning, Environmental Mayor's Racial Justice Mid-Term
inequity and collaborate with and support Services, Parks and Equality Commission,
community members within affected areas. and Recreation Advocacy Organizations

THEME C - LIVABILITY

LIVABILITY 9 Inventory and analyze existing industry and Planning Commerce Lexington Mid-Term
production land, identifying areas to enhance or
repurpose based on market and locational factors.

THEME C - PROSPERITY
PROSPERITY 8 Perform analysis of existing employment opportunities Planning Commerce Lexington Mid-Term
and graduate supply from area institutions.
PROSPERITY 9 Study the efficacy of the Professional Office zone, looking Planning Realtors Association, Mid-Term
for ordinance revisions aimed at reducing vacancy rate. Developers

THEME D - CONNECTIVITY
CONNECTIVITY 1 Amend Subdivision Regulations street standards. Planning, MPO, Traffic Bicycle and Pedestrian Mid-Term
Engineering Advisory Committee
CONNECTIVITY 2 Implement Projects from the Lexington Area Planning, MPO, Traffic Bicycle and Pedestrian Ongoing
MPO Bike and Pedestrian Master Plan. Engineering, Engineering Advisory Committee
CONNECTIVITY 2 Implement Lexington’s Complete Street Policy. Planning, MPO, Traffic Bicycle and Pedestrian Near-Term
Engineering Advisory Committee
CONNECTIVITY 3 Develop a resource guide for Transit Planning, MPO Lextran, Bicycle and Near-Term
Oriented Development (TOD). Pedestrian Advisory
Committee
CONNECTIVITY 4 Review the use and regulation of access easements. Planning, Traffic Mid-Term
Engineering

258 | THEME F IMAGINE LEXINGTON 2045

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

THEME D - PLACEMAKING
PLACEMAKING 1 Update the Zoning Ordinance and Land Subdivision Planning, MPO, Parks Bicycle and Pedestrian Mid-Term
Regulations to create development standards for land and Recreation, Advisory Committee
adjacent to shared-use paths and trail corridors. Environmental Services
PLACEMAKING 3 Amend the Zoning Ordinance to include Planning Mid-Term
placemaking elements.
PLACEMAKING 5 Update the business zones to create more Planning, MPO Ongoing
walkable commercial opportunities.
PLACEMAKING 7 Host workshops with development Planning Developers, Neighborhood Mid-Term
and neighborhood interests to create a Associations
collaborative pre-development process.
PLACEMAKING 8 Work with Council to increase staffing to develop a tactical Planning, Urban Near-Term
placemaking program within the Division of Planning. County Council
PLACEMAKING 10 Initiate discussions with public art partners Planning, Public Art Non-profit Organizations Mid-Term
about potential ordinance revisions to Commission
increase public art opportunities.
PLACEMAKING 11 Review Adaptive Reuse Ordinance to Planning Mid-Term
consider additional zones.
PLACEMAKING 12 Perform corridor studies along arterial streets that Planning, MPO KYTC, FHWA Mid-Term
examine land use and transportation elements.
PLACEMAKING 13 Update the Downtown Master Plan. Planning Downtown Lexington Mid-Term
Partnership
PLACEMAKING 15 Update Zoning Ordinance regulations for business zones. Planning Ongoing

THEME D - SUPPORT
SUPPORT 1 Engage with Fayette County Public Schools in order Planning, Traffic FCPS Ongoing
to align priorities in site selection and design. Engineering, Engineering,
Parks and Recreation
SUPPORT 4 Forge a partnership with the Lexington Fayette County Planning, Fayette County Mid-Term
Health Department to develop planning initiatives. Health Department
SUPPORT 9 Update the Zoning Ordinance to allow for Planning, Housing and Ongoing
greater diversity in housing types. Community Development
SUPPORT 11 Develop a Climate Resiliency Action Plan. Planning, Environmental Non-profit Organizations Near-Term
Services
SUPPORT 12 Work with Department of Housing to Planning, Housing and Non-profit Organizations Ongoing
enhance tenant protection programs. Community Development

DIVISION OF PLANNING IMPLEMENTATION | 259

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

THEME E - ACCOUNTABILITY
ACCOUNTABILITY 1 Complete the new process for determining long- Planning Near-Term
term land use decisions involving the Urban
Service Area and Rural Activity Centers.
ACCOUNTABILITY 2 Develop a series of Comprehensive Plan metrics. Planning Ongoing
ACCOUNTABILITY 3 Continue a public outreach program for Planning Ongoing
ongoing community education on Imagine
Lexington and the Placebuilder.
ACCOUNTABILITY 4 Modernize the Zoning Ordinance to reflect Planning Ongoing
Imagine Lexington priorities.
ACCOUNTABILITY 5 Work with the Division of Traffic Engineering Planning, Traffic Near-Term
and neighborhoods to develop prototype street Engineering
retrofit and traffic calming projects.
ACCOUNTABILITY 6 Partner with other agencies, community organizations, Planning Non-profit Organizations Ongoing
and leaders to facilitate public education,
outreach, and engagement opportunities
ACCOUNTABILITY 7 Establish a coordinating office to advance climate Environmental Services Ongoing
action and sustainability planning efforts.
ACCOUNTABILITY 8 Establish a coordinating office to implement Commission of Racial Ongoing
recommendations of the Mayor’s Commission Justice and Equality
for Racial Justice and Equality.

THEME E - STEWARDSHIP
STEWARDSHIP 1 Educate the public regarding the Urban Service Area Planning Near-Term
concept and the process for managing urban growth.
STEWARDSHIP 2 Collaborate with surrounding counties to MPO Planning, Adjacent Mid-Term
connect transit between economic hubs. County Planning
Organizations, Lextran
STEWARDSHIP 5 Conduct a Blue Sky Small Area Plan. Planning Mid-Term
STEWARDSHIP 5 Explore the development of comprehensive Planning, Corridors VisitLex Mid-Term
scenic resource analysis with VisitLex Commission
and the Corridors Commission.
STEWARDSHIP 6 Update the Zoning Ordinance provisions Planning, Rural Land Mid-Term
for Agritourism and Ag-tech. Management Board
STEWARDSHIP 7 Work with adjacent communities' planning departments Planning Adjacent County Planning Long-Term
to foster a unified approach to planning that maximizes Organizations, Lextran
resource efficiency, enhances coordination, and
promotes the well-being of the region as a whole.

260 | THEME F IMAGINE LEXINGTON 2045

 PILLAR POLICY ACTION ITEM RESPONSIBLE AGENCIES COMMUNITY PARTNERS TIMELINE

STEWARDSHIP 7 Develop and implement plans aimed at reducing Planning, Environmental Non-profit Organizations Mid-Term
greenhouse gas emissions and mitigating Services
other harmful air pollutants in the region.
STEWARDSHIP 9 Review buffering requirements for the Rural Service Area. Planning, Rural Land Mid-Term
Management Board

THEME E - GROWTH
GROWTH 1 Update the Zoning Ordinance to implement Planning Ongoing
Imagine Lexington’s infill policies.
GROWTH 1 Evaluate the effectiveness of current policies Planning, Traffic Mid-Term
surrounding the provision of services and Engineering
how it affects the built environment.
GROWTH 3 Amend regulations to establish a Planning, Parks Mid-Term
Park Dedication Ordinance. and Recreation
GROWTH 8 Work with the Planning Commission and Council Planning, MPO, Planning Near-Term
to proactively pursue government-initiated zone Commission, Urban
changes recommended by corridor studies. County Council
GROWTH 9 Evaluate and address the regulations and Planning Ongoing
policies that make missing middle housing
difficult to develop and serve.
GROWTH 10 Develop zoning regulations that ensure appropriately Planning Ongoing
located Transit Oriented Development (TOD).
GROWTH 10 Develop Transit Oriented Development (TOD) resources. Planning Near-Term
GROWTH 12 Adopt the Urban Growth Management Master Plan. Planning Ongoing
GROWTH 14 Provide recommendations to the Planning Planning, Housing and Non-profit Organizations, Ongoing
Commission and Urban County Council, which identify Community Development Affordable Housing
mechanisms to fund and build affordable housing. Developers

DIVISION OF PLANNING IMPLEMENTATION | 261

THE
PLACEBUILDER
TABLE OF
CONTENTS

264 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 Welcome to the Placebuilder 243

Place-Types 245

Development Type – Residential 247

Development Type - Non-Residential/Mixed-Use 248

Rural Developments 249

Specialized Focus Areas 251

Active Small Area Plans 252

Additional Plans & Resources 253

Decoding the Placebuilder 254

Downtown 255

2nd Tier Urban 261

Regional Center 273

Corridor 289

New Complete Neighborhood 303

Enhanced Neighborhood 313

Industry & Production Center 325

DIVISION OF PLANNING THE PLACEBUILDER | 265

WELCOME TO THE PLACEBUILDER
WHAT IS IT?
The Placebuilder element of Imagine Lexington 2045 is a compilation of the urban planning best practices
that distills the policies of this Comprehensive Plan. It sorts these best practices into development criteria
that are applicable to proposed developments seeking a zone change. In addressing the development criteria,
applicants demonstrate that they are in agreement with the Comprehensive Plan, and that their individual
developments work toward implementing the broader Goals and Objectives developed by the community.

Under previous Comprehensive Plans, justifications generally addressed broad Goals and Objectives, without
much support from the remainder of the document. Imagine Lexington differs from many comprehensive
plans in that it eschews the traditional future land use map in favor of a policy based document. Under The
Placebuilder, justifications and development plans will be reviewed in accordance with the policies of the plan,
which provide more specific guidance on how to further the Goals and Objectives.

A BRIEF OVERVIEW...
1. ENGAGEMENT 3. THE DEVELOPMENT T YPE
Imagine Lexington strongly encourages Determine whether your proposal will adequately
meaningful engagement between applicants address one of the most suitable Development
and stakeholders for design and visioning of a Types.
development before the process begins. Review the criteria for that Development Type.

2. THE PLACE - T YPE

Consider your site, community feedback, and surrounding context. This includes
whether or not your site falls within the Adopted Small Area Plans or Expansion
Area Master Plan.
Review the Place Types and determine whether the development you are
seeking enhances the existing place or sets a new Place-Type standard for the
location.
Verify that your development will address the stated priorities of that Place
Type.

266 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 The Placebuilder is a set of development criteria to be addressed by applicants in their zone change
application justifications. Its purpose is to provide transparency to applicants, stakeholders, the
Planning Commission, and the Urban County Council in how development proposals are evaluated. This
framework outlines the process by which development proposals are evaluated to ensure they adhere
to the requirements set forth in KRS 100, which preferences compliance with the Comprehensive Plan.
Not all criteria may be applicable to every proposal, however every zone change justification should address
each one, noting why certain criteria may or may not apply. No zone change application will satisfy every
single criterion, and the Placebuilder is not a checklist. The applicability of criteria will be assessed through
the development review process.

5. APPLICATION
Address each of the criteria in your
application/development plan, showing how
your proposed development meets each of
the requirements

4. ZONE 6. REVIEW & PUBLIC INPUT

Review recommended zones. Determine the appropriate zone for Once an applicant has submitted a complete
the suitable Development Type you are seeking. Schedule your pre- development application addressing all steps,
application meeting with planning stuff to highlight Comprehensive it will undergo planning staff evaluation and
Plan and zoning ordinance related issues that may require variances enter the zone change process.
or waivers, and to review community feedback thus far. Details on zone change process can be found
at Imaginlexington.com/mar

DIVISION OF PLANNING THE PLACEBUILDER | 267

PLACE - T YPES
DEVELOPMENT T YPE KEY

Low density residential

LR

Medium density
MR residential
DOWNTOWN 2 ND TIER URBAN REGIONAL CENTER
DOWNTOWN IS... 2ND TIER URBAN IS... A REGIONAL CENTER IS...

The urban epicenter of commerce and Where significant infill and redevelopment A vibrant hub of commerce, employment,
Medium-high density entertainment. The core should be anchored opportunities exist to complement the urban diverse housing opportunities, &
MHR residential by high-rise structures with activated ground-
levels. They are surrounded by mid-rise buildings
core. While not expected to be as intensely
developed as the downtown core, high-rise
entertainment. They include larger buildings
with active ground levels, intentional open
that increasingly offer dense residential uses. A opportunities are not precluded provided that spaces, & walkable transportation networks,
mix of uses and variety of transportation options they are context-sensitive. The forward trend all to provide the user/resident with a unique
should be prioritized, and parking should be for development in the 2nd tier urban areas experience. It is often located at major
High density residential addressed as a shared urban core asset.* should be towards increased walkability and intersections & along primary corridors.*
HR intensity.*

MOST SUITABLE MOST SUITABLE MOST SUITABLE

Low density non-
LNR residential/ mixed-use DEVELOPMENT T YPES: DEVELOPMENT T YPES: DEVELOPMENT T YPES:

MU
HR MR MHR HR MR MHR HR
Medium density non-
MNR residential/ mixed-use
MU HNR MNR HNR MNR HNR
MU MU MU MU MU
High density
HNR non-residential/ RECOMMENDED ZONES RECOMMENDED ZONES RECOMMENDED ZONES
mixed-use
MU ED
P R OJ E
ED
P R OJ E
CT

CT
B-2 B-2A B-2B B-6P
- B AS

- B AS
B-1 MU-1 MU-2 B-1 MU-2
RM

RM
Industrial & production FO FO
non-residential
INR MU-3 MU-3 R-4 R-5 MU-3 R-4 R-5
MU-2

268 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 CORRIDOR NEW COMPLETE NEIGHBORHOOD ENHANCED NEIGHBORHOOD INDUSTRY & PRODUCTION
CENTER
A CORRIDOR IS... A NEW COMPLETE NEIGHBORHOOD IS... AN ENHANCED NEIGHBORHOOD IS...
AN INDUSTRY & PRODUCTION
Lexington’s major roadways focused on Undeveloped areas designed to provide An existing residential area to be enhanced CENTER IS...
commerce and transportation. The overriding housing in a sustainable format. These areas with additional amenities, housing types,
emphasis of Imagine Lexington is significantly should include neighborhood-serving retail, and neighborhood-serving retail, services, Where Lexington’s most intense types of
overhauling the intensity of the major corridors. services, & employment options, as well and employment options. Development economic development and job creation
The future of Lexington’s corridors lies in as town centers. Accessible greenspace, should be context-sensitive to surrounding occur. These places should be located near
accommodating the shifting retail economic neighborhood focal points, & a multimodal areas and should add to the sense of place. major corridors to facilitate efficient and
model by incorporating high density residential transportation network should be provided to Incorporating multimodal connections is crucial affordable shipping and transportation of
and offering substantial flexibility to available add a sense of place & connectivity.* to neighborhood success and viability.* goods throughout the region. Developments
land uses.* should minimize negative impacts on
adjoining lower intensity uses.*
Page 000

MOST SUITABLE MOST SUITABLE MOST SUITABLE MOST SUITABLE

DEVELOPMENT T YPES: DEVELOPMENT T YPES: DEVELOPMENT T YPES DEVELOPMENT T YPES

MHR HR MR MHR LR MR MHR INR

MNR HNR LNR MNR LNR
MU MU MU MU MU
RECOMMENDED ZONES RECOMMENDED ZONES RECOMMENDED ZONES RECOMMENDED ZONES
P R OJ E
ED
CT

B-6P R-4 R-3 R-4

- B AS

B-1 MU-2 MU-1 MU-2 MU-1 I-1 I-2 P-2

RM

FO
P R OJ E
ED
CT

MU-3 R-5
- B AS

B-1 B-1 MU-2 B-1

RM

FO

DIVISION OF PLANNING THE PLACEBUILDER | 269

DEVELOPMENT T YPE - RESIDENTIAL
LOW DENSIT Y MEDIUM DENSIT Y MEDIUM - HIGH DENSIT Y HIGH DENSIT Y RESIDENTIAL

LR RESIDENTIAL
MR RESIDENTIAL
MHR RESIDENTIAL
HR
A mix of attached and detached single fam- Primarily attached and multi-family units, Primarily multi-family units. Primarily high-rise multi-family units.
ily homes, of varying formats, and low den- with interspersed single-family detached
sity multi-family dwelling units. dwellings. Multi-family units should complement and This type of development is generally
enhance existing development through reserved for the most intensely developed
Primary Land
Homogeneous neighborhoods that do Multi-family units should complement and quality design and connections. areas in Lexington, with the infrastructure
Use, Building
Form, & Design not include a mix of housing types should enhance existing development through to support it. Where these developments
be avoided. Low density residential is quality design and connections. abut existing or historic neighborhoods,
only appropriate as a component of appropriate step-downs or context sensitive
“Enhanced Neighborhoods” and “New elements should be used to minimize
Complete Neighborhoods”, and should be intrusion.
supplemented by a variety of uses and
housing options to create sustainable
places.

Multimodal network connections, including Nearby commercial/employment uses and Access to these developments is typically Mass transit infrastructure should be
connected streets, are required to keep greenspace should be easily accessible, through streets designated with the provided along transit routes through
an efficient transportation network that and bicycle and pedestrian modes should collector classification or above. Mass collaboration with Lextran, and bicycle
provides viable options for all users. be maximized to connect residents to transit infrastructure should be provided and pedestrian facilities should be plentiful
Transit
destinations. along transit routes through collaboration to provide multimodal options. Parking
Infrastructure with Lextran, and bicycle and pedestrian should be minimized in favor of multimodal
& Connectivity facilities should be plentiful to provide options, and where necessary, should
multimodal options. be predominantly accommodated within
garages.
These developments should include These developments should include These developments should include Open space and greenspace opportunities
intentional open space designed to fit the intentional open space designed to fit the intentional open space designed to fit the should be adequate within the area to
needs of area residents, and be in walking needs of area residents, and a variety needs of area residents, and a variety support the residents, or should be provided
distance of nearby neighborhood-serving of neighborhood-serving commercial/ of neighborhood-serving commercial/ creatively on-site utilizing plazas, rooftop
commercial/employment uses. employment uses. employment uses. space, or other means that accomplish
Quality of Life
Components the goal, but still allow for high Floor Area
Ratios.

270 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

DEVELOPMENT T YPE - NON - RESIDENTIAL/MIXED - USE
LOW DENSIT Y NON- INDUSTRIAL & PRODUCTION
LNR RESIDENTIAL / MIXED - USE MNR MEDIUM DENSIT Y
NON - RESIDENTIAL/
HNR HIGH DENSIT Y
NON - RESIDENTIAL/ INR NON - RESIDENTIAL/
MU MU MIXED-USE MU MIXED-USE MIXED - USE

Primarily neighborhood-serving commercial Primarily community-serving commercial Primarily regional-serving commercial Primarily employment land dedicated to the
uses, services, places of employment, and/ uses, services, places of employment, and/ uses, services, places of employment, and/ most intense types of employment-centric
or a mix of uses within low to mid-rise or a mix of uses within mid-rise structures or a mix of uses within high-rise structures development. This is the only category
structures appropriately scaled to the with a higher Floor Area Ratio. with a high Floor Area Ratio. where uses are inherently incompatible
Primary Land surrounding neighborhood. and are best separated from adjacent uses.
Use, Building
Form, & Design Mixed-use structures typically include Mixed-use structures typically include an
Mixed-use structures can include a mix more multi-family residential units and abundance of multi-family residential units, These uses are best suited in areas where
of residential, commercial, services, and/ places of employment, and retail and places of employment, and entertainment they already exist, collocating to utilize
or employment uses, and an activated and commercial options generally draw from a options, and the retail and commercial industrial-scale infrastructure to serve
pedestrian-scale ground level should be larger geographic area. An activated and options generally draw from a regional the needs of the users. Environmental
provided. Developments with a residential pedestrian-scale ground level should be geographic area. protection measures should be taken to
component are generally non-residential on provided. minimize impacts.
the ground floor with units above, providing Screening and buffers should be provided
opportunities for live/work arrangements. These developments may include more to adjoining lower-density residential
employment space for professional office developments, however those adjoining
The retail/service options typically and can include some larger entertainment neighborhoods should retain convenient
include boutique-type establishments, spaces. access to the development.
neighborhood restaurants or pubs, and/
or neighborhood-serving services like
dentists, daycares, etc., and the places of
employment are small offices.

