HomeMy WebLinkAboutFindings Transit Triangle Overlay
BEFORE THE CITY COUNCIL
CITY OF ASHLAND, JACKSON COUNTY, OREGON
December 18, 2018
In the Matter of Amendments to the City of Ashland )
land use ordinance and zoning map concerning ) FINDINGS OF FACT AND
the addition of Chapter 18.3.14 Transit Triangle Overlay ) CONCLUSIONS OF LAW
and associated amendments, including three ordinances. )
PURPOSE:
The proposal includes a new Chapter 18.3.14 Transit Triangle Overlay, a Transit Triangle
(TT) overlay map and a series of amendments to the Ashland Municipal Code (AMC)
Title 18 Land Use to implement the recommendations of the Ashland Transit Triangle
Infill Strategies Project report dated January 2018 by Fregonese Associates for the area
surrounding the bus route in the southeastern part of Ashland that circulates on Ashland
St., Tolman Creek Rd., and Siskiyou Blvd., also referred to as the transit triangle.
Implementation is achieved by three distinct ordinances. The first ordinance amends the
land use ordinance to include a new chapter 18.3.14 Transit Triangle Overlay as
implementing regulations for the land use designation. The second ordinance amends the
zoning map to add the Transit Triangle (TT) overlay. The third ordinance includes a
series of amendment to AMC Title 18 Land Use for clarity and consistency.
PUBLIC HEARINGS:
Notice was published in The Ashland Daily Tidings on May 12, 2018 and July 13, 2018
prior to the Planning Commission public hearings and on September 7, 2018 prior to the
City Council public hearings. Notice was also sent to the Department of Land
Conservation and Development on April 16, 2018.
A p 1d at the Planning Commission on May 22, 2018 and continued
public hearing was he
to June 12, 2018 and June 24, 2018. A public hearing was held at the City Council on
September 18, 2018 and continued to October 16, 2018 and November 20, 2018.
SUMMARY OF AMENDMENTS
The TT overlay includes 129 acres of land in the southeastern part of Ashland in an area
surrounding the bus route that circulates on Ashland St., Tolman Creek Rd., and Siskiyou
Blvd. (see map on page 3). The TT overlay includes lands zoned Commercial (C-1),
Employment (E-1), High Density Multifamily Residential (R-3) and Low Density
Multifamily Residential (R-2), Single-family Residential (R-1) and Southern Oregon
University (SO). The TT overlay applies to the C-1, E-1, R-3 and R-2 zones and these
zones cover 98 percent of the land area located in the overlay.
The purpose of the TT overlay is to encourage development and redevelopment adjacent
to the bus route that includes a mix of commercial and residential uses, especially of
Findings of Fact and Conclusions of Law Page 1
housing units. In turn, greater concentrations of housing and businesses near the bus
route provides transportation choices and promotes sustainable planning initiatives.
Project objectives for the transit triangle include providing an area to construct
moderately sized housing units, providing a better environment for local business
development and expansion, supporting transit service through increased ridership, and
creating a walkable setting with close proximity to existing residential neighborhoods.
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A summary of implementing regulations in Chapter 18.3.14 Transit Triangle Overlay
follows.
1) The applicant can choose whether to develop under the TT overlay or to develop
under the current zoning requirements. Applicants electing to perform development
using the TT overlay option are required to meet all of the requirements of the new
Chapter 18.3.14. If an applicant doesn't elect to use the TT overlay option, the
property can be developed under the existing zoning and land use standards.
2) The allowed number of dwelling units per acre (i.e., density) is eliminated and instead
building volume and intensity is regulated by a maximum floor area ratio (FAR). The
FAR is 1.5 for C-1 and E-1 zones and 1.25 for the R-2 and R-3 zones. Current zoning
includes a number of housing units that are allowed per acre, which is often referred
to as base density. Thirty housing units per acre are allowed in C-1, 15 units per acre
are allowed in E-1, 20 units per acre in the R-3 zone and 13.5 units per acre in the R-2
zone. In addition, there is no maximum FAR in place at this time.
Findings of Fact and Conclusions of Law Page 2
3) The height of buildings is allowed to increase to 50 feet or four stories in the C-1 and
E-1 zones and 42 feet or three stories in the R-2 and R-3 zones. Current zoning limits
building height to 40 feet with a five-foot parapet (i.e., three stories) in the C-1 and E-
1 zones and 35 feet or 2.5 stories in the R-2 and R-3 zones. In addition, the current
code allows buildings located more than 100 feet from a residential zone in the C-1
zone to be approved up to 55 feet in height through the conditional use permit
process.
