Land Development Code Reform
Program and Engagement Plan for 2022-2023
Introduction
Planning for an equitable and inclusive city must confront and correct the legacy of discriminatory land use regulations continued by the Land Development Code (LDC), which dictates how land throughout Louisville Metro is used and built upon. The LDC Reform is an equity-focused approach to revise the LDC consistently with Plan 2040 to allow for increased housing choices and opportunities in new and existing neighborhoods, to create procedures and regulations that are easier to use, and increase the quality of life by reducing the concentration of environmental hazards near housing
Work to reform the LDC began in the summer of 2020 with Louisville Metro Council's passage of Resolution 082, series 2020 . Within a year, the first round of amendments to the LDC were adopted to allow for the administrative approval of accessory dwelling units (ADUs) , require development notice to be sent to all residents, including renters, and reduce barriers to urban agriculture to name a few.
As the Reform progresses, it is crucial to put forward a plan outlining the content under consideration, and strategies for outreach and engaging with the community. The programming that follows seeks to engage all Lousivillians in guiding changes to the LDC to expand housing choices and opportunities throughout Louisville Metro. Work will also produce user friendly and understandeable land use regulations that aim to minimize environmental harm and support the local economy.
To ensure equity in the process and resulting amendments, it is critical that voices from Louisville communities harmed by city planning and zoning regulations are identified and prioritized. Further, relationships must be restored and built that extend beyond the LDC Reform. The inequities and harm resulting from a history of land use discrimination against Black and low- to moderate-income households was documented in an interactive exhibit published by Planning and Design Services (PDS). The exhibit is available by clicking the button below:
The program presented is a living document and subject to change based on feedback. If you have any comments on the engagement plan, please contact Joel Dock, Planning Coordinator for Planning and Design Services at (502)574-5860 or send an email to ldcreform@louisvilleky.gov.
To learn more about the LDC Reform, including the first 6 amendments that were adotped, and to view recordings of virtual events and supporting documents, please visit our website by clicking the button below:
LDC Reform Amendments
An amendment is a change to the text of the Land Development Code, or a change to the zoning district map.
Amendments to reform the Land Development Code (LDC) are generated from public feedback, supporting documents, and staff research on best practices. To assist with engaging the community on a variety of inter-related topics, amendments being considered in 2022-2023 have been categorized. Two primary categories - Middle Housing and Land Use Classification - encompass the bulk of the amendments to be pursued at this time. The outreach and enagement proposed within this plan will be used to inform the drafting of regulations within each category.
Amendments within each category under consideration for 2022-2023 are rooted in a collection of proposed amendments provided in the link below:
The following projects are also included:
- The creation of a mapping tool to document the history and location of deed restrictions and racial covenants in Louisville.
- A review of capacity standards for development. This review intends to assess the existing network of roadways, sewers, water lines, and other transportation or utlity services for their ability to meet current and future needs within Louisville Metro.
- The drafting of regulations for the Conservation and Urban Center Neighborhood form districts as outlined in Plan 2040, our 20-year master plan for guiding growth and development.
Middle Housing
Middle housing includes a range of house-scale buildings with multiple units – compatible in scale and form with detached single-family homes – located in walkable neighborhoods.
Prior to the adoption of Louisville's first zoning ordinance in 1931, middle housing was built and integrated into many Louisville neighborhoods. Middle housing, such as duplexes, walking courts, and townhomes are still found throughout these older neighborhoods. The 1931 zoning ordinance intended to seperate different forms of housing and restricted where middle housing could be built. Single-family districts prohibiting middle housing were then designated in areas of newer development and growth moving towards the boundaries of the old city of Louisville.
By 1943, exclusive single-family zoning districts preventing middle housing from being built in the unincorporated territory of Jefferson County were adopted. This extended the prohibitions on middle housing outward. The legacy of single-family residential zoning continues to restrict housing choices and exacerbates patterns of racial and socio-economic discrimination throughout Louisville Metro. The reform program for 2022-2023 intends to address these inequities through engagement on a variety of amendments.
