City of
North Royalton Master Plan
Introduced June 2004 Adopted August 24, 2004, by Ordinance 04-136 Prepared by: Wilbur Smith Associates 6600 Clough Pike Cincinnati, Ohio 45244 (513) 233-3700 www.wilbursmith.com
Acknowledgements Mayor Cathy Luks Thomas P. O’Donnell, Director of Law
City Council: President of Council: Robert A. Stefanik Ward 1: Denise Bobulsky Ward 2: Vince Gentile Ward 3: Donald R. Willey Ward 4: Thomas J. Koch Ward 5: Robin Zaccardelli Ward 6: Lisa Uffman-Kirsch Laura J. Haller, Director of Legislative Services
Planning Commission: Edward W. McGrath, Chair Anthony Sandora, Vice Chair Victor Bull Mayor Cathy Luks Robert A. Stefanik, Council Representative
North Royalton Master Plan Task Force: Craig A. Marvinney, Chairman Committee Chairpersons: Architecture & Environment: Richard Podulka Business & Commerce: Jack Drescher City & Schools: Cathy Bican City & Region: David Nedrich Finance & Economics: David Slezak Infrastructure & Engineering: Douglas Berlekamp Land Use & Zoning: Thomas Kelly Recreation & Public Facilities: John Ranucci Publicity: Linda Schellentrager Recording Secretary: Carey Marousek
Consultants: Caleb A. Faux, AICP, Wilbur Smith Associates Mike Kosdrosky, Dir. of Community Development
North Royalton Master Plan - 2004
A special word of thanks is appropriate to all the many residents of North Royalton who participated in the activities of the North Royalton Master Plan Task Force. The time and dedication of those residents is greatly appreciated and contributed much to the development of this Plan.
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TABLE OF CONTENTS Introduction ..........................................................................1 Background ...........................................................................2 Demographic Trends.............................................................4 Building Permit Activity.......................................................6 Housing Type Mix ................................................................6 School Enrollment.................................................................7 Inventory of Existing Land Use ............................................8 Development Constraints....................................................10 Buildout Analysis................................................................14 Public Utilities.....................................................................15 Transportation .....................................................................17 Cost of Services Analysis ...................................................19 Planning Area Policies ........................................................22 Citywide Planning Policies .................................................30 Land Use Plan .....................................................................36
List of Maps Map 1 - Existing Land Use ..................................................9 Map 2 - Flood Plain ............................................................11 Map 3 - Wetlands................................................................12 Map 4 - Slope......................................................................13 Map 5 - Sanitary Sewer.......................................................16 Map 6 - Traffic Volumes ....................................................18 Map 7 – Study Areas...........................................................23 Map 8 - Land Use Plan .......................................................38
North Royalton Master Plan - 2004
INTRODUCTION A Master Plan for a City is an official statement of policy made by the decision makers of that City regarding the direction they intend to take with respect to the future physical development in their jurisdiction. The types of decisions a Master Plan should influence are those related to the types of development that should occur, where they may or should occur, the intensity and scale of that development, the overall character of that development and in some instances the timing of that development. A Master Plan should also define areas of the City where development is inappropriate, or where it should be restricted so as to protect important natural resources within the City. In addition to defining development types and locations, the Master Plan should also define the type and nature of community facilities and infrastructure necessary to support the existing and expected development and population within the City. These generally include the transportation network, the utility systems and other community facilities such as fire and police facilities, park and recreation facilities. This Master Plan up-date has been prepared in keeping with provisions contained in the City Charter of North Royalton, which require that the City prepare and adopt a Master Plan to guide decisions about the City’s future growth and development. The Plan was developed in keeping with the work and recommendations of the North Royalton Master Plan Task Force. The Task Force was made up of City residents that met over a three year period to define polices that should guide the future course for the City. That process is described in more detail in the following section.
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BACKGROUND North Royalton, located along Cuyahoga County’s southern tier, is a community of approximately 32,000 residents. It is a community facing immense growth pressures, as today it comprises one of the larger areas of undeveloped land in Cuyahoga County. North Royalton lacks rail, water and/or air transport capabilities and has no direct freeway access. Bisected by the Ohio Turnpike, North Royalton’s nearest freeway connection is at Royalton Road and I-71, 1½ miles to the west in Strongsville, Ohio. As North Royalton has grown, it has faced pressures from within to provide its residents with better amenities in both City service and recreational areas. North Royalton faces a critical need for increasing tax base revenues while balancing its bucolic nature and semi-rural environment against the inexorable growth that will occur and the rising demands of its citizens. North Royalton has engaged in planning attempts in the past, most notably in 1928, in the 1950s, with its first “General Plan” of 1970, and most recently in 1993 with a “Master Plan.” The 1928 effort was largely a street drawing with limited restrictions on certain buildings near intersections used for commercial purposes. The 1950s introduced zoning to North Royalton. The 1970 General Plan focused on the now defunct north/south Parma freeway bisecting the city with a major interchange at the turnpike. This led to the industrial park facing east to York Road, rather than west to W. 130th, egressing to Rt. 82 on out to Strongsville’s I-71 interchange. With the General Plan of 1970 soon obsolete, the City then developed a Master Plan of 1993, which did not set forth an implementation plan. The ’93 plan did, however, provide sign ordinances, other aesthetic issues and laid the ground work for future planning on many levels, including the introduction of rural residential concepts. By 2000, North Royalton needed an enforceable living Master Plan. A Master Plan Task Force was established through the work of Mayor Cathy Luks and Chairperson Craig Marvinney through meetings with the Center for Regional Economic Issues at the Weatherhead School of
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Management at Case Western Reserve University, and at the Levin School of Urban Affairs, at Cleveland State University. The Task Force was organized in early 2001 to include standing committees on Architecture & Environment, Business & Commerce, Finance & Economics, Infrastructure & Engineering, Land Use & Zoning, Recreation & Public Facilities as well as views of the City & Region and City & Schools. After organizational meetings in early 2001, public meetings took place throughout the course of 2001 and into 2002 where residents from throughout the City participated, giving input, answering surveys, and affording insights to the Master Plan Task Force. The Task Force set as its Mission Statement as: “Through community participation, create the plan for the future of North Royalton to provide its solid economic foundation, to guide its growth and to define its character in order to achieve the highest quality of life for its residents and businesses.” In March 2002, the Task Force, in conjunction with Kent State University’s Urban Design Center of Northeast Ohio, undertook a central business district design charrette, which included tours of the City by numerous architectural and planning representatives, extensive public meetings, and a design program resulting in the design charrette documents produced in 2002. In 2003, the City retained Strategic Public Policy Inc. which undertook a financial analysis of the City of North Royalton and provided a final Financial Analysis and Cost of Services Study in February of 2004 to assist in developing land use policy and recommendations. The Plan embodied in this document is in essence the outgrowth of the process described above.
