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FORWARD >>>

TOLEDO

Comprehensive Land Use Plan City of Toledo

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[Cover Page Photo Source: Metroparks; Inside Cover Photo Source: Arts Commission | Ben Morales]

FORWARD TOLEDO Comprehensive Land Use Plan City of Toledo

Acknowledgements

Wade Kapszukiewicz, Mayor

City Council Members John Hobbs III, District 1 Adam Martinez, District 2 Theresa Gadus, District 3 Vanice S. Williams, District 4 Sam Melden, District 5 Theresa Morris, District 6 MacGregor Driscoll, At-Large Carrie Hartman, At-Large Brittany Jones, At-Large Nick Komives, At-Large Cessandra McPherson, At-Large George Sarantou, At-Large

Executive Committee Members Rosalyn Clemens, Department of Housing & Community Development Kenneth Fallows, Former Plan Commission Brandon Rehkopf, City Plan Commission David Mann, Lucas County Land Bank Sam Melden, City Council Joshua Murnen, Lucas County Land Bank Karen Poore, Deputy Mayor Tina Skeldon Wozniak, Lucas County Commissioner

Planning Commission Members Brandon Rehkopf (Chair) Kristopher Ball (Vice Chair) Eric Grosswiler Rachel Momenee Emory Whittington III

Plan Commission Staff Thomas C. Gibbons, Director Lisa Cottrell, Deputy Director Joshua Lewandowski, Senior Planner Ryne Sundvold, Senior Planner Mara Momenee, Planner Logan Dickson, Intern Safakat Siddika, Intern

Consultants Toledo Design Collective Jonathan Latsko Molly Burns

Leadership Toledo Signature Program Danny Royer, Libbey Jay Smith, The Anderson’s Allie Greiwe, ProMedica Michael Kolena, O-I Glass Taylor Fitchpatric, TARTA Alex Simmons, Rehmann

An additional acknowledgement to all the community stakeholders and City staff who assisted in the building of Forward Toledo. This includes those who attended meetings, provided input through surveys, shared Forward Toledo events and activities with others, reviewed drafts, offered comments, and added content. A special thank you to the staff of the Toledo-Lucas County Plan Commissions, former and present.

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Acknowledgements

Individual Committee Members

Place Robert (Bob) Mendenhall, Toledo Public Schools Malcom Cunningham, Ebeid Center Andrew Newby, AVATAR & Toledo Spirits Kenny Farrar, JumpStart Margie Traband, University of Toledo Chad Olson, Lucas Co. Dept. of Planning & Development Lee Daher, IN/KY/OH Regional Council of Carpenters (IKORCC) David Zavac, Congresswoman Marcy Kaptur

Build Mike McIntyre, Maumee Valley Habitat for Humanity Ambrea Mikolajczyk, Ark Restoration Adam Martinez, Toledo Hispanic Credit Union Brandon Sehlhorst, Dept. of Economic Development Elizabeth Ellis, Toledo Design Collective Andy Knopp, Thomas Porter Matt Lewandowski, Lewandowski Engineers Ryan Miller, Reichle Klein Group Stephanie Shackelford, Lucas County Land Bank Joe Marck, IBC Properties

Play Michael Lyman, First Hospitality Jennifer Van Horn, Toledo Zoo Steve Atkinson, Toledo Bikes Joe Fausnaugh, Dept. of Parks & Youth Services Ryan Bunch, United Way Toledo Mike Deetsch, Toledo Museum of Art Steve Miller, Huntington Arena/ Glass City Center Shannon Hughes, Metroparks Toledo Amelia Gibbon, Reinvest Toledo Taylor Burciaga, Sofia Quintero Art & Cultural Center

Sustain Heather Judge, LEED AP, SSOE Tim Bockbrader, LEED AP, EDGE Melissa Hopfer, Lucas Co. Sustainability Commission Rob Krain, Black Swamp Conservancy Cathy Schrein, Somerset Env. Science Dept. Erin Claussen, Toledo Revival & Preserve! Toledo, Heritage Ohio Amy Stone, Ohio State University Extension Yvonne Dubielak, Toledo Grows Amy Abodeely, Toledo Lucas Co. Health Dept.

Move Rachel Momenee, The Collaborative Lance Dasher, TMACOG Keith Webb, We Are Traffic Aaron (Babar) Stelzer, Div. of Engineering Services Sean Burnett, Div. of Transportation Sean Smith, TARTA Katie Hunt Thomas, The Ability Center of Greater Toledo Richard S. Martinko, Richard Martinko Consulting

Ordinance

Adopted by Ordinance 430-24 on September 11, 2024.

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4 FORWARD TOLEDO PREFACE

Table of Contents

• Mayor’s Letter 6

• Introduction 7

• Planning Process 12

• Public Participation 19

• Overview of Five Themes 26

• Plan Goals 31

• Build 33

  • Promote Housing Variety 34
  • Historic Impacts on Neighborhoods 37
  • Improve Decision-Making 40
  • Quality Design 43
  • Create Unique Places 47
  • Building Preservation 53

• Move 59

  • Increase Connectivity 60
  • Support Public Transit 63
  • Expand Right of Way Use 66
  • Logistics Hub 70
  • Walkable Neighborhoods 74
  • Accessibility Opportunities 77

• Place 81

  • Attractive Place to Live 82
  • Strengthen Neighborhoods 86
  • Addressing Housing Affordability 89
  • Business Creation 93
  • Funding Big Ideas 97
  • Expand Areas for Manufacturing 100
  • Workforce Opportunities 103
  • Inclusive Communities 107

• Play 111

  • Park Access 112
  • Support Creative Economy 116
  • Promote Recreational Opportunities 119
  • Highlight Regional Tourism 123
  • Support Childhood Development 127
  • Encourage Social Opportunities 130

• Sustain 133

  • Water Belt 134
  • Reduce Pollution 137
  • Healthy Food Access 141
  • Promote Native Plants 145
  • Preserve Open Space 149
  • Improve Tree Canopy 153
  • Energy Efficient Development 156

• Future Land Use 159

• Future Land Use Designations 168

  • Low Density Residential 171
  • Neighborhood Residential 172
  • Neighborhood Mixed-Use 173
  • General Commercial 174
  • Downtown 175
  • Low Impact Industrial 176
  • High Impact Industrial 177
  • Park Land 178
  • Public Space 179

• Special Categories 180

  • Institutional 180
  • Utilities 181
  • Water Belt 182

• Implementation 183

• Appendices 202

Mayor’s Letter

Dear Toledoans:

I’m excited to present Forward Toledo, a roadmap for Toledo’s future. In these pages you will find the goals and strategies that will guide Toledo’s development over the next ten to twenty years. These priorities will shape our city in ways we can only begin to imagine. Toledo’s bicentennial is in 2037, and I believe that with this document we are positioned to be a city where more and more people choose to belong: an inclusive and equitable city.

Your vision, our action: Forward Toledo reflects the aspirations of thousands of residents and stakeholders from all corners of our community. I’m grateful for everyone who participated in its creation, and I value the partnerships we’re building to bring this vision to life through the implementation of this plan. Partnerships that will not only expand on the many great things the city has accomplished, but a broader collective responsibility to move our city forward and preserve it for future generations.

Vision Plan: This Plan’s vision is for a future Toledo that will encourage density and more options for housing, transit and alternative modes of travel, walkability and sustainability. Focusing on all areas of the city, this Plan aims to preserve the historic character and vision of our neighborhoods while promoting quality developments that will support existing planning efforts.

Hopefully, you will see as I do that Toledo’s future is bright!

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Sincerely,

Wade Kapszukiewicz Wade Kapszukiewicz Mayor of Toledo

Introduction

Forward Toledo is a document that will guide development and planning in Toledo for the next decade and beyond. It is our community’s collective statement on who we want to be and how we would like to grow as a city.

This is the third time Toledo has completed a land use plan. The last two plans were completed in 1951 and 2000. Planning on this level allows the City to evaluate and prioritize big picture goals and outcomes while taking active steps to achieve them. The smallest decision now can have a profound impact down the road, which is why planning is important. Without a plan, many opportunities for improving the City are easily missed.

Ideally this type of planning would occur more frequently. The fact that it has only happened two other times in Toledo’s history underscores the unique opportunity the community has to shape the priorities of the city for years to come. It is also a chance to reflect and learn from previous planning efforts to ensure this plan achieves its goals.

One lesson learned is that previous plans had many goals with narrow definitions of success, which made them difficult to achieve (e.g., “Toledo’s population will approach 400,000 by the year 2020.”). In addition, former plans gathered substantial public input that shaped the final document, but the plans did not clearly demonstrate the ways this input influenced the plan.

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[Toledo completed two previous land use plans in 1951 and 2000.]

“Without leaps of imagination or dreaming, we lose the excitement of possibilities. Dreaming, after all is a form of planning.”

-Gloria Steinem

Introduction

The Forward Toledo plan: 1) more directly incorporates public input into plan priorities (e.g., feedback as votes) and 2) increases success by building around broader goals and strategies. This approach allows a wider range of paths to successfully implement goals and it offers greater collaborative potential. These ideas will be explored in more detail throughout the plan (See Goals section).

This planning effort was kickstarted with an exploratory assessment for Toledo, completed by the Smith Group in December 2020. It explored local data along with national trends and made five recommendations for this comprehensive plan. Those ideas heavily influenced the initial goals of Forward Toledo.

It is important to note that while Forward Toledo explores a wide range of topics (e.g., economic development, tourism, the environment, childhood development), it is primarily a land use document. Many of these topics are vital for the success of a community, but their implementation frequently happens outside of planning, zoning, and development.

Toledo’s demographics follow the declining trends across the Midwest. According to Decennial Census data, between 2000 and 2020 the population declined by 42,748 from 313,619 to 270,871 (a 13.1% decline), and housing units decreased by 7,817 (-5.5%). Lucas County as a whole saw a smaller population loss from 446,158 to 431,279 (-3.4%) and it experienced an increase in 3,888 units (1.9%).

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[The five strategies of the Exploratory Assessment: Driving Mobility, Return to Glass City, Toledo Innovation City, Urban Village, and Water Belt City.]

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Population by Census Tract

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Housing Units by Census Tract

The majority of the losses in Toledo have occurred in central city neighborhoods where some of the oldest housing stock exists in the City. Many of these neighborhoods face challenges supporting new single-family housing.

