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HomeMy WebLinkAboutIntroduction to baseline land use, zoning, etc. no date 1.1 INTRODUCTION Section 1. 1 has been prepared to document the baseline land use, zoning, and programmed development conditions located within the City of Carmel and Clay Township , an area of approximately 54 square miles in southern Hamilton County, Indiana. Information concerning existing land use, zoning, and programmed development has been compiled from a number of sources including; aerial photographs, zoning maps and documents, Department of Community Development case files, and limited field observations. Composite findings have been summarized in graphic and text form and are presented herein. For the purposes of general classification and comparison, categories of land use, zoning and development types were generalized into common groupings of like uses and designations to the greatest degree possible. Information assembled and presented to date is preliminary in nature and subject to refinement and modification as the Comprehensive Plan Update project progresses. Preliminary findings are presented at this time to verify baseline conditions in the study area and to begin to discover trends , issues and areas of concern to be addressed in the development of the Updated Land Use Plan and the Updated Thoroughfare Plan as part of the 1989 Comprehensive Plan Update. Future work efforts will include a quantitative and qualitative comparison of findings and analyses presented herein in with the previously adopted Land Use and Thoroughfare Plans as well as the alternative Land Use and Thoroughfare Plans to be developed as part of this present study. 1.2 EXISTING LAND USE EVALUATION Know land uses in the study corridor which are either present or currently under development are shown in the Existing Land Use exhibit. For the purposes of analysis and comparison, land use types were generalized into eight primary classifications as first discussed at the May 30, 1989 steering committee meeting. Land area calculations and distribution summaries were prepared using these eight classifications as described below. Exhibit Designation Designation Name/Characteristics RESIDENTIAL USES: "A/R" AGRICULTURAL/RESIDENTIAL AREAS including; o Cultivated fields o Scattered residences and homesteads o Undeveloped tracts in urban areas "LDR" LOW DENSITY RESIDENTIAL AREAS including; o Large lot "estate" or "farmette" style subdivisions o 2 or less dwelling units per acre "MDR" MEDIUM DENSITY RESIDENTIAL AREAS including; o Small lot subdivisions o Zero lot line developments o 3 to 5 dwelling units per acre "HDR" HIGH DENSITY RESIDENTIAL AREAS including; o Duplexes, Townhouses and Apartments o 6 or more dwelling units per acre EMPLOYMENT USES: "LC/0" LIGHT COMMERCIAL/OFFICE AREAS including; o Neighborhood or local serving commercial and office areas "HC/0" HEAVY COMMERCIAL/OFFICE AREAS including; o Regional scale or serving commercial and office centers "I/M" INDUSTRIAL/MANUFACTURING AREAS including; o Office/Warehouse developments o Storage, distribution and manufacturing facilities OTHER USES: "P/SP" PUBLIC/SEMI—PUBLIC AREAS including; o Schools, churches, cemeteries o Hospitals and community facilities and services 1.2. 1 Key Findings The City of Carmel and Clay Township is a predominantly agricultural and residential community which has, in recent years, experienced an increase in regional commercial, employment and industrial growth. In general, more densely populated residential development has been focused around the original town, center and areas to the east and south were good transportation and wastewater service has been more readily available. Lower density residential development has tended to be located in the western portions of the community. Regional commercial and employment growth has occurred along the Meridian Street (U.S. 31) corridor, particularly at intersections with major arterials such as , 1-465 and 116th Street. The northwestern quadrant of 116th Street and Keystone Avenue is the location for another significant concentration of commercial and employment uses. A large industrial area represented by the Carmel Industrial Park, the Carmel Science . and Technology Park, and the Meridian Tech. Center is located north of 116th Street between Meridian Street and Westfield Boulevard. Other commercial and employment clusters can be found north of the Keystone Avenue and Michigan Avenue interchanges with 1-465. Specifically, as illustrated by the "Distribution Summary" graphs on the wall exhibit, areas designated "Agricultural/Residential" comprise the majority of land area occupying approximately 19,275 acres or 56%, within the City of Carmel and Clay Township. Areas designated "Medium Density Residential" compose the next largest land area category occupying approximately 8,210 acres or 24%. Areas designated "Low Density Residential" compose approximately 4,210 acres or 12% of the land area in the City and Township. The remaining five use designations represent approximately 2,740 acres combined and range between 1% to 2% of the total land area share for any one category. 1.2.2 Major Issues for Discussion Future land use decisions will be guided, to a great degree, by the availability of utilities, market demand, and the policies and guidelines to be set forth as part of the 1989 Comprehensive Plan Update. For the purposes of initial discussions, future land use questions can be divided in three primary areas of concern: 1 . Large, currently undeveloped "infill" parcels located along key transportation corridors (such as Meridian Street and Keystone Avenue) or within or adjacent to established areas (such as parcels west of Gray Road and north of 96th Street, and parcels south of 116th Street between Meridian and Keystone). 