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DEMOGRAPHIC TRENDS In planning for the future of any community it is important to understand the changes that have, are, and may yet occur in its demographic makeup. The size and makeup of the population is an important factor in determining the need for community facilities and infrastructure; the demographic trends indicate the circumstances that may be confronted in the future.
North Royalton Population Grow th 1930 - 2000
North Royalton Population Trends
35000
Year
Population
increase
Percentage Increase
30000
1930 1940 1950 1960 1970 1980 1990 2000 2002 est 2010 proj
1,397 2,559 3,939 9,290 12,807 17,671 23,197 28,648 30,596 38,388
1,162 1,380 5,351 3,517 4,864 5,526 5,451 1,948 9,740
83% 54% 136% 38% 38% 31% 23% 7% 34%
25000 20000 15000 10000 5000 0
For nearly 50 years, the City of North Royalton has been among the faster growing communities in northeast Ohio. Beginning in the early sixties, the City has added an average of slightly less than 5,000 new residents each decade. During the nineteen seventies, that growth slowed to roughly 3,500, but the pace of growth resumed in the nineteen eighties and has remained essentially steady ever since. The table above shows that growth trend in numerical form and the graph to the left illustrates that trend in visual form. Recent US Census Bureau estimates suggest that the trend is not slowing at all, and is in fact accelerating. The Census bureau estimate for 2002 indicates a population 30,596. If growth continues at the same rate for the next 10 years, another 9,400 residents would be added by the year 2010. Based on data found elsewhere in this report this will approximately equal residential buildout in the City of North Royalton.
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North Royalton Average Household Size 1970-2010 4
The Northeast Ohio Areawide Coordinating Agency (NOACA), which is the Metropolitan Planning Organization (MPO) for the Cleveland region, prepares population projections for all jurisdictions in the region. Based on its current preliminary projections the population of North Royalton would be 35,900 by the year 2010.
3.5 3 2.5 2 1.5 1 0.5 0 1970 1980 1990 2000 2010
This projection reflects a slower rate of growth than what in fact has been the case over the last few years. Conceivably, this could occur as easily buildable land in the City is exhausted, or it could occur due to market fluctuations. The last several years have seen accelerated residential construction due to low interest rates, a trend which is unlikely to last for an extended period of time. In any event the trends suggest that residential buildout in North Royalton will take place within the next 10 – 15 years, most likely on the lower end of that range. Several other significant trends can be found in the analysis of Census data. As is happening in many communities, household size in North Royalton is continuing to decline as it has for the past 30 years. This trend also is expected to continue. The portion of the population that is age 60 or older is increasing. In 2000, that portion was 16% of the whole, up from 13% in 1980. The total number of residents over age 60 was 4,532, up from 3,614 in 1990 and 2,272 in 1980. This trend suggests that in the future additional services and facilities may be required to serve this population, and also suggests that housing options suited for seniors should be considered.
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BUILDING PERMIT ACTIVITY
N o r t h R o yal t o n B uil d i ng Per mit A ct ivi t y - 19 8 1- 2 0 0 3 Sing le F ami ly ( ho mes)
300 250 200
Tracking of building permit activity also provides insight regarding trends in North Royalton. Data provided by the City’s Building Department shows that on average 170 permits have been issued each year for single family homes in the City. As the graph to the left indicates, the pace fluctuates somewhat from year to year, but overall single family home construction has remained fairly steady over the last twenty years, with annual rates fluctuating between 120 and 250 per year.
150 100 50 0
N o rt h R o ya lt o n B uilding P e rm it A c t iv it y 19 8 1 - 2 0 0 3 M ult if a m ily ( unit s )
450 400 350 300 250 200 150 100 50 0
The issuance of permits for multi-family units has fluctuated more widely over the last twenty years. This is illustrated in a graph to the left. For example, between 1991 and 1996, no permits at all were issued for multi-family construction. In the years, 1990, 1999 and 2003, permits for 300 – 400 units were issued. The average over the last twenty years has been 107 units permitted annually. But overall, the pace declined significantly in the last ten years in relation to the prior ten years. Between 1983 and 1993 the annual average was 136, while from to 1993 to 2003, the average dropped to 81 units annually.
Housing Type Mix Based on data found in the 2000 Census, 28% of all housing units in North Royalton are contained in multi-family developments. In relation to nearby communities, this percentage is higher than all but two, Parma Heights (39%) and Middleburg Heights (30%). The average in nearby communities is 17%, placing North Royalton well above the average in the area.