The stabilization of central city neighborhoods is crucial if Toledo is going to meaningfully address its population decline. There is momentum and opportunity near downtown Toledo, where most of the growth in new units and population has occurred. This activity can serve as a stabilizing anchor for adjacent neighborhoods. A great example is the redevelopment activity occurring along Summit Street in Vistula, north of downtown. Stabilization is also happening around housing partnerships like in the Junction neighborhood with the Junction Coalition, City of Toledo, and Habitat for Humanity.

[The census tracts with the lowest populations and fewest housing units are primarily found in central city neighborhoods. Population (left) and housing (right).]

Development activity brings many positives, but also challenges as the cost of housing generally increases throughout the area. This has the potential to displace many residents who have called these older neighborhoods home as rents rise to keep up with new development activity. Forward Toledo includes recommendations and strategies with this concern in mind.

Introduction

City of Toledo Race Demographics (2020)

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Demographically, the biggest racial change over the past twenty years was the increase in the percentage of African American residents and those with two or more races at 16%, offset by a decline of white-only residents.

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[African American residents and those with two or more races become a larger percentage of Toledo in 2020. Source 2020 Decennial Census]

Type of Households in the City of Toledo, 2000-2020 (Decennial Data)

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[One person households make a larger overall percentage of Toledo residents in the past 20 years. Source: Decennial Census.]

Introduction

Another significant change during this period was the increase in the number of one-person households. Family households declined 19.2% between 2000 and 2020, while one-person households increased 5.9%. They also make up a larger percentage of all households in Toledo at 41% compared to 27.6% nationally for 2020. This shift in single person households doesn’t account for all of the family household decline, but it does reflect a broader demographic trend occurring nationally. Toledo’s smaller and more affordable housing stock appeals to single occupants or non-traditional households, compared to families looking for more space and amenities found in newer communities. The availability of land in central city neighborhoods around downtown can help address new housing options. This becomes an opportunity to increase the appeal of living in Toledo by capitalizing on the proximity of downtown entertainment and easy access to the waterfront.

While Toledo isn’t without its obstacles, the data also reveals exciting possibilities. If Toledo is going to address its population decline it cannot maintain the same policies and ideas that led to this situation. That is why the Forward Toledo plan, informed by residents, businesses, and local experts, outlines 33 goals and over 100 actionable strategies. This roadmap reflects our shared priorities and paints a vibrant picture of Toledo’s future.

"Affordability and updated housing is an important part of moving Toledo forward. Making connections to our waterways for people. Developing sustainable infrastructure that is connected to greenways."

-Resident

Forward Toledo Survey Response

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Planning Process

As a result of the Exploratory Assessment (see Introduction), a model for the Comprehensive Plan was created using the five identified strategic opportunities.

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The Forward Toledo team avoided planning terminology when summarizing the themes of the plan in order to make this plan accessible to the widest audience possible. Five Themes: Build, Move, Place, Play, & Sustain were selected to show the interconnected nature of the ideas within the plan.

Planning Process

The planning process began in Fall of 2021 with an Executive Committee, comprised of members from various administrations of City and County Government; » Office of the Mayor » Toledo City Council » Toledo City Planning Commission » Dept. of Housing and Community Development » Lucas County Commissioners » Lucas County Land Bank

The Executive Committee provided high-level guidance throughout the planning process from the Exploratory Assessment to the Forward Toledo document. Smaller sub-committees were created for each of the five themes and included individuals knowledgeable of the subject field. These sub-committees met over a six-month period to discuss and prioritize the ideas, goals, and strategies for each theme. The intent was to provide a starting point for seeking public input. Nearly 50 individuals were involved in helping to shape and inform the discussion for public engagement.

Each of the Goals and supporting strategies are connected to land-use planning and included maps/data figures/case studies to “set the stage” in public discussions. Once the goals and strategies were drafted by the committees, the Forward Toledo team began public engagement through neighborhood meetings and community outreach, as discussed in the Public Participation section.

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Planning Process ≫≫≫≫

Forward Toledo Timeline

July, 2020 – Dec, 2020 Complete Strategic Assessment “Forward Toledo”

Nov, 2021 – May, 2022 Host Committee Meetings Determine Initial Priorities

Sep, 2022 – Jan, 2023 Host Public Meetings Engagement & Feedback

May, 2024 – August, 2024 Public Feedback on Plan Finalize Plan Adoption by City Council

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Jan, 2021 – Oct, 2021 Prepare Data Establish Committees

June, 2022 – Aug, 2022 Finalize Initial Priorities Prepare Public Meetings

Feb, 2023 – Apr, 2024 Analyze Results Host Final Public Meetings Prepare Draft Plan

Plan Adoption Process

60-90 Day Process including a public comment period.

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After public participation, a formal draft of the plan was constructed and presented for a public comment period (45 days) following the plan adoption process. The plan was reviewed by the City Plan Commission, Toledo City Council, and the Mayor’s Office before being adopted as the city’s third Comprehensive Plan.

Public Participation

For Toledo, By Toledo, Forward Toledo.

The Forward Toledo plan included a nine-month process for public input starting with a media press conference in September 2022. The focus for outreach was to think beyond traditional public engagement, with the aim of increasing accessibility by meeting people where they are already active or present. A total of 39 different engagement events were held, ranging from presentations at neighborhood meetings to temporary pop-ups at community events. An overview of the themes and goals of the plan was discussed and the public was encouraged to provide input online or through in-person surveys. Public input was assessed as votes that helped support and prioritize the goals and strategies of this plan.

The Forward Toledo team also published materials to encourage public input throughout the community at “Third Places”. This included coffee shops, restaurants, libraries, community centers, laundromats, breweries, taverns and farmers’ markets. This allowed for a wider reach and raised awareness about the planning process.

The following page features some of the outreach methods used.

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[Forward Toledo press conference. Source: The Blade]

Third Places: refer to the informal public gathering spaces that exist outside of the two primary domains of life: home (first place) and work (second place). Examples include cafes, libraries, parks, community centers, and bookstores. These spaces foster social interaction, community building, and civic engagement.

-Sociologist Ray Oldenburg, “Third Places: A Sociological Concept for Vibrant Communities”

Public Participation ❯❯❯❯❯

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[Source: Plan Commission]

Getting the word out

English and Spanish Language posters, business cards, and tri-folds were hung up in third spaces across Toledo. From community centers, to restaurants, to local businesses, residents and visitors were encouraged to engage and give input.

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Print media

Ads were run in the City Paper and The Historic Times to help reach more Toledoans.

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Social Media

Social media posts were an opportunity to both inform and encourage discussion during the planning process.

Public Participation

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Talking to Toledo

Tables at pop-ups at local community events let planning staff and volunteers hear more from the community.

[Source: Plan Commission]

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Gathering feedback

Paper and electronic surveys in both Spanish and English language were made available with drop off-points at local libraries and community centers.

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Public Participation

Public Input Survey

Forward Toledo provided multiple avenues for public input: online or physical surveys, an online interactive map, website or email feedback, and in-person community workshops. Online and physical surveys were distributed through flyers, posters and tri-fold pamphlets with QR codes at over 100 locations across the city (see map to the right). Digital newsletters and survey links were also sent to committee members, community partners, and neighborhood associations.

Survey drop-off boxes were installed at each of the fourteen (14) Toledo-Lucas County Public Library branches within the City and three (3) Community Centers. Additionally, surveys and public input materials were provided at thirteen (13) neighborhood group meetings, eight (8) pop-up events, eight (8) public information sessions, and three (3) press events to help engage the public.

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[A map of locations Forward Toledo information was distributed.]

City of Toledo 3h · 🌐

In order to engage with a broader audience and demographic, the Forward Toledo team utilized social media to increase the awareness of the public engagement process. Working with a local videographer and producer (Nick Corbin Productions), an introduction video was created to generate excitement about the plan and to provide input on this “once in generation” planning process.

The City of Toledo Marketing and Communications Department also collaborated on a social media campaign to promote the plan across the City’s social media accounts, including Facebook, Instagram and X (formerly Twitter). Thirty-four (34) posts were made over the campaign with more than 12,000 interactions and 4,713 engagements (data only from Sept. 9 – Oct. 26, 2022), with 1,051 video views and 471 post link clicks (Source: Tag Performance).

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David B.: “We should be pushing the river/lake health and tourism etc way more than we are now. It’s a highly underutilized asset.”

Public Participation

13 Neighborhood Meetings Meetings were conducted with local neighborhood associations and community organizations.

8 Pop-Up Events Informal pop-up tables were set up at entertainment events (e.g. Mudhen’s game) to engage with residents about ideas and concepts of the plan.

8 Community Events Formal presentations to community members about the goals and purpose of the plan through a series of information sessions.

3 Press Events A kick-off press conference, media briefing, and a television interview were utilized to create awareness and reach a broader audience.

7 Community Workshops Upwards of 300 residents of Toledo provided direct input on the plan’s goals and strategies.

17 Dropbox Locations Residents were able to submit public survey responses through in-person drop-off locations at public places.

370 Public Map Inputs A combination of both physical and digital maps were made available for the public to add input on land uses

3076 surveys Public surveys on the general plan themes and goals were collected from both online and in-person submissions.

Leadership Toledo

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To further expand the plan’s reach among a younger demographic, the team also applied and was selected as a session project for the 2022-2023 Leadership Toledo Signature Program class. Through the Signature Program, class participants develop a deeper understanding of the region, its strengths, and the issues it faces with the ambition to enhance the community for the better.

As part of the Signature Program, participants had the opportunity to select a 10-month session project to apply their skills and use them to improve and enrich the community. The program team selected to work on Forward Toledo, specifically to (i) assist in gathering high-quality survey responses with a target to exceed 3,000 and (ii) to summarize the resulting survey data into the top community priorities.

The final report, “Summary of Survey Results”*, provides a summary of the survey analysis and work completed by the Signature Program team over the 10-month period. The full report and analysis provided a different “outside city planning” perspective that is supportive to the plan’s overall development and implementation.

*Full “Summary of Survey Results” Report provided in Appendix D.

Public Participation ❯❯❯❯❯❯

Public Input Survey Results

In total, the public outreach campaign resulted in events that reached over 1,600 attendees, with 3,000+ surveys completed, 400 points added to the community input map, and numerous online comments and emails received. The infographic below indicates the demographic breakdown of survey participants and geographic location of survey participants. Across both parameters of age and annual income, there is representation in each adult age cohort. Additionally, the race and ethnicity of respondents (*if provided) is reflective of 2020 U.S. Decennial Census statistics for Toledo. Prominent zip code areas for survey participation included West Toledo and South Toledo.