4) Building mass is required to be stepped back at least 10 feet for any portion of the
building over 25 feet or two stories or by breaking up the mass of buildings over 25
feet or two stories in height by using architectural features such as varying the
building surface with offsets, jogs and distinct changes in surface. The building mass
standard applies within 25 feet of a residential zone or on any side of a building
facing a street. Building step backs are not currently required. Breaking up the
building mass is required in the Detail Site Review Overlay for buildings over 100
feet in length or greater than 10,000 square feet.
5) Front yards in the R-2 and R-3 zones are reduced to a minimum of five feet.
Currently, the minimum front yard is eight feet for unenclosed porches and 15 feet to
the enclosed building. The side and rear yard setback requirements are unchanged in
the multifamily zones.
6) Side and rear yards abutting residential zones in the C-1 and E-1 zones are 15 feet.
This results in an increase in the side yard and a reduction in the rear yard for multi-
story buildings. Currently, the minimum side yards abutting residential zones is ten
feet and the minimum rear yard is 10 feet per story.
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7) Residential units developed under the TT overlay option are required to be rental
units. Condominiums and travelers' accommodations are not allowed.
8) The off-street parking requirement is reduced to one space for residential units less
than 800 square feet. Currently, one parking space is required for units less than 500
square feet and two parking spaces are required for larger units.
9) Restaurant, retail and office uses located in mixed-use buildings can reduce the off-
street parking requirement by three spaces.
10) The required landscape area is reduced to 20 percent in the R-3 and R-2 zones.
Currently, the required landscape area is 25 percent in the R-3 zone and 35 percent in
the R-2 zone.
11) Mixed-use developments in the C-1 and E-1 zones are required to have 35 percent of
the ground floor in permitted and uses permitted with special standards that are not
residential uses. Current zoning requires 65 percent of the ground floor in permitted
and uses permitted with special standards that are not residential uses.
Findings of Fact and Conclusions of Law Page 3
12) Limited floor area for commercial uses is allowed in the R-2 and R-3 zones.
The proposed amendments also include miscellaneous edits and corrections to AMC
18.2.3.120 Dwelling in Historic District Overlay, AMC 18.2.3.130 Dwelling in Non-
Residential Zone, AMC 18.2.5.070 Maximum Permitted Residential Floor Area in
Historic District, AMC 18.3.13.010 Residential Overlay Regulations, AMC 18.4.3.030.C
Downtown Zone, AMC 18.4.3.060 Parking Management Strategies and AMC 18.6.1.030
Definitions. The miscellaneous edits and corrections are included in the second
ordinance titled, "An Ordinance Amending Chapter 18.2.1, 18.2.2, 18.2.3, 18.2.5,
18.3.12, 18.3.13, 18.4.3 and 18.6.1 of the Ashland Land Use Ordinance to Implement an
Infill Strategy in the Transit Triangle and Miscellaneous Edits for Clarity and
Consistency."
Many of the miscellaneous edits and corrections are not directly related to the infill
strategy for the transit triangle but rather are items that were noted for correction during
Planning Commission review of the proposed amendments for the infill strategy and
development proposals at past public hearings. The exceptions are the deletion of the
affordable unit requirement for mixed-use projects including more than ten residential
units in the C-1 and E-1 zones (AMC 18.2.3.130.5 and AMC 18.2.13.010.4) and the
proposed microcar parking management strategy (AMC 18.4.3.060B). A summary of the
miscellaneous edits and corrections follows.
1) AMC 18.2.3.120 and AMC 18.2.5.070.B
The proposed changes clarify that the maximum permitted floor area (MPFA)
requirement applies to homes in residential zones. The Planning Commission
identified this as an issue in a review of a development proposal for 868 A St. in
2016. MPFA in the pre-2015 ordinance was included as a requirement in the
chapters for the single-family (R-1) and multifamily (R-2 and R-3) zones and was
not included as a requirement in the non-residential zones (C-1, E-1 or M-1).
2) AMC 18.2.3.130 and 18.3.13.010
The change to the section on housing units in the C-1 and E-1 zones are to delete
the affordable housing unit requirement for projects involving more than ten
residential units. The requirement to provide affordable units in mixed-use
projects including more than ten residential units in the C-1 and E-1 zones is
deleted. Residential units are allowed to be developed in the C-1 and E-1 zones in
conjunction with commercial and employment uses. However, the development
of residential units is voluntary and not mandatory. Fregonese Associates
recommended deleting the existing language because it is inconsistent with state
law and has proven to be a disincentive to the development of projects with more
than ten dwelling units. State law allows local jurisdictions to require affordable
units of multifamily structures including 20 or more housing units.
3) AMC 18.4.3.030
The word "commercial" is added to the reference to the downtown zone for
Findings of Fact and Conclusions of Law Page 4
consistency with the language in Title 18 Land Use and the zoning district title.
4) AMC 18.4.3.060.B and AMC 18.6.1.030
The proposed language allows a normal full sized space to be used for one
automobile or two microcars. The suggestion was made at the December 12, 2017
stakeholder meeting.