Percentage Multi-family
Recent multifamily development on the western edge of North Royalton
North Royalton Brecksville Brunswick Broadview Heights Independence Middleburg Heights Parma Parma Heights Seven Hills Strongsville
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28% 12% 17% 27% 1% 30% 17% 39% 1% 15%
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SCHOOL ENROLLMENT
North Roylaton School Enrollm ent 1980 - 2004 5000 4500
Analysis of school enrollment data in North Royalton shows that enrollment has generally risen in relation to the increase in population. That trend though has slowed in the last nine years. This is most likely reflective of an aging population and a smaller average household size. Based on expectations regarding new residential development, a consultant retained by North Royalton Board of Education has projected increased enrollment over the next 10 years to a level as high as 5,485. Currently the system is 440 students above the design capacity in the elementary schools and nearing capacity in the High School.
4000 3500 3000 2500 2000
The projected increased enrollment would require additional capacity in both the Elementary Schools and in the High School. The maximum projected design deficiency is 1,090 students in the elementary schools and 243 students in the High School by the year 2012.
1500 1000 500 0
North Royalton Schools Grade Breakdow n 450 400 350 300
It should be noted that after that time enrollment will begin to level off and possibly decline as the City reaches buildout. The primary impetus to increased enrollment is new residential construction and that will cease to happen as buildout is reached. The extent to which new construction will continue to happen in the portions of Broadview Heights included in the North Royalton School district is unknown; however within North Royalton the pressure for increased enrollment will likely cease as buildout is achieved.
250 200 150 100 50 0
1990
2004
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INVENTORY OF EXISTING LAND USE A key component of any land use planning exercise is an inventory of how land is currently being used in the planning area. As part of this effort, a current inventory of land use was developed using a combination of aerial photography and field observation. The results are shown on Map 1, Existing Land Use. It should be noted that in mapping land use, occasional instances were found where a single home is located on the frontage of a large parcel of ground, the majority of which is undeveloped. In those instances, a residential land use was assigned to the area in the immediate vicinity of the home and a status of vacant was assigned to the balance of the parcel. This was done on the theory that such large tracts have remaining development capacity that should be taken into consideration and quantified. A tabular summary of the existing land uses is shown below. Of the total area of the City, 82% of the acreage has been developed in one form or another. The categories suggesting the remaining development capacity, Agriculture or Vacant, comprise 18% of the area of the City. Residential land uses take up 66% of the land area; commercial uses take up roughly 2%, while office uses currently make up less than 1% of the City.
Existing Land Use Acreage Land Use Agriculture Single Family Residential Two Family Residential Multi-family Residential Industrial Institutional Office Commercial Recreation Utilities Vacant Total
Acres 103 7,677 101 483 338 310 63 195 859 171 2,335 12,635
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Percent 1% 61% 1% 4% 3% 2% 0% 2% 7% 1% 18% 100%
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DEVELOPMENT CONSTRAINTS Flood Plain & Wetlands In most communities there are areas along streams and rivers that are level and may appear to be attractive building sites. However, they are level because they have flooded on a regular basis. Allowing construction in such areas creates the potential for future disasters and loss of property during periods of significant rainfall. For this reason most communities regulate or prohibit construction in these areas; North Royalton is no exception. Chapter 1466 (Flood Damage Prevention) regulates development in flood prone areas of the City for the purpose of protecting the public health safety and welfare. Map 2 illustrates the location of the flood plain areas of the City. Also present in North Royalton are a number of wetland areas where standing water is common. These are shown on Map 3. These areas also are constrained in terms of development. In many instances these sites make excellent candidates for use as passive recreation areas, wildlife refuge areas or public green space.
Slope One of North Royalton’s most prominent features is the high escarpment that runs diagonally through the center of the City from north to south. In certain places the change in elevation along the escarpment is in excess of 400 ft. In some areas along the escarpment the slopes are severe enough that development is constrained to some extent. Map 4 shows slopes in the city calculated from a digital terrain model. Generally speaking, slopes ranging from 15% to 20% are considered a moderate constraint to development capacity. Slope of more than 20% is considered a severe constraint to development potential. The escarpment also creates very significant view opportunities from the center of town, views that are one of North Royalton’s finer assets. These views should be capitalized on where possible and protected against blighting influences.
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BUILDOUT ANALYSIS A build-out analysis is performed to determine the remaining development capacity in an area. The analysis is done by identifying developable parcels and calculating what could be built if development occurred based on the zoning currently in place.
Developable Acres by Zoning Classification ZONE Commercial GB Industrial GI Local Business LB Office OB Office Research RO Public Facility PF Residential R1-A Residential R1-B Rural Residential RRZ Residential (Multi Family) RM-D Total
ACREAGE 41 204 22 2 20 89 806 224 891 39 2338
The inventory of existing land use was used as the baseline for this analysis. Based on this inventory it was determined that there remains roughly 2,400 acres of land in the City of North Royalton that has developable capacity.* Again it should be noted that this figure is to some degree subjective, as it includes areas that are now developed in some sense but can be redeveloped. The developable areas are broken down by zoning category in the table at left. Of these 1,960 acres are currently zoned for residential use of which 39 are zoned for multi-family development. 204 acres are zoned for industrial use, 63 are zoned for commercial use, and 22 acres are zoned for office or office research. Of the residentially zoned areas, slightly less than half (45%) are zoned rural residential. Assuming a 15% area reduction to account for right-of-way, reductions for slope and flood plain, and based on the zoning as currently applied, 2,400 single family homes could be built, and 430 apartment units could be built. Using the current average household size (2.5), that would equate to an additional population of 7,075 in the City. In addition to the developable land mentioned above, there are and estimated 100 residential lots already platted in the City awaiting construction. Development of these would add another 1,500 residents. Added to the current Census estimate of population, this would produce a peak buildout population in the range of slightly more than 39,170. Based on historical rates of development, buildout will occur within a time frame of 10-15 years, possibly less depending on market conditions and City policies.