Having a comprehensive representation of public input is critical in guiding an inclusive and equitable land use plan. Although those who took the survey only represented a portion of those who provided input, the Forward Toledo team was overwhelmed by the amount of support and participation received from over 5,000 participants who engaged with the planning process.

Who’s giving input?

Demographic Breakdown*

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To get an idea of how Toledo should look in the future, it is important to make sure the voices heard in this plan are as diverse as the City.

Goals & Strategies

Ranked from Public Input Survey Results

From the more than 3,000 surveys submitted, analysis was completed on the topmost selected goals and strategies created by the committees. There were opportunities for detailed answers in the topical surveys that provided additional context behind the public’s thought process. Those answers and the overall rankings will help shape the priorities and implementation of Forward Toledo. Below is a selection of qualitative comments received with the top 10 goals prioritized by the public input surveys.

Top Priority Strategies

Below are the strategies which receive the most support from survey votes, as noted in parenthesis, categorized by theme.

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Additional Survey Responses

“We need to rethink our attitudes toward pollution and the role we can play in reducing it.”

“If Toledo wants to get back to 300,000 residents, it will need new housing; and not just ‘affordabe’ housing.”

“Gradual push to mass transit. Make it so people do not need to drive. Concentrate on a tight, little area. Really perfect it and it will serve as the model. Shrubs and greenery in any unused places.”

Public Participation

Community Workshops

In the Spring of 2023, after the completion of the public input survey analysis, the Forward Toledo team worked with the Toledo Design Collective to host seven (7) interactive community workshops around the City. The workshops were conducted to present the goals and strategies based on the survey results and provide additional opportunities for engagement. The aim of the workshops was to allow the public to interact with all proposed goals in the plan. If citizens or members of the public had not engaged with the survey, this allowed them to see the overall responses from the public and formulate their own ideas on how to achieve the goals and strategies.

The workshops consisted of three stations with a mapping component at the end. The stations provided increasing levels of complexity starting with an overview of different land uses, moving to related goals, and then to related strategies. Participants could choose particular land use categories that interested them or they could work through each category. The final step was interacting with a proposed future land use map using the categories explored in the activity. Participants would use their knowledge of specific areas to make suggested changes.

Over the course of two months in April and May 2023, more than 300 attendees participated in the community workshops, submitting over 800 responses on potential priorities for the goals and strategies in the plan. Notices were sent in the physical mail to nearby residents, through postings at libraries and other community spaces, and online postings through social media.

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Public Participation

Goals & Strategies

Ranked from Community Workshops

From the more than 800 responses submitted at the community workshops, analysis was completed on the topmost selected Goals and Strategies from public input. Quantified similarly as the public input survey results, the 33 Goals were then ranked in order based on community workshop input with the top 10 listed below. The feedback we received was incorporated with the survey data and helped shape the priorities from the plan in the implementation section.

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Public Participation »»»»»

Future Land Use Map Input

As part of the public engagement process, an interactive mapping component was utilized to gain input on the Future Land Use Map. As shown in the images below, the Future Land Use Map was used as a basemap for public input to be added via online interactive map comments and in-person community workshops. The input provided was then utilized in determining future land use category designations on the Future Land Use Map (see Future Land Use section). From the online interactive map, nearly 400 points were added to the map with almost 100 points being added from the community workshops.

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Comments from community workshops – 90 points

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Comments from interactive map – 399 points

[Source: Plan Commission]

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Key Findings on Future Land Use Map input: » Demolish or restore abandoned buildings. » People want to see more mixed-use development. » More recreational opportunities. » More greenery and beautification. » More walkable neighborhoods. » Promote housing variety. » Support Public Housing.

COMPREHENSIVE LAND USE PLAN 25

Overview of 5 Themes

The goals of this document are organized into five areas or themes. These pages are the primary focus and emphasis of this plan. Each theme has a series of associated goals, and every goal page includes supporting analysis and data on its importance, as well as a list of potential strategies for implementation. The ideas contained within this section were designed to be broad enough to have applications not only for planning and development in Toledo, but for other organizations, governmental departments, businesses, neighborhoods and residents.

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BUILD MOVE PLACE PLAY SUSTAIN

Overview of 5 Themes

BUILD >

Focus: Development, Placemaking, Building Preservation

Description: Build addresses housing through increased units and incentives. It prioritizes placemaking and preserving the distinct neighborhoods and buildings that make Toledo unique, with an emphasis on quality architecture for new buildings. This section also highlights how development has been imbalanced for many of Toledo's neighborhoods and ways to enhance equity.

Goals: » Promote Housing Variety » Historical Impacts on Neighborhoods » Improve Decision-Making » Quality Design » Create Unique Places » Building Preservation

Relevance: » Architects » Developers » Housing Advocates » Neighborhood Groups » Business Owners » Economic Development Professionals » Residents

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MOVE >

Focus: Transportation, Connectivity, Accessibility

Description: Move addresses all of the ways one travels throughout the community. It emphasizes a well-connected, accessible transportation system designed with pedestrians, public transit, and non-automobile traffic in mind.

Goals: » Increase Connectivity » Support Public Transit » Expand Right of Way Use » Logistics Hub » Walkable Neighborhoods » Accessibility Opportunities

Relevance: » Active Transit Commuters » Mobility advocates » Bus Riders » Neighborhood Groups » Business Owners » Residents » Engineers

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COMPREHENSIVE LAND USE PLAN 27

Overview of 5 Themes

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PLACE >

Focus: Housing, Neighborhoods, Economic Development

Description:

Place is the broadest theme and addresses housing and housing affordability, neighborhood strength and vitality, economic development activity, and quality of life issues like education, jobs, safety, and accessibility.

Goals: » Attractive Place to Live » Strengthen Neighborhoods » Addressing Housing Affordability » Business Creation » Funding Big Ideas » Expand Areas for Manufacturing » Opportunity Access » Inclusive Communities

Relevance: » Housing Advocates » Neighborhood Groups » Business Owners » Economic Development Professionals » Educators » Residents

PLAY >

Focus: Recreation, Social Activity, Tourism

Description:

Play addresses the ways residents use land for recreational and social purposes and looks at strategies to strengthen those connections. The role of tourism and art in the region is also explored.

Goals: » Park Access » Support Creative Economy » Promote Recreational Opportunities » Highlight Regional Tourism » Support Childhood Development » Encourage Social Opportunities

Relevance: » Artists » Outdoor Advocates » Tourist Industry » Neighborhood Groups » Business Owners » Residents » Youth Educators

SUSTAIN >

Focus: Green Space, Rivers & Lake Erie, Food Access, Environment, Sustainability

Description: Sustain addresses the environment and the way that development of land and buildings can contribute to or help mitigate pollution and other environmental concerns. Heavy emphasis is placed on the preservation of open space and native plantings, along with strategies to improve the efficiency of development. Connections to food and food access are also explored.

Goals: » Water Belt » Reduce Pollution » Healthy Food Access » Promote Native Plants » Preserve Open Space » Improve Tree Canopy » Energy Efficient Development

Relevance: » Environmentalists » Ecologists » Outdoor Advocates » Architects » Neighborhood Groups » Business Owners » Residents

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Overview of 5 Themes ≫≫≫≫≫

Related Plans

The ideas contained in the plan do not occur in isolation. The following examples highlight some of the work that has occurred in the City and its relationship to the Forward Toledo Plan.

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Together Toledo, published by the City of Toledo Department of Neighborhoods, provides a guiding framework for improving housing opportunities within the city over the next 10 years. This document reflects many of the goals within Forward Toledo, including increasing housing affordability, diversifying housing, and advancing racial equity.

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TARTA and Forward Toledo both aim to increase mobility options for Toledo residents through supporting improvements in the City's public transit system. As TARTA responds to shifting demographics and changes in the way we live, work, and travel, Forward Toledo can offer support through promoting housing density, transit-oriented design guidelines, and public infrastructure.

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LISC Toledo's 2020-2025 Strategic Framework shares Forward Toledo's focus on generating new opportunity in disinvested neighborhoods. This includes increasing development and rehabilitation of our community's housing stock, investing in disadvantaged businesses, and building awareness of social determinants of health.

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Toledo Vision Zero reinforces the transportation goals of Forward Toledo, with an emphasis on decreasing the number of traffic-related deaths and injuries in the City. Through strategies like creating more complete sidewalk networks and implementing traffic calming or safety measures, this plan provides a pathway for a safer and more connected community.

There have also been a number of localized neighborhood planning efforts since the previous Toledo 20/20 Comprehensive Plan was approved. These plans were prepared at the neighborhood level and include specific recommendations that are worth referencing as planning efforts continue.

Completed List of Neighborhood Plans:

» Monroe Street Corridor Plan 2003 » Connecting the Pieces 2009 » Cherry Street Legacy Plan 2010 » Dorr Street Corridor Vision Plan 2010 » Toledo Strategic Plan for Arts & Culture 2015 » Middlegrounds Plan 2015 » City of Toledo Bike Plan 2015 » Downtown Toledo Plan 2017 » Warehouse District Plan 2017 » Old South End Master Plan 2017 » Junction Neighborhood Master Plan 2018 » Uptown Master Plan 2019 » Vistula Neighborhood Master Plan 2020 » Monroe Auburn Master Plan 2020 » Garfield Community Plan 2021 » Englewood Community Plan 2022 » Downtown Toledo Plan 2023

Reading This Plan:

The following pages provide background and implementation strategies for each goal of Forward Toledo, organized by theme. Just like all of the parts of a city are connected, the goals and strategies of this plan support each other. The amount that individual goals support other elements is noted at the end of each goal.

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A. The name of each goal starts each section. B. The tabs track the theme for each goal. C. Each goal ends with strategies the city will use to accomplish each goal. A full list of strategies can be found in the implementation section. D. The amount of overlap the goal has with other themes in the plan is indicated by icons. E. Citations and additional resources are listed on the final page of each goal.

[Source: Arts Commission of Greater Toledo - Brad Feinkopf]

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[Source: Lucas County Land Bank]

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BUILD ≫≫≫

Strategies for the design and use of structures with a focus on housing affordability.

BUILD 1

Promote Housing Variety

Promote a diverse variety of well-designed housing to meet the residential needs of all Toledo citizens.

Housing options and costs are a serious concern, especially if Toledo hopes to stabilize and grow its population. The cost of housing is influenced by a variety of factors including: location, housing supply, housing type, and occupancy status. Creative approaches are needed to encourage and incentivize new housing that meets the needs and budgets of all Toledoans and those looking to move here.

