Rezoning Around John Carroll University

On April 2, 2024, the City Planning Commission voted to approve zoning changes to enable an overlay zone for off-campus student housing that includes two specific properties owned by John Carroll University: 20201 Fairmount Blvd. and 20600 Fairmount Blvd. If this overlay zoning district is approved by Shaker Heights City Council, the university will have to return to the City Planning Commission to request conditional use permits and meet the criteria of that process in order to use these properties as exclusively off-campus student housing. City Council will consider this requested zoning change in three readings (three separate meetings) and will hold a public hearing at one of those meetings before voting on the request.

Prior to this action, on February 12, 2024, City Council adopted zoning amendments proposed by the City, but voted to send zoning amendments proposed by John Carroll University back to the City Planning Commission for more study and consideration. Read more about this in the agenda and attachments for the January 9, 2024 meeting of the Board of Zoning Appeals and City Planning Commission.

Q: What Zoning Code changes did Council adopt?

The City’s proposed zoning amendments were adopted by Council on February 12, 2024, which enacted the following:

The zoning classification for the commercial area at Fairmount Circle (the portion located in Shaker Heights) has been changed from General Commercial to Commercial Mixed Use.
The zoning classification of a small stretch of existing commercial properties on the south side of Chagrin Blvd. west of Lee Road has been changed from Business Commercial to Commercial Mixed Use.
The amendments added definitions of a “campus”, “dormitory” and “off-campus student housing,” as well as regulations for off campus student housing. Off campus student housing is an allowed conditional use in Commercial Mixed Use Zoning Districts only, and only within 500 feet of a university campus.

Q: Why did the City adopt these changes?

Fairmount Circle and Chagrin Boulevard at Lee Road are high-volume public transportation corridors with walkable commercial districts, which are best regulated as a Commercial Mixed-Use district, to allow for a mix of retail and residential uses similar to what is allowed at the Van Aken District.
The regulations regarding student housing clarify the Code, as previously there were no explicit definitions and regulations.
Also, under the enacted Zoning Code amendments, the JCU campus is constrained from crossing into the commercial or residential areas of the City.

Q: What is John Carroll University (JCU) proposing?

JCU has owned apartment buildings around Fairmount Circle for many years, and has rented to a mix of students of the University and non-students. Some of its buildings in Shaker Heights have had a majority or near majority of student residents over the past few years.
JCU is seeking to turn 2 of its buildings in Shaker Heights into student housing beginning in August 2024. In 2026, JCU may also seek to turn up to 3 more of its apartment buildings into student housing.
In order to accomplish its objectives, JCU had asked that the Zoning Code be changed to allow off campus student housing in Multi-Family Zoning Districts (in addition to Commercial Mixed Use Districts as requested by the City). However, City Council voted to send JCU’s proposed zoning amendments back to the City Planning Commission for more study and consideration.
In response, the Planning Commission approved a City proposal to make zoning changes to enable an overlay zone for off-campus student housing that includes two specific properties owned by John Carroll University: 20201 Fairmount Blvd. and 20600 Fairmount Blvd. That proposal will now be considered by City Council.

Q: What is off campus student housing and where can it be located?

Students have always lived in the area near JCU in University Heights and Shaker Heights. Some students have lived in private housing not owned by the University, and some students have lived in housing owned by JCU for many years.
While students are naturally allowed to rent homes and apartments in the area, just like any other renter who is not a student, the City’s Zoning Code does not clearly say when a building is considered to have transformed from a commercially rented building to become off-campus student housing.
The City’s Zoning Code did not allow student housing or dormitories in the City, but did not clearly define what constitutes off-campus student housing or dormitories.
With the City’s new Zoning Code amendments, off-campus student housing could be created under certain circumstances, but only in Commercial Mixed Use Zoning Districts, AND only within 500 feet of a university campus.
On April 2, 2024, the City Planning Commission voted to approve zoning changes to enable an overlay zone for off-campus student housing that includes two specific properties owned by John Carroll University: 20201 Fairmount Blvd. and 20600 Fairmount Blvd. If this overlay zoning district is approved by Shaker Heights City Council, the university will be able to apply to the City Planning Commission for conditional use permits in order to use these properties as exclusively off-campus student housing.
Conditional uses have to be approved by the City Planning Commission and then by City Council.
Student housing would NOT be permitted in Single Family or Two-Family Zoning Districts, even where those areas are within 500 feet (or 1,500 feet in JCU's proposal) of the JCU campus. For example, student housing would not be permitted along Colby, Claythorne, or Shelburne (east of Warrensville).
Also, student housing would not permitted in Multi-Family or Commercial Mixed Use Districts elsewhere in the City.

Q: Could JCU expand their campus into the adjacent neighborhood?

The definition of campus does not permit the expansion of a college or university across street rights of way which restricts JCU’s campus from expanding around Fairmount Circle and into surrounding residential neighborhoods.

Q: What benefits does JCU provide to the community?

John Carroll University is an important institution whose presence has a stabilizing impact on the neighborhood’s commercial and residential development in and around Fairmount Circle.
John Carroll University has made investments in the current buildings they own around Fairmount Circle and proposes to make significant new investment to its apartment buildings in Shaker Heights as part of its proposal for off-campus student housing.
The JCU-owned buildings in Shaker Heights have had very few complaints concerning student behavior over the many years JCU has owned them.

Q: What buildings does JCU own now?

John Carrol University owns five (5) apartment buildings around Fairmount Circle in the City of Shaker Heights. JCU has owned these buildings for up to 20 years and operates them as commercial residential apartment buildings.
These units are currently available for upper class students to rent at market rate on a first come first serve basis through the property management company, Coral Company.
John Carroll University also owns one additional apartment building and a house east of the “CVS parking lot” in Shaker Heights that are zoned single family residential and would not be eligible for off-campus student housing like the other apartments.