*
It should be noted that 103 acres identified in the existing land use inventory are not included in these calculations because they are in agricultural use (so designated by the City). It should also be noted that density in areas zoned RR was assumed to be 1 unit per 2 acres, but this could vary based on the zoning as applied.
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PUBLIC UTILITIES The City of North Royalton handles waste water treatment at two municipally operated treatment plants; Plant A located on Royalton Road, and Plant B located on Sprague Road. Plant A has a design capacity of 3.3 million gallons per day and is currently handling an average daily flow of 1.81 million gallons per day, or roughly 54% of capacity. Plant B has a design treatment capacity of 1 million gallons per day and is currently handling an average daily flow of roughly 760,000 gallons, or 60% of capacity. A small area in the northeastern corner of the city is served by the Northeast Ohio Regional Sewer District, which treats the flow coming from North Royalton at its Southerly Treatment Plant located in Cuyahoga. Map 5 shows the sanitary sewer collection system in the City. The wastewater collection system in the Northern portion of the City is well developed with most areas of the City being served. Much of the southern third of the City has no sanitary sewer service, and more than 1,100 septic systems are located in that area. No plans currently exist to provide sewer service in this area. The provision of sewer service in this area might be feasible with the construction of an interceptor, however cost is an obstacle and the topography would probably make necessary the use of lift stations to move the flow. Another option for providing sewer service in some of this area would be to tie into a trunk line owned and operated by Medina County which runs along Boston Road. The practical feasibility of either option is unknown and would require further study.
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TRANSPORTATION The road system in North Royalton is in essence the system that once served the area when it was a township. Local streets have been added as subdivisions were developed but no major new connecting roads have been added. With the exception of sections of Royalton Road, Ridge Road and Sprague Road, all roads are two lanes, most without curb and gutter. Map 6 shows recent traffic volumes (1999) obtained from the Cuyahoga County Engineer. Generally, the capacity of a two lane road is roughly 10,000 vehicles per day. Several main roads are carrying traffic volumes significantly above that volume. State Road carries daily volumes in the 13,000 -14,000 range between Royalton Road and Wallings Road, and 12,500 further north in the vicinity of Bunker Road. Ridge Road also carries volumes in the 13,000 – 14,000 range in the sections immediately north of Bennett Road. Sprauge Road, on the northern border of the City carries volumes in similar ranges. At its western end Sprague Road is a two lane Road and thus is significantly over capacity. Royalton Road is currently a two lane road from the City’s western border to Bennett Road in the center of town. From that point east, Royalton Road has a three lane cross section to a point east of State Road and then narrows to a cross section of two lanes. Traffic volumes on Royalton Road in the section between the City’s western border and Bennet Road are in the 16,000-17,000 range, well in excess of capacity standards. Currently a project is under way to add turning lanes at intersections on Royalton Road, including York, Bennett, Ridge and State Roads. The City is currently pursuing funding to widen and improve Royalton Road through its entire length within the City at a minimum estimated cost of $20 million. However, the potential for success in that effort is not clear as of this writing. A well recognized deficiency in the road network in North Royalton is the need for added east-west connections. This is particularly true in the area of the industrial park on York Road. A future connection east to west extending from W. 130th Street to York Road is clearly desirable. Another clearly evident need is for a funding source for upgrades and maintenance. Many streets in the City are in need of resurfacing and reconstruction, but funding is limited.
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COST OF SERVICES ANALYSIS
Assessed Tax Valuation Agricultural/Residential Commericial (incl. Industrial) Public Utilites Tangible Personal Prop. Combined Non Residential Recomened Target Non Res Projected Non Res
77% 16.20% 2.70% 4.10% 23% 30% 18%
As a prelude to updating the master plan, the City retained the services of a consultant, Strategic Public Policy Inc. (SPPI) to analyze the cost and revenue structure of the City as it relates to land use. The study determined that currently, 77% of tax valuation in the City is residential and 23% nonresidential. The City’s consultant identified a target level of 30% non-residential valuation as an indicator of economic sustainability in the City. The study also projected that based on past trends, 82% of the City’s valuation would be residential by 2012, even further away from the desirable target. This target figure was established in part based on an analysis done by the consultant of revenue vs. cost trends in the City since 1999. The results of this analysis showed that residential development generally requires more in services than it produces in revenue to the City. This is less so for new residential development than it is for older existing residential areas. On average, older single family homes cost $190 more in terms of services required than they produce in revenue to the City. For newer single family homes, that cost is roughly $20. The analysis found that Multi-family development costs $220 more per unit than it produces in terms of revenue. Office and industrial land uses on the other hand produce substantially more revenue than they require in costs for services. Office uses in particular are productive, generating $4,400 more in revenue per acre than they cost in terms of services. Industrial uses produce a net gain of $3,100 per acre. Big Box Retail land uses were found to produce only $160 more per acre than they required in services. The SPPI study also projected that the City will face substantial operating deficits given its current financial structure by the year 2007, and those deficits will increase in future years. By the year 2012, the study projected an annual operating deficit of $4.4 million. The study also indicated substantial needs for capital investment including the cost of a new fire station, a new recreation center and $3 million annually in capital investment for road improvements.