The city of Toledo has lost over 14,000 residential structures in the past thirty-five years while new residences were built at only half that rate. Over the past five years there have been fewer than 200 new residential structures built.¹

Part of the challenge with the construction of new housing is cost as this plan points out in the Addressing Housing Affordability goal. The gap between new housing construction costs and affordability in Toledo creates an opportunity to preserve existing housing stock through renovation and rehabilitation in historic neighborhoods. The most affordable home in a community is often the one that is already built.

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[Demolitions in Toledo between 1985-2021. Source: City of Toledo]

Promote Housing Variety BUILD 1

Demographic trends are also shifting demand as households move from families to single occupancy. The ten-year comprehensive housing plan completed in 2021 by the City of Toledo found that 65% of homes within the city are detached, single-family structures. The plan estimates that two out of every five single dwelling units are occupied by one person.¹

Providing a variety of housing options would assist with demographic changes while also addressing the need for overall housing units. The housing plan identified the need for an additional 12,705 affordable units in the Toledo area.²

The most common type of new housing project within the City are large apartment buildings. These projects are appealing to developers that can build more units at lower cost, but are often out of place with the surrounding neighborhood due to the size and number of units.

There are a range of housing types that fall between single-dwelling homes and apartment buildings in terms of scale and density. A variety of housing types would provide more affordable housing options while creating additional opportunities for home ownership. Housing types between single-family homes and mid/high-rise apartments are referred to as the “missing middle” because they are not built as often in U.S. cities. This housing does not necessarily need to be new. There are also opportunities to enact policies that support the conversion of existing homes into additional units in parts of the City.

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“Missing Middle’ housing

Promote Housing Variety

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The most appropriate place for these types of developments will vary depending on the community or neighborhood. In Toledo, the focus for missing middle housing is primarily along major roadways, which could be expanded depending on the number of units proposed and how the development impacts the surrounding neighborhood. This is especially true for less intense housing options such as duplexes, triplexes, and quadplexes.

Often the most noticeable impact from less intense redevelopment (e.g., 1-4 units) has less to do with the number of units and more about how it is designed. Communities across the U.S. are finding success addressing those concerns with design standards for infill development. This is a strategy that Toledo will explore.

Housing issues are not likely to improve over time without trying different approaches to address a longstanding challenge facing many communities across the U.S., including Toledo. Incentivizing “missing middle” housing options is one way to address the shortage of high quality, affordable housing in the community.

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Promote Housing Variety:

» Encourage a variety of housing sizes and units along major streets and business corridors.

» Partner with homebuilders to better understand their issues or barriers with development.

» Encourage and incentivize affordable housing units as part of new housing developments.

» Revise property lot size requirements to accommodate a wider variety of development projects.

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Collaborate on marketing opportunities that promote living in Toledo to a broad diversity of individuals and families.

» Engage neighborhoods in workshops that are focused on explaining concepts from the plan (e.g. missing middle housing).

Historic Impacts on Neighborhoods

Explore the impact of historical policies on neighborhoods in terms of land use, including redlining and cyclical disinvestment, and implement corrective policies.

Historically, development in Toledo has not been equally distributed. Neighborhoods within the central city face repeated problems from disinvestment, leading to a reduced quality of life for residents. Disinvested neighborhoods are often disproportionately near low-income households and communities of color. Areas in the city most at risk from continued disinvestment are identified to the right in the map. The boundary was established by analyzing demolition permits, tax status, and new construction.¹²³

Disinvestment can present itself in many forms: limited access to healthy food, availability of well-paying jobs, high vacancy rates with deteriorating buildings, and crumbling infrastructure. Many of these conditions are the outcomes of historical policies and land use decisions, such as redlining lending practices, urban renewal, freeway construction, and sprawling suburban development with fewer, more expensive units.

However, present policies continue this cycle of disinvestment and must be corrected. One corrective policy explored by Detroit, MI was the idea of “Mix Tape” zoning which focuses on overcoming barriers to development and reinvesting in neighborhoods.

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[A map showing a priority area where demolitions and tax delinquencies are high and new development is low. Source: Toledo Lucas County Plan Commissions.]

Historic Impacts on Neighborhoods

BUILD 2

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Prior to construction of the highway, the Junction Neighborhood was dense, connected, and had a strong mix of commercial and residential uses.

Source: Toledo-Lucas County Plan Commissions

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[Source: Plan Commission]

Historic Impacts on Neighborhoods

The City of Detroit implemented zoning changes that, in combination with other development incentives such as TIF and tax credits, created new entrepreneurial pathways for disinvested neighborhoods. By allowing a mix of commercial and residential uses and minimizing potential needs for variances, Detroit aims to encourage the creation of more desirable land uses along neglected commercial corridors. The goal is to allow easier entry to the market and serve as a catalyst for those willing to be first entrants into an underserved area.¹

The City of Toledo could explore similar policies to “Mix Tape” zoning in historical commercial corridors that have suffered from a lack of investment. Policies would need to be context sensitive to the neighborhood and provide an attractive incentive to invest where others would not.

Another strategy is to track and assess where development is occurring, the type of project, and how incentives are being distributed on a yearly basis. The yearly publication and review of this information would be a positive first step to ensure we are taking equity seriously as a community. Through this review the City can begin to address years of disinvestment by identifying inequitable trends in decision-making. By embracing new policies to address historical impacts, adjusting regulatory processes, and developing new metrics of success, the City can take significant steps to improve Historical Impacts on Neighborhoods.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to address Historic Impacts on Neighborhoods:

» Encourage public investments for the most underserved areas in the City.

» Identify regulatory barriers with developing non-traditional housing.

» Support mixed use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Ensure that all neighborhoods have equitable access to quality parks and open space.

» Reduce vacant storefronts in neighborhoods by completing a land use analysis to understand the needs of the local economy.

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Explore “quick permit” zones with an emphasis on underinvested areas that make it easier to open up a business (e.g., Detroit’s Mix Tape Zones).

» Explore efforts to open independent grocery stores and prioritize in areas where vehicle ownership is low.

» Review neighborhood quality metrics (e.g., crime, income, population change) on a yearly basis to track the effectiveness of planning strategies.

BUILD 3

Improve Decision-Making

Promote efficient and effective land-use planning that is proactive instead of reactive.

Planning is a collaborative process that must be forward thinking to be effective. Responding to changes as they appear without considering the broader implications will negatively impact the long term health of Toledo. This is the difference between being reactive and being proactive.

To do this well, proactive land-use planning needs to consider a multitude of factors beyond the proposed development location. It requires understanding the city, its neighborhoods, the needs of the residents and business owners, and an awareness of the national economy, market forces, and other trends.

Case in point: in 1999 less than 1% of retail purchases were made online, by 2023 that had grown to 15.1%.¹ Online purchases are expected to increase in the coming years, resulting in lower demand for brick-and-mortar commercial space. That changes how a community approaches the allocation of land for commercial purposes. Without population growth or wage increases, new commercial spaces shift demand from existing buildings resulting in empty, vacant storefronts.² Awareness of these types of trends can result in better decision-making when considering whether or not to increase commercial space in the City. For that reason, a single zone change can have a ripple effect throughout the city.

One strategy to improve decision-making is the completion of a detailed land use analysis for commercial and industrial space. As explored in the Expand Areas for Manufacturing goal, industrial space is presently in demand. An industrial land use analysis allows the city to explore changes in the land required for expansion by industrial users, and to understand the stock of land available in the City for industrial growth.

Another strategy would be to review industrial land use categories, with a focus on the impact of new and emerging industrial uses. Many modern industrial businesses have lower impacts (e.g. noise, traffic) than in the past and may be appropriate in more locations. The land use analysis combined with revised categories would provide decision-makers with the information needed to make key development decisions and the tools to implement better land-use policies.

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“Toledo should do more to capitalize on our industrial base with emerging technology trends such as semi-conductors, nano-technology, or genetics.” -Michael B.

40 FORWARD TOLEDO GOALS

Improve Decision-Making | BUILD 3

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Zoning codes, subdivision regulations, and other development standards and permitting processes have grown increasingly complex with time.³ However, it is not without purpose: these reviews are important and consider a wide range of impacts such as stormwater runoff, environmental concerns, or broader community issues. The creation of a City development contact who knows the detailed process of permitting would greatly assist in navigating the system and starting a new business in the City. There are also opportunities to review and streamline existing City processes. The City would benefit from a review of these processes which can easily accumulate over time.

The City took steps to address this in 2019 with the creation of the Commissioner of Business Services, but the issues discussed in this page are only a fraction of what that position addresses. A full time development liaison position would be a substantial benefit for the city given the number of issues that can occur during project review.

“Quick Permit” zones, as discussed in the Historic Impacts on Neighborhoods goal, also help to streamline the approval process without sacrificing the quality of new development.⁴ These priority zones would encourage development in struggling areas as a catalyst for larger change while also reducing development time. This will require an adjustment from multiple departments around decision-making, goals, and impacts to rules or regulations. It is worth exploring what might be possible, especially in light of the prioritization of the Support Business Creation goal by the public.

By improving decision-making for land use planning, Toledo can utilize shifting social, economic, and environmental landscapes to its advantage. Rather than awaiting exterior forces to shape Toledo, its residents are empowered to build a city that meets the goals outlined in this Comprehensive Plan.

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COMPREHENSIVE LAND USE PLAN 41

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[Improved decision-making can help to bring vibrant businesses to Toledo’s older buildings. Source: City of Toledo]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Improve Decision-Making:

» Strengthen the relationship between City departments, developers, and small businesses.

» Establish a City development contact that can assist with building permit issues and accelerate the review of projects.

» Explore “quick permit” zones in underinvested areas that make it easier to open up a business (e.g., Detroit’s Mix Tape Zones).

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Complete a land use analysis to locate sites that would best be repurposed for industrial uses.

» Create and revise land use categories for modern industrial uses that best support the local economy with minimal impacts on neighborhoods (e.g., number of employees, traffic, noise).

BUILD 4

Quality Design

Explore how design impacts neighborhood perception and analyze past and potential efforts to improve the design of sites in Toledo.

Numerous planning studies have explored the connection between neighborhood perception and the conditions or quality of existing buildings in an area. The general consensus is that design matters.¹ In fact, there are even recommendations that show how certain design features (e.g., storefront windows, lighting) can influence or mitigate crime.²

In 2004, the City of Toledo adopted design standards for new construction projects. The goal was to enhance neighborhood appearance, encourage attractive street fronts, accommodate a variety of travel modes, and create higher quality developments.