Bicycle and pedestrian connections to Though they draw more external users, they These developments are generally located These uses are also heavy employers
adjoining neighborhoods, and buildings should still include multimodal connections along higher intensity roadways. Mass and should incorporate mass transit
oriented to the street are required to ensure allowing for easy neighborhood access. transit infrastructure, on par with that infrastructure, on par with that of other
the non-residential enhances nearby Mass transit infrastructure is to be provided of other modes, should be provided, and modes, to connect residents to their jobs.
Transit
neighborhoods by creating a truly walkable on par with that of other modes, and the bicycle and pedestrian connections to
Infrastructure environment. higher-density housing types should be adjoining developments are required.
& Connectivity located in close proximity. Internal multimodal connectivity throughout
the development is critical.

Parking should be minimized and, where The buildings should be oriented to the Parking is generally provided in structures
necessary, located internally. street, and developments should avoid with activated ground levels.
over-parking, with provided parking located
internally.
Parking

DIVISION OF PLANNING THE PLACEBUILDER | 271

RURAL DEVELOPMENTS
Development within the Rural Service Area (RSA) should consider the unique assets and opportunities offered
by Lexington’s agricultural landscape. For this reason, the 2017 Rural Land Management Plan (RLMP), in
tandem with applicable policies from Imagine Lexington listed below, should act as the primary guide for all
rural development endeavors and should be directly addressed in development proposals within the RSA.
Due to the distinct difference between urban place-types and rural area considerations, the RLMP is better
suited to guide the limited development within the RSA than the criteria set out in the Placebuilder. Additionally,
the numerous policies, goals, and objectives within Imagine Lexington focusing on rural development link
directly to the goals and objectives laid out by the RLMP. These provide additional support for defining the
intended nature of rural development and its impacts on the agricultural community.

IMAGINE LEXINGTON POLICIES FOR RURAL DEVELOPMENT

• Design Policy #6 Adhere to the recommendations of the Lexington area MPO Bike/ Pedestrian
Master Plan, adopted in 2018.
• Protection Policy #2 Conserve and protect environmentally sensitive areas, including sensitive natural
habitats, greenways, wetlands and water bodies.
• Protection Policy #3 Continue to implement PDR program to safeguard Lexington’s rural land.
• Protection Policy #4 Conserve active agriculture land in the rural service area
while promoting sustainable food systems.
• Protection Policy #5 Promote and connect local farms with the community
through integrated partnerships.
• Protection Policy #6 Promote context-sensitive agritourism in the Rural Service Area.
• Protection Policy #8 Protect and enhance biodiversity in both the urban and rural service areas.
• Protection Policy #10 Reduce light pollution to protect dark skies.
• Sustainability Policy #11 Incentivize green stormwater infrastructure beyond regulatory requirements
• Sustainability Policy #12 Develop incentives for green building practices and sustainable site design.
• Restoration Policy #2 Identify opportunities to strategically link parks, trails, complete streets,
greenways, and natural areas to advance Lexington’s green infrastructure
network.
• Livability Policy #1 Encourage economic opportunities for a wide array of agritourism while
preserving the bluegrass identity.
• Livability Policy #2 Emphasize the preservation, protection, & promotion of the iconic bluegrass
landscape along rural gateways & roadways serving as primary tourist routes.

272 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 IMAGINE LEXINGTON POLICIES FOR RURAL DEVELOPMENT
• Prosperity Policy #3 Continue to protect the agricultural cluster & equine industry, & support existing
agricultural uses, while promoting new innovative agricultural uses in the rural
service area.
• Prosperity Policy #5 Continue to raise awareness of farms & farm tours.
• Prosperity Policy #6 Promote Kentucky Proud & local Lexington products using unified branding.
• Placemaking Policy #9 Honor Lexington’s history by requiring new development & redevelopments
to enhance the cultural, physical, & natural resources that have shaped the
community.
• Stewardship Policy #1 Uphold and modernize the Urban Service Area concept.
• Stewardship Policy #3 Increase regional transportation cooperation and pursue multimodal
transportation options to facilitate inter-county connectivity.
• Stewardship Policy #4 Coordinate with surrounding counties to capitalize on the inherent tourism draws
of the Bluegrass region.
• Stewardship Policy #5 Fully realize the development potential within Lexington’s rural activity centers
while avoiding negative impacts to surrounding agriculture, rural settlements,
and view sheds.
• Stewardship Policy #6 Identify new compatible rural land uses that would enhance Lexington’s economy
and provide additional income-generating possibilities for local farmers.
• Stewardship Policy #8 Ensure future development is economically, environmentally, and socially
sustainable.
• Stewardship Policy #9 Follow and implement the recommendations of the 2007 study of Fayette County’s
Small Rural Communities and the 2017 Rural Land Management Plan to protect
and preserve Lexington’s rural settlements.
• Growth Policy #3 Implement the recommendations of the 2018 Your Parks, Our Future Master Plan.

DIVISION OF PLANNING THE PLACEBUILDER | 273

SPECIALIZED FOCUS AREAS
SMALL AREA PLANS
A fundamental goal of Imagine Lexington is to revitalize our city’s neighborhoods in ways that make them
more sustainable and livable. In some areas, achieving a neighborhood’s vision for improvement requires an
informed, strategic approach scaled to that specific community. Responding to this need, a set of small area
plans were adopted as elements of the 2007, 2013, and 2018 Comprehensive Plans and have since taken effect
in six Lexington neighborhoods within the Urban Service Boundary.

Based on an extensive community engagement process, the small area plans identify community needs,
opportunities, and other planning issues of their respective communities, which help to inform strategies
for undertaking policy changes and project implementation. Further, the concepts and recommendations
outlined in the plan are directly informed by the area’s defining characteristics, such as demographics, land
use, development patterns, housing, health, mobility, etc. This provides a strong foundation comprised of the
community’s existing assets and amenities from which to build.

Proposed developments within the boundaries of these small area plans should adhere to the recommendations
therein to ensure the results are compatible with the stated vision for that neighborhood. These considerations
should be in addition to, and not in place of, the Placebuilder process and criteria.

1996 EXPANSION AREA MASTER PLAN

Adopted by the Planning Commission in 1996 as an element of the Comprehensive Plan, the Expansion Area
Master Plan (EAMP) is a regulatory document that is intended to guide growth within the identified Expansion
Areas along the periphery of the Urban Service Boundary. The EAMP sets up standards and criteria that act
as land use regulations to control the character, location and magnitude of development within the designated
land use categories.

Advising that new development within the Expansion Area should function as a “community” with a mix of
uses, housing types and land for economic development and community facilities, including parks, public
facilities, and community centers.

The necessary regulations prescribed within the EAMP should influence any decisions made regarding place
type, development type, and zoning preference for future development within these areas. These considerations
should be in addition to, and not in place of, the Placebuilder process and criteria.

274 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

ACTIVE SMALL AREA PLANS

EAST END CENTRAL SECTOR

S. NICHOLASVILLE ARMSTRONG
ROAD MILL WEST

CARDINAL VALLEY WINBURN &

RUSSELL CAVE

EXPANSION AREA

DIVISION OF PLANNING THE PLACEBUILDER | 275

ADDITIONAL PLANS & RESOURCES
In addition to the 2023 Comprehensive Plan, there are various plans and studies Additionally, new developments should incorporate any applicable
that have been adopted in order to guide growth, land use management, and recommendations or requirements outlined in other ordinances approved by
context-sensitive development in Lexington. Some of these plans are focused the Urban County Council. This includes those specific to landscaping and
on specific areas within the county, while others are overarching and should development along Lexington’s major corridors.
be considered for all place-types. These plans are intended to complement
the goals, objectives, and policies within Imagine Lexington and should be
used to further inform development proposals. These considerations should
be in addition to, and not in place of, the Placebuilder process and criteria.
Each of these is listed to the right.

2007
2008 2018
2007 STUDY OF
DOWNTOWN BICYCLE &
DOWNTOWN FAYETTE
STREETSCAPE PEDESTRIAN
MASTER PLAN CO. RURAL
MASTER PLAN MASTER PLAN
SETTLEMENTS

TOWN
2018
BRANCH 2018
1996 URBAN
COMMONS YOUR PARKS,
GREENSPACE FORESTRY
MASTER PLAN OUR FUTURE
PLAN MANAGEMENT
& DESIGN MASTER PLAN
PLAN
STANDARDS

2022
2002 2023
IMAGINE
GREENWAY IMAGINE NEW
NICHOLASVILLE
MASTER PLAN CIRCLE ROAD
ROAD

276 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

DECODING THE PLACEBUILDER
DECODING THE PLACEBUILDER

A - DS1-1 = (THEME A) - (DESIGN POLICY #1) - (CRITERIA #1)

KEY FOR ALL PILLAR CODES:

THEME A THEME B THEME C

GROWING SUCCESSFUL PROTECTING THE CREATING JOBS

NEIGHBORHOODS ENVIRONMENT & PROSPERITY

DESIGN (DS) PROTECTION (PR) LIVABILITY (LI)

DENSITY (DN) SUSTAINABILITY (SU) DIVERSITY (DI)

EQUITY (EQ) RESTORATION (RS) PROSPERITY (PS)

THEME D THEME E
IMPROVING A URBAN &
DESIRABLE COMMUNITY RURAL BALANCE

CONNECTIVITY (CO) ACCOUNTABILITY (AC)

PLACEMAKING (PL) STEWARDSHIP (ST)

SUPPORT (SP) GROWTH (GR)

DIVISION OF PLANNING THE PLACEBUILDER | 277

DOWNTOWN
Downtown is the urban epicenter of commerce and entertainment. The core should be anchored by high-rise structures with ground-level pedestrian engagement
opportunities surrounded by mid-rise buildings increasingly offering dense residential uses. Lexington’s Downtown should continue to be notable for its mix
of uses and variety of transportation options. Parking should be addressed as a shared urban core asset, eliminating dedicated surface parking lots in favor of
structures.

SITE PRIORITIES

• Dense residential options

• Ground level pedestrian engagement
• Economic development and job creation
• Minimizing parking in favor of multimodal options
• Appropriate transitions to 2nd tier urban and historic neighborhoods

MOST SUITABLE DEVELOPMENT TYPES

HNR
HR
MU
High Density Residential High Density
Non-residential/
Mixed-Use

RECOMMENDED ZONE(S)

B-2 B-2A B-2B MU-2 MU-3

Downtown Business Downtown Frame Lexington Business Neighborhood Mixed Use
Business Center Corridor Zone Community Zone

Zones for this place-type are not limited to the listed zones; other zones can be considered with proper justification.

278 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

DOWNTOWN MIXED USE
With combination of businesses, offices,
theaters, hotels and high-density residential.

DIVISION OF PLANNING THE PLACEBUILDER | 279

DOWNTOWN
DOWNTOWN - HIGH DENSITY RESIDENTIAL DOWNTOWN - HIGH DENSITY RESIDENTIAL

LAND USE D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
A - DN2-1 Infill residential should aim to increase density.
and traffic calming features.
A - DN3-2 Development should incorporate residential units in commercial centers.
ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
C - LI4-1 Development should contain a mixture of land uses, with a prioritization
of residential. B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
C - LI7-1 Developments should create mixed-use neighborhoods with safe access
to community facilities, greenspace, employment, businesses, shopping, B - PR7-1 Developments should be designed to minimize tree removal and to
and entertainment. protect and preserve existing significant trees.
C - PS15-2 Improve options for affordable and nutritious food where not currently B - PR10-1 Development should avoid overlighting and upward directed lighting.
available.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
D - CO3-1 Development should increase density and intensity adjacent to transit.
B - SU5-1 Developments should incorporate energy efficient systems and
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and renewable energy resources (i.e. wind, solar, etc.).
constraints prior to submitting an application.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
E - ST8-1 Development should be high density and contain a mixture of uses. development.
E - ST8-2 Development should provide community oriented places and services. B - SU11-1 Development should incorporate low impact landscaping and native
plant species.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - RE1-1 Developments should improve the tree canopy.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
provided/enhanced along transit routes. greenways, or natural areas should be highly visible and accessible.
A - DS1-2 Accessible pedestrian linkages to transit should be provided. B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, should be avoided.
greenspaces, developments and complementary uses should be provided. B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
A-DS5-1 Safe multi-modal facilities should be provided to ensure vehicular additional protection should be provided to areas around them.
separation from bicycles, pedestrians and other modes of transport. D - SP10-1 Prioritize street trees in the planting strip.
A-DS5-2 Developments should incorporate vertical elements, such as street
SITE DESIGN
trees and buildings, to create a walkable streetscape.
A-DS10-1 New developments should incorporate clear and dedicated connections A - DS5-4 Development should provide a pedestrian-oriented and activated
to nearby community anchors. streetscapes.
C-PS10-1 Flexible parking and shared parking arrangements should be utilized. A - DS9-1 Development should provide active and engaging amenities within
neighborhood focused open spaces.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
and promote the desired place-type. A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these
D - CO2-1 Development should create and/or expand a connected multimodal
facilities.
transportation network that satisfies all users’ needs.
A - EQ9-1 School sites should be appropriately sized.

280 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 DOWNTOWN - HIGH DENSITY RESIDENTIAL

A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

BUILDING FORM

A - DS3-1 Multi-family residential developments should comply with the Multi-

family Design Standards in Appendix A.
A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.
D - PL2-1 Development should provide active first floor uses whenever adjacent to
a street, pedestrian facility, or community focused open space.
E - GR4-1 Developments should incorporate reuse of viable existing structures.
E - GR5-1 Structures with demonstrated historic significance should be preserved
or adapted.

DIVISION OF PLANNING THE PLACEBUILDER | 281

DOWNTOWN
DOWNTOWN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE DOWNTOWN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS10-1 New developments should incorporate clear and dedicated connections
commercial areas.
to nearby community anchors.
A - DN2-1 Infill residential should aim to increase density.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
A - DN3-1 Pedestrian-oriented commercial opportunities and other services
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
should be incorporated within residential neighborhoods.
and promote the desired place-type.
A - DN3-2 Development should incorporate residential units in commercial centers.
D - CO2-1 Development should create and/or expand a connected multimodal
C - LI4-1 Development should contain a mixture of land uses, with a prioritization transportation network that satisfies all users’ needs.
of residential.
D - CO2-2 Development should comply with Lexington’s Complete Streets Policy.
C - LI7-1 Developments should create mixed-use neighborhoods with safe access
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
to community facilities, greenspace, employment, businesses, shopping,
and traffic calming features.
and entertainment.
D - SP6-1 Social services and community facilities should be accessible via mass
C - PS9-1 Where possible, developments should modify current office space to
transit, bicycle and pedestrian transportation modes.
include complementary uses, with a specific focus on the inclusion of
residential. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
C - PS15-2 Improve options for affordable and nutritious food where not currently
available. B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
D - CO3-1 Development should increase density and intensity adjacent to transit.
B - PR7-1 Developments should be designed to minimize tree removal and to
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and protect and preserve existing significant trees.
constraints prior to submitting an application.
B - PR10-1 Development should avoid overlighting and upward directed lighting.
D - PL15-1 Drive through facilities and gas stations should not be within
neighborhoods or the urban core. B - SU4-1 Development should minimize and/or mitigate impervious surfaces.

E - ST8-1 Development should be high density and contain a mixture of uses. B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.).
E - ST8-2 Development should provide community oriented places and services.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y development.
B - SU11-1 Development should incorporate low impact landscaping and native
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
plant species.
provided/enhanced along transit routes.
B - RE1-1 Developments should improve the tree canopy.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
greenways, or natural areas should be highly visible and accessible.
greenspaces, developments and complementary uses should be
provided. B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
should be avoided.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
separation from bicycles, pedestrians and other modes of transport. B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them.

282 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 DOWNTOWN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE DOWNTOWN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

D - SP10-1 Prioritize street trees in the planting strip. D - PL2-1 Development should provide active first floor uses whenever adjacent to
a street, pedestrian facility, or community focused open space.
SITE DESIGN
E - GR4-1 Developments should incorporate reuse of viable existing structures.
A - DS5-4 Development should provide a pedestrian-oriented and activated E - GR5-1 Structures with demonstrated historic significance should be preserved
streetscapes. or adapted.
A - DS9-1 Development should provide active and engaging amenities within
neighborhood focused open spaces.
A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these
facilities.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

BUILDING FORM

A - DS3-1 Multi-family residential developments should comply with the Multi-

family Design Standards in Appendix A.
A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.

DIVISION OF PLANNING THE PLACEBUILDER | 283

2ND TIER URBAN
2nd Tier Urban is where significant infill and redevelopment opportunities exist to complement the urban core. While not expected to be as intensely developed
as the downtown core, high-rise opportunities are not precluded provided that they are context-sensitive. The forward trend for development in the 2nd tier urban
areas should be towards increased walkability and intensity.

SITE PRIORITIES
• Medium, medium/high and high density residential
• Mix of uses
• Walkability
• Economic development and job creation
• Minimizing parking in favor of multimodal options
• Relation to surrounding historic context

MOST SUITABLE DEVELOPMENT TYPES

MNR HNR
MR MHR HR
MU MU
High Density Residential Medium-High Density High Density Residential Medium High High Density
Residential Density Nonresidential/ Non-residential/
Mixed-Use Mixed-Use

RECOMMENDED ZONE(S)

B-1 MU-1 MU-2 MU-3 R-4 R-5

Neighborhood Business Neighborhood Neighborhood Mixed use Medium Density High Density
Form Based Project Node Zone Corridor Zone Community Zone Residential Residential

Zones for this place-type are not limited to the listed zones; other zones can be considered with proper justification.

284 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

2ND TIER URBAN
With combination of businesses, offices,
theaters, hotels and medium density residential.

DIVISION OF PLANNING THE PLACEBUILDER | 285

2ND TIER URBAN
2ND TIER URBAN - MEDIUM DENSITY RESIDENTIAL 2ND TIER URBAN - MEDIUM DENSITY RESIDENTIAL

LAND USE D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
and promote the desired place-type.
A - DS12-1 Development should be located nearest to neighborhood serving
commercial areas. D - CO2-1 Development should create and/or expand a connected multimodal
transportation network that satisfies all users’ needs.
A - DN2-1 Infill residential should aim to increase density.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
A - DN3-2 Development should incorporate residential units in commercial centers.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
C - LI7-1 Developments should create mixed-use neighborhoods with safe access and traffic calming features.
to community facilities, greenspace, employment, businesses, shopping,
and entertainment. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
C - PS15-2 Improve options for affordable and nutritious food where not currently B - PR2-1 Impact on environmentally sensitive areas should be minimized within
available. and adjacent to the proposed development site.
D - CO3-1 Development should increase density and intensity adjacent to transit. B - PR7-1 Developments should be designed to minimize tree removal and to
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and protect and preserve existing significant trees.
constraints prior to submitting an application. B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
D - SP9-1 Encourage co-housing, shared housing environments, planned topography to the greatest extent possible and preserving key natural
communities and accessory dwelling units for flexibility and affordability features.
for senior adults and people with disabilities. B - PR10-1 Development should avoid overlighting and upward directed lighting.
E - ST8-2 Development should provide community oriented places and services. B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.).
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
provided/enhanced along transit routes. B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
development.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - SU11-1 Development should incorporate low impact landscaping and native
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, plant species.
greenspaces, developments and complementary uses should be
provided. B - RE1-1 Developments should improve the tree canopy.