Amendments for Middle Housing Reform:
- Courtyard and Pocket Neighborhoods, including a review of tiny homes
- Smaller Lots, including a review of density and minimum lot size
- Duplex
- Multiplex (Tri-, four-plex)
- Review of building type, form, and site design will accompany each amendment
The map below shows the location of single-family districts where middle housing is currently prohibited:
Single-family Residential Zoning in Louisville Metro, February 15, 2022
To learn more about Middle Housing please visit missingmiddlehousing.com using the link below:
Read Opticos Design's diagnosis of the Louisville Metro Land Development Code here:
Image Source: Infographic of Missing Middle Housing created by Opticos Design, Inc., 2020.
Land Use Classification
Zoning is the law that mandates development in a community by designating each parcel of land into a "zone" which determines how the land can be used.
A comprehensive review of permitted land uses and procedures for special review within each zone will be conducted and amendments proposed.
To learn the basics of zoning please watch this short video from the City Beautiful YouTube channel by clicking the button below:
The goal of this review is to simplify the current land use classification system into a user-friendly format and put forward recommendations that reduce the negative environmental and health impacts where residents are in proximity to industry; allow for the expansion of artisan and craftsman uses at a scale appropriate for neighborhoods or commercial areas, which might include small-batch food production or woodworking; and enhance the ability to deliver neighborhood goods, such as groceries and health care services.
Amendments for Land Use Classification Reform
- Review of the Enterprise Zone District (EZ-1)
- Permitted uses in EZ-1 with attention to housing and proximity to industry
- Land area and location of the district
- Review of potentially harmful and nuisance uses in industrial zones or otherwise permitted by conditional use permit near residential uses
- Review of permitted locations and standards for liquor stores and discount stores, as well as groceries and other neighborhood services
- Review permitted uses and districts for barriers to the local economy. Attention to micro-industry, craftsman, and artisan uses will be paid, as well as building design standards and scale
- Review standards for nonconforming uses, lots, and structures
To explore the zoning map provided in this section click anywhere on the map to get started. You may search by address, current location, or click on a property within the map to receive the zoning and form district information. After locating the zoning code and form district, visit our LDC webpage to see what's permitted and how the site could be developed.
Deed Restrictions and Racial Covenants
No lot in this subdivision shall be sold, leased, rented, or occupied by Negroes or any person of African descent, or by corporation in which there is a majority of stakeholder or directors of African descent. - Plan of Westover Park, Louisville, KY, 1927
A racial covenant placed within the deed to a property preventing the sale, rent, or lease of property to individuals and families "not of the White or Caucasian race" was a common practice until the U.S. Supreme Court declared it unenforceable in the landmark case of Shelley V. Kramer , 1948.
Planning and Design services is working towards the creation of a mapping tool to document the history of racial covenants and other exclusionary deed restrictions on property in Louisville Metro. The tool will be modeled from the University of Minnesota's Mapping Prejudice project. This project is an interactive visualization tool showing the spread of racially-restrictive deeds across Hennepin County, Minnesota during the first half of the twentieth century.
The mapping Prejudice site and tool are featured in this section. If you are unable to access through this exhibit, please visit the mapping prejudice webpage here:
Capacity Standards
The offices of Planning and Design Services and Advanced Planning and Sustainability are working with the Louisville Metro Council to analyze the existing and future capacity of infrastructure within Louisville Metro, including roads, sewers, or other determinants of development. The goal of this analysis is to develop standards that can be used to evaluate the cumulative impact of development on this infrastructure. A consultant will be utilized for this project, and Louisville Metro Government is in the process of releasing a Request for Proposals (RFP) to perform this work.
New Form Districts
Two new form districts were identified in Plan 2040 - Urban Center Neighborhood and Conservation form districts. In addition to zones or zoning districts, form districts work to regulate building design and pattern instead of land use to create predictable outcomes in the built environment. Louisville Metro utilizes zones for permitted use and forms to guide the pattern of development. For each of the new form summarized in Plan 2040, the relationship to Plan 2040, intent and applicability, and dimensional and design standards will need to be drafted . Areas for the location of each form must also be identified.