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“Commercial centers should be well-lit, safe, and appealing to perspective customers.” -Jess W.

[City of Toledo sites before (left) and after (right) development standards. Source: Google Street View]

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Quality Design | BUILD 4

The results have been successfully implemented in many areas, but more can be done to improve the design of our city. This includes developing standards to promote compact, mixed-use development, supporting multiple modes of transportation, and creating streetscapes that encourage more activity on streets.

Thoughtful design can also help establish unique areas that contribute to placemaking. This is the idea that a well-designed space can create an experience that we enjoy visiting. It encourages a developer to incorporate meaningful design elements from the surrounding neighborhood or establish standards where none exist.

Poor design can also have negative consequences for an area. Denver, CO experienced this with, “slot housing”, a popular building layout used by developers. This style of housing increases the number of allowable units, but does so by orienting a building and parking internally to a site instead of a more traditional street facing design approach.

[Denver, CO aerial images over time. Source: Google]

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2006

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2020

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[Slot house example (left). Traditional design (right). Source: Denver Planning Department]

FORWARD TOLEDO GOALS

Quality Design | BUILD 4

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Although this design provides an increase in housing units, an unfortunate consequence was the loss of neighborhood connection and community. Internal facing developments do not integrate well into an existing neighborhood and create little opportunity for connectivity and social interaction. These projects addressed the critical need for more housing but did so at the expense of the neighborhood.

The top picture on the previous page shows the older aerial with homes facing the street, sidewalk connections, front porches. The bottom picture shows the internal-facing homes that are isolated from the neighborhood.

Denver eventually prohibited this type of housing by requiring certain design elements on the front or street-facing side of the building. Examples like these are an important lesson for Toledo: the goal of increasing housing supply and affordability should not come at the expense of quality design. Development projects regardless of the type (e.g., residential, commercial) need to reflect the neighborhood context and include design elements that contribute to the community.

The Forward Toledo plan identifies multiple strategies to proactively address design quality as new housing and development occurs. Two examples include developing design standards for compact development and incorporating neighborhood identity in local planning projects.

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COMPREHENSIVE LAND USE PLAN 45

Quality Design

A next step for improving design in the city is to periodically survey the recently built projects to ensure design standards achieve the intended effect. Projects could be rated based on how well they met design objectives. As shortcomings are identified in this review process, adjustments can be made to improve development guidelines.

Toledo can achieve a higher standard of development quality. This will become increasingly important if the region is going to retain and attract residents as well improve the quality of life in neighborhoods. Well-designed spaces are part of what is driving the location preferences for younger generations, especially as they age, move, and settle into families and careers.¹

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to achieve Quality Design:

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Perform periodic reviews of completed development projects to identify best design practices.

» Highlight projects that improve bicycle and pedestrian infrastructure (e.g., result in fewer accidents, reduced speeds).

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

» Identify areas for streetscape enhancements (e.g., street trees, lighting) and coordinate with the neighborhood.

» Prioritize pedestrian design elements (e.g., street trees, lighting) in neighborhoods with a higher likelihood to walk (e.g., slower streets, collections of nearby businesses, or lower vehicle ownership rates).

» Update and/or remove minimum parking requirements.

» Require that landscaping include native plantings for all new developments

» Adopt a planting best practice guide to improve plant health.

BUILD 5

Create Unique Places

Review the importance of how well-designed spaces can positively impact or affect the people that live there (e.g., placemaking).

Toledo contains a diverse mix of neighborhoods, each with unique charms and characteristics that are rarely reproduced in present-day developments. The uniqueness of these areas in the city are recognized and appreciated by many of our residents. One of the most popular goals during public input for Forward Toledo was related to thoughtful design and ensuring that the neighborhood identity was included in local planning policy decisions.

The eclectic neighborhoods of Toledo are set apart by distinctive architecture such as the Old West End,

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A Victorian style home in the Old West End

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An arts and craft style home in the Burroughs

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Mixed-use building in the Old South End

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Mixed-use building in Library Village

Burroughs, and Old Orchard. They also include traditional urban design features like historical grid-style street layouts, accommodations for multiple transportation modes, or pedestrian-friendly main streets with mixed-use buildings like those in East Toledo, Library Village, or the Old South End.

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Mixed-use building on Main Street

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A Tudor style home in Old Orchard

Create Unique Places

As redevelopment occurs, there are risks that neighborhoods will lose many of the characteristics that make them so distinct and appreciated. Modern day construction techniques and lower cost designs put pressure on communities to accept less than ideal development projects. This should be discouraged when possible as these types of ready-made buildings may only be occupied for a few years before ultimately becoming vacant and leaving a burden on the local community and city resources.

As discussed in Attractive Place to Live residents that participated in Forward Toledo prioritized sites with distinct urban character. Some of the top reasons cited were the architecture, history or age of the building, versatility or mixed use, and pedestrian-friendly design. This feedback

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reinforces plan goals, including Create Unique Places, to ensure that new buildings are developed in a way that reflects, preserves, and enhances the character in the neighborhood.

The creation of unique places does not only apply to architecture and buildings. Smaller contributions like public art or environmental features provide a deeper integration of the natural environment. The artwork along Broadway Street in the Old South End or the proximity some neighborhoods share to Lake Erie, the Maumee River, or the Oak Openings Region are great examples of this opportunity (see Water Belt or Preserve Open Spaces). This proximity could include the type of development (e.g., marine/water-oriented or more open space/tree plantings) or site features or building designs that reflect elements of the natural environment.

“The Maumee River and Lake Erie are the reasons Toledo came to exist and to flourish. Water should be the theme of all branding of the city. It should be the theme in signage, in tourism promotions.”

-Jesse M.

[Top public priorities for new development. Source: Forward Toledo Survey]

Create Unique Places | BUILD 5

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Projects that integrate public art and natural features into the neighborhood can also support Toledo’s potential as a regional tourism destination. For example, the Glass City River Wall is one of the largest murals in the United States spanning over 170,000 sq. ft. and 28 grain silos along the Maumee River.¹ The mural’s riverfront location is best viewed from the water creating additional opportunities for regional tourism that also highlights our unique natural resource. Tourism can also be supported by connecting other cultural assets and unique areas through dedicated trails, similar to the success experienced in the city of Indianapolis (see Highlight Regional Tourism).

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[Distinct murals located along Broadway Street in the Old South End. Source: Google Streetview]

Create Unique Places —— BUILD 5

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[Image of the Glass City River Wall. Source: Glass City River Wall Facebook]

50 FORWARD TOLEDO GOALS

Create Unique Places

The River Wall is an example of an innovative way to create unique spaces. Creative use of Toledo’s existing assets and structures can turn a blank slate into an engaging amenity for residents and visitors.

Another example worth highlighting is Flyover Park in Alberta, Canada. The city transformed a relatively small and unused space near the highway into a local park with a variety of activities. Internally-illuminated art was also installed which activates the space beyond daylight hours and provides another reason to visit.¹ A project like this demonstrates the endless possibilities for the use of these otherwise idle spaces. The potential for creative and unique uses are limited only by the vision of a community.

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[A before and after look of Flyover Park. Source: Google Maps]

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[Aerial image showing the location of Flyover Park along and partially underneath a nearby highway.]

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[Image showing some of the park features (above) and illuminated light installation (right). Source: Google Works and Project for Public Spaces (right)]

BUILD 5

COMPREHENSIVE LAND USE PLAN 51

Create Unique Places

Larger-scale examples should also be mentioned as potential transformational projects. The Rose Kennedy Greenway in Boston, also known as “The Big Dig”, is one example. There, the city transformed 1.5 miles of highway in downtown Boston into a greenspace corridor for the community using a “highway cap”. The space also includes a number of scheduled seasonal activities which keeps the space activated throughout the year.

The examples provided here help to demonstrate what is possible, while encouraging us to enhance the parts of our City that are worth preserving.

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Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to Create Unique Places:

» Identify locations for creative placemaking with an emphasis on disinvested areas (e.g., landmarks or gathering spaces).

» Include individual neighborhood identity in local planning policy and highlight the uniqueness of each neighborhood.

» Support efforts that leverage Toledo’s potential as a regional tourism destination.

» Promote larger ideas and projects such as a multi-purpose trail that connects local businesses, neighborhoods, public art, and people (e.g., Indianapolis Cultural Trail) or direct shoreline access along Lake Erie (e.g., Water Belt).

» Identify corridors in the City that would best benefit from road diets and complete street improvements (e.g., fewer automobile lanes, safe space for walking, dedicated bike lanes).

» Incorporate additional design elements that connect people to places such as landscaping, green stormwater projects, or temporary low-cost changes (e.g., parklets or patio space) that improve public space.

» Honor the region’s unique natural features such as the Oak Openings Region and the Maumee Watershed through day-to-day decision-making.

» Prioritize land uses and access points along waterways that draw people to the waterfront (e.g., Swan Creek Riverwalk).

» Establish priority areas that encourage more open space integration with development projects (e.g., the Oak Openings Region).

BUILD 6

Building Preservation

Strengthen preservation strategies to maintain Toledo’s existing housing stock and commercial buildings.

Stabilizing Toledo’s building stock and finding innovative ways to reduce blighted structures and demolitions is important to maintaining Toledo’s central city neighborhoods. Preservation also supports the architecture and cultural heritage that helps to make the City an appealing place to live. Preserving older buildings can support a variety of housing and business options which are both affordable and unique.

Locally recognized historic districts within Toledo (Old West End, Westmoreland, and Vistula) have standards in place to protect the style and character of the buildings within the neighborhoods. Historic districts also provide an opportunity for communities to provide input on the demolition of older buildings.¹ This helps ensure that all viable buildings and uses are explored prior to removal.

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[Central City Neighborhoods have the oldest building stock in the city. Source: Lucas County Auditor’s AREIS data, prepared by Toledo Lucas-County Plan Commissions]

Building Preservation

RESIDENTIAL PROPERTY VALUES | 2020

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These factors may contribute to the increased success of buildings preserved within historic district neighborhoods. The map to the left shows the difference in property values in and outside of the Old West End Historic District.¹

The preservation of property values has been less successful in the Vistula neighborhood. However, it should be noted that structures within a local historic district benefit from protections, including demolition, that are not available outside of the historic district.

Historic overlays are not a one-size fits all solution to preserving older buildings in the city. Programs designed to support property-owners in their efforts to rehabilitate existing structures are a form of direct intervention to safeguard neighborhoods from losing older structures that could also be considered.

