4-Implementation

The Master Plan is a statement of goals and strategies designed to plan for preservation, growth and redevelopment. The Plan forms the policy basis for the more technical and specific implementation measures that will follow after adoption of the Plan. The Plan will have little effect upon future planning unless adequate implementation programs are established. This section identifies actions and programs which will be useful if the plan is to be followed.

Zoning is the development control that is most closely associated with implementation of the Master Plan. Originally zoning was intended to inhibit nuisances and protect property values. However, zoning should also serve additional purposes which include:

• To promote orderly growth, preservation and redevelopment in a manner consistent with land use policies and the Master Plan.
• To promote attractiveness in the City's physical environment.
• To accommodate special, complex or unique situations through such mechanisms as planned unit developments, overlay districts, or special use permits.
• To promote the proper relationship between potentially conflicting land uses (i.e. industrial uses adjacent to residential areas).
• To preserve and protect existing land uses, where appropriate.
• To promote the positive redevelopment of underutilized areas of the City.

The zoning ordinance and official map, in themselves, should not be considered as the major long range planning policy of the City. Rather, the Master Plan must be regarded as a statement of planning policy and zoning should be used to assist in implementing that policy.

Certain areas of the City have been designated for a land use classification in the Master Plan which may conflict with either existing zoning or existing land uses. The Master Plan recommendations will provide guidance as to the proper zoning. The Plan Commission and City Commission will further study and make decisions in regards to which areas warrant City initiated rezoning.

The zoning ordinance text and the zoning map have undergone over 240 collective amendments since their original adoption in 1957. 

This is not an unusual situation. Ordinances are not static documents and, therefore, should be prudently modified to reflect changes in community needs, conditions, and/or City policy. Unfortunately, isolated text changes often are made without fully assessing their relationship to other critical portions of the text. The end result is troublesome regulatory gaps, or worse, conflicting regulations.

An initial review of the current zoning ordinance has identified the need to address the following specific issues:

• Improved alphabetical subject index and comprehensive table of contents with articles, sections, and sub-sections;
• Consolidation of requirements into logical functional area;
• Streamlined district regulations, including elimination of unnecessary repetition;
• Presenting information in schedule and/or chart form whenever possible, and utilizing graphics to illuminate critical points;
• Review of zoning districts to evaluate pertinent differences between districts;
• Give consideration to elimination of some district and to the addition of others, as may be desirable;
• Incorporate techniques such as overlay districts to address specific conditions;
• Updating of performance/protection and design standards, including formulation of an environmental provisions section as a means of consolidating these types of requirements;
• Updating of all design standards (parking, landscape, buffering/screening, setbacks, signs, etc.) to reflect current planning practices;
• Improved site plan review process, including clear, concise information to be submitted for review, expansion of review standards, and consideration of an administrative review process for minor site plan amendments;
• Improved special land use review process, including succinct identification of objectives, provision of clear, concise standards designed to meet objectives, and review/amendment of approval process, if desirable.

The residents in Royal Oak take great pride in their neighborhoods. The integrity of many areas has been threatened by past zoning and development practices that have resulted in projects that some consider to be incompatible with existing neighborhoods.

New development projects, if not properly done, can have a dramatic impact on the character and viability of existing neighborhoods. However, other action such as the division of platted lots into smaller lots and the granting of variances, provide more subtle but lasting change within a given area. Finally, the consistent enforcement of regulatory codes and Ordinances can have a long term positive effect on neighborhoods.

A series of steps can be taken which involve both regulatory and administrative measures:

• Adopt Neighborhood Design Standards - Many of the controversies that have arisen in Royal Oak have been as a result of new residential design which is incompatible with the scale, density and character of existing neighborhoods. By incorporating neighborhood design standards within the Zoning Ordinance, the existing character of neighborhoods can be better maintained to prevent new developments and additions to existing structures which are incompatible.
  

  The intent of the design guidelines is to ensure building designs are compatible with the characteristics of the neighborhood in terms of scale, mass, building patterns, facade articulation, and incorporating design elements of prevalent neighborhood architectural style; and that building additions are compatible with the principal structure. This will allow for modern design and modern interpretation of neighborhood architectural styles.