5) AMC 18.6.1.030
The Planning Commission requested clarification of the definition of gross floor
area, basement and story to address issues from the review of a development
proposal for 1651 Ashland St. in 2017.
a. Gross Floor Area is used in the existing development standards for calculating
the floor area ratio (FAR), plaza requirements for large scale development and
amount of allowed residential uses in non-residential zones. The Commission
felt the definition needed more specificity regarding measuring the gross floor
area (i.e., exterior of walls or centerline of walls in attached buildings) and
portions of the building that are not included in the gross floor area (i.e.,
basements, unenclosed steps, porches, terraces and balconies).
b. Gross Habitable Floor Area is used in the existing development standards to
regulate accessory residential unit (ARU) size and dwelling units less than
500 square feet in the C-1 and E-1 zones.
c. Maximum Permitted Floor Area (MPFA) - This is existing language in AMC
18.2.5.070.D and E is added to this section for a cross reference. MPFA is
used to regulate the volume of residential buildings located in residential
zones in the Historic District overlay.
REVIEW CRITERIA
The decision of the City Council together with the recommendation by the Planning
Commission was based on consideration and findings of consistency with the following
factors.
A. Consistency with City of Ashland approval criteria for legislative amendments
and zoning map amendments, AMC 18.5.9.020.B
B. Consistency with City of Ashland Comprehensive Plan and Other City Policies
C. Consistency with Oregon land use laws and regulations including specifically
Oregon Statewide Planning Goal 10 Housing as implemented by OAR chapter
660, Division 8
D. Consistency with Oregon land use laws and regulations including specifically
Oregon Statewide Planning Goal 12 Transportation as implemented by OAR
Chapter 660, Division 12
Findings of Fact and Conclusions of Law Page 5
EVALUATION AND COUNCIL FINDINGS:
A. Consistency with City of Ashland approval criteria for legislative amendments and
zoning map amendments, AMC 18.5.9.020.13
18.5.9.020 Applicability and Review Procedure
Applications for Plan Amendments and Zone Changes are as follows:
B. Type III. It may be necessary from time to time to make legislative amendments in
order to conform with the Comprehensive Plan or to meet other changes in
circumstances or conditions. The Type III procedure applies to the creation, revision,
or large-scale implementation of public policy requiring City Council approval and
enactment of an ordinance; this includes adoption of regulations, zone changes for
large areas, zone changes requiring comprehensive plan amendment,
comprehensive plan map or text amendment, annexations (see chapter 18.5.8 for
annexation information), and urban growth boundary amendments. The following
planning actions shall be subject to the Type III procedure.
1. Zone changes or amendments to the Zoning Map or other official maps, except
where minor amendments or corrections may be processed through the Type II
procedure pursuant to subsection 18.5.9.020.A, above.
2. Comprehensive Plan changes, including text and map changes or changes to
other official maps.
3. Land Use Ordinance amendments.
4. Urban Growth Boundary amendments.
Ashland Municipal Code (AMC) 18.5.9.020.13 permits legislative amendments to meet
changes in circumstances and conditions. The City Council finds it is necessary to amend
the land use ordinance and zoning map to provide an area to construct moderately priced
multifamily rental housing to respond to changes in the housing supply and to meet the
target residential density in the Greater Bear Creek Valley Regional Plan.
Housing prices, diversity of housing types and housing availability have been a concern
in Ashland for some time. However, these concerns intensified in the last several years
throughout the region, state and west coast. Housing prices including rents have
continued to rise at a rapid rate. The supply of housing was impacted by less construction
during the recession. The gap between wages and housing prices increased and
households earning 120 percent of median income and less can not afford to purchase a
home in Ashland. In addition, the rental housing vacancy rates remain at one to two
percent for the region, indicating there are little to no available units for rent.
Fregonese Associates reviewed U.S. Census 2015 American Community Survey data and
identified three important demographic factors in developing the recommendations of the
Ashland Transit Triangle Infill Strategies Project report dated January 2018 by Fregonese
Associates. First, Ashland's population is largely comprised of young people and older
adults with a sizable proportion of people in their teens and early 20s as well as those in
Findings of Fact and Conclusions of Law Page 6
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their late 50s and 60s. Second, one and two-person households represent a large and
growing segment of the housing market. While this is a national and state trend,
Ashland's proportion of households is higher than Oregon. In Ashland, 72 percent of
renter households are comprised of one or two people.
Figure 1: Number of Persons in Ashland Households by Tenure
10% 13%
12% 15%
40% 28%
37% 44%
Owner Renter
■ 4-or-more-person household
■ 3-person household
2-person household
1-person household
Source: U.S. Census, 2015 American Community Survey
Finally, the Envision Tomorrow model indicated that market-rate apartments are
financially and physically feasible at rents that are affordable to households at 120% of
median income.