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[Source: Lucas County Land Bank]

[Property values are stable within the Old West End Historic District. Source: Lucas County Auditor's AREIS data, prepared by Toledo Lucas-County Plan Commissions]

54 FORWARD TOLEDO GOALS

Building Preservation | BUILD 6

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The Land Bank has identified more than 8,700 residential properties with failing roofs.¹ More than three-million dollars have been set aside already to begin repairing over seven-hundred residential roofs in the city.² While this is only a fraction of the renovation budget needed for the multitude of neglected structures in Toledo, it represents a first step towards more programs the City can introduce to subsidize housing costs while supporting the economic independence of residents.

Identifying financial resources to support rehabilitation remains a substantial constraint for most communities. In order to support this goal, other funding avenues need to be explored. This could include building investment requirements for structures occupied as rentals or a more aggressive code enforcement department that allocates fines incurred into a housing fund to support development.

Not all of the vacant structures in the city can be preserved. Deconstruction, the act of taking a building apart without damaging the raw materials, offers an alternative to demolition that enables building materials to be reused rather than being sent to landfills or buried. A 1,500 square foot home has the potential to reclaim 4,000 board-feet of lumber and 5,000 bricks, along with sizable quantities of shingles, concrete, siding and drywall.³

A reclaimed material market reduces the cost of rehabilitation of homes which are not planned for demolition. Furthermore, deconstruction pilot programs in Wayne County, Michigan found deconstruction to be 50% more cost-effective than traditional demolition, due to the value of the reclaimed building materials.⁴

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Building Preservation — BUILD 6

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[A building in East Toledo recently renovated for an Art Gallery. Source: City of Toledo]

Developing a deconstruction industry in the City would create a greater supply of goods to restore existing structures, create jobs, and reduce demolition costs. The environmental benefits of deconstruction include reducing the carbon-footprint of new construction due to the use of recycled materials, and a decrease in waste materials entering landfills. The program could be limited in scope, possibly focusing on older structures with higher quality materials based on the year built, building type, and other assessment tools.

“I would love to open a restaurant in [a vacant storefront], but renovation costs make it prohibitive.”

-Ellie A.

As the needs of residents change, so should the way the City approaches older structures. Existing zoning laws, such as parking requirements and limitations on acceptable use make the reuse of historically commercial buildings challenging. Many older buildings were constructed before cars were popular, and therefore provide minimal parking. A strategy to encourage building preservation is reassessing zoning regulations to allow better reuse of buildings, as well as reducing regulations for local entrepreneurs, artists, and homeowners.

The preservation of the past is essential in moving Toledo forward. Successful preservation in the city shows the feasibility of this goal. Preserving buildings can offer diverse and affordable housing options. Stabilizing and redeveloping historic structures provides a sustainable development alternative to new construction. Lastly, the preservation of local history, cultural heritage, as well as art and architecture, contribute to a unique City that can embrace former successes while creating new opportunities for present and future Toledoans.

56 FORWARD TOLEDO GOALS

Building Preservation

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[A view of the Spitzer Building at the corner of Huron Street and Madison Avenue, Source: Lucas County Land Bank]

Supporting Other Themes:

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Strategies:

The City will seek to accomplish the following action steps to increase Building Preservation:

» Establish incentives and policies that encourage people to renovate instead of demolish.

» Expand dollars that prioritize the preservation of existing housing.

» Prioritize housing preservation resources for residents committed to the neighborhood.

» Develop deconstruction legislation to incentivize the preservation of structures and reduce waste headed to landfills (e.g., early 20th century buildings).

» Reuse vacant buildings for shared work space for local entrepreneurs and artists.

» Develop a housing fund to support the construction or maintenance of housing units.

1 City of Toledo, 2023. Toledo Municipal Code. Available here. 2 Lucas County Auditor, 2020. Land Value. Available here. 3 Lucas County Land Bank, 2021. 2021 Toledo Survey. Available here. 4 City of Toledo, 2023. Rooftops Repair Program. Available here. 5,6 Delta Institute, 2018. Deconstruction & Building Material Reuse: A tool For Local Governments & Economic Development Practitioners.

Source: Metroparks

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[Source: TARTA]

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MOVE >>>

Strategies on increasing connectivity, supporting public transit, and encouraging walkability.

MOVE 1

Increase Connectivity

Provide a diverse transportation network that better connects people throughout the community.

The City of Toledo is an automobile focused city with limited alternatives for transportation. Expanding options will be crucial to ensure that we are providing mobility options for all residents while attracting younger generations with changing preferences.

Nationally, younger generations are driving less and moving to areas with more transportation options.¹ Pedestrian and bicycle infrastructure, also know as active transportation, is an important part of this. If the city is going to attract and retain this demographic we will need to reflect these changing values through the built environment.

Overall there is a lack of connectivity in Toledo’s existing pedestrian and bicycle infrastructure, which is one barrier for use. In fact, 80% of our survey respondents agreed this is an issue in their neighborhood.² Seeing this need has catalyzed the Plan Commission to take a more active role in mobility.

The map to the right identifies the missing links in the network where sidewalks (yellow) and bicycle infrastructure (red) is inadequate in the City.

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[Missing Links in Active Transportation Network. Source: Toledo Lucas County Plan Commissions 2022]

Increase Connectivity ____________________ MOVE 1

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The City of Toledo is working to address this through the design and construction of new bicycle infrastructure (trails, paths, bike lanes, etc.) as part of the 2015 Bike Plan, as well as the adoption of a Complete Street Policy.¹

These actions will benefit the City over time, but there are opportunities to bridge the gap in the short term as well. Utilizing the existing network of roadways could fill in the gaps while providing safe, accessible, and convenient areas to walk or ride.

Cities like Pittsburgh and St. Louis have successfully utilized local residential streets with slower speeds and less traffic to create a citywide network of bicycle infrastructure, called “bicycle boulevards”, through simple improvements such as navigational wayfinding signage.

Bicycle boulevards or neighborhood greenways allow the existing streets to be redesigned and designated for pedestrian and bicycle traffic. Streets with a speed limit less than twenty-five miles per hour (<25mph) with continuous connection through the city become safer and convenient to access from neighborhoods and residential areas.

Expanding mobility options throughout the city benefits everyone: from residents moving around the city to visitors who want to experience the city at a slower pace. Additional implementation and prioritization of Toledo’s mobility plans and policies, along with shorter term solutions, will provide a viable alternative to motor vehicle traffic. This is an option that more people are seeking, especially younger demographics which we seek to attract.

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COMPREHENSIVE LAND USE PLAN 61

Increase Connectivity

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[A new trail provides connection through Swan Creek Metropark. Source: Metroparks]

Supporting Other Themes:

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Strategies:

The City will use the following strategies to Increase Connectivity:

» Identify locations for wayfinding signage and gateways in neighborhoods.

» Improve outcomes for projects by engaging the public earlier in the planning process.

» Support the creation of design guidelines for constructing bikeways and traffic calming devices and techniques (e.g., roundabouts, bump outs, trails, lights).

» Prioritize pedestrian design elements (e.g., street trees, lighting) in neighborhoods with a higher likelihood to walk (e.g., slower streets, collections of nearby businesses, or lower vehicle ownership rates).

» Highlight projects that improve bicycle and pedestrian infrastructure (e.g., result in fewer accidents, reduced speeds).

» Identify a network of slower residential streets that could be repurposed to encourage a range of transit options and increase overall connectivity

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (, trails, parks) or more populated areas.

» Reuse vacant lots for recreational purposes that help connect existing amenities (e.g., parks, public art, or cultural centers).

» Strengthen access between schools and public parks.

» Identify neighborhoods where social infrastructure (e.g., gathering spaces, community centers, parks) is lacking and prioritize land uses that benefit residents’ quality of life.

» Leverage existing city and regional bike trails through increased maintenance, promotion, and provision of amenities (e.g., trash cans and benches)

MOVE 2

Support Public Transit

Promote public transit through policies that encourage more housing units along key transportation corridors.

Promoting development that increases the viability, efficiency, and desirability of Public Transit is essential in the City of Toledo. The ability to move around the city freely limits how Toledoans can access jobs, goods, services, and social opportunities. A strong transit network not only allows greater access to the city for people without personal vehicles, it also reduces traffic, provides alternative options, and lowers vehicle ownership costs for Toledoans with cars.

Public transit in the City is provided by the Toledo Area Regional Transit Authority (TARTA). TARTA provides fixed-route bus service and accessible para-transit service to metro-Toledo residents. According to their 2021 Report to the Community, 81% of TARTA riders do not have access to a personal vehicle.¹

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Census data shows that public transit is not relied on to the same extent across the city. The majority of census tracts in the city contain about 0-5% of residents who use public transit; however, upwards of 15% of residents rely on TARTA in several areas including the Old South End and Olde Towne.

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[Breakdown of Current TARTA ridership. Source: TARTA 2021 Report to the Community.]

Support Public Transit

Public transit relies on dense connected networks of jobs, services, and housing in order to operate feasibly and sustainably. An increased number of people living in a given area can greatly reduce the cost of public services.[^p66-2]

Data suggests 6-8 people per acre is the minimum density needed to run a public transit system, and around 10-12 people per acre is required to properly sustain one.[^p66-3] As of 2020, 44% of census tracts had a population density greater than 6 people per acre, as shown in the following map.

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[The darker shades indicate more people living in a census area relative to the size of the area. Source: U.S. Census.]

While comparisons between census periods can be difficult, the percentage of tracts with over 6 people per acre was closer to 55% in the 2000 census. This suggests that the city has lost pockets of density over the last 20 years, making it even more challenging to support and maintain a public transit system in Toledo.

In respect to passenger rail access, Amtrak has two passenger trains that pass through Toledo on a daily basis, the Capitol Limited route runs between Chicago and Washington, DC, with stops in Cleveland and

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[Areas with the highest percentage of public transit users. Source: U.S. Census.]

Support Public Transit

Pittsburgh. Additionally, the Lake Shore Limited route runs service from Chicago to New York City through Cleveland, Buffalo, and Albany.¹ Opportunities for increasing public transit and regional rail connectivity exist with additional funding being considered for the Cleveland-Toledo-Detroit Corridor which would provide new service on an existing railroad alignment.²

One way that the City can support public transit is by prioritizing key transit corridors (e.g. Monroe, Broadway, Summit, etc.) for housing developments. Increasing the number housing units can increase the number of people per acre, which strengthens overall ridership. Integrating a mix of commercial and residential developments into strategic areas of the City will help support nearby businesses with additional customers and improve mobility options for residents beyond automobile trips.