A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
separation from bicycles, pedestrians and other modes of transport. greenways, or natural areas should be highly visible and accessible.

A - DS5-2 Developments should incorporate vertical elements, such as street B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
trees and buildings, to create a walkable streetscape. should be avoided.

A - DS10-1 New developments should incorporate clear and dedicated connections B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
to nearby community anchors. additional protection should be provided to areas around them.

A - DS11-1 Street layouts should provide clear, visible access to neighborhood- D - SP10-1 Prioritize street trees in the planting strip.
focused open space and greenspaces.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.

286 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 2ND TIER URBAN - MEDIUM DENSITY RESIDENTIAL 2ND TIER URBAN - MEDIUM DENSITY RESIDENTIAL

SITE DESIGN A - DN2-2 Development should minimize significant contrasts in scale, massing and
design, particularly along the edges of historic areas and neighborhoods.
A - DS5-4 Development should provide a pedestrian-oriented and activated
A - EQ5-1 Development should create context sensitive transitions between
streetscapes.
intense corridor development and existing neighborhoods.
A - DS7-1 Parking should be oriented to the interior or rear of the property for
D - PL2-1 Development should provide active first floor uses whenever adjacent to
non-residential or multi-family developments.
a street, pedestrian facility, or community focused open space.
A - DS9-1 Development should provide active and engaging amenities within
E - GR4-1 Developments should incorporate reuse of viable existing structures.
neighborhood focused open spaces.
E - GR5-1 Structures with demonstrated historic significance should be preserved
A - DS9-2 Where neighborhood open space or parks are not located within walking
or adapted.
distance of a new development, applicants should incorporate these
facilities.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

BUILDING FORM

A - DS3-1 Multi-family residential developments should comply with the Multi-

family Design Standards in Appendix A.
A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.

DIVISION OF PLANNING THE PLACEBUILDER | 287

2ND TIER URBAN
2ND TIER URBAN - MEDIUM-HIGH DENSITY RESIDENTIAL 2ND TIER URBAN - MEDIUM-HIGH DENSITY RESIDENTIAL

LAND USE D - CO2-1 Development should create and/or expand a connected multimodal
transportation network that satisfies all users’ needs.
A - DS12-1 Development should be located nearest to neighborhood serving
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
commercial areas.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
A - DN2-1 Infill residential should aim to increase density.
and traffic calming features.
A - DN3-2 Development should incorporate residential units in commercial
centers. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
C - LI7-1 Developments should create mixed-use neighborhoods with safe B - PR2-1 Impact on environmentally sensitive areas should be minimized within
access to community facilities, greenspace, employment, businesses, and adjacent to the proposed development site.
shopping, and entertainment.
B - PR7-1 Developments should be designed to minimize tree removal and to
C - PS15-2 Improve options for affordable and nutritious food where not currently protect and preserve existing significant trees.
available.
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
D - CO3-1 Development should increase density and intensity adjacent to transit. topography to the greatest extent possible and preserving key natural
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and features.
constraints prior to submitting an application. B - PR10-1 Development should avoid overlighting and upward directed lighting.
E - ST8-2 Development should provide community oriented places and services. B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.).
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
provided/enhanced along transit routes.
development.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - SU11-1 Development should incorporate low impact landscaping and native
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, plant species.
greenspaces, developments and complementary uses should be
B - RE1-1 Developments should improve the tree canopy.
provided.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
greenways, or natural areas should be highly visible and accessible.
separation from bicycles, pedestrians and other modes of transport.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
A - DS5-2 Developments should incorporate vertical elements, such as street
should be avoided.
trees and buildings, to create a walkable streetscape.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
A - DS10-1 New developments should incorporate clear and dedicated connections
additional protection should be provided to areas around them.
to nearby community anchors.
D - SP10-1 Prioritize street trees in the planting strip.
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces. SITE DESIGN
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
A - DS5-4 Development should provide a pedestrian-oriented and activated
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect streetscapes.
and promote the desired place-type.

288 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 2ND TIER URBAN - MEDIUM-HIGH DENSITY RESIDENTIAL 2ND TIER URBAN - MEDIUM-HIGH DENSITY RESIDENTIAL

A - DS7-1 Parking should be oriented to the interior or rear of the property for D - PL2-1 Development should provide active first floor uses whenever adjacent
non-residential or multi-family developments. to a street, pedestrian facility, or community focused open space.
A - DS9-1 Development should provide active and engaging amenities within E - GR4-1 Developments should incorporate reuse of viable existing structures.
neighborhood focused open spaces.
E - GR5-1 Structures with demonstrated historic significance should be preserved
A - DS9-2 Where neighborhood open space or parks are not located within walking or adapted.
distance of a new development, applicants should incorporate these
facilities.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

BUILDING FORM

A - DS3-1 Multi-family residential developments should comply with the Multi-

family Design Standards in Appendix A.
A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.
A - DN2-2 Development should minimize significant contrasts in scale, massing and
design, particularly along the edges of historic areas and neighborhoods.
A - EQ5-1 Development should create context sensitive transitions between
intense corridor development and existing neighborhoods.

DIVISION OF PLANNING THE PLACEBUILDER | 289

2ND TIER URBAN
2ND TIER URBAN - HIGH DENSITY RESIDENTIAL 2ND TIER URBAN - HIGH DENSITY RESIDENTIAL

LAND USE D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
and promote the desired place-type.
A - DS12-1 Development should be located nearest to neighborhood serving
D - CO2-1 Development should create and/or expand a connected multimodal
commercial areas.
transportation network that satisfies all users’ needs.
A - DN2-1 Infill residential should aim to increase density.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
A - DN3-2 Development should incorporate residential units in commercial
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
centers.
and traffic calming features.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
access to community facilities, greenspace, employment, businesses, ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
shopping, and entertainment.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
C - PS15-2 Improve options for affordable and nutritious food where not currently and adjacent to the proposed development site.
available.
B - PR7-1 Developments should be designed to minimize tree removal and to
D - CO3-1 Development should increase density and intensity adjacent to transit. protect and preserve existing significant trees.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
constraints prior to submitting an application. topography to the greatest extent possible and preserving key natural
E - ST8-1 Development should be high density and contain a mixture of uses. features.

E - ST8-2 Development should provide community oriented places and services. B - PR10-1 Development should avoid overlighting and upward directed lighting.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - SU5-1 Developments should incorporate energy efficient systems and
A - DS1-1 Mass transit infrastructure such as seating and shelters should be renewable energy resources (i.e. wind, solar, etc.).
provided/enhanced along transit routes.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
A - DS1-2 Accessible pedestrian linkages to transit should be provided. development.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, B - SU11-1 Development should incorporate low impact landscaping and native
greenspaces, developments and complementary uses should be plant species.
provided.
B - RE1-1 Developments should improve the tree canopy.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
separation from bicycles, pedestrians and other modes of transport.
greenways, or natural areas should be highly visible and accessible.
A - DS5-2 Developments should incorporate vertical elements, such as street
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
trees and buildings, to create a walkable streetscape.
should be avoided.
A - DS10-1 New developments should incorporate clear and dedicated connections
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
to nearby community anchors.
additional protection should be provided to areas around them.
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
D - SP10-1 Prioritize street trees in the planting strip
focused open space and greenspaces.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.

290 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 2ND TIER URBAN - HIGH DENSITY RESIDENTIAL 2ND TIER URBAN - HIGH DENSITY RESIDENTIAL

SITE DESIGN A - DN2-2 Development should minimize significant contrasts in scale, massing and
design, particularly along the edges of historic areas and neighborhoods.
A - DS5-4 Development should provide a pedestrian-oriented and activated
A - EQ5-1 Development should create context sensitive transitions between
streetscapes.
intense corridor development and existing neighborhoods.
A - DS7-1 Parking should be oriented to the interior or rear of the property for
D - PL2-1 Development should provide active first floor uses whenever adjacent
non-residential or multi-family developments.
to a street, pedestrian facility, or community focused open space.
A - DS9-1 Development should provide active and engaging amenities within
E - GR4-1 Developments should incorporate reuse of viable existing structures.
neighborhood focused open spaces.
A - DS9-2 Where neighborhood open space or parks are not located within walking E - GR5-1 Structures with demonstrated historic significance should be preserved
distance of a new development, applicants should incorporate these or adapted.
facilities.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

BUILDING FORM

A - DS3-1 Multi-family residential developments should comply with the Multi-

family Design Standards in Appendix A.
A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.

DIVISION OF PLANNING THE PLACEBUILDER | 291

2ND TIER URBAN
2ND TIER URBAN - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE 2ND TIER URBAN - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape.
A - DS12-1 Development should be located nearest to neighborhood serving
commercial areas. A - DS10-1 New developments should incorporate clear and dedicated connections
A - DN2-1 Infill residential should aim to increase density. to nearby community anchors.
A - DN3-1 Pedestrian-oriented commercial opportunities and other services A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
should be incorporated within residential neighborhoods. focused open space and greenspaces.
A - DN3-2 Development should incorporate residential units in commercial C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
centers. D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
C - LI7-1 Developments should create mixed-use neighborhoods with safe and promote the desired place-type.
access to community facilities, greenspace, employment, businesses, D - CO2-1 Development should create and/or expand a connected multimodal
shopping, and entertainment. transportation network that satisfies all users’ needs.
C - PS9-1 Where possible, developments should modify current office space to D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
include complementary uses, with a specific focus on the inclusion of
residential. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
C - PS15-2 Improve options for affordable and nutritious food where not currently
available. D - SP6-1 Social services and community facilities should be accessible via mass
transit, bicycle and pedestrian transportation modes.
D - CO3-1 Development should increase density and intensity adjacent to transit.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
constraints prior to submitting an application.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
D - PL15-1 Drive through facilities and gas stations should not be within and adjacent to the proposed development site.
neighborhoods or the urban core.
B - PR7-1 Developments should be designed to minimize tree removal and to
E - ST8-2 Development should provide community oriented places and services. protect and preserve existing significant trees.
E - GR9-2 Low-intensity business uses that will provide neighborhood amenities B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
should be incorporated into existing neighborhoods. topography to the greatest extent possible and preserving key natural
features.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
provided/enhanced along transit routes.
B - SU5-1 Developments should incorporate energy efficient systems and
A - DS1-2 Accessible pedestrian linkages to transit should be provided. renewable energy resources (i.e. wind, solar, etc.).
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
greenspaces, developments and complementary uses should be development.
provided.
B - SU11-1 Development should incorporate low impact landscaping and native
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular plant species.
separation from bicycles, pedestrians and other modes of transport.
B - RE1-1 Developments should improve the tree canopy.

292 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 2ND TIER URBAN - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE 2ND TIER URBAN - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE

B - RE2-1 Lexington’s green infrastructure network, including parks, trails, BUILDING FORM
greenways, or natural areas should be highly visible and accessible.
A - DS3-1 Multi-family residential developments should comply with the Multi-
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
family Design Standards in Appendix A.
should be avoided.
A - DS4-2 New construction should be at an appropriate scale to respect the
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
context of neighboring structures; however, along major corridors, it
additional protection should be provided to areas around them.
should set the future context.
D - SP10-1 Prioritize street trees in the planting strip
A - DS5-3 Building orientation should maximize connections with the street and
SITE DESIGN create a pedestrian-friendly atmosphere.
A - DN2-2 Development should minimize significant contrasts in scale, massing and
A - DS5-4 Development should provide a pedestrian-oriented and activated design, particularly along the edges of historic areas and neighborhoods.
streetscapes.
A - EQ5-1 Development should create context sensitive transitions between
A - DS7-1 Parking should be oriented to the interior or rear of the property for intense corridor development and existing neighborhoods.
non-residential or multi-family developments.
D - PL2-1 Development should provide active first floor uses whenever adjacent
A - DS9-1 Development should provide active and engaging amenities within to a street, pedestrian facility, or community focused open space.
neighborhood focused open spaces.
E - GR4-1 Developments should incorporate reuse of viable existing structures.
A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these E - GR5-1 Structures with demonstrated historic significance should be preserved
facilities. or adapted.

A - EQ9-1 School sites should be appropriately sized.

A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

DIVISION OF PLANNING THE PLACEBUILDER | 293

2ND TIER URBAN
2ND TIER URBAN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE 2ND TIER URBAN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS10-1 New developments should incorporate clear and dedicated connections
commercial areas.
to nearby community anchors.
A - DN2-1 Infill residential should aim to increase density.
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
A - DN3-1 Pedestrian-oriented commercial opportunities and other services focused open space and greenspaces.
should be incorporated within residential neighborhoods.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
A - DN3-2 Development should incorporate residential units in commercial
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
centers.
and promote the desired place-type.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO2-1 Development should create and/or expand a connected multimodal
access to community facilities, greenspace, employment, businesses,
transportation network that satisfies all users’ needs.
shopping, and entertainment.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
C - PS9-1 Where possible, developments should modify current office space to
include complementary uses, with a specific focus on the inclusion of D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
residential. and traffic calming features.
C - PS15-2 Improve options for affordable and nutritious food where not currently D - SP6-1 Social services and community facilities should be accessible via mass
available. transit, bicycle and pedestrian transportation modes.
D - CO3-1 Development should increase density and intensity adjacent to transit. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
constraints prior to submitting an application. B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
D - PL15-1 Drive through facilities and gas stations should not be within
neighborhoods or the urban core. B - PR7-1 Developments should be designed to minimize tree removal and to
protect and preserve existing significant trees.
E - ST8-1 Development should be high density and contain a mixture of uses.
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
E - ST8-2 Development should provide community oriented places and services. topography to the greatest extent possible and preserving key natural
features.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
provided/enhanced along transit routes.
B - SU5-1 Developments should incorporate energy efficient systems and
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
renewable energy resources (i.e. wind, solar, etc.).
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
greenspaces, developments and complementary uses should be
development.
provided.
B - SU11-1 Development should incorporate low impact landscaping and native
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
plant species.
separation from bicycles, pedestrians and other modes of transport.
B - RE1-1 Developments should improve the tree canopy.

294 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 2ND TIER URBAN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE 2ND TIER URBAN - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

B - RE2-1 Lexington’s green infrastructure network, including parks, trails, BUILDING FORM
greenways, or natural areas should be highly visible and accessible.
A - DS3-1 Multi-family residential developments should comply with the Multi-
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
family Design Standards in Appendix A.
should be avoided.
A - DS4-2 New construction should be at an appropriate scale to respect the
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
context of neighboring structures; however, along major corridors, it
additional protection should be provided to areas around them.
should set the future context.
D - SP10-1 Prioritize street trees in the planting strip
A - DS5-3 Building orientation should maximize connections with the street and
SITE DESIGN create a pedestrian-friendly atmosphere.
A - DN2-2 Development should minimize significant contrasts in scale, massing and
A - DS5-4 Development should provide a pedestrian-oriented and activated design, particularly along the edges of historic areas and neighborhoods.
streetscapes.
A - EQ5-1 Development should create context sensitive transitions between
A - DS7-1 Parking should be oriented to the interior or rear of the property for intense corridor development and existing neighborhoods.
non-residential or multi-family developments.
D - PL2-1 Development should provide active first floor uses whenever adjacent
A - DS9-1 Development should provide active and engaging amenities within to a street, pedestrian facility, or community focused open space.
neighborhood focused open spaces.
E - GR4-1 Developments should incorporate reuse of viable existing structures.
A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these E - GR5-1 Structures with demonstrated historic significance should be preserved
facilities. or adapted.

A - EQ9-1 School sites should be appropriately sized.

A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

DIVISION OF PLANNING THE PLACEBUILDER | 295

REGIONAL CENTER
A Regional Center is a vibrant hub of commerce, employment, diverse housing opportunities, & entertainment. They include larger buildings with active ground levels,
intentional open spaces, & walkable transportation networks, all to provide the user/resident with a unique experience. It is often located at major intersections
and along primary corridors.

SITE PRIORITIES
• Placemaking
• Internal connectivity
• Walkability
• Creating jobs where people live
• Proper design/orientation of buildings and streets
• Minimizing parking in favor of multimodal options
• Relation to surrounding neighborhood context
MOST SUITABLE DEVELOPMENT TYPES

MNR HNR
MR MHR HR
MU MU
High Density Residential Medium High Medium-High Density High Density Residential High Density
Density Nonresidential/ Residential Non-residential/
Mixed-Use Mixed-Use

RECOMMENDED ZONE(S)

B-6P B-1 MU-2 MU-3 R-4 R-5

Commercial Center Neighborhood Business Mixed use Neighborhood Medium Density High Density
Form Based Project Community Zone Corridor Zone Residential Residential

Zones for this place-type are not limited to the listed zones; other zones can be considered with proper justification.

296 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

MIXED USE COMMUNITY
Provide diverse uses withing walking distance:
share parking spaces during different times

DIVISION OF PLANNING THE PLACEBUILDER | 297

REGIONAL CENTER
REGIONAL CENTER - MEDIUM DENSITY RESIDENTIAL REGIONAL CENTER - MEDIUM DENSITY RESIDENTIAL

LAND USE A - DS13-1 Stub streets should be connected.

A - EQ5-2 Development should be transit-oriented (dense & intense, internally
A - DS12-1 Development should be located nearest to neighborhood serving walkable, connected to adjacent neighborhoods, providing transit
commercial areas. infrastructure & facilities).
A - DN2-1 Infill residential should aim to increase density. C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
A - DN3-2 Development should incorporate residential units in commercial D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
centers. and promote the desired place-type.
C - LI7-1 Developments should create mixed-use neighborhoods with safe D - CO2-1 Development should create and/or expand a connected multimodal
access to community facilities, greenspace, employment, businesses, transportation network that satisfies all users’ needs.
shopping, and entertainment.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
C - PS15-2 Improve options for affordable and nutritious food where not currently
available. D - CO4-2 Provide multiple route options (grid type structure) to alleviate
congestion in lieu of additional lanes upon existing roadways.
D - CO3-1 Development should increase density and intensity adjacent to transit.
D - CO4-3 Street pattern and design should consider site topography and minimize
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and grading where possible.
constraints prior to submitting an application.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
D - SP9-1 Encourage co-housing, shared housing environments, planned and traffic calming features.
communities and accessory dwelling units for flexibility and affordability
for senior adults and people with disabilities.
ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - ST8-2 Development should provide community oriented places and services.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
E - GR3-1 Development should meet recreational needs by following the and adjacent to the proposed development site.
recommendations of the Parks Master Plan.
B - PR2-2 Development should include regularly spaced access with an adequate
E - GR10-1 Transit oriented development (TOD) should be provided. width to the greenway network and conservation areas.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y B - PR3-1 Minimize impact of development adjacent to land conservation properties
through buffering.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be B - PR7-1 Developments should be designed to minimize tree removal and to
provided/enhanced along transit routes. protect and preserve existing significant trees.
A - DS1-2 Accessible pedestrian linkages to transit should be provided. B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, topography to the greatest extent possible and preserving key natural
greenspaces, developments and complementary uses should be features.
provided. B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
separation from bicycles, pedestrians and other modes of transport.
B - SU5-1 Developments should incorporate energy efficient systems and
A - DS5-2 Developments should incorporate vertical elements, such as street renewable energy resources (i.e. wind, solar, etc.).
trees and buildings, to create a walkable streetscape.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
A - DS10-1 New developments should incorporate clear and dedicated connections development.
to nearby community anchors.
B - SU11-1 Development should incorporate low impact landscaping and native
A - DS11-1 Street layouts should provide clear, visible access to neighborhood- plant species.
focused open space and greenspaces.