Figure 2: Household Income Converted to Affordable Monthly Rents (30% of income)
■ Less than $875
30% ■ $875 to $1,250
46%
■ $1,250 to $1,875
16% -
More than
8% $1,875
11% i
2015 American Community Survey
Source: U.S. Census
Y Y
Findings of Fact and Conclusions of Law Page 7
Past housing studies completed by the City of Ashland include the 2003 Housing Needs
Analysis, 2007 Rental Needs Analysis and 2012 Housing Needs Analysis. While the
methodology and conclusions vary, all of the studies identify a deficit of rental housing
units and a surplus of ownership units. In addition, the 2007 Rental Needs Analysis and
2012 Housing Needs Analysis identified a need for small rental units for one or two
person households. All of the past studies recommend encouraging the development of
more multifamily housing (i.e., rental units) and included specific suggestions to restrict
housing to apartments in certain zones, promote development of residential units in
commercial and employment zones, increase the land supply for multifamily
development, locate rental units near employment centers and limit the conversion of
existing rental units to condominiums.
According to figures released in January 2018 by the Southern Oregon Multiple Listing
Service, the median sales price for existing single-family residences in Ashland in 2017
was $421,500, which was a 7.5 percent gain over 2016 ("Ashland continued to lead
house prices in 2017," Greg Stiles, Ashland Daily Tidings, January 10, 2018). In contrast,
the purchasing power of an Ashland household earning the median income in 2017 was
$217,950 (median income for household of four) based on a household spending up to 30
percent of income on housing costs. The U.S. Department of Housing and Urban
Development (HUD) defines cost-burdened households as those who pay more than 30
percent of their income for housing and severe cost-burdened as paying more than 50
percent of income on housing costs.
The rental housing market has experienced increased prices and shortages over the last
several years. Residential rental unit vacancy rates remain at one to two percent for the
region. A low vacancy rate for rental units is generally considered to be an indicator that
there are little to no available units for rent.
As of May 2018, rentjungle.com showed the average rental unit price in Ashland as
$1,297 a month, with 43 units listed as available. There was one unit listed below $875 a
month and seven units available below $1,250, leaving 35 of the advertised units or 81
percent of the advertised units above the affordable monthly rent for workforce housing.
As of July 2018, rentjungle.com shows the average rental unit price in Ashland as $1,493.
In August 2018, 31 units were listed as available. There was one unit listed below $875 a
month and five units listed below $1,250. As a result, 25 of the advertised units or 81
percent of the advertised units were above the affordable monthly rent for workforce
housing.
The second change in circumstances involves the City accommodating future housing
needs within the existing boundaries. The City of Ashland participated in the regional
planning process that resulted in the adoption of the Greater Bear Creek Valley Regional
Plan in 2012. Cities throughout the region identified urban reserve areas (URAs) to
accommodate housing for future population growth. The City of Ashland decided to
accommodate housing for future population with the Ashland's current boundaries rather
than identify future growth areas on the perimeter of the city.
Findings of Fact and Conclusions of Law Page 8
As a result, Ashland committed to exploring ways to increase land use efficiency and
accommodate future housing needs without identifying URAs. Changes to the zoning and
land use ordinance that encourage development of residential units in the transit triangle
can provide needed multifamily residential units to contribute toward accommodating
future housing needs.
The TT overlay is well situated for multifamily housing because: 1) the streets include
well-linked and continuous sidewalks and bicycle lanes, 2) shopping, services, parks and
neighborhoods are located within walking distance, and 3) the overlay is located on a bus
route.
The TT overlay has had limited development or redevelopment. Despite an allowance in
the C-1 and E-1 for 15 to 30 dwelling units per acre and in the R-2 and R-3 zones for 13
to 20 units per acre, past development adjacent to the bus route on Ashland St. has
primarily comprised of single-use, one story commercial buildings without a residential
component. There have been nine developments on Ashland St. since the mid 1990's.
Two of the nine developments included residential units that resulted in 41 housing units.
The remaining seven development sites had an allowable residential density of 158.5
units but did not take advantage or include housing units. As a result, 21 percent of the
allowed housing units were developed on Ashland St. over the last 25 years.
The transit triangle is served by Rogue Valley Transportation District (RVTD) Route 10
with 20-minute service from 7am-5pm (Monday-Friday) and 30-minute service for the
remainder of the day (5am-7am and 5pm-8pm, Monday - Friday). Route 10 also includes
service on Saturdays at 30-minute intervals from 6am-7pm. Route 10 provides the
highest ridership in the RVTD system (50 percent of all RVTD riders) and the Bi-Mart
stop on Tolman Creek Rd. is one of the most used stops system wide.