A thriving City requires mobility options for all residents. Toledo can benefit by focusing on land use regulations that support the use and improved efficiency of public transit. Elements of these improvements include a reduction in transportation costs, less land devoted to paving and parking, and an increased access to the City and its resources for residents and visitors alike.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to Support Public Transit:

» Encourage a variety of housing sizes and units along major streets and business corridors.

» Incorporate transit-oriented design guidelines into design regulations along major corridors (e.g., mixture of residential and commercial uses, sidewalks).

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work spaces) in each neighborhood to ensure better access to good and services.

» Require additional infrastructure on development sites to expand the public transit network for pedestrians, bicyclists, or similar uses when close to existing infrastructure (e.g., trails, parks) or more populated areas.

» Update and/or remove minimum parking requirements.

» Expand mobility options that connect people to regional destinations (e.g., bicycling, rideshare, public transit).

» Identify a network of slower residential streets that could be repurposed to serve a range of transit options and increase overall connectivity throughout the City.

MOVE 3

Expand Right-of-Way Use

Understand how right-of-way design impacts travel choices and caters to all modes of transportation.

Public right-of-way (ROW) is the government controlled land that connects every property in the City. The majority of public ROW is managed and maintained by the City, with other portions being controlled by the State or Federal government. Typically, right-of-way is improved with roadways bordered by a sidewalk or public utilities.

How right-of-way is designed impacts the mode residents choose to travel, the speed at which they travel, the safety of each trip, and the way land adjacent to the ROW is valued and developed. In many U.S. cities, roadways are designed primarily for automobiles with little thought to creating safe, engaging spaces for other modes of travel.

As explored in Increase Connectivity, younger generations are moving to areas with more transportation options. They are also 9% less likely to drive than older generations.¹ Retaining and attracting this demographic is important to Toledo's long-term growth. In fact, 84% of Forward Toledo survey respondents believe the City should do more to retain and attract America's largest demographic.² The design of the ROW can play an important role in this effort.

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Aligning the objectives of multiple City departments on roadway projects is essential to ensuring right-of-way improvements reflect changing transportation preferences. This could include identifying corridors in the city that would benefit most from Complete Streets projects. Complete Streets, is a method of street planning and design which allows for the safe travel of all users (e.g., pedestrians, motorists, cyclists, transit riders, etc.).³

The City can build upon its adopted Complete Streets policy through the creation of a complete street handbook with guidelines for decision-makers and stakeholders. These guidelines could include prioritization of roadways built for different modes (e.g., walking, bicycling, public transit). A classification system could prioritize different corridors and create clear expectations for alternative modes of travel throughout the City.

Roadway design which aligns with Complete Streets goals can be implemented by allocating a percentage of Capital Improvement Project funding for the expansion of uses in right-of-way. For instance, routine roadway reconstruction could include the addition of protected bike lanes, high visibility crosswalks, bus-only lanes, and other common, relatively low-cost safety improvements for all users. Landscaping and other aesthetic enhancements should be considered as well to encourage more pedestrian trips along the ROW.

Expand Right of Way Use — MOVE 3

[An image of a street designed with and without Complete Streets policies. Source: Smart Growth America]

Safety interventions could greatly increase commuter options. A 2015 survey conducted by People for Bikes found 54% of Americans would ride a bike more frequently if they had less fear of vehicle collisions.¹ Painted bike lanes seen on streets like Bancroft Street and 17th Street are a great step and provide a space on the road for cyclists, but additional safety measures can be included for future projects to increase their use. Physical barriers between vehicles and cyclists (e.g., the cycle track down Jefferson Avenue), have been shown to increase rider safety and interest in cycling.² Additional installations like these would lead to a greater variety of options for Toledo residents and an increase in ROW use.

Expanding right-of-way use is more comprehensive than just bicycle infrastructure. The reconstruction of State Street in West Lafeyette, Indiana exemplifies the potential amenities that can be offered in a city’s ROW. The reconstruction, undertaken in 2018, included widening the sidewalks, reducing traffic lanes and lane-width, dedicated cycling lanes, improving street lighting, enhancing landscaping, upgrading transit stops, and placemaking through public art and gateway signage. Funded primarily through a TIF (Tax Increment Financing) program, the project is estimated to have contributed more than $500 million in local investment.³

Expand Right of Way Use | MOVE 3

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[The Jefferson Cycle Track (above) provides physical barriers between cyclists and motorists. Source: Plan Commission]

Due to the varying width and conditions of existing ROW, there is no one-size-fits-all solution to expanding transportation modes in Toledo. Knowing this limitation, not every project can be as extensive and comprehensive as the Jefferson Cycle Track or State Street examples.

Parcel-by-parcel redevelopment provides an alternative path to expanding right-of-way use for cohesive infrastructure projects. By amending the zoning code to allow the City to request additional land as part of development projects, Toledo can incentivize and support small public space ROW improvements.

These improvements could range from minor traffic calming measures to improved spaces for bus stops.

Over time these changes create larger impacts on safety and placemaking. Incorporating additional streetscape design elements into new developments, such as street trees and landscaping, green stormwater projects, and low-cost temporary spaces (e.g. patios and parklets), can also indirectly enhance the public right-of-way, and improve public-private spaces.

The concept of “Open Streets” presents another opportunity to expand right-of-way use. Open Streets, and the Open Street Plans which guide them, involve shutting down public ROW to all motor vehicle traffic, and provides increased pedestrian, bicycle, and multi-modal amenities.

As discussed in Encourage Social Opportunities, open streets create new gathering places for residents, visitors, and other community members. Notably, businesses have been shown to benefit from the increased foot traffic and street activation caused by Open Street programs.¹

Collaboration with city agencies and private business can improve the public right-of-way and result in more options and better spaces for Toledoans. These public space enhancements can improve many things from public health (see Reduce Pollution), to social well-being (see Walkable Neighborhoods), to improved youth development outcomes (see Support Childhood Development), or by creating interesting places that people want to be (see Creating Unique Places).

Expand Right of Way Use

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[Before and after enhancement on State Street in West Lafayette, Indiana. Lane reduction, mixed-use paths, improved landscaping, and improved pedestrian crossings all contribute to a more versatile ROW. Source: Google Street View]

Supporting Other Themes:

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Strategies:

The City will use the following strategies to Expand Right-of-Way Use:

» Collaborate with multiple City departments on transportation related projects to generate more non-automobile activity along roadways.

» Amend the Zoning Code to allow the City to request additional land (e.g., Right-of-Way) as part of a development project.

» Encourage the integration of dedicated pedestrian infrastructure in roadway projects.

» Identify corridors in the City that would best benefit from road diets and complete street improvements (e.g., fewer automobile lanes, safe space for walking, dedicated bike lanes).

» Allocate a percentage of Capital Improvement Project (CIP) funding, an important City infrastructure fund, for use in projects that incorporate all modes of travel (i.e., Complete Streets).

» Incorporate additional design elements that connect people to places such as landscaping, green stormwater projects, or temporary low-cost changes (e.g., parklets or patio space) that improve public space.

MOVE 4

Logistics Hub

Highlight Toledo’s historic success and ongoing potential as a freight and logistics hub due to its strategic location and workforce.

Access to national transportation networks is foundational to Toledo’s economic success. The Maumee River, Lake Erie, a crossroads of major interstates, and a strong rail network all make up the City and region’s robust freight network. Not only does Toledo provide access to nearby domestic trade markets such as Detroit, Cleveland, Chicago, and Columbus, but it also serves an international market through existing and planned border crossings into Canada. The border crossing at Detroit’s Ambassador Bridge accounts for a 1/4¹ of all trade between the US and Canada (see Expand Manufacturing).

These logistic connections help to fuel economic growth in Toledo. As shown in the chart below, over 19% of the population is employed in either Logistics or Production occupations in 2017 (see following page). These jobs often offer entry level opportunities with better compensation and career growth compared to other occupations (see Workforce Opportunities). A goal of the Forward Toledo plan is to support and expand Toledo’s role as a Logistics Hub for the modern economy.

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[Lake Erie, two major interstates, and four rail lines all intersect in Toledo. Source: Train data TMACOG.]

Logistics Hub

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As discussed in the goal Expand Areas for Manufacturing, one barrier to Toledo’s growth as an industrial hub is the availability of land. As existing industrial users outgrow their locations, they can have difficulty finding a site which meets their needs in Toledo. The City can offset this limitation through the completion of an industrial land use study that takes into account access to transportation and freight networks, and utilities. Another key element of this land use study is understanding market changes (e.g., brick & mortar vs. e-commerce see Improved Decision-Making). By understanding how to “right size” our land use (e.g., adequate supply of industrial and commercial land to meet contemporary demand) the City can inventory potential sites for future industrial development.

The need to be strategic with how land is used is vital for Toledo’s long-term success, as vacant development can become an obstacle for reuse. Two formerly long-vacant shopping centers are emblematic of shifts in local and regional land use demands: Southwyck and NorthTowne. Both sites have been successfully redeveloped into industrial job centers with the help of city resources. One is an Amazon Distribution Center, which demonstrates the shift from traditional retail to e-commerce, and the other is the Toledo Trade Center, marketed to manufacturing and logistic tenants.

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[Employment data for the region. Logistics and production jobs account for 19% of regional employment. Source: 2018 Toledo Talent Alignment Strategy]

Logistics Hub MOVE 4

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Logistics also has the potential to support the rejuvenation of existing manufacturing corridors. These areas can be supported with low-impact, high-technology uses that also provide local jobs for residents. An example of successful industrial redevelopment is the Overland Industrial Park at the site of the former Willys Overland Jeep factory, which provides economic opportunity to nearby residents while minimizing its impacts on the surrounding community.

The improvements undertaken by industrial developments do not come without a cost to the community. Heavy trucks and oversize load vehicles have a greater impact on the structural integrity of roadways.¹ To counteract this, the City can explore the use of impact fees so that roadway repair costs do not fall on the shoulders of Toledo residents. Major metropolitans, such as New York City, have implemented Commercial Motor Vehicle Taxes which charge an annual fee for the use of certain sized vehicles within the city.²

While passenger services have fluctuated in recent years at the Eugene F. Kranz Toledo Express, airline freight service has seen growth in the region. The Amazon Air Toledo Gateway began flight operations in 2021, with Toledo Express Airport experiencing the largest growth in landed freight in the country that calendar year.³ Additional support for industrial areas catering to the

Logistics Hub

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[Mural of historical signage from the early 1900s reflects Toledo’s business-friendly environment, past and present. Source: Lucas County Land Bank.]

freight and logistics industry could further enhance the services at Toledo Express Airport.