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The SPPI study recommends that the City seek to encourage development types that are income generators for the City as a means of countering projected future deficits. In particular the study recommends modification of zoning regulations to emphasize office uses and establish higher aesthetic standards in industrial zones, limiting the amount of land zoned for nonproductive uses, and promoting office development wherever possible. The study also recommends modifications in development standards to provide a methodology for dealing with the need for road improvements in the City. This should include the requirement of a traffic impact study in connection with any proposed development that will be a significant traffic generator.
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Planning Policies and Land Use Plan
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Planning Area Policies The North Royalton Master Plan Task Force divided the City into a series of “Study Areas” for which policy recommendations were developed. For the purpose of this Plan, those study areas have been redefined as Planning Areas, which are shown on Map 7. Based on the work of the North Royalton Master Plan Task Force, the following policies have been defined. Planning Area 1 Within Planning Area 1 the basic existing residential character should be maintained. Business development within this area should be restricted to the West 130th Street corridor and a portion of the Sprague Road corridor. Business uses in this area might include small scale commercial/office type development. A modest expansion of the commercial development node at the intersection of York and Sprague Roads is also envisioned. R1-A zoning is recommended throughout this area for remaining undeveloped residential parcels. Sprague Road should be widened to three lanes at its western end to provide a turning lane and alleviate traffic congestion. Planning Area 2A Planning Area 2A provides an opportunity for expansion of North Royalton’s revenue enhancing land uses, which is a basic underlying goal of this Plan. The general policy approach is to encourage and facilitate redevelopment of property near the Ohio Turnpike for office park/light industrial uses. A new access road should be established just north of the turnpike running from West 130th east to connect with Abbey Road and on to York Road. This connection will open up the “middle” of the area south of Woodridge extending to the turnpike for office/new industrial development. The stretch of West 130th Street south of the Turnpike should be converted to small office type uses.
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With proper setbacks, office buildings could raise to a height of four stories near the north side of the Turnpike and no more than two stories within 700 feet of any residential zoning. There should be a 250 foot buffer area of property owned and maintained by the developer, consisting of trees native to the region for all research/office zoning which abuts areas presently zoned or being utilized as single-family residential. Furthermore, it is recommended that consideration be given by any developer to a public use area on the developer's side of any buffer to said research/office zoning. As a good neighbor policy and to enhance the land usage for both the residents and employees, such a public use area could include bike paths, picnic areas and recreational facilities, the details of which to be determined by the city Planning Commission. York and Abbey Roads should be improved to include a turning lane (3 lanes) and turning radii should be improved to provide for truck traffic in these areas. Planning Area 2B Planning Area 2B contains most of the land in the City now set aside for industrial use. The basic policy approach of this plan is to shift away from a traditional industrial character in this area and more towards a campus style office/light industrial character. Development along Royalton Road should be encouraged that focuses on “clean” revenue-enhancing development, such as office and limited small scale retail space, with attention given to appearance. The consolidation of smaller lots within the existing industrial park should be encouraged so that larger parcels may be made available to companies looking to expand within North Royalton, thereby further enhancing North Royalton’s tax base. Further development along the north side of Royalton Road along the turnpike should be focused on office use, including the possibility of multi-story office buildings. Areas south of Royalton Road should be focused on industrial use and/or office use, with research/office use preferred as a buffer to the adjacent residential development within this area on the south side of that district Planning Area 2C The Metroparks should be encouraged to consider “smart” and/or “green” development. Opportunities for office buildings that are constructed in experimental “green” fashion, such as grass roof buildings and/or other ecologically advanced designs should be encouraged in conjunction with the Metroparks use in the western portion of the Metroparks property on the eastern side of West 130th Street.
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Rural Residential single family home development is recommended for the remainder of the undeveloped property within this area. Planning Area 2D In the properties nearest to Bennett’s Corners, North Royalton should consider this one of the gateway entry areas to the City and encourage multi-story office building as the main use in the North Royalton portion of Bennett’s Corners. Surrounding retail and/or local business could be derivatively planned from such office space. This area may be impacted by the potential future interchange at I-71 and Boston Road in Brunswick/Strongsville. Pressure on the southern areas of the City could be felt soon after the development of such an interchange. North Royalton should avoid big box store-type development in the gateway area at Bennett’s Corners. An overlay zone governing what happens at this location may be appropriate. In the portions of Planning Area 2D where residential uses are identified and sanitary sewer is not present, rural residential zoning should be put in place. Planning Area 3 Outside of an area along the State Road Corridor, south of Royalwood Road, this area should largely remain residential with R1-A type development. Zoning should be developed to control unreasonable expansion of intersection local business areas near State and Wallings Road, Ridge and Wallings Road, and Royalwood and State Road, as well as in the Ridge Road/Bunker/Tilby area. A traffic circle should be considered for the Wallings/Ridge Road intersection if properly designed. State Road should be reconstructed from Sprague Road south to Royalwood in a three lane cross section. From Royalwood south to a point south of Royalton, State Road should be widened in the form of a four lane boulevard with center turning lanes at appropriate locations.
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Planning Area 4 The northern portion of this Planning Area should remain as it is, with further expansion done in the form of R1-A style single family development. The North Royalton escarpment along Bennett Road south of Royalton Road should be maintained largely as single family development. Planning Area 5 Planning Area 5 represents a major opportunity for the City to create a true Town Center area. Within Planning Area 5 are large tracts of land that can be redeveloped. The City should seek to acquire control of these sites and solicit development proposals that are consistent with the vision established in the Central Business District Design Charrette. This concept calls for the creation of a higher density mixed use district that includes townhouse style residential development, multistory office, retail and an area devoted to civic uses. Such a proactive approach to encouraging redevelopment is also consistent with the goal of adding non-residential tax base in the City. This goal is a significant underpinning of this Plan and is an outgrowth of the recommendations made by Strategic Public Policy Inc. in its recent Cost of Services Analysis. Within the Town Center area there are four basic conceptual areas. On the east side of State Road between Royalwood on the north and the commercial frontage along Royalton on the south is an area that is envisioned as being redeveloped with higher density residential uses and creative commercial uses. In the area west of State and north of Royalton Road, including the eastern portion of the Radio Tower Property, the Town Center Concept calls for a mixture of commercial and office development, including office space located above first level commercial retail space.