RVTD provided service enhancements to Route 10 in early 2018 including expanded
later evening service Monday through Friday and 30-minute service on Saturdays.
Weekday service was extended an hour from 7pm to 8pm and Saturday service was
changed from hour intervals to 30-minute intervals.
The Council finds the land use ordinance and map amendments are consistent with
Ashland Municipal Code (AMC) 18.5.9.020.B.
B. Consistency with the Ashland Comprehensive Plan and other City Policies
The amendments are consistent with the goals and policies in the Ashland
Comprehensive Plan as well as other City documents and policies.
The City Council identified developing infill and compact urban form as a mid-priority
item in the 2015-2017 Council Goals and Objectives (Objective 13.2). The specific
action item was to "update the infill strategy along major transportation corridors to
promote housing and business development, as well as alternative transportation
choices."
Findings of Fact and Conclusions of Law Page 9
The 2015-2017 Council Goals and Objectives also identified pursuing affordable housing
opportunities, especially workforce housing and identifying specific incentives for
developers to build more affordable housing (Objective 5.2). The specific action item was
to "adjust infill strategies in order to promote hosing development along major
transportation corridors."
The Ashland Comprehensive Plan includes a goal to "Ensure a variety of dwelling types
and provide housing opportunities for the total cross-section of Ashland's population,
consistent with preserving the character and appearance of the city.
The Ashland Housing Analysis identified a deficit in rental housing and recommended
more rental studio and one-bedroom units.
The TT overlay provides an area to construct moderately sized housing units
adjacent to the bus route. The Envision Tomorrow model was used in the project
analysis to evaluate the financial and physical feasibility a variety of building
prototypes. The analysis demonstrated that the amendments, including removing
the residential density cap, made it possible to develop projects with a greater
number of housing units. This in turn resulted in smaller multifamily units that
were projected to be at rates affordable to households at 120 percent of Ashland's
median income. Affordable rates were defined as 30 percent of household
income.
The Ashland Comprehensive Plan includes an economic policy to provide specific
development guidelines which will ensure that "Development along Siskiyou Boulevard
and Ashland Street will not primarily be automobile-oriented, but will also include
attractive landscaping and designs that encourage pedestrian, bicycle, and mass transit
forms of travel.
The Ashland Comprehensive Plan includes several transportation goals and policies that
apply to the project, including the following. Design the Land Use Ordinance to ensure
Ashland Street is developed as a multi-modal corridor including attractive landscaping,
sidewalks, bike lanes and controlled access. Development along Ashland Street shall be
compatible with and support a multi-modal orientation. Zoning shall allow for residential
densities and a mix of commercial businesses with walking distance of existing and
planned public transit service which support use of public transportation.
The Transportation System Plan includes four projects in the transit triangle related to
improving sidewalks, bus shelters and intersections enhancements for pedestrians
including two projects for Ashland Street Streetscape Enhancements (R38 for Siskiyou
Blvd. to Walker Ave. and R-39 for Walker Ave. to Normal Ave.), Ashland Street/Tolman
Creek Road (R41) and the Walker Ave. festival street (R40).
The infill strategy project also relates to policies included in the City's Climate and
Energy Action Plan (CEAP). Specifically, the plan includes strategies to address
residential travel and the emissions associated with passenger cars and trucks. Common
Findings of Fact and Conclusions of Law Page 10
strategies for replacing residential travel trips in passenger cars and trucks include
promoting land use development patterns that utilize existing public infrastructure and
making using transit and alternate modes of transportation possible and even desirable.
The TT overlay is well situated for multifamily housing because: 1) the streets
include well-linked and continuous sidewalks and bicycle lanes, 2) shopping,
services, parks and neighborhoods are located within walking distance, and 3) the
overlay is located on a bus route. The amendments allow for a concentration and
mix of residential and commercial uses within to %x of a mile from the existing
RVTD Route 10.
In turn, greater concentrations of housing and businesses in the TT overlay
provide transportation choices for residents, business patrons and employees. An
increase in the density and mix of uses in the overlay along with bus route and the
walking and bicycling facilities provides the environment to replace trips in
passenger cards with walking, bicycling and transit trips. In addition, living in the
TT overlay provides the option for households to reduce or eliminate car
ownership. Reduced car ownership can reduce household transportation costs.
The Ashland Comprehensive Plan includes an economic goal "to ensure that the local
economy increases in its health, and diversifies in the number, type, ad size of businesses
consistent with the local social needs, public service capabilities, and the retention of a
high quality environment."
The amendments are designed to facilitate the development of housing in an area
adjacent to the bus route that has seen limited development and redevelopment
over the past 25 years. The purpose of the TT overlay is to encourage
development and redevelopment adjacent to the bus route that includes a mix of
commercial and residential uses, especially of housing units. In turn,, greater
concentrations of housing in the overlay area can create a more vibrant walking
environment and additional potential customers and employees.
