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HomeMy WebLinkAbout2016-04-26 Planning PACKET Note: Anyone wishing to speak at any Planning Commission meeting is encouraged to do so. If you wish to speak, please rise and, after you have been recognized by the Chair, give your name and complete address for the record. You will then be allowed to speak. Please note that the public testimony may be limited by the Chair and normally is not allowed after the Public Hearing is closed. ASHLAND PLANNING COMMISSION STUDY SESSION APRIL 26, 2016 AGENDA I. CALL TO ORDER: 7:00 PM, Civic Center Council Chambers, 1175 E. Main Street. II. ANNOUNCEMENTS III. AD-HOC COMMITTEE UPDATES IV. PUBLIC FORUM V. PRESENTATION A.Tiny Home Presentation by Andrew Morrison. VI. DISCUSSION A.Cottage Housing Standards. VII. ADJOURNMENT In compliance with the Americans with Disabilities Act, if you need special assistance to participate in this meeting, please contact the Community Development office at 541-488-5305 (TTY phone is 1-800-735-2900). Notification 48 hours prior to the meeting will enable the City to make reasonable arrangements to ensure accessibility to the meeting (28 CFR 35.102-35.104 ADA Title 1). ͵ DISCUSSION ITEM _________________________________ Cottage Housing Standards Memo DATE: April 26, 2016 TO: Ashland Planning Commission FROM: Maria Harris, Planning Manager RE: Cottage Housing Standards SUMMARY Prior to adopting the land use ordinance in December 2014, the City Council deleted the section on cottage housing and referred the item back to the Planning Commission for further review. The original draft included cottage housing as a special use and a set of development standards. The Council had concerns with the proposed ordinance including the square footage and height restrictions for cottages, allowing cottages in the R-1-10 zone, and the separation requirement between cottage developments. The draft ordinance is attached. This item on the meeting agenda to reacquaint the Commission about the status of the item and for discussion purposes. In addition to the cottage housing standards, staff would also like to include a package of housekeeping amendments to correct typographical errors and address items that need clarification from the previous land use ordinance. For example, the applicability of the maximum permitted floor area (MPFA) to non-residential development was an item of discussion at a recent public hearing on a planning application. BACKGROUND The attached draft includes cottage housing as an option for subdivisions in the single-family zones (R- 1-10, R-1-7.5, R-1-5 and R-1-3.5) that are developed under the performance standards option in Ch. 18- 3.9. The cottage housing density bonus allows two cottage units in place of each single-family unit allowed if the development meets a set of site and building design standards. Some of the key development standards area: Developments must include a minimum of four and a maximum of 16 cottages, and be at least 1,000 feet from any other cottage housing developments. Maximum gross floor area for a cottage is 800 square feet. Maximum building height is 1 ½ stories and 18 feet. Up to two cottages can be attached. Lot coverage must meet the requirements of the underlying zone. Each cottage requires 1.25 off-street parking spaces. Parking is consolidated in a surface parking or common structure. Page2 of 3 Unless a street connection is on the Street Dedication Map or is determined to be essential for the function of the transportation system, the approval authority may reduce or waive the requirement to install public streets if the development meets connectivity and block length standards by providing public access for pedestrians and bicyclists connecting the pubic street to adjoining properties. A minimum of 20 percent of the total lot area is required as common open space, and each cottage must have at least 300 square feet of usable private cottage space. Units are required to have a covered main entry porch, exterior trim elements consistent with traditional cottage design, and a minimum of 12-inch eaves. City Council Issues The City Council identified the following issues and suggestions at the October 7, 2014 meeting. Concern about the size limitation for the cottages. Make the overall square footage a cumulative total and let the developer decide how to divide up the building area into some larger and smaller units. Cottage housing shouldn’t be allowed in R-1-10 zones. The proposed design standards make construction costs too expensive, particularly the 1 ½ story requirement. The 1,000 feet separation requirement between cottage housing developments may make sense in R- 1-5 but it doesn’t in R-1-3.5. Need to provide a competitive model that is financially feasible. The standards need more flexibility. Policy Objectives To provide alternative types of housing for small households; provide high quality infill development which maintains traditional cottage amenities and proportions and contribute to neighborhood character; efficiently use residential land supply; and meet regional plan commitment to accommodate future population growth within the City’s existing boundaries. The City Council adopted new goals since the adoption of the reformatted and amended land use ordinance in December 2014. The following items are goals and objectives from the Council’s most recent effort, “Ashland 2020,” that potentially relate to cottage housing. Support and promote, through policy, programs that make the City affordable to live in. Pursue affordable housing opportunities, especially workforce housing. Identify specific incentives for developers to build more affordable housing. (high priority for 2015-2017) Support land-use plans and policies that encourage family-friendly neighborhoods. Draft pocket neighborhood code that allows for