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 REGIONAL CENTER - MEDIUM DENSITY RESIDENTIAL REGIONAL CENTER - MEDIUM DENSITY RESIDENTIAL

B - RE1-1 Developments should improve the tree canopy. BUILDING FORM

B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
greenways, or natural areas should be highly visible and accessible. A - DS3-1 Multi-family residential developments should comply with the Multi-
family Design Standards in Appendix A.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
should be avoided. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and should set the future context.
additional protection should be provided to areas around them.
A - DS5-3 Building orientation should maximize connections with the street and
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the create a pedestrian-friendly atmosphere.
Royal Springs Water Supply Protection Committee.
A - DN2-2 Development should minimize significant contrasts in scale, massing and
D - SP10-1 Prioritize street trees in the planting strip. design, particularly along the edges of historic areas and neighborhoods.
A - EQ5-1 Development should create context sensitive transitions between
SITE DESIGN intense corridor development and existing neighborhoods.
A - DS5-4 Development should provide a pedestrian-oriented and activated D - PL2-1 Development should provide active first floor uses whenever adjacent
streetscapes. to a street, pedestrian facility, or community focused open space.
A - DS7-1 Parking should be oriented to the interior or rear of the property for E - GR4-1 Developments should incorporate reuse of viable existing structures.
non-residential or multi-family developments.
E - GR5-1 Structures with demonstrated historic significance should be preserved
A - DS9-1 Development should provide active and engaging amenities within or adapted.
neighborhood focused open spaces.
A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these
facilities.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.

DIVISION OF PLANNING THE PLACEBUILDER | 299

REGIONAL CENTER
REGIONAL CENTER - MEDIUM-HIGH DENSITY RESIDENTIAL REGIONAL CENTER - MEDIUM-HIGH DENSITY RESIDENTIAL

LAND USE A - DS13-1 Stub streets should be connected.

A - EQ5-2 Development should be transit-oriented (dense & intense, internally
A - DS12-1 Development should be located nearest to neighborhood serving
walkable, connected to adjacent neighborhoods, providing transit
commercial areas.
infrastructure & facilities).
A - DN2-1 Infill residential should aim to increase density.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
A - DN3-2 Development should incorporate residential units in commercial
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
centers.
and promote the desired place-type.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO2-1 Development should create and/or expand a connected multimodal
access to community facilities, greenspace, employment, businesses,
transportation network that satisfies all users’ needs.
shopping, and entertainment.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
C - PS15-2 Improve options for affordable and nutritious food where not currently
available. D - CO4-2 Provide multiple route options (grid type structure) to alleviate
D - CO3-1 Development should increase density and intensity adjacent to transit. congestion in lieu of additional lanes upon existing roadways.

D - PL7-1 Stakeholders should be consulted to discuss site opportunities and D - CO4-3 Street pattern and design should consider site topography and minimize
constraints prior to submitting an application. grading where possible.

E - ST8-2 Development should provide community oriented places and services. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
E - GR3-1 Development should meet recreational needs by following the
recommendations of the Parks Master Plan. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - GR10-1 Transit oriented development (TOD) should be provided.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y and adjacent to the proposed development site.
B - PR2-2 Development should include regularly spaced access with an adequate
A - DS1-1 Mass transit infrastructure such as seating and shelters should be width to the greenway network and conservation areas.
provided/enhanced along transit routes.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS1-2 Accessible pedestrian linkages to transit should be provided. through buffering.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, B - PR7-1 Developments should be designed to minimize tree removal and to
greenspaces, developments and complementary uses should be protect and preserve existing significant trees.
provided.
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular topography to the greatest extent possible and preserving key natural
separation from bicycles, pedestrians and other modes of transport. features.
A - DS5-2 Developments should incorporate vertical elements, such as street B - PR10-1 Development should avoid overlighting and upward directed lighting.
trees and buildings, to create a walkable streetscape.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
A - DS10-1 New developments should incorporate clear and dedicated connections
to nearby community anchors. B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.).
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces. B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
development.

300 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 REGIONAL CENTER - MEDIUM-HIGH DENSITY RESIDENTIAL REGIONAL CENTER - MEDIUM-HIGH DENSITY RESIDENTIAL

B - SU11-1 Development should incorporate low impact landscaping and native D - PL10-1 Activate the streetscape or publicly visible areas by designating public
plant species. art easements in prominent locations.
B - RE1-1 Developments should improve the tree canopy. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
to create reliable service throughout Lexington.
greenways, or natural areas should be highly visible and accessible.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
negative aesthetic impacts, and stealth towers and landscaping used to
should be avoided.
improve the visual impact from the roadway and residential areas.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them. BUILDING FORM

B - RE5-3 Developments within the Royal Springs Aquifer should consult with the A - DS3-1 Multi-family residential developments should comply with the Multi-
Royal Springs Water Supply Protection Committee. family Design Standards in Appendix A.
D - SP10-1 Prioritize street trees in the planting strip. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
SITE DESIGN
should set the future context.
A - DS5-4 Development should provide a pedestrian-oriented and activated A - DS5-3 Building orientation should maximize connections with the street and
streetscapes. create a pedestrian-friendly atmosphere.
A - DS7-1 Parking should be oriented to the interior or rear of the property for A - DN2-2 Development should minimize significant contrasts in scale, massing and
non-residential or multi-family developments. design, particularly along the edges of historic areas and neighborhoods.
A - DS9-1 Development should provide active and engaging amenities within A - EQ5-1 Development should create context sensitive transitions between
neighborhood focused open spaces. intense corridor development and existing neighborhoods.
A - DS9-2 Where neighborhood open space or parks are not located within walking D - PL2-1 Development should provide active first floor uses whenever adjacent
distance of a new development, applicants should incorporate these to a street, pedestrian facility, or community focused open space.
facilities.
E - GR4-1 Developments should incorporate reuse of viable existing structures.
A - EQ9-1 School sites should be appropriately sized.
E - GR5-1 Structures with demonstrated historic significance should be preserved
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated or adapted.
from private open spaces.
C - LI2-4 Setbacks, signage, and screening should complement the iconic
Bluegrass landscape along Historic Turnpikes, Scenic Byways,
Turnpikes, and other scenic roads listed in the RLMP.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided. (B-SU5)
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities

DIVISION OF PLANNING THE PLACEBUILDER | 301

REGIONAL CENTER
REGIONAL CENTER - HIGH DENSITY RESIDENTIAL REGIONAL CENTER - HIGH DENSITY RESIDENTIAL

LAND USE A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS13-1 Stub streets should be connected.
commercial areas.
A - EQ5-2 Development should be transit-oriented (dense & intense, internally
A - DN2-1 Infill residential should aim to increase density.
walkable, connected to adjacent neighborhoods, providing transit
A - DN3-2 Development should incorporate residential units in commercial infrastructure & facilities).
centers.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
access to community facilities, greenspace, employment, businesses,
and promote the desired place-type.
shopping, and entertainment.
D - CO2-1 Development should create and/or expand a connected multimodal
C - PS15-2 Improve options for affordable and nutritious food where not currently
transportation network that satisfies all users’ needs.
available.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
D - CO3-1 Development should increase density and intensity adjacent to transit.
D - CO4-2 Provide multiple route options (grid type structure) to alleviate
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
congestion in lieu of additional lanes upon existing roadways.
constraints prior to submitting an application.
D - CO4-3 Street pattern and design should consider site topography and minimize
E - ST8-1 Development should be high density and contain a mixture of uses.
grading where possible.
E - ST8-2 Development should provide community oriented places and services.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
E - GR3-1 Development should meet recreational needs by following the and traffic calming features.
recommendations of the Parks Master Plan.
ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - GR10-1 Transit oriented development (TOD) should be provided.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
and adjacent to the proposed development site.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be B - PR2-2 Development should include regularly spaced access with an adequate
provided/enhanced along transit routes. width to the greenway network and conservation areas.
A - DS1-2 Accessible pedestrian linkages to transit should be provided. B - PR3-1 Minimize impact of development adjacent to land conservation properties
through buffering.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
greenspaces, developments and complementary uses should be B - PR7-1 Developments should be designed to minimize tree removal and to
provided. protect and preserve existing significant trees.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
separation from bicycles, pedestrians and other modes of transport. topography to the greatest extent possible and preserving key natural
features.
A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape. B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS10-1 New developments should incorporate clear and dedicated connections B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
to nearby community anchors.
B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.).

302 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 REGIONAL CENTER - HIGH DENSITY RESIDENTIAL REGIONAL CENTER - HIGH DENSITY RESIDENTIAL

B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new C - LI8-1 Development should enhance a well-connected and activated public
development. realm.
B - SU11-1 Development should incorporate low impact landscaping and native C - PS10-2 Over-parking of new developments should be avoided.
plant species.
D - PL4-1 Enhance open space through the provision of programmatic elements
B - RE1-1 Developments should improve the tree canopy. and amenities.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails, D - PL10-1 Activate the streetscape or publicly visible areas by designating public
greenways, or natural areas should be highly visible and accessible. art easements in prominent locations.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
should be avoided. with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them. D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the
improve the visual impact from the roadway and residential areas.
Royal Springs Water Supply Protection Committee.
D - SP10-1 Prioritize street trees in the planting strip. BUILDING FORM

SITE DESIGN A - DS3-1 Multi-family residential developments should comply with the Multi-
family Design Standards in Appendix A.
A - DS5-4 Development should provide a pedestrian-oriented and activated
A - DS4-2 New construction should be at an appropriate scale to respect the
streetscapes.
context of neighboring structures; however, along major corridors, it
A - DS7-1 Parking should be oriented to the interior or rear of the property for should set the future context.
non-residential or multi-family developments.
A - DS5-3 Building orientation should maximize connections with the street and
A - DS9-1 Development should provide active and engaging amenities within create a pedestrian-friendly atmosphere.
neighborhood focused open spaces.
A - DN2-2 Development should minimize significant contrasts in scale, massing and
A - DS9-2 Where neighborhood open space or parks are not located within walking design, particularly along the edges of historic areas and neighborhoods.
distance of a new development, applicants should incorporate these
A - EQ5-1 Development should create context sensitive transitions between
facilities.
intense corridor development and existing neighborhoods.
A - EQ9-1 School sites should be appropriately sized.
D - PL2-1 Development should provide active first floor uses whenever adjacent
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated to a street, pedestrian facility, or community focused open space.
from private open spaces.
E - GR4-1 Developments should incorporate reuse of viable existing structures.
C - LI2-2 Non-agricultural uses at or near potential and existing gateways, as
E - GR5-1 Structures with demonstrated historic significance should be preserved
mapped in the Rural Land Management Plan, should be buffered.
or adapted.
C - LI2-3 Design should create a positive gateway character at existing and
proposed gateways as identified in the Rural Land Management Plan.
C - LI2-4 Setbacks, signage, and screening should complement the iconic
Bluegrass landscape along Historic Turnpikes, Scenic Byways,
Turnpikes, and other scenic roads listed in the RLMP.

DIVISION OF PLANNING THE PLACEBUILDER | 303

REGIONAL CENTER
REGIONAL CENTER - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE REGIONAL CENTER - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS10-1 New developments should incorporate clear and dedicated connections
to nearby community anchors.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
commercial areas.
focused open space and greenspaces
A - DN2-1 Infill residential should aim to increase density.
A - DS13-1 Stub streets should be connected.
A - DN3-1 Pedestrian-oriented commercial opportunities and other services
A - EQ5-2 Development should be transit-oriented (dense & intense, internally
should be incorporated within residential neighborhoods.
walkable, connected to adjacent neighborhoods, providing transit
A - DN3-2 Development should incorporate residential units in commercial infrastructure & facilities).
centers.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
access to community facilities, greenspace, employment, businesses,
and promote the desired place-type.
shopping, and entertainment.
D - CO2-1 Development should create and/or expand a connected multimodal
C - PS9-1 Where possible, developments should modify current office space to
transportation network that satisfies all users’ needs.
include complementary uses, with a specific focus on the inclusion of
residential. D - CO2-2 Development should comply with Lexington’s Complete Streets Policy.
C - PS15-2 Improve options for affordable and nutritious food where not currently D - CO4-2 Provide multiple route options (grid type structure) to alleviate
available. congestion in lieu of additional lanes upon existing roadways.
D - CO3-1 Development should increase density and intensity adjacent to transit. D - CO4-3 Street pattern and design should consider site topography and minimize
grading where possible.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
constraints prior to submitting an application. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
E - ST8-2 Development should provide community oriented places and services.
D - SP6-1 Social services and community facilities should be accessible via mass
E - GR3-1 Development should meet recreational needs by following the
transit, bicycle and pedestrian transportation modes.
recommendations of the Parks Master Plan.
E - GR10-1 Transit oriented development (TOD) should be provided. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY

TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
B - PR2-2 Development should include regularly spaced access with an adequate
provided/enhanced along transit routes.
width to the greenway network and conservation areas.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, through buffering.
greenspaces, developments and complementary uses should be
B - PR7-1 Developments should be designed to minimize tree removal and to
provided.
protect and preserve existing significant trees.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
separation from bicycles, pedestrians and other modes of transport.
topography to the greatest extent possible and preserving key natural
A - DS5-2 Developments should incorporate vertical elements, such as street features.
trees and buildings, to create a walkable streetscape.

304 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 REGIONAL CENTER - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE REGIONAL CENTER - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE

B - PR10-1 Development should avoid overlighting and upward directed lighting. C - LI2-3 Design should create a positive gateway character at existing and
proposed gateways as identified in the Rural Land Management Plan.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
C - LI2-4 Setbacks, signage, and screening should complement the iconic
B - SU5-1 Developments should incorporate energy efficient systems and
Bluegrass landscape along Historic Turnpikes, Scenic Byways,
renewable energy resources (i.e. wind, solar, etc.).
Turnpikes, and other scenic roads listed in the RLMP.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
C - LI8-1 Development should enhance a well-connected and activated public
development.
realm.
B - SU11-1 Development should incorporate low impact landscaping and native
C - PS10-2 Over-parking of new developments should be avoided.
plant species.
D - PL4-1 Enhance open space through the provision of programmatic elements
B - RE1-1 Developments should improve the tree canopy.
and amenities.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
greenways, or natural areas should be highly visible and accessible.
art easements in prominent locations.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
should be avoided.
with emphasis on wireless communication networks should be provided
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and to create reliable service throughout Lexington.
additional protection should be provided to areas around them.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the negative aesthetic impacts, and stealth towers and landscaping used to
Royal Springs Water Supply Protection Committee. improve the visual impact from the roadway and residential areas.
D - SP10-1 Prioritize street trees in the planting strip. BUILDING FORM
SITE DESIGN
A - DS3-1 Multi-family residential developments should comply with the Multi-
family Design Standards in Appendix A.
A - DS5-4 Development should provide a pedestrian-oriented and activated
streetscapes. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
A - DS7-1 Parking should be oriented to the interior or rear of the property for
should set the future context.
non-residential or multi-family developments.
A - DS5-3 Building orientation should maximize connections with the street and
A - DS9-1 Development should provide active and engaging amenities within
create a pedestrian-friendly atmosphere.
neighborhood focused open spaces.
A - DN2-2 Development should minimize significant contrasts in scale, massing and
A - DS9-2 Where neighborhood open space or parks are not located within walking
design, particularly along the edges of historic areas and neighborhoods.
distance of a new development, applicants should incorporate these
facilities. A - EQ5-1 Development should create context sensitive transitions between
intense corridor development and existing neighborhoods.
A - EQ9-1 School sites should be appropriately sized.
D - PL2-1 Development should provide active first floor uses whenever adjacent
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
to a street, pedestrian facility, or community focused open space.
from private open spaces.
E - GR4-1 Developments should incorporate reuse of viable existing structures.
C - LI2-2 Non-agricultural uses at or near potential and existing gateways, as
mapped in the Rural Land Management Plan, should be buffered. E - GR5-1 Structures with demonstrated historic significance should be preserved
or adapted.

DIVISION OF PLANNING THE PLACEBUILDER | 305

REGIONAL CENTER
REGIONAL CENTER - HIGH DENSITY NON-RESIDENTIAL/MIXED USE REGIONAL CENTER - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS10-1 New developments should incorporate clear and dedicated connections
to nearby community anchors.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
commercial areas.
focused open space and greenspaces.
A - DN2-1 Infill residential should aim to increase density.
A - DS13-1 Stub streets should be connected.
A - DN3-1 Pedestrian-oriented commercial opportunities and other services
A - EQ5-2 Development should be transit-oriented (dense & intense, internally
should be incorporated within residential neighborhoods.
walkable, connected to adjacent neighborhoods, providing transit
A - DN3-2 Development should incorporate residential units in commercial infrastructure & facilities).
centers.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
access to community facilities, greenspace, employment, businesses,
and promote the desired place-type.
shopping, and entertainment.
D - CO2-1 Development should create and/or expand a connected multimodal
C - PS9-1 Where possible, developments should modify current office space to
transportation network that satisfies all users’ needs.
include complementary uses, with a specific focus on the inclusion of
residential. D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
C - PS15-2 Improve options for affordable and nutritious food where not currently D - CO4-2 Provide multiple route options (grid type structure) to alleviate
available. congestion in lieu of additional lanes upon existing roadways.
D - CO3-1 Development should increase density and intensity adjacent to transit. D - CO4-3 Street pattern and design should consider site topography and minimize
grading where possible.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
constraints prior to submitting an application. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
E - ST8-1 Development should be high density and contain a mixture of uses.
D - SP6-1 Social services and community facilities should be accessible via mass
E - ST8-2 Development should provide community oriented places and services.
transit, bicycle and pedestrian transportation modes.
E - GR3-1 Development should meet recreational needs by following the
recommendations of the Parks Master Plan. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY

E - GR10-1 Transit oriented development (TOD) should be provided. B - PR2-1 Impact on environmentally sensitive areas should be minimized within
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y and adjacent to the proposed development site.
B - PR2-2 Development should include regularly spaced access with an adequate
A - DS1-1 Mass transit infrastructure such as seating and shelters should be width to the greenway network and conservation areas.
provided/enhanced along transit routes.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS1-2 Accessible pedestrian linkages to transit should be provided. through buffering.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, B - PR7-1 Developments should be designed to minimize tree removal and to
greenspaces, developments and complementary uses should be protect and preserve existing significant trees.
provided.
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular topography to the greatest extent possible and preserving key natural
separation from bicycles, pedestrians and other modes of transport. features.
A - DS5-2 Developments should incorporate vertical elements, such as street B - PR10-1 Development should avoid overlighting and upward directed lighting.
trees and buildings, to create a walkable streetscape.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.