The City's Economic Development Strategy includes a strategy 7.3 to "Consider changes
to Land Use Development Code that may be inhibiting redevelopment or new
construction."
The TT overlay project is designed to facilitate the development of housing in an area
adjacent to the bus route that has seen limited development and redevelopment over
the past 25 years. The amendments remove barriers in the existing zoning standards
to multifamily residential development in zones (i.e., C-1, E-1, R-3, R-2) that
currently allow residential uses. The ordinance amendments include removing
residential density caps to facilitate the development of more residential units in
slightly larger building volumes that are controlled by Floor Area Ratio (FAR) and
building mass standards.
The Ashland Comprehensive Plan includes a regional plan element with performance
Findings of Fact and Conclusions of Law Page 11
indicators including a committed residential density for the city limits of 6.6 dwelling
units per acre and targets for mixed-use/pedestrian-friendly areas.
The City of Ashland participated in the regional planning process that resulted in
the adoption of the Greater Bear Creek Valley Regional Plan in 2012. Cities
throughout the region identified urban reserve areas (URAs) to accommodate
housing for future population growth. The City of Ashland decided to
accommodate housing for future population with the Ashland's current
boundaries rather than identify future growth areas on the perimeter of the city.
As a result, Ashland committed to exploring ways to increase land use efficiency
and accommodate future housing needs without identifying URAs. Changes to the
zoning and land use ordinance that encourage development of residential units in
the TT overlay can provide needed multifamily residential units to contribute
toward accommodating future housing needs.
The Council finds and determines that the proposed amendments are consistent with the
Comprehensive Plan and other aforementioned City documents and policies.
C. Consistency with Oregon land use laws and regulations including specifically Oregon
Statewide Planning Goal 10 Housing as implemented by OAR Chapter 660, Division 8
Oregon Statewide Planning Goal 10 requires cities to inventory and plan for buildable
lands for residential use to provide for adequate numbers of needed housing units at price
ranges and rent levels which are commensurate with the financial capabilities of Oregon
households and allow for flexibility of housing location, type and density.
As explained in the findings in section A, housing prices and rents have continued to rise
at a rapid rate since the recession. For-purchase housing is not affordable to Ashland
households earning 120 percent of median income and less. Rental housing vacancy
rates remain at one to two percent for the region, indicating there are little to no available
units for rent. While housing affordability was an issue in Ashland prior to the latest
recession, trends in increased housing prices and lack of rental housing intensified in the
last several years throughout the region, state and west coast. Loss of homes because of
foreclosures and job homes shifted more households to the rental market. The supply of
housing was also impacted by less construction during the recession.
In addition to the demographic research by Fregonese Associates in section A, the City of
Ashland 2012 Housing Needs Analysis, along with the 2007 Rental Needs Analysis and
2003 Housing Needs Analysis were used in defining the most pressing housing need for
the focus of the TT overlay project. The 2012 Housing Needs Analysis was adopted as
technical supporting document to the Comprehensive Plan (Ordinance #3085).
While the methodology and conclusions of the housing and rental needs analyses vary, all
of the studies identify a deficit of rental housing units and a surplus of attached and
detached single-family homes. In addition, the 2007 Rental Needs Analysis and 2012
Findings of Fact and Conclusions of Law Page 12
Housing Needs Analysis identified a need for small rental units for one or two person
households. All of the past studies recommend encouraging the development of more
multifamily housing (i.e., rental units) and included specific suggestions to restrict
housing to apartments in certain zones, promote development of residential units in
commercial and employment zones, increase the land supply for multifamily
development, locate rental units near employment centers and limit the conversion of
existing rental units to condominiums.
The TT overlay project is designed to facilitate the development of housing in an area
adjacent to the bus route that has seen limited development and redevelopment. Despite
an allowance in the C-1 and E-1 for 15 to 30 dwelling units per acre and in the R-2 and
R-3 zones for 13 to 20 units per acre, past development adjacent to the bus route on
Ashland St. has primarily comprised of single-use, one story commercial buildings
without a residential component. There have been nine developments on Ashland St.
since the mid 1990's. Two of the nine developments included residential units that
resulted in 41 housing units. The remaining seven development sites had an allowable
residential density of 158.5 units but did not take advantage or include housing units. As
a result, 21 percent of the allowed housing units were developed on Ashland St. over the
last 25 years.
The amendments remove barriers in the existing zoning standards to multifamily
residential development in zones (i.e., C-1, E-1, R-3, R-2) that currently allow residential
uses. The ordinance amendments include removing residential density caps to facilitate
the development of more residential units in slightly larger building volumes with the
intent of decreasing dwelling unit size and thereby cost. The City Council finds the
proposed amendments provide an area to construct greater numbers of moderately sized
housing units in an area located on the bus route as well as within walking and bicycling
distance to shopping and services, parks and existing residential neighborhoods.