2. Large tracts of land currently used primarily for agricultural purposes from Gray Road east to the White River. 3. Large tracts of land currently used primarily for agricultural purposes west of Meridian Street and north of 116th Street. Additional general areas of discussion could include the relationships and compatibility between the wide mix of land uses found with in the central core of the community (Meridian and Keystone interchange to 116th Street). Some discussion is also needed as to the desirability of maintaining a meaningful agricultural base to the community as well as what role unique environmental feature such as wooded water courses, wooded lots, and open space should play in the future of the community. 1.3 Existing Zoning Evaluation The City of Carmel and Clay Township Plan Commission currently maintains zoning authority throughout the study area. The Existing Zoning wall exhibit and the following text have been prepared for the purposes of facilitating comparisons between existing land use, the 1985 Land Use Plan, and Alternative Land Use Plan Scenarios to be developed, with how land in the community is currently zoned, and therefore potentially could be developed at the present time without requiring any amendments. A composite view of zoning patterns in the area was obtained through the grouping of similar zoning classifications into generalized categories similar those used in the evaluation of existing land use patterns. The Official Zoning Map last revised 3-7-88 along with hand updates and notations from Department of Community Development staff was used for this analysis. The groupings of zoning categories into major land use associations has been refined somewhat since the last Plan Steering Committee meeting. Specifically, land zoned "S-2" has been moved from the "A/R" designation to the "LDR" designation to more accurately reflect the type of development prevalent on land zoned "S-2". Land zoned "R-1" and "R-2" have been moved from the "LDR" classification to the "MDR" classification. Land zoned "B-5" has been moved from the "LC/0" classification to the "HC/0" classification. Specifically, the revised groupings and associations are outlined in the following table. Exhibit Designation Designation Name/Characteristics RESIDENTIAL USES: "A/R" AGRICULTURAL/RESIDENTIAL AREAS including; o Land zoned S-1 "LDR" LOW DENSITY RESIDENTIAL AREAS including; o Land zoned S-2 "MDR" MEDIUM DENSITY RESIDENTIAL AREAS including; o Land zoned R-1, R-2, and R-3 "HDR" HIGH DENSITY RESIDENTIAL AREAS including; o Land zoned R-4 and R-5 EMPLOYMENT USES: "LC/0" LIGHT COMMERCIAL/OFFICE AREAS including; o Land zoned B-1, B-3, and B-7 "HC/O" HEAVY COMMERCIAL/OFFICE AREAS including; o Land zoned B-2, B-5, B-6, And B-8 "I/M" INDUSTRIAL/MANUFACTURING AREAS including; o Land zoned I-1, I-2, and M-3 OTHER USES: "P/SP" PUBLIC/SEMI-PUBLIC AREAS including; o No specific zoning category currently in use o Uses can occur in a variety of zoning categories 1.3.1 Key Findings The generally permissive nature of several classification including S-1, S-2 and others made absolute categorization impossible. Accordingly, adopted zoning categories were grouped under generalized land use categories which best described the implied purpose and intent as well as propensity of the zoning designation. Disparities between how a tract of land is zoned and how it is currently used are normal and are visible in the quantitative comparisons by category between Existing Land Use and Existing Zoning. The significant disparity between the quantity of land currently utilized for "High Density Residential" purposes (575 acres) and the quantity of land zoning grouped into the "High Density Residential" purposes (250 acres) could be described by developments such as Cool Creek Apartments which are located on land zoned "B-3" ("Light Commercial/Office Areas") and out of date zoning map information. The majority of land in the City and Township is zoned "S-1". In fact, approximately 20,340 acres (or 59%) of the study area's 34,465 acres are so zoned. This zoning designation is found almost exclusively west of Spring Mill Road and east of Gray Road. Land zoned R-1, R-2, and R-3 comprise the next largest group of land area (the Medium Density Residential category) accounting for approximately 6, 770 acres or 20% of the total study area. Land zoned S-2 (the Low Density Residential category) is the third largest category of land area accounting for approximately 4,195 acres or 12% of the study area. Both of these groupings "MDR" and "LDR" are found almost exclusively in central portion of the study area between Spring Mill Road to the west and Gray Road to the east. Other residential as well as the employment related zoning categories are also found within the central portion of the study area. Combined, these zoning categories account for a total of approximately 3,160 acres. Land zoned B-2, B-5, B-6 or B-8 is the largest segment of this group accounting for approximately 1,190 acres or 3% of the overall study area. 1.3.2 Major Discussion Issues "S-1" zoning appears to be the most pressing area of concern relating to the formation and subsequent realization of the Updated Land Use and Thoroughfare Plan to be developed as part of this study. Specifically, the shear number of acres zoned S-1 combined with the wide range of development density which can and is occurring within that classification has the potential to create an unpredictable and uncontrollable situation. Some specific discussion points could include; o Should there be a new zoning category which limits the development of agricultural lands to densities lower than the 1 500 square foot of lot area per dwelling if there is a community sanitary sewer system? o Should there be lands which will be designated as "Agricultural Preserves" in the 1989 Comprehensive Plan Update? Should development be "clustered" at higher densities in certain areas of the S-1 zoned sections to allow for preservation of open space and desirable features of the natural environment? • 4)Can the proliferation of the "B" zones be simplified and 40, 41 r treamlined to achieve more specific development intents. r t 1. 