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In the area located to the east of Ridge Road and north of Royalton Road, which is predominantly the western portion of the Radio Tower Property, a variety of civic uses is envisioned. Specifically what those uses would be will require further study but some possibilities could include a recreation center, a government center, a theater facility, etc. The concept also envisions gradual redevelopment of existing commercial areas fronting on both sides of Royalton Road. Wherever possible such redevelopment should be accomplished in a manner that is consistent with the overall theme of the area, again with buildings close to the street, parking in the rear, an emphasis on pedestrian character. To the extent possible, the proliferation of access points on Royalton Road should be minimized and replaced by access from the rear or by frontage roads. Throughout the Town Center area a pedestrian oriented character should be created with wide sidewalks, street trees and landscaping enhancements. An overall architectural theme should be established and maintained through the creation and enforcement of architectural guidelines for any new or redevelopment projects in the area. Development of the Town Center area should also include the creation of an internal street grid for purposes of providing circulation and access. Multiple access points should be established from primary thoroughfares from all sides and through connections should be mandated. Royalton Road should be made into a four lane boulevard with a grassy/treed median. Turning lanes should be provided at appropriate places. Royalton Road should be widened and improved using traffic calming techniques in a manner consistent with the Town Center concept. These might include the installation of on street parking, use of narrower travel lanes, pavement differentiation to signify a pedestrian oriented area, planting islands etc. There should be a 50 foot buffer area of property between existing single family residential zoning and mixed use zoning area with single family free standing residential units abutting the buffer. For all other development that is not residential, there should be a 250 foot buffer area of property owned and maintained by the developer, consisting of trees native to the region for all mixed use zoning which abuts areas presently zoned or being utilized as single-family residential, north of Rt. 82 and east of Ridge Rd. Furthermore, it is recommended that consideration be given by any developer to a public use area on the developer's side of any buffer to said mixed use zoning. As a good neighbor policy and to enhance the land usage for both the residents and employees, such a public use area could include bike paths, picnic areas and recreational facilities, the details of which to be determined by the city Planning Commission.
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Planning Area 6 The City and school system should look to further property acquisition of the residences along the northern side of Akins Road, to expand the available land for the schools and/or the Memorial Park area. Otherwise, the City should retain the current characteristics of this area. Planning Area 7 This is an area bisected by the Valley Parkway and still remains largely undeveloped. A significant acreage at Valley Parkway and State Road is occupied by public facility zoning, which could be used as a recreation center and/or recreational land facility and/or a school. Other portions of the land in this area should be considered for R1A development and/or combined R1-A-recreational development such as a golf course community. The portion of Planning Area 7 located south of the Ohio Turnpike should be designated for Rural Residential Zoning in part due to the lack of sanitary sewer in this area. Akins Road should be maintained as an alternative east/west route. Planning Area 8 Consideration should be given to redeveloping the ball field complex for industrial/office use as long as an equivalent or greater amount of land is acquired and turned over for the same recreational use elsewhere in the City. This prime location adjacent to the Ohio Turnpike has potential that should not be ignored. The land in the southern portion of the Planning Area appears ideal for a high end residential golf course community. Such development will create a net revenue gain to the City. Large lot rural residential zoning is recommended for any other residential development, particularly in the land south of Valley Parkway within this Planning Area.
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Planning Area 9 A R1-A Zoning should continue being the primary land use in the western portion of Planning Area 9A. Planning Area 9A will be among the first areas of North Royalton to feel the pressures for growth resulting from the potential new Boston Road interchange with I-71. Otherwise, zoning in the rural residential areas should be retained as rural residential In those areas where sanitary sewer service is not available Rural Residential zoning should be put in place. Planning Area 9 B This is a largely undeveloped area zoned rural residential along the southern end of the main North Royalton escarpment. Current zoning should be maintained for the foreseeable future. Wiltshire Road should be expanded to connect with Boston Road at Ridge Road to improve traffic circulation. The escarpment land (steeply sloped area) of this Planning Area south of Cady Road should be considered, perhaps, for a golf course type community. Otherwise, rural residential land use should be retained. It should also be noted that in the future, Boston Road should be connected to Wiltshire Road on right-of-way that already exists. This connection will improve traffic circulation in the southern end of the City. Planning Area 9 C It is recommended that land uses be retained in the rural residential context throughout this area.
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Citywide Planning Policies A.
Zoning Code Revision - Following adoption of this Plan a complete review and revision of the entire Zoning Code should be undertaken for the purpose of incorporating provisions that that will support the implementation of this Plan and the policies stated herein.
B.
Interim Development Control Measures – Concurrent with adoption of this plan, interim development control measures should be instituted to allow for modification of development regulations in a manner consistent with provisions of this Plan.
C.
Professional Planning Staff The City should hire a professional planner in either a full or part time capacity.
D.
Interconnecting Street Systems must be a required feature of all new development proposed in the City to allow for improved circulation and reduction of traffic concentrations. Traffic calming techniques should be incorporated into street design standards in new developments.
E.
Access Management Access management regulations designed to control the location, number, size and character of curb cuts on primary thoroughfares should be incorporated into the City’s Code of Ordinances, either as part of the Zoning Code or as a stand alone ordinance.
F.