• Increase Housing and Property Maintenance Code Enforcement - Evident through the Visioning Workshops and Concept Plan review process was the desire from a broad spectrum of the community for the City to increase enforcement efforts. While it would be expedient to target only rental properties, a credible and equitable effort would have all properties abide by minimum standards.
  

  Stepping up housing and property maintenance enforcement will involve the evaluation of existing codes to determine necessary revisions. Furthermore, additional staff will be necessary to increase enforcement efforts.

• Review of Lot Division/Combination Requirements - Lot size compatibility with existing neighborhood standards can be incorporated in the Zoning Ordinance. Procedures outlining a compatibility determination process will ensure that lot divisions do not create incompatible building sites.

Areas Adjacent to the Central Business District

Many issues associated with the Master Plan involved the residential area adjacent to the downtown. Generally, a new viability of existing single family residential neighborhoods has taken place. In the past, the multiple family use authorization adjacent to the Central Business District arose out of era in which the viability of single family residential uses adjacent to and in close proximity of the Central Business District was in serious question.

A significant and material change of circumstances then took place, namely:

• The location of Royal Oak as a focal point within the Southeast Michigan area was provided with accessibility, and thus became functional with the construction of 1-696.
• A revitalization of the Central Business District created a dramatic change in the character of the downtown area, and, consequently, a change in the relationship with the surrounding residential area.
• A new and substantial demand and viability for the existing single family uses has been established, bringing about a renewal and regeneration of the life of the City.

Allowing the expansion of Existing Two-Family and/or Multiple Family Uses within what remains as predominantly single-family residential neighborhoods will undermine the new viability, and, thus, frustrate the re-establishment of the City as a mature community area which has been able to make meaningful progress toward renewal and regeneration.

Moreover, expansion of Existing Two-Family and/or Multiple Family Uses may result in the destruction of the neighborhoods in which they are situated, and, thus, result in a long-term blighting effect.

It has been determined that, as a matter of policy, the Existing Two-Family and Multi-Family Uses within the predominantly single family area of the City adjacent to the Central Business District should be permitted to exist as special land uses, although it must be recognized that an authorization for additional Existing Two-Family and Multi-Family Uses within such area would be detrimental and destructive of the neighborhoods.

Definitions

To better describe land use and land use changes in these supplemental areas, the following definitions are provided:

Existing Two-Family and/or Multiple Family Uses shall be those two-family and multi-family uses that meet the following two criteria:

1. An occupancy permit has been issued for the residences within the structure.

2. A license has been issued for more than one residence within the structure under the City's Landlord Tenant Ordinance.

Material Modification shall mean a modification that results in any one or more of the following:

1. An increase of density;

2. A modification of the exterior appearance of the structure; and/or

3. A modification that will have some other demonstrable adverse impact upon one or more single family residential users in the neighborhood.

Establishment of Overlay District

A Single Family Residential Overlay District situated adjacent to the Central Business District should be established, consisting of the area shown on the Single Family Overlay Map. Within such Overlay District special regulations should be established relative to the Existing Two-Family and/or Multiple Family Uses and the Existing Commercial Uses fronting on N. Washington Avenue.

Existing Two-Family and/or Multiple Family Uses

By means established in the Zoning Ordinance, Existing Two-Family and/or Multiple Family Uses within the Single Family Residential Overlay District should be granted the status of being uses which conform with the use, setback and density provisions of the Zoning Ordinance, and, therefore, should not become burdened with customary "nonconforming use" status, i.e., destruction by act of God should not prohibit reconstruction of the same use with the same setback and density provided that building and safety codes are met. However, such grant of conforming status should be subject to the condition that all additions and Material Modifications should conform with construction codes and all other ordinance requirements of the City with the exception of the use and setback restrictions of the Zoning Ordinance specifying single family residential use.

Properties within the Single Family Residential Overlay District that do not have Existing Two-Family and/or Multiple Family Uses should not, as part of the amendment of the zoning ordinance, be granted the status of being uses which conform with the use and density provisions of the Zoning Ordinance.