The City Council finds the amendments meet the City's needs consistent with the intent
of Oregon Statewide Planning Goal 10 Housing.
D. Consistency with Oregon land use laws and regulations including specifically Oregon
Statewide Planning Goal 12 Transportation as implemented by OAR Chapter 660,
Division 12
Goal 12 is implemented through the Transportation Planning Rule (TPR), as defined in
Oregon Administrative Rule OAR 660-012-0000, et seq. OAR 660-012-0060(1) states
that when land use changes would significantly affect an existing or planned
transportation facility the local government must put in place measures to assure that the
allowed land uses are consistent with the identified function, capacity and performance
standards (level of service, volume to capacity ratio, etc.) of the impacted transportation
facilities.
Accordingly, local jurisdictions are required to make an assessment of transportation
impacts when land use regulation and zoning map amendments are proposed. While the
Findings of Fact and Conclusions of Law Page 13
TT overlay is optional for applicants and is far from a wholesale change of the existing
Ashland zoning designations, an assessment of significant affect is included to address
the requirements of OAR 660-012-0060.
The development of the TT overlay was evaluated in comparison of development of the
overlay area under current zoning. The proposed and existing trip generation was
considered as well as run of the regional transportation demand model for 2037. Based on
the potential trip generation and 2037 modeling scenarios of the TT overlay compared to
the current zoning, there is a reduction in vehicle trips and therefore no significant affect
on the surrounding transportation network. The table below summarizes the potential trip
generation for the TT overlay in comparison to the adopted (No-build) land uses.
Weekday AM Pea Peak Hour
Total Daily
r
Land use ITE code"'.:"'-'~Size
Trips Total Trips in -
li~, 'An Out
Net Increase in Housing
Apartments 220 273 1,998 126 29 97 153 96 57
Net Decrease in Retail
Retail 820 60,000 2,266 56 35 21 229 110 119
Retail pass-by (34%) 770 20 10 10 78 39 39
Net New Retail 1,496 36 25 11 151 71 80
Retail less Apartments -502 -90 -4 -86 -2 -25 23
The TT overlay covers an area that largely developed with some infill development
potential. A review of the lots located in the TT overlay determined approximately 15
percent of the land located within the TT overlay has development potential. Residential
density was calculated under the TT overlay and existing zoning to determine the net
number of multifamily housing units. In addition, the TT overlay allows for a reduction
in ground floor nonresidential uses from the current 65 percent to 35 percent. The
commercial square footage under the TT overlay and existing zoning was calculated to
determine the net change in commercial square footage. Full development of the TT
overlay results in an increase of 273 multifamily residential units over the current zoning
and a reduction of 60,000 commercial square footage over current zoning.
It is important to note that the trip generation and modeling analysis was based on the full
build out of the TT overlay using the new development code that is proposed for the
specific geographic area. However, in reality the TI' overlay is an optional approach for
the applicant and is not required. The degree of the number of properties that will use the
TT overlay is difficult to predict. As a result, the full build out of the TT overlay was
used as the most extreme or impactful scenario in terms of changes to uses for the
purposes of comparing the trip generation and modeling results to build out under current
zoning.
The OAR is directed at maintaining a balance between changes in allowed land uses and
the transportation system that supports those land uses. Where a proposed change from
Findings of Fact and Conclusions of Law Page 14
the adopted land use regulations and zoning map would "significantly affect" an existing
or planned transportation facility, a local government must put in place measures to
assure that the land uses being proposed are consistent with the identified function,
capacity and performance standards of the surrounding transportation network. The
planning rule identifies that a "significant affect" would be determined by meeting one of
the following three key elements.
1. Change the functional classification of an existing or planned transportation facility
(exclusive of correction of map errors in an adopted plan).
The TT overlay amendments do not request or result in the change of any of the
functional classifications on the surrounding roadway network as adopted in the
current Ashland Comprehensive Plan Transportation Element (1996) and Ashland
Transportation System Plan (2013).
2. Change standards implementing a functional classification system.
The TT overlay amendments do not include any improvements within the
transportation infrastructure that would be beyond the design standards for the
adopted functional classification of roadways in the adopted City of Ashland
Transportation System Plan (TSP).
3. As measured by the end of the planning period identified in the adopted
transportation system plan:
a. Create types or level of travel or access that are inconsistent with the functional
classification of existing or planned transportation facilities.