Traffic Impact Studies Requirements calling for traffic impact studies related to development proposals of significant size should be incorporated into the City’s development regulations and Zoning Code.
G.
Fiscal Impact Analysis A provision should be added to the Zoning Code that allows the Planning Commission to require a fiscal impact analysis related to development proposals of significant size when appropriate.
H.
Royalton Road. Royalton Road corridor should and will be expanded. From West 130th to York Road it should be expanded to five lanes. At York Road, but before the
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Royalton Road escarpment, it should convert to a four-lane boulevard with a grassy median and turn lane through North Royalton’s Central Business District east to Ashley Woods/Prince Charles, at which time it should reduce to a three-lane road into Broadview Heights. Traffic calming design techniques should be used in the Town Center Area. Such techniques might include changes in pavement type, narrower travel lanes, on street parking, center planting islands and other design features. I.
Reduce Future Tax Burden on Residents / Set Aside Future Land Uses. North Royalton must set aside land to allow the City to maximize revenue from future land uses. This will allow the City to provide an adequate level of services and public facilities without the need for residential income and/or property tax increases to provide basic and/or preferred citizen amenities.
J.
State Road. State Road, due to current high traffic volumes should be converted to a three lane cross from Sprague Road to Royalwood and a four lane four-lane boulevard from Royalwood to a point just south of Royalton Road. This will also help accommodate the significant proposed mixed use development north of Royalton Road on both its east and west sides
K.
Develop Mixed Use/PUD Zoning Code. North Royalton should consider a mixed use Zoning Code chapter as part of the rewrite of the Zoning Code (possibly a PUD overlay), that will permit the 120 plus acre combined parcel(s) from the east of State Road area through the Radio Tower property in the central area of the City to be developed for combined retail, commercial, office, residential and public facility/civic use. This zoning classification should apply to the current Radio Tower property and Bennett/Ridge Road area to the west; east to include the substantial acreage east of State Road and west of Prince Charles, and north to Royalwood Road. Business property on the south side of Royalton Road should also be included. This area should be combined for overall mixed use development.
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L.
Establish Architectural Review Board. North Royalton should re-establish its architectural review board. A set of design guidelines should developed for the City.
M.
Establish Specific Design Guidelines for Central Business District. An architectural theme must be established for the Central Business District, including the mixed-use area to require all future development be of a consistent external façade and appearance. Present building styles in both the City and region may make a Western Reserve/New England colonial style the preferred style.
N.
Address Drainage in Low Elevation Areas. The drainage engineering must be accomplished in the low elevation portions of North Royalton, particularly that area north of the Ohio Turnpike and west of York Road.
O.
Prohibit construction and/or development of land in a designated flood plain. As a matter of policy, in addition to Chapter 1466 (Flood Damage Prevention), the city should prohibit development and/or construction in a designated flood plain in accordance with current and updated flood plain maps.
P.
Enforce Sidewalk Requirements. North Royalton must enforce sidewalk construction requirements on all new property development within the City and reduce any and all exceptions to this to only the rarest of circumstances. The City should focus on sidewalk development within the Central Business District and State Road area and should focus on interconnected pedestrian walkways in phases. Phase 1 should be the Central Business District and extend the same along the development of Royalton Road through its widening program. Phase 2 should interconnect substantial facilities within the City such as the Memorial Park/Library with the Central Business District, the York Road North Royalton balls fields with Royalton Road, Royalton Road from York Road to a point east of State Road, and ultimately, more aggressively along the outlining areas of the City.
Q.
Balance Residential/Local Business Land Uses. North Royalton must restrict intersection-based local business land use “creep” just to those intersections and the land in the immediate vicinity of those intersections, rather than permitting a proliferation and expansion of continuous strip malls/commercial/local businesses along major thoroughfares to the elimination of all residences in between. This will serve to preserve the residential/bucolic nature of North Royalton.
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R.
Increase Residential Lot Size. Consideration should be given to requiring 125-foot frontages within R1-A districts for all future development, and the elimination of R1-B future development within the city.
S.
Restrict Multi-Family Development. To reduce the subsidy of such use by other North Royalton taxpayers, North Royalton should eliminate further multi-family structure zoning outside of appropriate proportions within the mixed-use areas in the town center area.
T.
Improve Residential Height Restrictions. The zoning codes should be amended to allow for three-story housing, particularly in the larger frontage R1-A districts. The present restriction on residential construction to two stories substantially restricts the development of higher-end housing that has occurred in other communities.
U.
Create System of Inter-Connecting Green Spaces. The City should focus on developing a system of inter-connecting green spaces within and throughout the City, commencing with sidewalk development in the core sections of the City, with outlying bike trails or walking trails constructed through the acquisition of easements and/or land set asides for future development. Future development should be considered with land-set aside preserved for future generations’ use in parks etc., rather than taking cash options on new development set-asides. Cash should only be taken for the land in only the rarest of circumstances when there is no opportunity due to surrounding developed properties or further adjacent connection of recreational land with future development.
V.
Road Extensions for Mixed-Use Property. Expansion of the mixed-use district in the State Road corridor between the Radio Tower property and the east of State Road/west of Prince Charles properties should include road extensions connecting Bennett at Ridge Road east to State Road to connect east of State Road with a north/south road extending from Royalwood to Royalton Road. Mixed-use development can be done in such a way as to create a new “town square” in the middle of the Radio Tower property.
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W.
Maintain and Fund Economic Development Team. The City should maintain an economic development team, (for example re-establish its Community Improvement Corporation ) designed to compile and maintain economic information, attract targeted new business to the City, manage and coordinate marketing of the City, and to interface with existing businesses on a regular basis.
X.