1.4 PROGRAMMED DEVELOPMENT EVALUATION Where available, proposed or approved master plans and development programs for major real estate development proposals in study area were obtained and reviewed. The specific purpose behind analyzing information related to programmed development is to gain a general understanding of future development which could have the possibility of influencing traffic demand over the next five years. This information has been supplemented by data concerning the number of unbuilt dwelling units in approved subdivisions. Findings are illustrated in the Programmed Development wall exhibit and are described below. Land use aggregations similar to that for analysis of existing land use and zoning was employed for general discussion purposes. Insight gained from an analysis of Existing Land Use, Existing Zoning and Programmed Development exhibits and calculations will be used to form the basis of an "Existing Trends" land use scenario to be analyzed in the next phase of work. 1.4. 1 Key Findings To date, information has been obtained on fourteen known proposed developments in the study area. At this point, specific program information is preliminary in nature and subject to change upon receipt of additional information and clarifications. Specific known development proposals from west to east include; 1. Southeast corner of West 106th Street and Michigan Avenue Approximately 50 acre tract programmed for 50,000 SF of general retail and 50,000 SF anchor grocery store 2. South of West 106th Street and west of Shelborne Road Approximately 200 acre tract programmed for single family development at 2 DU/AC 3. Southeast corner of 116th Street and Shelborne Road Approximately 25 acre tract programmed for single family development at 1 DU/AC 4. East of Clay Center Road and South of 131st Street Approximately 80 acre tract programmed for single family development at 1 DU/AC 5. South of 106th Street and east of Ditch Road Approximately 90 acre tract programmed for single family development at 1 to 2 DU/AC 6. South of 106th Street and west of Meridian Street Approximately 135 acre tract programmed for office development 7. South of 103rd Street and east of Meridian Street Approximately 120 acre tract programmed for office development 8. South of 111th Street and east of Meridian Approximately 10 acre tract programmed for commercial development? 9. 131st Street and Meridian Approximately 140 acre tract programmed for 1 million SF of office development and an unspecified amount of retail development 10. Southwest corner of 136th Street and Meridian Approximately 10 acre tract programmed for office development 11. Rohrer Road and Meridian Approximately 15 acre tract programmed for retail development 12. West of Rohrer Road and north of Nevele Lane Approximately 25 acre tract programmed for single family residential development at 3 DU/AC 13. Northwest corner of 106th Street and Westfield Boulevard Approximately 20 acre tract programmed for single family development at 2 DU/AC 14. North of 116th Street and east of Gray Road Approximately 70 acre tract programmed for single family development at 2 DU/AC In addition to the above described proposed developments, there are a total of approximately 4,200 unbuilt dwelling units in existing subdivisions. This number, when compared with total built dwelling units (11,065) is quit significant. 1.4.2 Major Discussion Issues Assuming the commercial and office acreage described above (480 acres) develops at an average floor to area ratio (FAR) range of .2: 1 to .3: 1, the amount of commercial and office space in the City and Township could be increased between 4 to 6 million square feet in the near term future. Additionally, programmed residential development described in Section 1.4.1 could yield approximately 900 new dwelling units in the near term future. This number, when combined with the number of unbuilt units in approved subdivisions, could total over 5,000 or nearly half again as many dwelling units as exist today. Some discussion points could include; o What will the impact of proposed sewer system expansions have on development proposals in the near term and in the long term? o Are the proposed developments outlined in Section 1 .4. 1 the projects that could reasonably be considered to have an impact on the transportation system within the next five years? o Is the information presented in Section 1.4.1 correct with regards to data to be considered in estimating impacts on the transportation network for the next five years? 1.5 TRAFFIC ANALYSIS ZONES Traffic Analysis Zones have been established using the Indianapolis regional transportation study analysis zones as well as designations for areas external to the regional study. Specifically, thirteen Indianapolis Study Zones were supplemented with eleven external zones to cover the City and Township area. Analysis zones will be used as the framework for compilation and analysis of population and employment data developed for traffic study purposes. To date, land use and zoning data has been compiled according to traffic analysis zones illustrated on the wall exhibit in terms of area by generalized classification. For example, with regards to existing land use , Zone 517 has approximately 140 acres in use as "Agricultural/ Residential Areas", 390 acres of "Low Density Residential Areas" and 50 acres of "Heavy Commercial/Office areas. Existing zoning would allow for a similar distribution of development.