Description of New Forms
Urban Center Neighborhood: Urban Center Neighborhoods typically adjoin Louisville’s Central Business District and serve as a transition from Downtown Louisville to the surrounding neighborhoods and commercial corridors. These areas consist of higher intensity uses and higher density mixed-use buildings that accommodate retail, offices, rowhouses and apartments. This form should have a tight network of streets, with wide sidewalks, street trees and buildings set close to the sidewalks. Pedestrians, bicyclists and transit users should be prioritized in Urban Center Neighborhoods. To support street life and promote alternative forms of transportation, consider reducing or eliminating parking minimums in these areas. Conservation: The Conservation Form District is characterized by its natural features and scenic landscapes. Historically, these districts are characterized by agricultural land, woods and fields, creeks and streams, riparian areas, wetlands, forests, wildlife habitat, parklands, steep slopes, floodplains, and dark skies. Future development in Conservation Form Districts should preserve natural and historical resources while providing opportunity for low-impact, sustainable and mixed-use development that include innovative housing varying in design, type, size and affordability. To conserve natural areas, innovative and clustered developments are encouraged and incentivized. Commercial and other nonresidential buildings that serve community, recreational or tourism needs are located near major roadways and/or recreational areas. Multi-modal transportation opportunities should be extended to the area, including connections to parks, recreational areas and residential areas to enhance connectivity. Innovative and environmentally-friendly methods of development, especially in the areas of waste management, wastewater disposal, stormwater runoff and energy efficiency should be considered to enhance the character of the district and the health of the watershed Preserving open spaces, greenways, parks and recreational areas, natural vistas, working farms, tree canopy, air quality, watershed health, dark skies and wildlife habitat, while offering a variety of housing opportunities, are goals in the district. Any Conservation Form District shall be described and geographically-defined within a plan that is adopted as an amendment to this Comprehensive Plan.
Three conceptual maps of the proposed form district are provided in the slideshow below (use the arrows to scroll left to right):
Timeline
Working with community partners, Planning and Design Services (PDS) will begin by reaching out to members of the community to raise awareness of the reform project and collect feedback on plans for engagement. Scheduling and locations for activities and topical conversations will be published following this initial outreach period and posted to the PDS website and also be available through this exhibit in the Events Calendar. In-depth conversations and results from engagement will inform amendments to the Land Development Code (LDC). Engagement and outreach will continue through the public meeting phase of the project.
The timeline provided is a general guide to the process for the second phase of the LDC reform. It should be noted that not all amendments covered within each category will receive recommendations in 2022-2023. The specific amendment may require additional research, outreach and engagement, and/or outside expertise to deliver the best result.
Outreach Strategies
Outreach is an effort to bring services or information to people where they live or spend time.
Since the introduction of the Land Development Code (LDC) Reform project, Planning and Design Services (PDS) has expanded our contact list to over 400 individuals and organizations that have expressed a direct interest in this work. Additionally, community members receive notice of reform efforts through social media and the email delivery system known as GovDelivery and will continue to receive future notices.
Moving forward to ensure that the process and proposed amendments remain focused on equitable outcomes, PDS will work with with local organizations, businesses, residents, and neighborhood groups to encourage engagement in activities, conversations, and review of proposed amendments.
Several strategies to reach potential participants are included below:
Social Media
- Notice of upcoming events and educational material surrounding those events will be posted to media platforms available to Develop Louisville
- Scheduled virtual events will be streamed live on Facebook. Recordings of live events will be published by PDS for those not able to attend.
- Content, including research and data, facts, educational material, and updates on the reform will be posted to social media accounts
- PDS will work with a variety of organizations to include updates and notice for engagements and meetings in their postings, newsletters, and events calendar.
- GovDelivery will be used to send notice, request feedback, post regular updates, and follow-up on events.
- Please sign-up for GovDelivery HERE.
Digital Access
- Not all members of the community have internet access and not everyone utilizes the internet to stay connected - not everyone will read this plan online. The Digital Divide - Greater Louisville Project documents access to the internet across Louisville Metro. PDS will need to use a variety of methods to reach community members that do not have access tp the internet or rely on other forms of communication, such as:
- Creating relationships and contacts in areas with limited internet access to help spread the word about the reform project and upcoming events in the area
- Creating an active presence on the ground to reach individuals and families, including regular satellite office hours outside PDS' main office, neighborhood canvassing and conversation, and "pop-ups" at local parks or areas of interest
- Noticing for upcoming events will be placed at community centers or other community service locations near the location of any scheduled event
- Radio and television will be utilized where possible
- Phone calls are an essential component to staying connected with many groups and individuals. PDS will continue to build our contact list of interested parties. If you wish to add your contact information to that list, please call (502)574-5860 or email us at ldcreform@louisvilleky.gov.