the construction of small scale, cottage housing projects. The City adopted a new chapter in the Ashland Comprehensive Plan in 2012 to incorporate the applicable portions of the adopted the Greater Bear Creek Valley Regional Plan. As a part of the regional planning process, six of the seven communities identified areas outside their respective urban growth boundaries (UGB) for future growth. However, the City of Ashland did not identify UGB expansion areas and committed to evaluating innovative land use strategies to accommodate future residential and employment growth within the City’s existing boundaries. The Ashland Comprehensive Plan includes the following performance indicators in the Regional Plan Element. DEPT. OF COMMUNITY DEVELOPMENT Tel: 541-488-5305 20 E. Main Street Fax: 541-552-2050 Ashland, Oregon 97520 TTY: 800-735-2900 www.ashland.or.us Page3 of 3 Reach density of 6.6 dwelling units per acre for land in the UGB that is annexed or offset by increasing the residential density in the city limits. Achieve targets for dwelling units and employment in mixed-use/pedestrian-friendly areas. Participate in a regional housing strategy that strongly encourages a range of housing types. Other related goals and policies in the Ashland Comprehensive Plan include the following. 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. (Housing Element) Encourage the development of private common open space area in new residential developments to offset the demand for additional public parks. (Parks, Open Space, and Aesthetics Element) Maintain and improve Ashland’s compact urban form to allow maximum pedestrian and bicycle travel. (Transportation Element) Comments Cottage housing developments are a group of small homes oriented around an open space that are pedestrian-oriented and minimize the visibility of off-street parking by providing a consolidated parking area. Cottage housing is considered an innovative housing type that provides opportunities for creative, diverse, and high quality infill development that preserves the scale and character of existing single- family neighborhoods. Cottage housing offers a choice for those wanting to remain in a single-family neighborhood and desiring home ownership, and the units are of a size and function suitable for a single person or small families. Cottage housing if generally considered more affordable because of small unit and lot sizes. The draft standards were intended to allow cottage housing in the single-family zones because the homes are designed to be compatible with a single-family environment. In addition, the largest surplus of residentially zoned land in Ashland is in the single-family zones. The 2011 Buildable Land Inventory identified over ten times the acreage available in the city limits in the single-family zones compared to the multi-family zones (144.3 acres vs. 13.2 Acres). The maximum cottage size is based on the median size of 1,853 square feet of new single-family homes in Ashland over the four-year period from July 2008 to June 2012. Since two cottages are allowed in place of every single-family home, the rationale is that the cottages should be half the size or smaller than a typical single-family home. Cottage housing development codes usually limit building mass to 1,000 square feet or less in order to ensure that the cottages are a clear alternative to the larger single- family homes that are permitted under existing development regulations. ATTACHMENTS Cottage housing ordinance, August 2014 draft DEPT. OF COMMUNITY DEVELOPMENT Tel: 541-488-5305 20 E. Main Street Fax: 541-552-2050 Ashland, Oregon 97520 TTY: 800-735-2900 www.ashland.or.us 3.9 Performance Standards Option; See Cottage housing ordinance, August 2014 draft Page 1 In the R-1 zones, subject to chapter 18- swine, commercial compost, or similar District Overlay, see Sec. 18-2.3.120 andards in Sec. Sec. 18-2.3.210 for Railroad Historic Animal sales, feed yards, keeping of In the R-2 and R-3 zones, subject to Sec. 18-2.3.090 for cottage housing See Keeping of Livestock and Bees chapter 18-5.2 Site Design Review. Sec. 18-2.3.170 and not allowed in Dwellings and additions in Historic Duplex Dwelling S P P P N N S S N Sec. 18-2.3.110 Duplex Dwelling standards in Sec. 18-2.3.160 dards; CU = Conditional Use Permit Required; N = Not Allowed. Special Use Standards Historic District Overlay See Single-Family st uses not allowed N N N N N N Sec. 18-2.3.180 and 18-2.5.070 Accessory Residential Unit S S S S S N N N N Sec. 18-2.3.040 18-2.5.090 standards District E-1 M-1 Agriculture and Farm Use, except Livestock P P P P P P N N N Keeping of Bees S S S S S S S N N Keeping of Livestock S N N N S S N N N Keeping of Micro-Livestock S S S S S S N N N Single-Family Dwelling P P P P P P S S N Manufactured Home on Individual Lot S S S S N N N N N N CU CU CU N N N N N N N C-1 & C-1-D N R-2 R-3 RR WR N N P KEY: P = Permitted Use; S = Permitted with Special Use Stan CU+ PS 3.5 R-1- Manufactured Housing Development N S S R-1 S Table 18-2.2.030 – Uses Allowed by Zone Personal or Professional Service Exceeding Home Occupation Threshold B. Household Living Uses 1 A. Agricultural Uses Cottage Housing 1 18-2.3.090 Cottage Housing in the R-1 Zones A. Purpose and Intent. 1. Support the local and regional growth management goal of more efficient use of city residential land. Cottage housing may allow higher residential density than is normally allowed in the underlying zone. This increased density is possible with smaller than average home sizes, clustered parking, and site design standards that promote compatible infill development. 2. Support the Comprehensive plan goal of affordability, innovation, and variety in housing design and site development; and a variety of housing choices to meet the needs of a population diverse in age, income, household composition, and individual needs. 