An increase in multifamily residential units in the TT overlay and reduced
commercial square footage will not create trips that are inconsistent with the type
or level of travel on surrounding boulevards (Ashland St. and Siskiyou Blvd.) and
avenues (Tolman Creek Rd.). Ashland St., Siskiyou Blvd. and Tolman Creek Rd.
are fully improved streets with continuous sidewalks and bike lanes, as well as the
location of RVTD bus route 10. The analysis demonstrates that there will be a
decrease in vehicle trips resulting in full build out under the TT overlay. In
addition, an increase in the concentration and mix of housing and commercial
uses in the area may ultimately result in increased transit, walking and bicycle
trips.
b. Degrade the performance of an existing or planned transportation facility such that
it would not meet the performance standards identified in the TSP or comprehensive
plan.
The analysis demonstrates that there will be a decrease in vehicle trips resulting
from full build out under the TT overlay and therefore no significant affect an
existing or planned transportation facility. Specifically, there no significant affect
Findings of Fact and Conclusions of Law Page 15
on the surrounding roadway network including the boulevards (Ashland St. and
Siskiyou Blvd.) and avenue (Tolman Creek Rd.). In addition, the decrease in
vehicle trips creates no significant affect on key intersections including Ashland
St./Siskiyou Blvd., Ashland St./Walker Ave., Ashland St./Tolman Creek Rd.,
Ashland St./Washington Ave., Ashland St./I-5 SB ramp, Ashland St./I-5 NB
ramp, Siskiyou Blvd., Walker Ave., and Tolman Creek Rd./Siskiyou Blvd.
Finally, the TT overlay is located on RVTD bus route 10 and has a continuous
and connected network of pedestrian and bicycle facilities. While transit,
pedestrian and bicycle trips were not included in the trip generation and modeling
analysis, it is likely future uses in the TT overlay will result in increased
multimodal trips and thereby could further reduce vehicle trips.
c. Degrade the performance of an existing or planned transportation facility such that
is otherwise projected to not meet the performance standards identified in the TSP
or comprehensive plan.
The analysis demonstrates that there will be a decrease in vehicle trips resulting
from full build out under the TT overlay and therefore no significant affect an
existing or planned transportation facility. Specifically, there no significant affect
on the surrounding roadway network including the boulevards (Ashland St. and
Siskiyou Blvd.) and avenue (Tolman Creek Rd.). In addition, the decrease in
vehicle trips creates no significant affect on key intersections including Ashland
St./Siskiyou Blvd., Ashland St./Walker Ave., Ashland St./Tolman Creek Rd.,
Ashland St./Washington Ave., Ashland St./I-5 SB ramp, Ashland St./I-5 NB
ramp, Siskiyou Blvd., Walker Ave., and Tolman Creek Rd./Siskiyou Blvd.
Finally, the TT overlay is located on RVTD bus route 10 and has a continuous
and connected network of pedestrian and bicycle facilities. While transit,
pedestrian and bicycle trips were not included in the trip generation and modeling
analysis, it is likely future uses in the TT overlay will result in increased
multimodal trips and thereby could further reduce vehicle trips.
The Council-finds and determines that the proposed amendments do not significantly
affect an existing or planned transportation facility and are consistent with Oregon
Statewide Planning Goal 12 Transportation as implemented by OAR Chapter 660,
Division 12.
OVERALL COUNCIL CONCLUSIONS
The City Council finds and determines the approval criteria for this decision have been
the detailed findings and
fully met, based on the detailed findings set forth herein,
analysis of the Planning Commission, and supporting documents together with all staff
reports, addenda and supporting materials in the whole record.
Specifically, the Council finds that the proposed amendments are consistent with City of
Ashland approval criteria for land use ordinance and zoning map amendments as set forth
in ALUO 18.5.9.020.B. The Council finds that the proposed amendments are consistent
Findings of Fact and Conclusions of Law Page 16
with the City of Ashland Comprehensive Plan and other City policies. The Council finds
and determines that the proposed amendments are consistent Oregon land use laws and
regulations including specifically Oregon Statewide Planning Goal 10 Housing and
Oregon Statewide Planning Goal 12 Transportation.
Accordingly, based on the above Findings of Fact and Conclusions of Law, and based
upon the evidence in the whole record. the City Council hereby APPROVES the
ADOPTION of the following amendments to the Ashland Land Use Ordinance and
Ashland Zoning Map as rctlectcd in three distinct ordinances:
• Chapter 18.31. 14 Transit Triangle Overlay is added to the land use ordinance,
AMC Title 18 Land Use.
• The zoning map is amended to include the Transit Triangle (TT) overlay.
• The land use ordinance, AMC Title 18 Land Use is amended to implement the
infill strategy and for clarity and consistency.
Ashland City Council Approval
~Z~ IBII 8
Jc Stromb rg, Mayor Date
Signature authorized and approved by the full Council this 18th day of December, 2018.
Attest:
Melissa I-Iuhtala. City Recorder Date
Approved as to form:
David H. Lohman,-City Attorney Date
Findings of Fact and Conclusions of Law Page 17