English as a Second Language
- Notification and material in languages prevalent in areas where engagement is occurring will be necessary to ensure equal opportunity and access to the reform project
- If you or someone you know would like to volunteer to translate at a publci meeting, please let us know.
Planning Commission
- Bi-monthly updates will be provided at public hearings of the Planning Commission. Agendas for public hearings are published in advance of the meeting. Notice for these updates will utilize the above methods of communication. Public hearings may be viewed virtually by clicking the button below. Meetings may also be attended in-person at 514 W. Liberty Street, Louisville, KY 40202. To learn more click the button below:
Engagement & Activities
Community engagement can be described as a deliberative process through which citizens and stakeholders come together to engage in thoughtful discussion, express their points of view, and discover common ground to influence government decision making.
Covid-19 greatly impacted how all of us engage and communicate on difficult topics. Impacts extended through the opening phase of the Land Development Code (LDC) Reform. Planning and Design (PDS) adjusted and held listening sessions, workshops, and meetings virtually. In the spring of 2021, the first in-person events were hosted. Throughout this next stage of reform, PDS will continue to recognize any health and safety procedures in place for Covid-19.
PDS will be hosting workshops and other events in-person. Some workshops may be offered virtually and meetings may be conducted virtually or in-person depending on the preference of the meeting organizers. As noted in the outreach strategies, this next stage of reform will begin by reaching out to host general conversations around the reform, listen, and get feedback on the proposed engagement. Workshopping and topical conversations will begin in late-June following this general outreach period.
Workshops
A collection of workshops and discussions have been designed to inform recommendations to amend the LDC. The activities and discussions of each workshop intend to provoke collaboration, encourage debate, and synthesize data. Time will be allocated at the beginning of each workshop for new participants to learn about the LDC reform, meet staff, and ask questions. The workshops are designed independent of each other; meaning that you do not need to attend them in any specifc order and you do not need to attend one to understand another.
The date, time, and location for each workshop will be made available on the PDS website. A map pinpointing the locations for each workshop is available through this exhibit in the Events Calendar. While many workshops will be scheduled in advance, the workshops can be brought to where you live or work, or to a group or organization meeting. PDS will work with members of the community to deliver the workshops to interested parties at a location of your choice.
Please use the arrows on the slide deck below to explore workshop options:
Events and Meetings Schedule
The location for in-person events, meetings, and neighborhood office hours have been included in the interactive map below:
LDC Reform Schedule of Events and Office Hours
For more details on upcoming meetings and events please visit our webpage by clicking the button below:
Youth Participation
Planning and Design Services (PDS) recognizes that changes to the Land Development Code (LDC) will have a lasting impact on the youth of Louisville. For this reason, it is imperative that the voices of young people are collected throughout the process. The changes made today will impact the choices that young people will be offered in the future, specifically where to live or work.
PDS has been engaged with students from various groups and courses at the University of Louisville and will continue working with students; many whom call Louisville home. Additional groups will need to be identified to ensure inclusivity of all voices during the reform program.
Workshops have been designed with all ages in mind and youth groups will be targeted for participation in these workshops. Young people will be encouraged to reach out to learn more about how they can become involved. Engaging youth is a continuing effort that will evolve with the reform project based on the individual needs of young people or their organizations.
If you would like to discuss youth involvement or would like us to come discuss with your group, please do not hesitate to contact us at 502-574-5860 or Ldcreform@louisvilleky.gov.
Neighborhood Office Hours
Office hours at dispersed locations will be held and dedicated for general questions, one-on-one discussion, and follow-up meetings, as well as introductions. Office hours also allow a time and place for participants that missed a meeting or event to follow-up at their convenience, or for new participants to meet staff, ask questions and get up to speed.
Office hours will be conducted in-person and virtually depending on connectivity at each location. Planning and Design Services downtown office is regualrly open for business, including any matter regarding LDC reform, Monday through Friday, 8 a.m. to 5 p.m.
Neighborhood office hour details and location are included in the map below and are also available on our website at louisvilleky.gov/ldcreform :
LDC Reform Schedule of Events and Office Hours
Contact
Joel Dock, Planning Coordinator
Office of Planning & Design Services
444 South Fifth Street, Suite 300
Louisville, KY 40202
502-574-5860 (direct)
502-574-6230 (office)
Hours: M-F 8 a.m. – 5 p.m.