306 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 REGIONAL CENTER - HIGH DENSITY NON-RESIDENTIAL/MIXED USE REGIONAL CENTER - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

B - SU5-1 Developments should incorporate energy efficient systems and C - LI2-4 Setbacks, signage, and screening should complement the iconic
renewable energy resources (i.e. wind, solar, etc.). Bluegrass landscape along Historic Turnpikes, Scenic Byways,
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new Turnpikes, and other scenic roads listed in the RLMP.
development. C - LI8-1 Development should enhance a well-connected and activated public
B - SU11-1 Development should incorporate low impact landscaping and native realm.
plant species. C - PS10-2 Over-parking of new developments should be avoided.
B - RE1-1 Developments should improve the tree canopy. D - PL4-1 Enhance open space through the provision of programmatic elements
B - RE2-1 Lexington’s green infrastructure network, including parks, trails, and amenities.
greenways, or natural areas should be highly visible and accessible. D - PL10-1 Activate the streetscape or publicly visible areas by designating public
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance art easements in prominent locations.
should be avoided. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and with emphasis on wireless communication networks should be provided
additional protection should be provided to areas around them. to create reliable service throughout Lexington.

B - RE5-3 Developments within the Royal Springs Aquifer should consult with the D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
Royal Springs Water Supply Protection Committee. negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.
D - SP10-1 Prioritize street trees in the planting strip.
BUILDING FORM
SITE DESIGN
A - DS3-1 Multi-family residential developments should comply with the Multi-
A - DS5-4 Development should provide a pedestrian-oriented and activated family Design Standards in Appendix A.
streetscapes.
A - DS4-2 New construction should be at an appropriate scale to respect the
A - DS7-1 Parking should be oriented to the interior or rear of the property for context of neighboring structures; however, along major corridors, it
non-residential or multi-family developments. should set the future context.
A - DS9-1 Development should provide active and engaging amenities within A - DS5-3 Building orientation should maximize connections with the street and
neighborhood focused open spaces. create a pedestrian-friendly atmosphere.
A - DS9-2 Where neighborhood open space or parks are not located within walking A - DN2-2 Development should minimize significant contrasts in scale, massing and
distance of a new development, applicants should incorporate these design, particularly along the edges of historic areas and neighborhoods.
facilities.
A - EQ5-1 Development should create context sensitive transitions between
A - EQ9-1 School sites should be appropriately sized. intense corridor development and existing neighborhoods.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated D - PL2-1 Development should provide active first floor uses whenever adjacent
from private open spaces. to a street, pedestrian facility, or community focused open space.
C - LI2-1 The design should not obstruct the view of the gateway features of the E - GR4-1 Developments should incorporate reuse of viable existing structures.
three existing gateways mapped in the Rural Land Management Plan
(RLMP). E - GR5-1 Structures with demonstrated historic significance should be preserved
or adapted.
C - LI2-2 Non-agricultural uses at or near potential and existing gateways, as
mapped in the Rural Land Management Plan, should be buffered.
C - LI2-3 Design should create a positive gateway character at existing and
proposed gateways as identified in the Rural Land Management Plan.

DIVISION OF PLANNING THE PLACEBUILDER | 307

CORRIDOR
Corridors are Lexington’s major roadways focused on commerce and transportation. The overriding emphasis of Imagine Lexington 2045 is significantly overhauling
the intensity of the major corridors. The future of Lexington’s corridors lies in accommodating the shifting retail economic model by incorporating high density
residential and offering substantial flexibility to available land uses.

SITE PRIORITIES
• Transit Oriented Development
• High density residential
• Community gathering spaces
• Redevelopment of underutilized property

MOST SUITABLE DEVELOPMENT TYPES

MNR HNR
MHR HR
MU MU
Medium-High Density High Density Residential Medium High High Density
Residential Density Nonresidential/ Non-residential/
Mixed-Use Mixed-Use

RECOMMENDED ZONE(S)

B-6P B-1 MU-2 MU-3 R-5

Commercial Center Neighborhood Business Neighborhood Mixed use High Density
Form Base Project Corridor Zone Community Zone Residential

Zones for this place-type are not limited to the listed zones; other zones can be considered with proper justification.

308 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

MIXED HOUSING TYPES
Provide different options for diverse residents
and opportunity to shared amenities nearby.

DIVISION OF PLANNING THE PLACEBUILDER | 309

CORRIDOR
CORRIDOR - MEDIUM-HIGH DENSITY RESIDENTIAL CORRIDOR - MEDIUM-HIGH DENSITY RESIDENTIAL

LAND USE A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces.
A - DS12-1 Development should be located nearest to neighborhood serving A - DS13-1 Stub streets should be connected.
commercial areas.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
A - DN2-1 Infill residential should aim to increase density. separation from bicycles, pedestrians and other modes of transport.
A - DN3-2 Development should incorporate residential units in commercial A - EQ5-2 Development should be transit-oriented (dense & intense, internally
centers. walkable, connected to adjacent neighborhoods, providing transit
C - LI7-1 Developments should create mixed-use neighborhoods with safe infrastructure & facilities).
access to community facilities, greenspace, employment, businesses, C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
shopping, and entertainment.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
C - LI8-1 Development should enhance a well-connected and activated public and promote the desired place-type.
realm.
D - CO2-1 Development should create and/or expand a connected multimodal
C - PS15-2 Improve options for affordable and nutritious food where not currently transportation network that satisfies all users’ needs.
available
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
D - CO3-1 Development should increase density and intensity adjacent to transit.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and and traffic calming features.
constraints prior to submitting an application.
ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - ST8-2 Development should provide community oriented places and services.
E - GR3-1 Development should meet recreational needs by following the B - PR2-1 Impact on environmentally sensitive areas should be minimized within
recommendations of the Parks Master Plan. and adjacent to the proposed development site.
E - GR10-1 Transit oriented development (TOD) should be provided. B - PR7-1 Developments should be designed to minimize tree removal and to
protect and preserve existing significant trees.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
A - DS1-1 Mass transit infrastructure such as seating and shelters should be topography to the greatest extent possible and preserving key natural
provided/enhanced along transit routes. features.
A - DS1-2 Accessible pedestrian linkages to transit should be provided. B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
greenspaces, developments and complementary uses should be B - SU5-1 Developments should incorporate energy efficient systems and
provided. renewable energy resources (i.e. wind, solar, etc.).
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
separation from bicycles, pedestrians and other modes of transport. development.
A - DS5-2 Developments should incorporate vertical elements, such as street B - SU11-1 Development should incorporate low impact landscaping and native
trees and buildings, to create a walkable streetscape. plant species.
A - DS10-1 New developments should incorporate clear and dedicated connections B - RE1-1 Developments should improve the tree canopy.
to nearby community anchors.

310 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 CORRIDOR - MEDIUM-HIGH DENSITY RESIDENTIAL CORRIDOR - MEDIUM-HIGH DENSITY RESIDENTIAL

B - RE2-1 Lexington’s green infrastructure network, including parks, trails, D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
greenways, or natural areas should be highly visible and accessible. negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
should be avoided. BUILDING FORM
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them. A - DS3-1 Multi-family residential developments should comply with the Multi-
family Design Standards in Appendix A.
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the
Royal Springs Water Supply Protection Committee. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
D - SP10-1 Prioritize street trees in the planting strip. should set the future context.
SITE DESIGN A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.
A - DS5-4 Development should provide a pedestrian-oriented and activated
A - DN2-2 Development should minimize significant contrasts in scale, massing and
streetscapes.
design, particularly along the edges of historic areas and neighborhoods.
A - DS7-1 Parking should be oriented to the interior or rear of the property for
A - EQ5-1 Development should create context sensitive transitions between
non-residential or multi-family developments.
intense corridor development and existing neighborhoods.
A - DS9-1 Development should provide active and engaging amenities within
D - PL2-1 Development should provide active first floor uses whenever adjacent
neighborhood focused open spaces.
to a street, pedestrian facility, or community focused open space.
A - DS9-2 Where neighborhood open space or parks are not located within walking
E - GR4-1 Developments should incorporate reuse of viable existing structures.
distance of a new development, applicants should incorporate these
facilities. E - GR5-1 Structures with demonstrated historic significance should be preserved
or adapted.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI2-4 Setbacks, signage, and screening should complement the iconic
Bluegrass landscape along Historic Turnpikes, Scenic Byways,
Turnpikes, and other scenic roads listed in the RLMP.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.

DIVISION OF PLANNING THE PLACEBUILDER | 311

CORRIDOR
CORRIDOR - HIGH DENSITY RESIDENTIAL CORRIDOR - HIGH DENSITY RESIDENTIAL

LAND USE B - SU11-1 Development should incorporate low impact landscaping and native
plant species.
A - DS12-1 Development should be located nearest to neighborhood serving B - RE1-1 Developments should improve the tree canopy.
commercial areas.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
A - DN2-1 Infill residential should aim to increase density. greenways, or natural areas should be highly visible and accessible.
A - DN3-2 Development should incorporate residential units in commercial B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
centers. should be avoided.
C - LI7-1 Developments should create mixed-use neighborhoods with safe B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
access to community facilities, greenspace, employment, businesses, additional protection should be provided to areas around them.
shopping, and entertainment.
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the
C - PS15-2 Improve options for affordable and nutritious food where not currently Royal Springs Water Supply Protection Committee.
available.
D - SP10-1 Prioritize street trees in the planting strip.
D - CO3-1 Development should increase density and intensity adjacent to transit.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
constraints prior to submitting an application.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
E - ST8-1 Development should be high density and contain a mixture of uses. provided/enhanced along transit routes.
E - ST8-2 Development should provide community oriented places and services. A - DS1-2 Accessible pedestrian linkages to transit should be provided.
E - GR3-1 Development should meet recreational needs by following the A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
recommendations of the Parks Master Plan. greenspaces, developments and complementary uses should be
E - GR10-1 Transit oriented development (TOD) should be provided. provided.

ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
separation from bicycles, pedestrians and other modes of transport.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within A - DS5-2 Developments should incorporate vertical elements, such as street
and adjacent to the proposed development site. trees and buildings, to create a walkable streetscape.
B - PR7-1 Developments should be designed to minimize tree removal and to A - DS10-1 New developments should incorporate clear and dedicated connections
protect and preserve existing significant trees. to nearby community anchors.
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
topography to the greatest extent possible and preserving key natural focused open space and greenspaces.
features.
A - DS13-1 Stub streets should be connected.
B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - EQ5-2 Development should be transit-oriented (dense & intense, internally
B - SU4-1 Development should minimize and/or mitigate impervious surfaces. walkable, connected to adjacent neighborhoods, providing transit
B - SU5-1 Developments should incorporate energy efficient systems and infrastructure & facilities).
renewable energy resources (i.e. wind, solar, etc.). C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
development. and promote the desired place-type.

312 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 CORRIDOR - HIGH DENSITY RESIDENTIAL CORRIDOR - HIGH DENSITY RESIDENTIAL

D - CO2-1 Development should create and/or expand a connected multimodal D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
transportation network that satisfies all users’ needs. negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
BUILDING FORM
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
A - DS3-1 Multi-family residential developments should comply with the Multi-
SITE DESIGN family Design Standards in Appendix A.

A - DS5-4 Development should provide a pedestrian-oriented and activated A - DS4-2 New construction should be at an appropriate scale to respect the
streetscapes. context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS7-1 Parking should be oriented to the interior or rear of the property for
non-residential or multi-family developments. A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.
A - DS9-1 Development should provide active and engaging amenities within
neighborhood focused open spaces. A - DN2-2 Development should minimize significant contrasts in scale, massing and
design, particularly along the edges of historic areas and neighborhoods.
A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these A - EQ5-1 Development should create context sensitive transitions between
facilities. intense corridor development and existing neighborhoods.

A - EQ9-1 School sites should be appropriately sized. D - PL2-1 Development should provide active first floor uses whenever adjacent
to a street, pedestrian facility, or community focused open space.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces. E - GR4-1 Developments should incorporate reuse of viable existing structures.

C - LI2-2 Non-agricultural uses at or near potential and existing gateways, as E - GR5-1 Structures with demonstrated historic significance should be preserved
mapped in the Rural Land Management Plan, should be buffered. or adapted.

C - LI2-3 Design should create a positive gateway character at existing and

proposed gateways as identified in the Rural Land Management Plan.
C - LI2-4 Setbacks, signage, and screening should complement the iconic
Bluegrass landscape along Historic Turnpikes, Scenic Byways,
Turnpikes, and other scenic roads listed in the RLMP.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.

DIVISION OF PLANNING THE PLACEBUILDER | 313

CORRIDOR
CORRIDOR - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE CORRIDOR - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS10-1 New developments should incorporate clear and dedicated connections
commercial areas.
to nearby community anchors.
A - DN2-1 Infill residential should aim to increase density.
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
A - DN3-1 Pedestrian-oriented commercial opportunities and other services focused open space and greenspaces
should be incorporated within residential neighborhoods.
A - DS13-1 Stub streets should be connected.
A - DN3-2 Development should incorporate residential units in commercial
A - EQ5-2 Development should be transit-oriented (dense & intense, internally
centers.
walkable, connected to adjacent neighborhoods, providing transit
C - LI7-1 Developments should create mixed-use neighborhoods with safe infrastructure & facilities).
access to community facilities, greenspace, employment, businesses,
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
shopping, and entertainment.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
C - PS9-1 Where possible, developments should modify current office space to
and promote the desired place-type.
include complementary uses, with a specific focus on the inclusion of
residential. D - CO2-1 Development should create and/or expand a connected multimodal
transportation network that satisfies all users’ needs.
C - PS15-2 Improve options for affordable and nutritious food where not currently
available. D - CO2-2 Development should comply with Lexington’s Complete Streets Policy.
D - CO3-1 Development should increase density and intensity adjacent to transit. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
constraints prior to submitting an application. D - SP6-1 Social services and community facilities should be accessible via mass
transit, bicycle and pedestrian transportation modes.
E - ST8-2 Development should provide community oriented places and services.
E - GR3-1 Development should meet recreational needs by following the ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
recommendations of the Parks Master Plan.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
E - GR10-1 Transit oriented development (TOD) should be provided. and adjacent to the proposed development site.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y B - PR2-2 Development should include regularly spaced access with an adequate
width to the greenway network and conservation areas.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
B - PR3-1 Minimize impact of development adjacent to land conservation properties
provided/enhanced along transit routes.
through buffering.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - PR7-1 Developments should be designed to minimize tree removal and to
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, protect and preserve existing significant trees.
greenspaces, developments and complementary uses should be
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
provided.
topography to the greatest extent possible and preserving key natural
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular features.
separation from bicycles, pedestrians and other modes of transport.
B - PR10-1 Development should avoid overlighting and upward directed lighting.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.

314 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 CORRIDOR - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE CORRIDOR - MEDIUM DENSITY NON-RESIDENTIAL/MIXED USE

B - SU5-1 Developments should incorporate energy efficient systems and C - LI2-4 Setbacks, signage, and screening should complement the iconic
renewable energy resources (i.e. wind, solar, etc.). Bluegrass landscape along Historic Turnpikes, Scenic Byways,
Turnpikes, and other scenic roads listed in the RLMP.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
development. C - LI8-1 Development should enhance a well-connected and activated public
realm.
B - SU11-1 Development should incorporate low impact landscaping and native
plant species. C - PS10-2 Over-parking of new developments should be avoided.
B - RE1-1 Developments should improve the tree canopy. D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
greenways, or natural areas should be highly visible and accessible. D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
should be avoided. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
to create reliable service throughout Lexington.
additional protection should be provided to areas around them.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the
negative aesthetic impacts, and stealth towers and landscaping used to
Royal Springs Water Supply Protection Committee.
improve the visual impact from the roadway and residential areas.
D - SP10-1 Prioritize street trees in the planting strip.
BUILDING FORM
SITE DESIGN
A - DS3-1 Multi-family residential developments should comply with the Multi-
A - DS5-4 Development should provide a pedestrian-oriented and activated family Design Standards in Appendix A.
streetscapes.
A - DS4-2 New construction should be at an appropriate scale to respect the
A - DS7-1 Parking should be oriented to the interior or rear of the property for context of neighboring structures; however, along major corridors, it
non-residential or multi-family developments. should set the future context.
A - DS9-1 Development should provide active and engaging amenities within A - DS5-3 Building orientation should maximize connections with the street and
neighborhood focused open spaces. create a pedestrian-friendly atmosphere.
A - DS9-2 Where neighborhood open space or parks are not located within walking A - DN2-2 Development should minimize significant contrasts in scale, massing and
distance of a new development, applicants should incorporate these design, particularly along the edges of historic areas and neighborhoods.
facilities.
A - EQ5-1 Development should create context sensitive transitions between
A - EQ9-1 School sites should be appropriately sized. intense corridor development and existing neighborhoods.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated D - PL2-1 Development should provide active first floor uses whenever adjacent
from private open spaces. to a street, pedestrian facility, or community focused open space.
C - LI2-2 Non-agricultural uses at or near potential and existing gateways, as E - GR4-1 Developments should incorporate reuse of viable existing structures.
mapped in the Rural Land Management Plan, should be buffered.
E - GR5-1 Structures with demonstrated historic significance should be preserved
C - LI2-3 Design should create a positive gateway character at existing and or adapted.
proposed gateways as identified in the Rural Land Management Plan.

DIVISION OF PLANNING THE PLACEBUILDER | 315

CORRIDOR
CORRIDOR - HIGH DENSITY NON-RESIDENTIAL/MIXED USE CORRIDOR - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape.
A - DS12-1 Development should be located nearest to neighborhood serving
commercial areas. A - DS10-1 New developments should incorporate clear and dedicated connections
A - DN2-1 Infill residential should aim to increase density. to nearby community anchors.
A - DN3-1 Pedestrian-oriented commercial opportunities and other services A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
should be incorporated within residential neighborhoods. focused open space and greenspaces.
A - DN3-2 Development should incorporate residential units in commercial A - DS13-1 Stub streets should be connected.
centers. A - EQ5-2 Development should be transit-oriented (dense & intense, internally
C - LI7-1 Developments should create mixed-use neighborhoods with safe walkable, connected to adjacent neighborhoods, providing transit
access to community facilities, greenspace, employment, businesses, infrastructure & facilities).
shopping, and entertainment. C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
C - PS9-1 Where possible, developments should modify current office space to D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
include complementary uses, with a specific focus on the inclusion of and promote the desired place-type.
residential.
D - CO2-1 Development should create and/or expand a connected multimodal
C - PS15-2 Improve options for affordable and nutritious food where not currently transportation network that satisfies all users’ needs.
available.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
D - CO3-1 Development should increase density and intensity adjacent to transit.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and and traffic calming features.
constraints prior to submitting an application.
D - SP6-1 Social services and community facilities should be accessible via mass
E - ST8-1 Development should be high density and contain a mixture of uses. transit, bicycle and pedestrian transportation modes.
E - ST8-2 Development should provide community oriented places and services.
ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - GR3-1 Development should meet recreational needs by following the
recommendations of the Parks Master Plan. B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
E - GR10-1 Transit oriented development (TOD) should be provided.
B - PR7-1 Developments should be designed to minimize tree removal and to
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y protect and preserve existing significant trees.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
provided/enhanced along transit routes. topography to the greatest extent possible and preserving key natural
features.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
greenspaces, developments and complementary uses should be B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
provided. B - SU5-1 Developments should incorporate energy efficient systems and
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular renewable energy resources (i.e. wind, solar, etc.).
separation from bicycles, pedestrians and other modes of transport.