Toledo’s existing industrial assets can be built upon for continued success within these evolving industries. By focusing on land uses related to the production, manufacturing, and transportation fields, Toledo can welcome economic opportunity without negatively impacting existing neighborhoods.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to support growth as a Logistics Hub:

» Complete a land use analysis to locate sites that would best be repurposed for industrial uses.

» Identify and support a business corridor with emphasis on green energy and logistics.

» Allow smaller scale industrial uses in a wider variety of areas (e.g., neighborhood business districts or shopping centers) that have minimal impacts on neighborhoods.

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Consider the use of impact fees for major business and logistics users to ensure the local roadways they impact are maintained in good condition.

» Explore ways to expedite minor site plan reviews for industrial developments.

MOVE 5

Walkable Neighborhoods

Encourage more goods and services within walking distance, independence among residents, and sustainable uses of land.

Toledo, like most U.S. cities, is not designed in a way that allows people to easily access daily needs without a vehicle. The “15-minute neighborhood” concept has been gaining momentum in many cities across the United States. The idea is to make daily necessities available within a 15-minute walk, allowing people to live more independently (e.g., elderly or disabled), reducing commuting times, and reliance on automobiles. Walkable neighborhoods also reduce the amount of land for paving/parking (a low-value use), enhancing the overall environmental quality of a city.

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[An image of travel times based on mode of travel. Source: Congress for New Urbanism.]

The graphic below represents the time and distance traveled by walking or biking from a single point of origin. The average time it takes for a person to walk one-quarter mile is 5-minutes. Whereas, the average time it takes a bicycle to go 1 mile is 5-minutes.¹ This metric becomes important when determining walkable areas in the city as residents are more like to complete shorter trips without the use of an automobile.

Since the 1950’s the focus of regulating developments has predominantly been by the separation of function: residential from commercial. This has resulted in a strong bias towards travel by automobile with minimal or no consideration given to walkability, especially for daily errands, and little to no consideration on the burden for those without automobile access.

These suburban growth trends, combined with traditional zoning and land use laws, have created an imbalance in the cost/value of land. This has contributed to a nationwide housing shortage, especially when parking requirements and parking expectations are included. Additional walkable areas in the city would reduce the need for large parking areas and free up more land for higher value uses like housing.

Walkable Neighborhoods

It is unrealistic to expect that every neighborhood in Toledo will be walkable in the near future, but there are areas that can serve as a starting point. Below is a map showing the most likely areas for Walkable Oriented Development (WOD) (in blue) within the City of Toledo:

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[Walkable oriented areas based on existing businesses. Data from AEI Housing Center 2021.]

A WOD is within a 10-minute walk of a cluster of 6 or more points of interest. Each cluster consists of at least six restaurants/bars, coffee shops, supermarkets/grocery stores, hardware stores, and/or pharmacies/drugstores. These areas are projected so that each property within a WOD is within a 10-minute walk of a cluster.¹

Examples of existing WOD areas in the city outside of Downtown include Five Points and the Sylvania Avenue Corridor, Old South End, Main Street, and Point Place, but there are other areas identified in the map that could be developed and supported.

There is also a strategic opportunity to address housing within WODs. Increasing the residential density in such areas, even from 1- to 2-unit structures, would result in a much-needed addition to the housing supply, improve the vibrancy of existing commercial areas which may be underutilized, increase the potential customer base for businesses, and provide an increase in property tax revenue.

The development of these areas may bring potential congestion related impacts. This can be offset to a degree by the walkability of the area, which reduces reliance on motor vehicles and provides alternative modes of transit, both of which are goals of this plan.

By embracing and supporting development in and around walkable oriented developments, the City can increase the viability of pedestrian movement in more neighborhoods.

Walkable Neighborhoods

"To me, this is the key area to transform our city into a safer, healthier, more efficient, and more attractive place to live. In short, it all boils down to prioritizing people over cars. We have so much work to do to correct the car obsessed approach of the last 75 years, but this seems like an area where we can make simple and affordable changes quickly to start building momentum."

-Daniel W.

Supporting Other Themes:

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Strategies:

The City will use the following strategies to create more Walkable Neighborhoods:

» Reduce reliance on cars by establishing priority areas in the City that support walking for local trips.

» Encourage a variety of housing sizes and units along major streets and business corridors.

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Develop design standards for a compact mixture of residential and commercial uses along major corridors that also support public transit and riders (e.g., shorter walking distances from bus stops to businesses).

» Prioritize pedestrian design elements (e.g. street trees, lighting) in neighborhoods with a higher likelihood to walk (e.g. slower streets, collections of nearby businesses, or lower vehicle ownership rates).

» Promote the importance of greenspace in neighborhoods and expand availability (e.g., impact on mental health, crime reductions, and overall well-being).

» Reuse vacant lots for recreational purposes that help connect existing amenities (e.g., parks, public art, or cultural centers).

» Support a streamlined development review process to install and improve crosswalks and pedestrian infrastructure.

» Update and/or remove minimum parking requirements.

» Demonstrate the potential of Comprehensive Plan ideas through pilot projects (i.e., tactical urbanism) before committing to larger citywide changes.

MOVE 6

Accessibility Opportunities

Explore how development and public infrastructure (e.g., sidewalks) can contribute to a more inclusive community.

From public roads to private drives and sidewalks, the way individuals move through the built environment dictates their access to goods, services, employment, and social life. An accessible home, place of work, or school, is of little use if you cannot get where you need to go. Limited transportation networks that do not consider the needs of all users, especially those requiring a greater level of access, fail to adequately serve the entire City.

The establishment of the Mayor’s Office on Disability greatly assists in Forward Toledo’s vision of a more accessible City. The majority of progress towards improved accessibility will occur outside of land use planning, but there are ways to help address it through new development.

The Americans with Disabilities Act (ADA), as well as other building code requirements, dictate accessibility in building design. However, these regulations often result in disconnected and piecemeal outcomes beyond the building design. Toledo can take a proactive approach to expanding accessibility in the built environment by advocating for and adopting additional standards to promote mobility for all residents. These standards would not only impact the internal accessibility of destinations, but how people maneuver between properties.

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Panel is raised by tree. Panel is sunken/lifted by 1/2". Panel is missing pieces.

[Maintaining the backbone of the City’s public infrastructure, sidewalks, is key to maintaining accessibility. Source: City of Toledo Engineering.]

Accessibility Opportunities

Universal Design Standards, as explored in Inclusive Communities, are one such set of standards widely adopted across many communities. By encouraging accessibility in all elements of design, from individual details to the relationship between private and public spaces, Universal Design Standards create a set of guidelines which ensure improved access for all. Incorporating these standards into new development and redevelopment would allow all residents to access a greater number of amenities throughout the City, regardless of age, identity, ability or disability.

New development is often the best opportunity to implement accessibility strategies. Toledo can further support accessibility opportunities by expanding the role of accessibility in reviewing new development plans. This accessibility-focused lens could implement interventions not just on private developments, but along adjacent right-of-way, and better connect developments to existing sidewalks, trails, paths, etc. The City can create more equitable outcomes beyond private property boundaries by keeping a diverse array of end-users in mind while reviewing projects and planning future infrastructure improvements (e.g.; seniors, individuals with disabilities, and children).

Expanding Right-of-Way Use leads to a more accessible community. Reducing dependency on automobiles, while emphasizing alternative transportation methods such as public transit, requires multiple elements for success. For example, an accessible bus needs a clear path to access the bus stop.¹ Existing public transit systems which already provide specialized mobility options, such as TARPs (Toledo Area Regional Paratransit System) for those with disabilities, can also be improved through

interventions like street crossings, sidewalks, or tactile paving. Creating accessible multi-modal travel networks ensures no portion of the journey is a barrier to access for Toledoans.

Where and how certain land-uses locate within the City also impacts accessibility. Distributing important resources (e.g., health care, job centers, and grocery stores) evenly throughout the city increases access for individuals with limited options. Underutilized shopping centers with large, vacant parking lots are spaces that could be transformed in Toledo to provide resources, housing, and amenities in reach of more residents as shown below.

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[Aerial image of Manhattan Plaza. Source: City of Toledo.]

Accessibility Opportunities

Strategically targeting larger underutilized shopping centers and similar sites for Transit-Oriented-Development (TOD) would create compact, mixed-use areas that can provide transit and accessibility opportunities. TOD encourages the construction of denser commercial and residential uses, creating smaller spaces that support public transit and bring residents closer to basic goods and services, including people with disabilities. TODs have also been shown to increase property values and accessibility of surrounding properties.¹

Reutilization of commercial land for TOD has proven successful in other cities. In Massachusetts, for example, the town of Woburn successfully converted a mostly-vacant shopping center into “Woburn Village.” Woburn Village includes 350 units (25% of which are reserved for lower-earning families), and it preserved existing occupied retail businesses. The development of Woburn Village was planned according to many of the urban design principles that this plan supports, leading to a walkable grid and close proximity to regional transit, reducing residents’ reliance on cars for mobility (see images to the right).²

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[2017 aerial image of Woburn Village from Google Earth (top), “Bird’s eye view of development” by Amenta / Emma Architects, PC (bottom).]

Accessibility Opportunities

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[Source: Metroparks]

Supporting Other Themes:

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Strategies:

The City will use the following strategies to improve Accessibility Opportunities:

» Complete a review of land use policies to ensure that accessibility is adequately addressed with development (e.g., Universal Design Standards).

» Advocate for the adoption and implementation of additional standards that promote mobility for all residents (e.g., Universal Design Standards).

» Expand the role of accessibility in the review of new projects to support underrepresented populations (e.g., seniors, individuals with disabilities).

» Support the reuse of sites within neighborhoods that provide accessible and walkable jobs to residents.

» Support mixed-use commercial areas (e.g., apartments with first floor retail, live/work space) in each neighborhood to ensure better access to goods and services while supporting public transit.

» Identify specific areas throughout the City that best support walkable neighborhoods (e.g., more people living in an area).

» Increase the availability and safety of sidewalks throughout the City.

» Review drive-thru regulations to address traffic issues in certain areas (e.g., restaurants along major roadways).

» Ensure that all neighborhoods have equitable access to quality parks and open space.

» Prioritize more Capital Improvement Funding for park or pedestrian uses (e.g., consider a % of overall CIP budget).

[Source: Arts Commission - Natalie Tranelli-Jacobs]

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PLACE >>>

Strategies for placemaking, expanding opportunity, and building inclusive communities.