Existing Commercial Uses

By means established in the Zoning Ordinance, existing commercial uses fronting on N. Washington Avenue within the Single Family Residential Overlay District should, for a limited period of time, be permitted to apply for the status of being uses which conform with the use, setback and parking provisions of the Zoning Ordinance, and, therefore, should not become burdened with customary "nonconforming use" status, i.e., destruction by act of God should not prohibit reconstruction of the same use with the same setback and parking, provided that building and safety codes are met. However, a grant of conforming status should be subject to the condition that all additions and Material Modifications should conform with construction codes and all other ordinance requirements of the City with the exception of the use and setback restrictions of the Zoning Ordinance specifying single family residential use.

Mixed Use - Residential/Office Service/Professional Office Area

It is recognized that, within the Mixed Use-Residential/Office Service/Professional Office area, all land may not be immediately rezoned in conformance with this Master Plan designation. However, as a long-term goal, it is the intent of the City to achieve uniform conformance of the property within the area.

Any community that strives for improvement must have a strong relationship between City officials and various business development organizations (i.e. Downtown Development Authority and Chamber). Important issues related to the retail mix, parking, need for civic plaza space, relationship to Farmers Market, and the relationship between downtown and the neighborhoods were raised throughout the Master Plan process. As a result, important discussions were initiated between City officials and business leaders. An ongoing process will help ensure implementation of the key concepts of this Plan.

Throughout the Visioning Workshops strong preference was expressed about improving the image and identity of the City's main corridors. Stronger linkages need to be developed between I-696 and downtown and Woodward and downtown.

The City should undertake a study of the Main Street, Eleven Mile, and Twelve Mile entry corridors which would outline long range strategies for traffic management as well as visual components such as parking setbacks, landscaping and signage.

In addition to visual improvements within key corridors, review of amendments to the zoning ordinance in the commercial zoning districts should address the following policies:

• a stronger buffer between the public right-of-way and required on site parking areas  
• reduce the number of curb cuts along the major commercial corridors
• greater amounts of landscape material be provided for new commercial development along the major corridors
• the character and importance of entry corridors

The Woodward Corridor provides a vital economic and transportation corridor within the community. Extensive study in the form of the Woodward Avenue Corridor Study has already been completed. No further study is recommended. The Woodward business community and City officials should discuss implementation of the Woodward Plan with specific emphasis on demonstration projects that will improve parking, manage access, and enhance buffering between commercial uses and the adjacent neighborhoods.

Strong preference for identifying and preserving historic structures has been expressed by residents. However, a plan for preserving historic structures should be supported by the preparation of a detailed inventory currently underway. Efforts to identify both significant historic structures and neighborhoods should be pursued in the context of a historic preservation master plan.

The words "culture" and "cultural" are defined as the collective, shared history of thought and work of the people who have made Royal Oak what it is today and what it seeks to be tomorrow a complex and fascinating blend of people, experiences and heritages. The collective culture of Royal Oak consists of the visual, performing, literary and media arts, science and technology, humanities, architecture, customs and other means of expression.

It is the goal of the City to ensure that Royal Oak's Cultural Institutions are an integral part of the Master Plan consideration and to support arts and cultural organizations that seek funding from State and Federal agencies. It is the responsibility of the arts and cultural organizations to share in the effort for ensuring that the cultural needs of our citizens are included in the Master Plan and to seek opportunities to assist the City in accomplishing the Goals of the plan.

We recommend that the Royal Oak Senior Citizen Advisory Committee continue its history of advocacy and play a leadership role in the development of a Senior Master Plan Committee. This committee will review community based housing options which encourages "housing in place" and make recommendations for consideration, approval and implementation within Royal Oak. An evaluation of the need to expand and/or modify staffing and new services to Royal Oak's aging population should also be considered.

Capital improvements programs consider the funding and timing of all municipally related capital needs including such items as roadways, utilities, parks and recreation, and major public building expansions/improvements. Yearly ongoing review provides the opportunity to keep the plan up to date and add new projects. Efforts should be made to coordinate capital improvement plans with the Master Plan to help identify priorities for needed improvements.

Citizen involvement and support will be necessary as the Plan is implemented. Local officials should constantly strive to develop procedures which make citizens more aware of the planning process and the day to day decision making which affects implementation of the Plan. A continuous program of discussion, education and participation will be extremely important as the City moves toward realization of the goals and objectives contained within the Master Plan.

The Plan should not become a static document. The City Plan Commission should attempt to re-evaluate and update portions of it on a periodic basis. The land use portion should be reviewed annually and updated at least once every three to five years.