316 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 CORRIDOR - HIGH DENSITY NON-RESIDENTIAL/MIXED USE CORRIDOR - HIGH DENSITY NON-RESIDENTIAL/MIXED USE

B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new C - LI2-4 Setbacks, signage, and screening should complement the iconic
development. Bluegrass landscape along Historic Turnpikes, Scenic Byways,
Turnpikes, and other scenic roads listed in the RLMP.
B - SU11-1 Development should incorporate low impact landscaping and native
plant species. C - LI8-1 Development should enhance a well-connected and activated public
realm.
B - RE1-1 Developments should improve the tree canopy.
C - PS10-2 Over-parking of new developments should be avoided.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
greenways, or natural areas should be highly visible and accessible. D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
should be avoided. D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the
to create reliable service throughout Lexington.
Royal Springs Water Supply Protection Committee.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
D - SP10-1 Prioritize street trees in the planting strip.
negative aesthetic impacts, and stealth towers and landscaping used to
SITE DESIGN improve the visual impact from the roadway and residential areas.

BUILDING FORM
A - DS5-4 Development should provide a pedestrian-oriented and activated
streetscapes.
A - DS3-1 Multi-family residential developments should comply with the Multi-
A - DS7-1 Parking should be oriented to the interior or rear of the property for family Design Standards in Appendix A.
non-residential or multi-family developments.
A - DS4-2 New construction should be at an appropriate scale to respect the
A - DS9-1 Development should provide active and engaging amenities within context of neighboring structures; however, along major corridors, it
neighborhood focused open spaces. should set the future context.
A - DS9-2 Where neighborhood open space or parks are not located within walking A - DS5-3 Building orientation should maximize connections with the street and
distance of a new development, applicants should incorporate these create a pedestrian-friendly atmosphere.
facilities.
A - DN2-2 Development should minimize significant contrasts in scale, massing and
A - EQ9-1 School sites should be appropriately sized. design, particularly along the edges of historic areas and neighborhoods.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated A - EQ5-1 Development should create context sensitive transitions between
from private open spaces. intense corridor development and existing neighborhoods.
C - LI2-1 The design should not obstruct the view of the gateway features of the D - PL2-1 Development should provide active first floor uses whenever adjacent
three existing gateways mapped in the Rural Land Management Plan to a street, pedestrian facility, or community focused open space.
(RLMP).
E - GR4-1 Developments should incorporate reuse of viable existing structures.
C - LI2-2 Non-agricultural uses at or near potential and existing gateways, as
E - GR5-1 Structures with demonstrated historic significance should be preserved
mapped in the Rural Land Management Plan, should be buffered.
or adapted.
C - LI2-3 Design should create a positive gateway character at existing and
proposed gateways as identified in the Rural Land Management Plan.

DIVISION OF PLANNING THE PLACEBUILDER | 317

NEW COMPLETE NEIGHBORHOOD
New Complete Neighborhoods are undeveloped areas designed to provide housing in a sustainable format. These areas should include neighborhood-serving
retail, services, & employment options, as well as town centers. Accessible greenspace, neighborhood focal points, & a multimodal transportation network should
be provided to add a sense of place & connectivity.

SITE PRIORITIES
• Neighborhood-serving retail, services, and employment
• Mixed housing types
• Shared, accessible greenspace and parks
• Well integrated public facilities
• Multimodal integration with sufficient linkages to higher levels of transit

MOST SUITABLE DEVELOPMENT TYPES

LNR MNR
MR MHR
MU MU
Medium Density Medium-High Density Low Density High Density Non-
Residential Residential Nonresidential/ residential/
Mixed-Use Mixed-Use

RECOMMENDED ZONE(S)

R-4 MU-1 MU-2 B-1 B-1

Medium Density Neighborhood Neighborhood Neighborhood Business Neighborhood Business
Residential Node Zone Corridor Zone Form Based Project
Zones for this place-type are not limited to the listed zones; other zones can be considered with proper justification.

318 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

MIXED HOUSING TYPES
Provide different options for diverse residents
and opportunity to shared amenities nearby.

DIVISION OF PLANNING THE PLACEBUILDER | 319

NEW COMPLETE NEIGHBORHOOD
NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL

LAND USE A - DS13-1 Stub streets should be connected.

C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
A - DS12-1 Development should be located nearest to neighborhood serving
commercial areas. D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
and promote the desired place-type.
A - DN2-1 Infill residential should aim to increase density.
D - CO2-1 Development should create and/or expand a connected multimodal
B - SU3-1 Development should provide compact and/or mixed use development.
transportation network that satisfies all users’ needs.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
access to community facilities, greenspace, employment, businesses,
shopping, and entertainment. D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
C - PS15-2 Improve options for affordable and nutritious food where not currently D - CO4-2 Provide multiple route options (grid type structure) to alleviate
available. congestion in lieu of additional lanes upon existing roadways.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and D - CO4-3 Street pattern and design should consider site topography and minimize
constraints prior to submitting an application. grading where possible.
D - SP1-1 Elementary and middle schools should be located within residential D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
neighborhoods, and high schools primarily along collector streets. and traffic calming features.
D - SP9-1 Encourage co-housing, shared housing environments, planned ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
communities and accessory dwelling units for flexibility and affordability
for senior adults and people with disabilities.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
E - ST8-2 Development should provide community oriented places and services. and adjacent to the proposed development site.
E - GR3-1 Development should meet recreational needs by following the B - PR2-2 Development should include regularly spaced access with an adequate
recommendations of the Parks Master Plan. width to the greenway network and conservation areas.

TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y B - PR3-1 Minimize impact of development adjacent to land conservation properties
through buffering.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be B - PR7-1 Developments should be designed to minimize tree removal and to
provided/enhanced along transit routes. protect and preserve existing significant trees.
A - DS1-2 Accessible pedestrian linkages to transit should be provided. B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
topography to the greatest extent possible and preserving key natural
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
features.
greenspaces, developments and complementary uses should be
provided. B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
separation from bicycles, pedestrians and other modes of transport.
B - SU5-1 Developments should incorporate energy efficient systems and
A - DS5-2 Developments should incorporate vertical elements, such as street renewable energy resources (i.e. wind, solar, etc.).
trees and buildings, to create a walkable streetscape.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
A - DS10-1 New developments should incorporate clear and dedicated connections development.
to nearby community anchors.
B - SU11-1 Development should incorporate low impact landscaping and native
A - DS11-1 Street layouts should provide clear, visible access to neighborhood- plant species.
focused open space and greenspaces.

320 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL

B - RE1-1 Developments should improve the tree canopy. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
B - RE2-1 Lexington’s green infrastructure network, including parks, trails, to create reliable service throughout Lexington.
greenways, or natural areas should be highly visible and accessible.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance negative aesthetic impacts, and stealth towers and landscaping used to
should be avoided. improve the visual impact from the roadway and residential areas.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and BUILDING FORM
additional protection should be provided to areas around them.
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the A - DS3-1 Multi-family residential developments should comply with the Multi-
Royal Springs Water Supply Protection Committee. family Design Standards in Appendix A.
D - SP10-1 Prioritize street trees in the planting strip. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
SITE DESIGN should set the future context.
A - DS5-3 Building orientation should maximize connections with the street and
A - DS5-4 Development should provide a pedestrian-oriented and activated
create a pedestrian-friendly atmosphere.
streetscapes.
A - DS8-1 Where single family detached residential units are provided, a variety of
A - DS7-1 Parking should be oriented to the interior or rear of the property for
other housing types should be regularly interspersed along the street
non-residential or multi-family developments.
frontage.
A - DS9-1 Development should provide active and engaging amenities within
A - DN2-2 Development should minimize significant contrasts in scale, massing and
neighborhood focused open spaces.
design, particularly along the edges of historic areas and neighborhoods.
A - DS9-2 Where neighborhood open space or parks are not located within walking
D - PL2-1 Development should provide active first floor uses whenever adjacent
distance of a new development, applicants should incorporate these
to a street, pedestrian facility, or community focused open space.
facilities.
E - GR5-1 Structures with demonstrated historic significance should be preserved
A - EQ9-1 School sites should be appropriately sized.
or adapted.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP1-2 School design should prioritize a high percentage of open and accessible
street frontage.
D - SP2-1 Visible, usable greenspace and other natural components should be
incorporated into school sites.

DIVISION OF PLANNING THE PLACEBUILDER | 321

NEW COMPLETE NEIGHBORHOOD
NEW COMPLETE NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL NEW COMPLETE NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL

LAND USE C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
A - DS12-1 Development should be located nearest to neighborhood serving
and promote the desired place-type.
commercial areas.
D - CO2-1 Development should create and/or expand a connected multimodal
A - DN2-1 Infill residential should aim to increase density.
transportation network that satisfies all users’ needs.
B - SU3-1 Development should provide compact and/or mixed use development.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
access to community facilities, greenspace, employment, businesses,
shopping, and entertainment. D - CO4-2 Provide multiple route options (grid type structure) to alleviate
congestion in lieu of additional lanes upon existing roadways.
C - PS15-2 Improve options for affordable and nutritious food where not currently
available. D - CO4-3 Street pattern and design should consider site topography and minimize
grading where possible.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
constraints prior to submitting an application. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
D - SP1-1 Elementary and middle schools should be located within residential
neighborhoods, and high schools primarily along collector streets. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - ST8-2 Development should provide community oriented places and services.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
E - GR3-1 Development should meet recreational needs by following the and adjacent to the proposed development site.
recommendations of the Parks Master Plan.
B - PR2-2 Development should include regularly spaced access with an adequate
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y width to the greenway network and conservation areas.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
through buffering.
provided/enhanced along transit routes.
B - PR7-1 Developments should be designed to minimize tree removal and to
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
protect and preserve existing significant trees.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
greenspaces, developments and complementary uses should be
topography to the greatest extent possible and preserving key natural
provided.
features.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
B - PR10-1 Development should avoid overlighting and upward directed lighting.
separation from bicycles, pedestrians and other modes of transport.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape. B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.).
A - DS10-1 New developments should incorporate clear and dedicated connections
to nearby community anchors. B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
development.
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces. B - SU11-1 Development should incorporate low impact landscaping and native
plant species.
A - DS13-1 Stub streets should be connected.

322 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 NEW COMPLETE NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL NEW COMPLETE NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL

B - RE1-1 Developments should improve the tree canopy. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
to create reliable service throughout Lexington.
greenways, or natural areas should be highly visible and accessible.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
negative aesthetic impacts, and stealth towers and landscaping used to
should be avoided.
improve the visual impact from the roadway and residential areas.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
BUILDING FORM
additional protection should be provided to areas around them.
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the A - DS3-1 Multi-family residential developments should comply with the Multi-
Royal Springs Water Supply Protection Committee. family Design Standards in Appendix A.
D - SP10-1 Prioritize street trees in the planting strip. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
SITE DESIGN should set the future context.

A - DS5-4 Development should provide a pedestrian-oriented and activated A - DS5-3 Building orientation should maximize connections with the street and
streetscapes. create a pedestrian-friendly atmosphere.

A - DS7-1 Parking should be oriented to the interior or rear of the property for A - DN2-2 Development should minimize significant contrasts in scale, massing and
non-residential or multi-family developments. design, particularly along the edges of historic areas and neighborhoods.

A - DS9-1 Development should provide active and engaging amenities within D - PL2-1 Development should provide active first floor uses whenever adjacent
neighborhood focused open spaces. to a street, pedestrian facility, or community focused open space.

A - DS9-2 Where neighborhood open space or parks are not located within walking E - GR5-1 Structures with demonstrated historic significance should be preserved
distance of a new development, applicants should incorporate these or adapted.
facilities.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP1-2 School design should prioritize a high percentage of open and accessible
street frontage.
D - SP2-1 Visible, usable greenspace and other natural components should be
incorporated into school sites.

DIVISION OF PLANNING THE PLACEBUILDER | 323

NEW COMPLETE NEIGHBORHOOD
NEW COMPLETE NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE NEW COMPLETE NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
separation from bicycles, pedestrians and other modes of transport.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS5-2 Developments should incorporate vertical elements, such as street
commercial areas.
trees and buildings, to create a walkable streetscape.
A - DN2-1 Infill residential should aim to increase density.
A - DS10-1 New developments should incorporate clear and dedicated connections
A - DN3-1 Pedestrian-oriented commercial opportunities and other services to nearby community anchors.
should be incorporated within residential neighborhoods.
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
B - SU3-1 Development should provide compact and/or mixed use development. focused open space and greenspaces.
C - LI7-1 Developments should create mixed-use neighborhoods with safe A - DS13-1 Stub streets should be connected.
access to community facilities, greenspace, employment, businesses,
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
shopping, and entertainment.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
C - PS15-2 Improve options for affordable and nutritious food where not currently
and promote the desired place-type.
available.
D - CO2-1 Development should create and/or expand a connected multimodal
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
transportation network that satisfies all users’ needs.
constraints prior to submitting an application.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
D - PL15-1 Drive through facilities and gas stations should not be within
neighborhoods or the urban core. D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
D - SP1-1 Elementary and middle schools should be located within residential D - CO4-2 Provide multiple route options (grid type structure) to alleviate
neighborhoods, and high schools primarily along collector streets. congestion in lieu of additional lanes upon existing roadways.
D - SP9-1 Encourage co-housing, shared housing environments, planned D - CO4-3 Street pattern and design should consider site topography and minimize
communities and accessory dwelling units for flexibility and affordability grading where possible.
for senior adults and people with disabilities.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
E - ST8-2 Development should provide community oriented places and services. and traffic calming features.
E - GR3-1 Development should meet recreational needs by following the D - SP6-1 Social services and community facilities should be accessible via mass
recommendations of the Parks Master Plan. transit, bicycle and pedestrian transportation modes.
E - GR9-1 Live/work units should be incorporated into residential developments. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
provided/enhanced along transit routes. B - PR2-2 Development should include regularly spaced access with an adequate
width to the greenway network and conservation areas.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
through buffering.
greenspaces, developments and complementary uses should be
provided. B - PR7-1 Developments should be designed to minimize tree removal and to
protect and preserve existing significant trees.

324 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 NEW COMPLETE NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE NEW COMPLETE NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE

B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing C - LI8-1 Development should enhance a well-connected and activated public
topography to the greatest extent possible and preserving key natural realm.
features.
C - PS10-2 Over-parking of new developments should be avoided.
B - PR10-1 Development should avoid overlighting and upward directed lighting.
D - PL4-1 Enhance open space through the provision of programmatic elements
B - SU4-1 Development should minimize and/or mitigate impervious surfaces. and amenities.
B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.). D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
development. D - SP1-2 School design should prioritize a high percentage of open and accessible
street frontage.
B - SU11-1 Development should incorporate low impact landscaping and native
plant species. D - SP2-1 Visible, usable greenspace and other natural components should be
incorporated into school sites.
B - RE1-1 Developments should improve the tree canopy.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
B - RE2-1 Lexington’s green infrastructure network, including parks, trails, with emphasis on wireless communication networks should be provided
greenways, or natural areas should be highly visible and accessible. to create reliable service throughout Lexington.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
should be avoided. negative aesthetic impacts, and stealth towers and landscaping used to
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and improve the visual impact from the roadway and residential areas.
additional protection should be provided to areas around them.
BUILDING FORM
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the
Royal Springs Water Supply Protection Committee. A - DS3-1 Multi-family residential developments should comply with the Multi-
family Design Standards in Appendix A.
D - SP10-1 Prioritize street trees in the planting strip.
A - DS4-2 New construction should be at an appropriate scale to respect the
SITE DESIGN context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS5-4 Development should provide a pedestrian-oriented and activated
streetscapes. A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.
A - DS7-1 Parking should be oriented to the interior or rear of the property for
non-residential or multi-family developments. A - DN2-2 Development should minimize significant contrasts in scale, massing and
design, particularly along the edges of historic areas and neighborhoods.
A - DS9-1 Development should provide active and engaging amenities within
neighborhood focused open spaces. D - PL2-1 Development should provide active first floor uses whenever adjacent
to a street, pedestrian facility, or community focused open space.
A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these E - GR5-1 Structures with demonstrated historic significance should be preserved
facilities. or adapted.

A - EQ9-1 School sites should be appropriately sized.

A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.

DIVISION OF PLANNING THE PLACEBUILDER | 325

NEW COMPLETE NEIGHBORHOOD
NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY
NON-RESIDENTIAL/MIXED USE NON-RESIDENTIAL/MIXED USE

LAND USE A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS13-1 Stub streets should be connected.
commercial areas.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
A - DN2-1 Infill residential should aim to increase density.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
A - DN3-1 Pedestrian-oriented commercial opportunities and other services
and promote the desired place-type.
should be incorporated within residential neighborhoods.
D - CO2-1 Development should create and/or expand a connected multimodal
B - SU3-1 Development should provide compact and/or mixed use development.
transportation network that satisfies all users’ needs.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
access to community facilities, greenspace, employment, businesses,
shopping, and entertainment. D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
C - PS15-2 Improve options for affordable and nutritious food where not currently D - CO4-2 Provide multiple route options (grid type structure) to alleviate
available. congestion in lieu of additional lanes upon existing roadways.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and D - CO4-3 Street pattern and design should consider site topography and minimize
constraints prior to submitting an application. grading where possible.
D - PL15-1 Drive through facilities and gas stations should not be within D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
neighborhoods or the urban core. and traffic calming features.
E - ST8-2 Development should provide community oriented places and services. D - SP6-1 Social services and community facilities should be accessible via mass
transit, bicycle and pedestrian transportation modes.
E - GR3-1 Development should meet recreational needs by following the
recommendations of the Parks Master Plan. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
provided/enhanced along transit routes. B - PR2-2 Development should include regularly spaced access with an adequate
width to the greenway network and conservation areas.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
through buffering.
greenspaces, developments and complementary uses should be
provided. B - PR7-1 Developments should be designed to minimize tree removal and to
protect and preserve existing significant trees.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
separation from bicycles, pedestrians and other modes of transport. B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
topography to the greatest extent possible and preserving key natural
A - DS5-2 Developments should incorporate vertical elements, such as street
features.
trees and buildings, to create a walkable streetscape.
B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS10-1 New developments should incorporate clear and dedicated connections
to nearby community anchors. B - SU4-1 Development should minimize and/or mitigate impervious surfaces.