Establish Appropriate Zoning for Office Parks. North Royalton should develop appropriate zoning for office parks (with a limit of eight stories) with appropriate required set backs and recreational set aside requirements for use in expanding the revenue enhancing tax base of the City in an area particularly focused on the land between Abbey Road and West 130th Street, north of the turnpike and south of Woodridge Road in such a manner as to adequately protect and even enhance the property values of residences within existing streets such as Woodridge and Wood Oval. This would include development of a road providing access to the newly set-aside office/light industrial zoning land north of the turnpike, connecting from West 130th Street to the current industrial park.
Y.
Industrial Park Expansion A Phase III expansion of the current industrial park should be established moving west from York Beta Drive and including land located between Abbey Road and West 130th north of the turnpike and south of Woodridge. This is the best opportunity in the City for expansion of the industrial area and non-residential tax base.
Z.
Address the City’s Recreational Needs. In considering a recreation center for North Royalton, in addition to sports and health related issues the recreation center should consider providing space and/or use opportunity for community theatre, community meeting spaces, civic group offices, and other alternative recreation. The City should also consider land set-asides for, among other things, an open-air music pavilion, full size skate park and/or view tower to take advantage of North Royalton’s natural heights and vistas.
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AA.
Develop Significant Annual Event. North Royalton should consider a significant annual event designed to foster commercial investment in North Royalton and attraction to North Royalton from outside interests.
BB.
Coordinate Development with Metroparks. The City should coordinate direction with the Metroparks for further development, including completion of the bike/riding trails and other trails in the expanding Rocky River corridor. Further, the City should coordinate with the Metroparks regarding potential development of “green” and ecologically appropriate revenue enhancing buildings within the Metropark property on land that is acquired via long-term leases from the Metroparks.
CC.
Develop and Maintain Master Maps/Plans. The city should periodically update and maintain a master street plan, a master sanitary sewer plan, a storm water management plan, an updated zoning map, land use plan as well as recreational and public facility plans. The Comprehensive Plan should be reviewed and updated at intervals of five years.
DD.
Buffering and maintaining existing landscapes. In order to encourage business growth in North Royalton, expansion, development, and relocation of businesses should not encounter “not-in-mybackyard” protests. Strict requirements must be applied to these projects. They should be suitably buffered from adjacent properties. The existing natural landscape should be maintained to the greatest extent possible and replaced to the fullest extent when not possible. What homeowners look out on should essentially remain unchanged. Topography and vegetation that has provided scenic views should remain unchanged or be repaired for the better.
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LAND USE PLAN Based on the policies established by the Master Plan Task force, a Future Land Use Plan for the City of North Royalton was developed. The Future Land Use Plan is shown on Map 8. Several key features of the plan are noteworthy. First, an area north of the Ohio Turnpike and between west 130th Street and Abbey Road is designated in the Plan as appropriate for office research park style redevelopment. Currently this area is zoned and used for residential purposes. Most residences are located on larger “bowling alley” style lots with significant vacant back acreage. The purpose of this re-designation is to encourage redevelopment of the property for uses that will contribute positively to the fiscal health of the City. A second key feature is the mixed-use Town Center area identified north of Royalton Road between Ridge and State Roads and also on the east side of State Road. This area is planned to become the commercial and civic center of the City. The general principles that should guide this redevelopment effort were established through a Central Business District Design Charrette conducted in 2002 by the Urban Design Center of Northeast Ohio. The concept defined in the Charrette includes a commercial node centered around the intersection of State and Royalton Roads and a civic node centered around the intersection of Ridge and Royalton Roads. The concept includes a strong emphasis on pedestrian character, with wide sidewalks throughout, buildings placed close to the street and parking located behind. The concept calls for a mixture of uses including office, commercial and higher density town house style residential development. In the center of the site it is envisioned that the site design should create a town square area. The civic node portion of the Town Center area is envisioned to include an enhanced Village Green, potentially a Government Center or Recreation Center. Development of the site should include the creation of an internal street grid with connections on all sides, but should also include careful control and limitation of access points located on the adjoining primary thoroughfares.
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The illustration below shows the conceptual site plan for the Town Center Area developed through the charrette process. It should be noted that subsequent to this process additional land located east of State Road and north of the area shown was added to the area considered to be part of the Town Center Area. It would be expected that similar design principles would apply in this area as well.
.
One final key feature of the Land Use Plan is worth noting. As a general policy, most residential land in the southern part of the City is designated as Rural Residential. This area basically coincides with areas not now served by sanitary sewer. As a policy, this Plan envisions those southern areas remaining as Rural Residential for the purpose of controlling unabated population growth associated with higher density development and its related consequences, including: • The financial strain imposed upon the City by single family residential development for providing basic city services, particularly in the face of substantial projected operating deficits as found in the City's Financial Analysis and Cost of Services Study, February, 2004, by Strategic Public Policy Inc.; • The risk of an acceleration and increase in enrollment pressures on city schools beyond the school system's design capacity as illustrated by DeJong & Associates, Inc. for the North Royalton City School District; • The risks associated with building residential neighborhoods along severe slopes, flood plains, and wetlands as documented by Wilbur Smith Associates on behalf of the City; • Increased traffic volumes on two lane roads causing significant over capacity of infrastructure as documented by the Cuyahoga County Engineer's 1999 Traffic Volume Study. It is also a recognized possibility that any mandated extension of sanitary sewers in these areas poses a risk to the existence of large lot Rural Residential zoning. Any other zoning outside of Rural Residential zoning in the southern part of the City could increase density and risk exceeding the City's population growth projections of 38,388 residents by 2010. It is the goal of this Plan that these areas remain essentially Rural Residential in character. North Royalton Master Plan - 2004
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