326 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY NEW COMPLETE NEIGHBORHOOD - MEDIUM DENSITY
NON-RESIDENTIAL/MIXED USE NON-RESIDENTIAL/MIXED USE

B - SU5-1 Developments should incorporate energy efficient systems and D - PL4-1 Enhance open space through the provision of programmatic elements
renewable energy resources (i.e. wind, solar, etc.). and amenities.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new D - PL10-1 Activate the streetscape or publicly visible areas by designating public
development. art easements in prominent locations.
B - SU11-1 Development should incorporate low impact landscaping and native D - SP2-1 Visible, usable greenspace and other natural components should be
plant species. incorporated into school sites.
B - RE1-1 Developments should improve the tree canopy. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
to create reliable service throughout Lexington.
greenways, or natural areas should be highly visible and accessible.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
negative aesthetic impacts, and stealth towers and landscaping used to
should be avoided.
improve the visual impact from the roadway and residential areas.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them. BUILDING FORM

B - RE5-3 Developments within the Royal Springs Aquifer should consult with the A - DS3-1 Multi-family residential developments should comply with the Multi-
Royal Springs Water Supply Protection Committee. family Design Standards in Appendix A.
D - SP10-1 Prioritize street trees in the planting strip. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
SITE DESIGN
should set the future context.
A - DS5-4 Development should provide a pedestrian-oriented and activated A - DS5-3 Building orientation should maximize connections with the street and
streetscapes. create a pedestrian-friendly atmosphere.
A - DS7-1 Parking should be oriented to the interior or rear of the property for A - DS8-1 Where single family detached residential units are provided, a variety of
non-residential or multi-family developments. other housing types should be regularly interspersed along the street
frontage.
A - DS9-1 Development should provide active and engaging amenities within
neighborhood focused open spaces. A - DN2-2 Development should minimize significant contrasts in scale, massing and
design, particularly along the edges of historic areas and neighborhoods.
A - DS9-2 Where neighborhood open space or parks are not located within walking
distance of a new development, applicants should incorporate these D - PL2-1 Development should provide active first floor uses whenever adjacent
facilities. to a street, pedestrian facility, or community focused open space.
A - EQ9-1 School sites should be appropriately sized. E - GR5-1 Structures with demonstrated historic significance should be preserved
or adapted.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI-8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.

DIVISION OF PLANNING THE PLACEBUILDER | 327

ENHANCED NEIGHBORHOOD
An Enhanced Neighborhood is an existing residential area to be enhanced with additional amenities, housing types, and neighborhood-serving retail, services, and
employment options. Development should be context-sensitive to surrounding areas and should add to the sense of place. Incorporating multimodal connections
is crucial to neighborhood success and viability.

SITE PRIORITIES
• Neighborhood-serving retail, services, and employment
• Mixed housing types
• Context-sensitive development
• Connected multimodal network
• Well integrated public facilities and greenspaces

MOST SUITABLE DEVELOPMENT TYPES

LNR
LR MR MHR
MU
Low Density Residential Medium Density Low Density Non- Medium-High Density
Residential residential/Mixed-Use Residential

RECOMMENDED ZONE(S)

R-3 R-4 MU-1 MU-2 B-1

Planned Neighborhood Medium Density Neighborhood Neighborhood Neighborhood Business
Residential Residential Node Zone Corridor Zone

Zones for this place-type are not limited to the listed zones; other zones can be considered with proper justification.

328 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

MIXED HOUSE TYPES
Provide different options for diverse residents
and opportunity to shared amenities nearby.

DIVISION OF PLANNING THE PLACEBUILDER | 329

ENHANCED NEIGHBORHOOD
ENHANCED NEIGHBORHOOD - LOW DENSITY RESIDENTIAL ENHANCED NEIGHBORHOOD - LOW DENSITY RESIDENTIAL

LAND USE A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
separation from bicycles, pedestrians and other modes of transport.
A - DN2-1 Infill residential should aim to increase density.
A - DS5-2 Developments should incorporate vertical elements, such as street
A - DN4-1 Provide new compact single-family housing types. trees and buildings, to create a walkable streetscape.
B - SU3-1 Development should provide compact and/or mixed use development. A - DS10-1 New developments should incorporate clear and dedicated
connections to nearby community anchors.
C - LI6-1 ADUs and/or affordable housing options should be incorporated into
existing and new single-family residential development. (A-DN5) A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces
C - LI7-1 Developments should create mixed-use neighborhoods with safe
access to community facilities, greenspace, employment, businesses, A - DS13-1 Stub streets should be connected.
shopping, and entertainment.
C - PS10-1 Flexible parking and shared parking arrangements should be
C - PS15-2 Improve options for affordable and nutritious food where not utilized.
currently available
D - CO1-1 Rights-of-way and multimodal facilities should be designed to
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and reflect and promote the desired place-type.
constraints prior to submitting an application.
D - CO2-1 Development should create and/or expand a connected multimodal
D - SP1-1 Elementary and middle schools should be located within residential transportation network that satisfies all users’ needs.
neighborhoods, and high schools primarily along collector streets.
D - CO2-2 Development should comply with Lexington's Complete Streets
(A-EQ7)
Policy.
D - SP9-1 Encourage co-housing, shared housing environments, planned
D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
communities and accessory dwelling units for flexibility and
affordability for senior adults and people with disabilities. D - CO4-2 Provide multiple route options (grid type structure) to alleviate
congestion in lieu of additional lanes upon existing roadways.
E - ST8-2 Development should provide community oriented places and
services. D - CO4-3 Street pattern and design should consider site topography and
minimize grading where possible.
E - GR3-1 Development should meet recreational needs by following the
recommendations of the Parks Master Plan D - CO5-1 Streets should be designed with shorter block lengths, narrower
widths, and traffic calming features.
E - GR9-1 Live/work units should be incorporated into residential developments.
E - GR9-3 Less intense multi-family residence types should be incorporated ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
into primarily single-family detached areas.
B - PR2-1 Impact on environmentally sensitive areas should be minimized
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y within and adjacent to the proposed development site.
B - PR2-2 Development should include regularly spaced access with an
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
adequate width to the greenway network and conservation areas.
provided/enhanced along transit routes.
B - PR3-1 Minimize impact of development adjacent to land conservation
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
properties through buffering.
A - DS4-1 A plan for a connected multi-modal network to adjacent
B - PR7-1 Developments should be designed to minimize tree removal and to
neighborhoods, greenspaces, developments and complementary
protect and preserve existing significant trees.
uses should be provided.

330 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 ENHANCED NEIGHBORHOOD - LOW DENSITY RESIDENTIAL ENHANCED NEIGHBORHOOD - LOW DENSITY RESIDENTIAL

B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing C - PS10-2 Over-parking of new developments should be avoided.
topography to the greatest extent possible and preserving key
D - PL4-1 Enhance open space through the provision of programmatic
natural features.
elements and amenities
B - PR10-1 Development should avoid overlighting and upward directed lighting.
D - SP1-2 School design should prioritize a high percentage of open and
B - SU4-1 Development should minimize and/or mitigate impervious surfaces. accessible street frontage.
B - SU5-1 Developments should incorporate energy efficient systems and D - SP2-1 Visible, usable greenspace and other natural components should be
renewable energy resources (i.e. wind, solar, etc.). incorporated into school sites.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
new development. with emphasis on wireless communication networks should be
provided to create reliable service throughout Lexington.
B - SU11-1 Development should incorporate low impact landscaping and native
plant species D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used
B - RE1-1 Developments should improve the tree canopy. 3)
to improve the visual impact from the roadway and residential areas.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
BUILDING FORM
greenways, or natural areas should be highly visible and accessible.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance A - DS3-1 Multi-family residential developments should comply with the Multi-
should be avoided. family Design Standards in Appendix A.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and A - DS5-3 Building orientation should maximize connections with the street
additional protection should be provided to areas around them. and create a pedestrian-friendly atmosphere.
B - RE5-3 Developments within the Royal Springs Aquifer should consult with A - DS8-1 Where single family detached residential units are provided, a variety
the Royal Springs Water Supply Protection Committee. of other housing types should be regularly interspersed along the
street frontage.
D - SP10-1 Prioritize street trees in the planting strip
E - GR4-1 Developments should incorporate reuse of viable existing structures.
SITE DESIGN
E - GR5-1 Structures with demonstrated historic significance should be
A - DS7-1 Parking should be oriented to the interior or rear of the property for preserved or adapted.
non-residential or multi-family developments.
A - DS9-1 Development should provide active and engaging amenities within
neighborhood focused open spaces.
A - DS9-2 Where neighborhood open space or parks are not located within
walking distance of a new development, applicants should
incorporate these facilities.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly
delineated from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.

DIVISION OF PLANNING THE PLACEBUILDER | 331

ENHANCED NEIGHBORHOOD
ENHANCED NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL ENHANCED NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL

LAND USE A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces.
A - DS12-1 Development should be located nearest to neighborhood serving
A - DS13-1 Stub streets should be connected.
commercial areas.
C - PS10-1 Flexible parking and shared parking arrangements should be
A - DN2-1 Infill residential should aim to increase density.
utilized.
B - SU3-1 Development should provide compact and/or mixed use development.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to
C - LI7-1 Developments should create mixed-use neighborhoods with safe reflect and promote the desired place-type.
access to community facilities, greenspace, employment, businesses,
D - CO2-1 Development should create and/or expand a connected multimodal
shopping, and entertainment.
transportation network that satisfies all users’ needs.
C - PS15-2 Improve options for affordable and nutritious food where not
D - CO2-2 Development should comply with Lexington's Complete Streets
currently available.
Policy.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
constraints prior to submitting an application.
D - CO4-2 Provide multiple route options (grid type structure) to alleviate
D - SP1-1 Elementary and middle schools should be located within residential
congestion in lieu of additional lanes upon existing roadways.
neighborhoods, and high schools primarily along collector streets.
D - CO4-3 Street pattern and design should consider site topography and
D - SP9-1 Encourage co-housing, shared housing environments, planned
minimize grading where possible.
communities and accessory dwelling units for flexibility and
affordability for senior adults and people with disabilities. D - CO5-1 Streets should be designed with shorter block lengths, narrower
widths, and traffic calming features.
E - ST8-2 Development should provide community oriented places and
services. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - GR3-1 Development should meet recreational needs by following the
recommendations of the Parks Master Plan. B - PR2-1 Impact on environmentally sensitive areas should be minimized
within and adjacent to the proposed development site.
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
B - PR2-2 Development should include regularly spaced access with an
adequate width to the greenway network and conservation areas.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
provided/enhanced along transit routes. B - PR3-1 Minimize impact of development adjacent to land conservation
properties through buffering.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - PR7-1 Developments should be designed to minimize tree removal and to
A - DS4-1 A plan for a connected multi-modal network to adjacent
protect and preserve existing significant trees.
neighborhoods, greenspaces, developments and complementary
uses should be provided. B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
topography to the greatest extent possible and preserving key
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
natural features.
separation from bicycles, pedestrians and other modes of transport.
B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
A - DS10-1 New developments should incorporate clear and dedicated
connections to nearby community anchors.

332 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 ENHANCED NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL ENHANCED NEIGHBORHOOD - MEDIUM DENSITY RESIDENTIAL

B - SU5-1 Developments should incorporate energy efficient systems and C - PS10-2 Over-parking of new developments should be avoided.
renewable energy resources (i.e. wind, solar, etc.).
D - PL4-1 Enhance open space through the provision of programmatic
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in elements and amenities.
new development.
D - PL10-1 Activate the streetscape or publicly visible areas by designating
B - SU11-1 Development should incorporate low impact landscaping and native public art easements in prominent locations.
plant species.
D - SP1-2 School design should prioritize a high percentage of open and
B - RE1-1 Developments should improve the tree canopy. accessible street frontage.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails, D - SP2-1 Visible, usable greenspace and other natural components should be
greenways, or natural areas should be highly visible and accessible. incorporated into school sites.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
should be avoided. with emphasis on wireless communication networks should be
provided to create reliable service throughout Lexington.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them. BUILDING FORM
B - RE5-3 Developments within the Royal Springs Aquifer should consult with
A - DS3-1 Multi-family residential developments should comply with the Multi-
the Royal Springs Water Supply Protection Committee.
family Design Standards in Appendix A.
D - SP10-1 Prioritize street trees in the planting strip.
A - DS4-2 New construction should be at an appropriate scale to respect the
SITE DESIGN context of neighboring structures; however, along major corridors, it
should set the future context.
A - DS5-4 Development should provide a pedestrian-oriented and activated A - DS5-3 Building orientation should maximize connections with the street
streetscapes. and create a pedestrian-friendly atmosphere.
A - DS7-1 Parking should be oriented to the interior or rear of the property for A - DS8-1 Where single family detached residential units are provided, a variety
non-residential or multi-family developments. of other housing types should be regularly interspersed along the
A - DS9-1 Development should provide active and engaging amenities within street frontage.
neighborhood focused open spaces. A - DN2-2 Development should minimize significant contrasts in scale,
A - DS9-2 Where neighborhood open space or parks are not located within massing and design, particularly along the edges of historic areas
walking distance of a new development, applicants should and neighborhoods.
incorporate these facilities. D - PL2-1 Development should provide active first floor uses whenever
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and adjacent to a street, pedestrian facility, or community focused open
negative aesthetic impacts, and stealth towers and landscaping used space.
to improve the visual impact from the roadway and residential areas. E - GR4-1 Developments should incorporate reuse of viable existing structures.
A - EQ9-1 School sites should be appropriately sized. E - GR5-1 Structures with demonstrated historic significance should be
A - EQ9-2 Shared open spaces should be easily accessible and clearly preserved or adapted.
delineated from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.

DIVISION OF PLANNING THE PLACEBUILDER | 333

ENHANCED NEIGHBORHOOD
ENHANCED NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL ENHANCED NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL

LAND USE C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
A - DS12-1 Development should be located nearest to neighborhood serving
and promote the desired place-type.
commercial areas.
D - CO2-1 Development should create and/or expand a connected multimodal
A - DN2-1 Infill residential should aim to increase density.
transportation network that satisfies all users’ needs.
B - SU3-1 Development should provide compact and/or mixed use development.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
C - LI7-1 Developments should create mixed-use neighborhoods with safe
D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
access to community facilities, greenspace, employment, businesses,
shopping, and entertainment. D - CO4-2 Provide multiple route options (grid type structure) to alleviate
congestion in lieu of additional lanes upon existing roadways.
C - PS15-2 Improve options for affordable and nutritious food where not currently
available. D - CO4-3 Street pattern and design should consider site topography and minimize
grading where possible.
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
constraints prior to submitting an application. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
D - SP1-1 Elementary and middle schools should be located within residential
neighborhoods, and high schools primarily along collector streets. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
E - ST8-2 Development should provide community oriented places and services.
B - PR2-1 Impact on environmentally sensitive areas should be minimized within
E - GR3-1 Development should meet recreational needs by following the and adjacent to the proposed development site.
recommendations of the Parks Master Plan.
B - PR2-2 Development should include regularly spaced access with an adequate
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y width to the greenway network and conservation areas.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
through buffering.
provided/enhanced along transit routes. (A-EQ7).
B - PR7-1 Developments should be designed to minimize tree removal and to
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
protect and preserve existing significant trees.
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
greenspaces, developments and complementary uses should be
topography to the greatest extent possible and preserving key natural
provided.
features.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
B - PR10-1 Development should avoid overlighting and upward directed lighting.
separation from bicycles, pedestrians and other modes of transport.
B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
A - DS5-2 Developments should incorporate vertical elements, such as street
trees and buildings, to create a walkable streetscape. B - SU5-1 Developments should incorporate energy efficient systems and
renewable energy resources (i.e. wind, solar, etc.).
A - DS10-1 New developments should incorporate clear and dedicated connections
to nearby community anchors. B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
development.
A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
focused open space and greenspaces. B - SU11-1 Development should incorporate low impact landscaping and native
plant species.
A - DS13-1 Stub streets should be connected.

334 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 ENHANCED NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL ENHANCED NEIGHBORHOOD - MEDIUM-HIGH DENSITY RESIDENTIAL

B - RE1-1 Developments should improve the tree canopy. D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
to create reliable service throughout Lexington.
greenways, or natural areas should be highly visible and accessible.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
negative aesthetic impacts, and stealth towers and landscaping used to
should be avoided.
improve the visual impact from the roadway and residential areas.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them. BUILDING FORM

B - RE5-3 Developments within the Royal Springs Aquifer should consult with the A - DS3-1 Multi-family residential developments should comply with the Multi-
Royal Springs Water Supply Protection Committee. family Design Standards in Appendix A.
D - SP10-1 Prioritize street trees in the planting strip. A - DS4-2 New construction should be at an appropriate scale to respect the
context of neighboring structures; however, along major corridors, it
SITE DESIGN
should set the future context.
A - DS5-4 Development should provide a pedestrian-oriented and activated A - DS5-3 Building orientation should maximize connections with the street and
streetscapes. create a pedestrian-friendly atmosphere.
A - DS7-1 Parking should be oriented to the interior or rear of the property for A - DN2-2 Development should minimize significant contrasts in scale, massing and
non-residential or multi-family developments. design, particularly along the edges of historic areas and neighborhoods.
A - DS9-1 Development should provide active and engaging amenities within D - PL2-1 Development should provide active first floor uses whenever adjacent
neighborhood focused open spaces. to a street, pedestrian facility, or community focused open space.
A - DS9-2 Where neighborhood open space or parks are not located within walking E - GR4-1 Developments should incorporate reuse of viable existing structures.
distance of a new development, applicants should incorporate these
E - GR5-1 Structures with demonstrated historic significance should be preserved
facilities.
or adapted.
A - EQ9-1 School sites should be appropriately sized.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP1-2 School design should prioritize a high percentage of open and accessible
street frontage.
D - SP2-1 Visible, usable greenspace and other natural components should be
incorporated into school sites.

DIVISION OF PLANNING THE PLACEBUILDER | 335

ENHANCED NEIGHBORHOOD
ENHANCED NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE ENHANCED NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE

LAND USE A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
greenspaces, developments and complementary uses should be
A - DS12-1 Development should be located nearest to neighborhood serving provided.
commercial areas. A - DS5-2 Developments should incorporate vertical elements, such as street
A - DN2-1 Infill residential should aim to increase density. trees and buildings, to create a walkable streetscape.
A - DN3-1 Pedestrian-oriented commercial opportunities and other services A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular
should be incorporated within residential neighborhoods. separation from bicycles, pedestrians and other modes of transport.
B - SU3-1 Development should provide compact and/or mixed use development. A - DS5-2 Developments should incorporate vertical elements, such as street
C - LI7-1 Developments should create mixed-use neighborhoods with safe trees and buildings, to create a walkable streetscape.
access to community facilities, greenspace, employment, businesses, A - DS10-1 New developments should incorporate clear and dedicated connections
shopping, and entertainment. to nearby community anchors.
C - PS9-1 Where possible, developments should modify current office space to A - DS11-1 Street layouts should provide clear, visible access to neighborhood-
include complementary uses, with a specific focus on the inclusion of focused open space and greenspaces
residential. A - DS13-1 Stub streets should be connected.
C - PS15-2 Improve options for affordable and nutritious food where not currently C - PS10-1 Flexible parking and shared parking arrangements should be utilized.
available.
D - CO2-1 Development should create and/or expand a connected multimodal
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and transportation network that satisfies all users’ needs.
constraints prior to submitting an application.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy.
D - PL15-1 Drive through facilities and gas stations should not be within
neighborhoods or the urban core. D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
D - SP1-1 Elementary and middle schools should be located within residential D - CO4-2 Provide multiple route options (grid type structure) to alleviate
neighborhoods, and high schools primarily along collector streets. congestion in lieu of additional lanes upon existing roadways.
E - ST8-2 Development should provide community oriented places and services. D - CO4-3 Street pattern and design should consider site topography and minimize
grading where possible.
E - GR3-1 Development should meet recreational needs by following the
recommendations of the Parks Master Plan. D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
and traffic calming features.
E - GR9-2 Low-intensity business uses that will provide neighborhood amenities
should be incorporated into existing neighborhoods. D - SP6-1 Social services and community facilities should be accessible via mass
transit, bicycle and pedestrian transportation modes.
E - GR9-3 Less intense multi-family residence types should be incorporated into
primarily single-family detached areas. ENVIRONMENTAL SUSTAINABILIT Y AND RESILIENCY
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y B - PR2-1 Impact on environmentally sensitive areas should be minimized within
and adjacent to the proposed development site.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be
provided/enhanced along transit routes. B - PR2-2 Development should include regularly spaced access with an adequate
width to the greenway network and conservation areas.
A - DS1-2 Accessible pedestrian linkages to transit should be provided.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, through buffering.
greenspaces, developments and complementary uses should be
provided. B - PR7-1 Developments should be designed to minimize tree removal and to
protect and preserve existing significant trees.

336 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 ENHANCED NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE ENHANCED NEIGHBORHOOD - LOW DENSITY NON-RESIDENTIAL/MIXED USE

B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing C - PS10-2 Over-parking of new developments should be avoided.
topography to the greatest extent possible and preserving key natural D - PL4-1 Enhance open space through the provision of programmatic elements
features. and amenities
B - PR10-1 Development should avoid overlighting and upward directed lighting. D - PL10-1 Activate the streetscape or publicly visible areas by designating public
B - SU4-1 Development should minimize and/or mitigate impervious surfaces. art easements in prominent locations.
B - SU5-1 Developments should incorporate energy efficient systems and D - SP1-2 School design should prioritize a high percentage of open and accessible
renewable energy resources (i.e. wind, solar, etc.). street frontage.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new D - SP2-1 Visible, usable greenspace and other natural components should be
development. incorporated into school sites.
B - SU11-1 Development should incorporate low impact landscaping and native D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
plant species. with emphasis on wireless communication networks should be provided
B - RE1-1 Developments should improve the tree canopy. to create reliable service throughout Lexington.
B - RE2-1 Lexington’s green infrastructure network, including parks, trails, D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
greenways, or natural areas should be highly visible and accessible. negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.
B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
should be avoided. BUILDING FORM
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
A - DS3-1 Multi-family residential developments should comply with the Multi-
additional protection should be provided to areas around them.
family Design Standards in Appendix A.
B - RE5-3 Developments within the Royal Springs Aquifer should consult with the
A - DS4-2 New construction should be at an appropriate scale to respect the
Royal Springs Water Supply Protection Committee.
context of neighboring structures; however, along major corridors, it
D - SP10-1 Prioritize street trees in the planting strip. should set the future context.
SITE DESIGN A - DS5-3 Building orientation should maximize connections with the street and
create a pedestrian-friendly atmosphere.
A - DS5-4 Development should provide a pedestrian-oriented and activated A - DS8-1 Where single family detached residential units are provided, a variety of
streetscapes. other housing types should be regularly interspersed along the street
A - DS7-1 Parking should be oriented to the interior or rear of the property for frontage.
non-residential or multi-family developments. A - DN2-2 Development should minimize significant contrasts in scale, massing and
A - DS9-1 Development should provide active and engaging amenities within design, particularly along the edges of historic areas and neighborhoods.
neighborhood focused open spaces. D - PL2-1 Development should provide active first floor uses whenever adjacent
A - DS9-2 Where neighborhood open space or parks are not located within walking to a street, pedestrian facility, or community focused open space.
distance of a new development, applicants should incorporate these E - GR4-1 Developments should incorporate reuse of viable existing structures.
facilities. E - GR5-1 Structures with demonstrated historic significance should be preserved
A - EQ9-1 School sites should be appropriately sized. or adapted.
A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI8-1 Development should enhance a well-connected and activated public
realm.

DIVISION OF PLANNING THE PLACEBUILDER | 337

INDUSTRY & PRODUCTION CENTER
An Industry & Production Center is where Lexington’s most intense types of economic development and job creation occur. These places should be located near
major corridors to facilitate transportation of goods throughout the region. Developments should minimize negative impacts on adjoining lower intensity uses.

SITE PRIORITIES
• Economic Development and job creation
• Intense industrial uses
• Substantial buffers from residential uses
• Environmental protection
• Locational priority on major shipping transportation corridors

MOST SUITABLE DEVELOPMENT TYPES

INR
Industrial & production
Mom-residential

RECOMMENDED ZONE(S)

I-1 I-2 P-2

Light Industrial Zone Heavy Industrial Zone University Research
Campus Zone.

Zones for this place-type are not limited to the listed zones; other zones can be considered with proper justification.

338 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

DIVISION OF PLANNING THE PLACEBUILDER | 339
INDUSTRY & PRODUCTION CENTER
INDUSTRIAL & PRODUCTION CENTER - INDUSTRIAL INDUSTRIAL & PRODUCTION CENTER - INDUSTRIAL
& PRODUCTION NON RESIDENTIAL & PRODUCTION NON RESIDENTIAL

LAND USE D - CO4-2 Provide multiple route options (grid type structure) to alleviate
congestion in lieu of additional lanes upon existing roadways.
C - LI9-1 Development should be strategically located along freight networks
D - CO4-3 Street pattern and design should consider site topography and minimize
and/or adjacent to established industrial.
grading where possible.
C - PS3-1 Development potential in the Rural Activity Centers should be maximized.
D - CO5-1 Streets should be designed with shorter block lengths, narrower widths,
C - PS8-1 Opportunities for industry and special trade employment should be and traffic calming features.
increased.
ENVIRONMENT
D - PL7-1 Stakeholders should be consulted to discuss site opportunities and
constraints prior to submitting an application. B - PR2-1 Impact on environmentally sensitive areas should be minimized within
E - ST8-2 Development should provide community oriented places and services. and adjacent to the proposed development site.

E - GR3-1 Development should meet recreational needs by following the B - PR2-2 Development should include regularly spaced access with an adequate
recommendations of the Parks Master Plan. width to the greenway network and conservation areas.
B - PR3-1 Minimize impact of development adjacent to land conservation properties
TRANSPORTATION, CONNECTIVIT Y, AND WALKABILIT Y
through buffering.
A - DS1-1 Mass transit infrastructure such as seating and shelters should be B - PR7-1 Developments should be designed to minimize tree removal and to
provided/enhanced along transit routes. protect and preserve existing significant trees.
A - DS1-2 Accessible pedestrian linkages to transit should be provided. B - PR9-1 Minimize grading and topsoil disturbance by utilizing the existing
topography to the greatest extent possible and preserving key natural
A - DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods,
features.
greenspaces, developments and complementary uses should be
provided. B - PR10-1 Development should avoid overlighting and upward directed lighting.
A - DS5-1 Safe multi-modal facilities should be provided to ensure vehicular B - SU4-1 Development should minimize and/or mitigate impervious surfaces.
separation from bicycles, pedestrians and other modes of transport.
B - SU5-1 Developments should incorporate energy efficient systems and
A - DS5-2 Developments should incorporate vertical elements, such as street renewable energy resources (i.e. wind, solar, etc.).
trees and buildings, to create a walkable streetscape.
B - SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new
A - DS13-1 Stub streets should be connected. development.
C - PS10-1 Flexible parking and shared parking arrangements should be utilized. B - SU11-1 Development should incorporate low impact landscaping and native
plant species.
D - CO1-1 Rights-of-way and multimodal facilities should be designed to reflect
and promote the desired place-type. B - RE1-1 Developments should improve the tree canopy.
D - CO2-1 Development should create and/or expand a connected multimodal B - RE2-1 Lexington’s green infrastructure network, including parks, trails,
transportation network that satisfies all users’ needs. greenways, or natural areas should be highly visible and accessible.
D - CO2-2 Development should comply with Lexington's Complete Streets Policy. B - RE5-1 Dividing floodplains into privately owned parcels with flood insurance
should be avoided.
D - CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
B - RE5-2 Floodplains should be incorporated into accessible greenspace, and
additional protection should be provided to areas around them.

340 | THE PLACEBUILDER IMAGINE LEXINGTON 2045

 INDUSTRIAL & PRODUCTION CENTER - INDUSTRIAL INDUSTRIAL & PRODUCTION CENTER - INDUSTRIAL
& PRODUCTION NON RESIDENTIAL & PRODUCTION NON RESIDENTIAL

B - RE5-3 Developments within the Royal Springs Aquifer should consult with the BUILDING FORM
Royal Springs Water Supply Protection Committee.
E - GR4-1 Developments should incorporate reuse of viable existing structures.
D - SP10-1 Prioritize street trees in the planting strip.
E - GR5-1 Structures with demonstrated historic significance should be preserved
SITE DESIGN or adapted.

A - EQ9-2 Shared open spaces should be easily accessible and clearly delineated
from private open spaces.
C - LI2-1 The design should not obstruct the view of the gateway features of the
three existing gateways mapped in the Rural Land Management Plan
(RLMP).
C - LI2-2 Non-agricultural uses at or near potential and existing gateways, as
mapped in the Rural Land Management Plan, should be buffered.
C - LI2-3 Design should create a positive gateway character at existing and
proposed gateways as identified in the Rural Land Management Plan.
C - LI2-4 Setbacks, signage, and screening should complement the iconic
Bluegrass landscape along Historic Turnpikes, Scenic Byways,
Turnpikes, and other scenic roads listed in the RLMP.
C - LI8-1 Development should enhance a well-connected and activated public
realm.
C - PS10-2 Over-parking of new developments should be avoided.
D - PL4-1 Enhance open space through the provision of programmatic elements
and amenities.
D - PL10-1 Activate the streetscape or publicly visible areas by designating public
art easements in prominent locations.
D - SP3-1 Adequate right-of-way, lease areas and easements for infrastructure,
with emphasis on wireless communication networks should be provided
to create reliable service throughout Lexington.
D - SP3-2 Cellular tower antennae should be located to minimize intrusion and
negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.
E - ST5-1 Increased intensity in the Rural Activity Centers should not negatively
impact surrounding rural areas.

DIVISION OF PLANNING THE PLACEBUILDER | 341

FULL LIST OF
CRITERIA
THEME DEVELOPMENT CRITERIA

A
DESITGN (DS)

A-DS1-1 Mass transit infrastructure such as seating and shelters should be provided/enhanced along transit routes.

BUILDING AND A-DS1-2 Accessible pedestrian linkages to transit should be provided.

SUSTAINING A-DS3-1 Multi-family residential developments should comply with the Multi-family Design Standards in Appendix A.
SUCCESSFUL
NEIGHBORHOODS A-DS4-1 A plan for a connected multi-modal network to adjacent neighborhoods, greenspaces, developments and complementary uses should be
provided.
A-DS4-2 New construction should be at an appropriate scale to respect the context of neighboring structures; however, along major corridors, it
should set the future context.
A-DS5-1 Safe multi-modal facilities should be provided to ensure vehicular separation from bicycles, pedestrians and other modes of transport.
A-DS5-2 Developments should incorporate vertical elements, such as street trees and buildings, to create a walkable streetscape.
A-DS5-3 Building orientation should maximize connections with the street and create a pedestrian-friendly atmosphere.
A-DS5-4 Development should provide a pedestrian-oriented and activated streetscapes.
A-DS7-1 Parking should be oriented to the interior or rear of the property for non-residential or multi-family developments.
A-DS8-1 Where single family detached residential units are provided, a variety of other housing types should be regularly interspersed along the street
frontage.
A-DS9-1 Development should provide active and engaging amenities within neighborhood focused open spaces.
A-DS9-2 Where neighborhood open space or parks are not located within walking distance of a new development, applicants should incorporate these
facilities.
A-DS10-1 New developments should incorporate clear and dedicated connections to nearby community anchors.
A-DS11-1 Street layouts should provide clear, visible access to neighborhood-focused open space and greenspaces.
A-DS12-1 Development should be located nearest to neighborhood serving commercial areas.
A-DS13-1 Stub streets should be connected.
DENSITY (DN)

A-DN2-1 Infill residential should aim to increase density.

A-DN2-2 Development should minimize significant contrasts in scale, massing and design, particularly along the edges of historic areas and
neighborhoods.
A-DN3-1 Pedestrian-oriented commercial opportunities and other services should be incorporated within residential neighborhoods.
A-DN3-2 Development should incorporate residential units in commercial centers.
A-DN4-1 Provide new compact single-family housing types.

EQUITY (EQ)

A-EQ5-1 Development should create context sensitive transitions between intense corridor development and existing neighborhoods.
A-EQ5-2 Development should be transit-oriented (dense & intense, internally walkable, connected to adjacent neighborhoods, providing transit
infrastructure & facilities).
THEME DEVELOPMENT CRITERIA

A-EQ9-1 School sites should be appropriately sized.

A-EQ9-2 Shared open spaces should be easily accessible and clearly delineated from private open spaces.

B
PROTECTION (PR)

B-PR2-1 Impact on environmentally sensitive areas should be minimized within and adjacent to the proposed development site.

PROTECTING THE B-PR2-2 Development should include regularly spaced access with an adequate width to the greenway network and conservation areas.
ENVIRONMENT B-PR3-1 Minimize impact of development adjacent to land conservation properties through buffering.
B-PR7-1 Developments should be designed to minimize tree removal and to protect and preserve existing significant trees.
B-PR9-1 Minimize grading and topsoil disturbance by utilizing the existing topography to the greatest extent possible and preserving key natural
features.
B-PR10-1 Development should avoid overlighting and upward directed lighting.
SUSTAINABILITY (SU)

B-SU3-1 Development should provide compact and/or mixed use development.

B-SU4-1 Development should minimize and/or mitigate impervious surfaces.
B-SU5-1 Developments should incorporate energy efficient systems and renewable energy resources (i.e. wind, solar, etc.).
B-SU9-1 Green Stormwater Infrastructure (GSI) should be implemented in new development.
B-SU11-1 Development should incorporate low impact landscaping and native plant species.
RESTORATION (RS)

B-RE1-1 Developments should improve the tree canopy.

B-RE2-1 Lexington’s green infrastructure network, including parks, trails, greenways, or natural areas should be highly visible and accessible.
B-RE5-1 Dividing floodplains into privately owned parcels with flood insurance should be avoided.
B-RE5-2 Floodplains should be incorporated into accessible greenspace, and additional protection should be provided to areas around them.
B-RE5-3 Developments within the Royal Springs Aquifer should consult with the Royal Springs Water Supply Protection Committee.

C
LIVABILITY (LI)

C-LI2-1 The design should not obstruct the view of the gateway features of the three existing gateways mapped in the Rural Land Management Plan
(RLMP).
CREATING JOBS
& PROSPER C-LI2-2 Non-agricultural uses at or near potential and existing gateways, as mapped in the Rural Land Management Plan, should be buffered.
C-LI2-3 Design should create a positive gateway character at existing and proposed gateways as identified in the Rural Land Management Plan.
C-LI2-4 Setbacks, signage, and screening should complement the iconic Bluegrass landscape along Historic Turnpikes, Scenic Byways, Turnpikes,
and other scenic roads listed in the RLMP.
C-LI4-1 Development should contain a mixture of land uses, with a prioritization of residential.
THEME DEVELOPMENT CRITERIA

C
C-LI6-1 ADUs and/or affordable housing options should be incorporated into existing and new single-family residential development.
C-LI7-1 Developments should create mixed-use neighborhoods with safe access to community facilities, greenspace, employment, businesses,
shopping, and entertainment.
CREATING JOBS
& PROSPER C-LI8-1 Development should enhance a well-connected and activated public realm.
C-LI9-1 Development should be strategically located along freight networks and/or adjacent to established industrial.
PROSPERITY (PS)

C-PS3-1 Development potential in the Rural Activity Centers should be maximized.

C-PS8-1 Opportunities for industry and special trade employment should be increased.
C-PS9-1 Where possible, developments should modify current office space to include complementary uses, with a specific focus on the inclusion of
residential.
C-PS10-1 Flexible parking and shared parking arrangements should be utilized.
C-PS10-2 Over-parking of new developments should be avoided.
C-PS15-2 Improve options for affordable and nutritious food where not currently available.

D
CONNECTIVITY (CO)

D-CO1-1 Rights-of-way and multimodal facilities should be designed to reflect and promote the desired place-type.
IMPROVING A D-CO2-1 Development should create and/or expand a connected multimodal transportation network that satisfies all users’ needs.
DESIRABLE
COMMUNITY D-CO2-2 Development should comply with Lexington's Complete Streets Policy.
D-CO3-1 Development should increase density and intensity adjacent to transit.
D-CO4-1 Dead-end streets and cul-de-sacs should be discouraged.
D-CO4-2 Provide multiple route options (grid type structure) to alleviate congestion in lieu of additional lanes upon existing roadways.
D-CO4-3 Street pattern and design should consider site topography and minimize grading where possible.
D-CO5-1 Streets should be designed with shorter block lengths, narrower widths, and traffic calming features.
PLACEMAKING (PL)

D-PL2-1 Development should provide active first floor uses whenever adjacent to a street, pedestrian facility, or community focused open space.
D-PL4-1 Enhance open space through the provision of programmatic elements and amenities.
D-PL7-1 Stakeholders should be consulted to discuss site opportunities and constraints prior to submitting an application.
D-PL10-1 Activate the streetscape or publicly visible areas by designating public art easements in prominent locations.
D-PL15-1 Drive through facilities and gas stations should not be within neighborhoods or the urban core.
SUPPORT (SP)
THEME DEVELOPMENT CRITERIA

D
D-SP1-1 Elementary and middle schools should be located within residential neighborhoods, and high schools primarily along collector streets.
D-SP1-2 School design should prioritize a high percentage of open and accessible street frontage.

IMPROVING A D-SP2-1 Visible, usable greenspace and other natural components should be incorporated into school sites.
DESIRABLE D-SP3-1 Adequate right-of-way, lease areas and easements for infrastructure, with emphasis on wireless communication networks should be
COMMUNITY provided to create reliable service throughout Lexington.
D-SP3-2 Cellular tower antennae should be located to minimize intrusion and negative aesthetic impacts, and stealth towers and landscaping used to
improve the visual impact from the roadway and residential areas.
D-SP6-1 Social services and community facilities should be accessible via mass transit, bicycle and pedestrian transportation modes.
D-SP9-1 Encourage co-housing, shared housing environments, planned communities and accessory dwelling units for flexibility and affordability for
senior adults and people with disabilities.
D-SP10-1 Prioritize street trees in the planting strip.

E
STEWARDSHIP (ST)

E-ST5-1 Increased intensity in the Rural Activity Centers should not negatively impact surrounding rural areas.
IMPROVING A E-ST8-1 Development should be high density and contain a mixture of uses.
DESIRABLE
COMMUNITY E-ST8-2 Development should provide community oriented places and services.
GROWTH (GR)

E-GR3-1 Development should meet recreational needs by following the recommendations of the Parks Master Plan.
E-GR4-1 Developments should incorporate reuse of viable existing structures.
E-GR5-1 Structures with demonstrated historic significance should be preserved or adapted.
E-GR9-1 Live/work units should be incorporated into residential developments.
E-GR9-2 Low-intensity business uses that will provide neighborhood amenities should be incorporated into existing neighborhoods.
E-GR9-3 Less intense multi-family residence types should be incorporated into primarily single-family detached areas.
E-GR10-1 Transit oriented development (TOD) should be provided.
LFUCG DIVISION OF PLANNING
101 E VINE ST
LEXINGTON, KY 40507
IMAGINE@LEXINGTONKY.GOV