3. Provide opportunities for an alternative type of housing for small households. 4. Provide opportunities for high quality infill development which maintains traditional cottage amenities and proportions and contribute to the overall community character. 5. The cottage housing development design standards contained in this section are intended to create a small community of cottages oriented around open space that is pedestrian-oriented and minimizes the visibility of off-street parking. B. Applicability and General Requirements 1. R-1 Zones. In the R-1 zones cottage housing developments are subject to review through chapter 18-3.9 Performance Standards, and shall meet the requirements of subsection 18-2.3.090.C, below. 2. R-2 and R-3 Zones. In the R-2 and R-3 zones, cottage housing developments are subject to review through chapter 18-5.2 Site Design Review, and are exempt from the development standards in subsection 18-2.3.090.C, below. C. Development Standards Cottage housing developments in the R-1 zones shall meet all of the following requirements. 1. Spacing. Cottage housing developments shall be separated from each other by a minimum of 1,000 feet. 2. Number of Units. Cottage housing developments shall include a minimum of four units and a maximum of 16 units, pursuant to the density standards of section 18-3.9.050. 3. Building and Site Design. a.Maximum Floor Area. Residences in cottage housing developments are primarily intended for small households. Maintaining the maximum square footage of residences in cottage housing developments is necessary to prevent overbuilding of the site and to not exceed available off-street parking. The gross floor area of each cottage unit shall not exceed 800square feet. For the purpose of this section, gross floor area excludes any space where the floor to ceiling height is less than seven feet. b.Height. Structures in cottage housing developments shall be designed to be single story, one and one-half story, or single story plus a loft. Building height of all structures shall not exceed 18 feet. The highest point of a pitched roof may extend Cottage housing ordinance, August 2014 draft Page 2 up to 25 feet at the ridge of the roof. c.Setbacks. Setbacks along the perimeter of the development shall have the same setbacks as required in the zoning district. See Table 18-2.5.030.A d.Building Separation. Up to two cottages may be attached. All buildings containing residential units within a cottage housing development shall maintain a minimum separation of ten feet measured from the nearest point of the exterior walls. Accessory buildings (e.g., carport, garage, shed, multipurpose room) shall comply with building code requirements for separation from non-residential structures. e.Lot Coverage. Lot coverage shall meet the requirements of the underlying zone. See Table 18-2.5.030.A. f.Covered Usable Main Entry Porches. All residences in cottage housing developments shall include a covered main entry porch to create a private outdoor space protected from the weather and provide a transition from the interior private residential space to the semi-private outdoor space. i. Covered porches shall be usable in both design and dimension. Cottage homes shall have a covered main entry porch with a floor area measuring at least 64 square feet in size. ii. The floor of the covered main entry porch shall have minimum dimensions of not less than six feet in depth and eight feet in width. g.Exterior Trims and Eaves. Cottage housing development structures shall be provided with substantial exterior trim elements consistent with traditional cottage design and small home craftsmanship. Roofs in cottage housing developments shall have eaves to recognize traditional cottage design traits to efficiently shed rain, and provide sun and rain protection. i. All windows and doors shall provide trim with a minimum width of three and one- half inches for all cottage housing development structures. ii. Eaves of at least 12 inches shall be provided on all cottage structures on at least two sides of each building. Where buildings are not square (one set of exterior parallel walls are longer than the other), the eaves shall be provided on the parallel walls that are the longest. h.Street Facing Facades. i. The street facing facades of cottages must contribute to the neighborhood by including attractive design details such as windows, changes in materials, and views of front doors or porches. ii. The main entries of cottages visible from the adjacent streets shall provide a visual pedestrian connection with the surrounding neighborhood. iii. All cottages adjacent to the street shall have their primary orientation to the street and street facing facades that avoid blank walls. Cottages adjacent to the street shall include the following: (A). Changes in exterior siding material and paint color. Cottage housing ordinance, August 2014 draft Page 3 (B). Windows which may include bay windows. (C). Offsets in the street facing facade with a depth measuring at least one foot. 4. Access, Circulation, and Off-Street Parking Requirements. Notwithstanding the provisions of chapter 18-4.3 Parking, Access, and Circulation, cottage housing developments shall conform to the following requirements: a. Pedestrian access shall be provided to all cottages from the street and sidewalk, and shall meet the pedestrian access and circulation standards of 18-4.3.090. b. Except for those street connections identified on the Street Dedication Map or determined to be essential for the function of the transportation system, the Commission may reduce or waive the requirement to dedicate and construct a public street in chapter 18-5.3 where a cottage housing development meets the connectivity and block length standards in section 18-4.6.040 by providing public access for pedestrians and bicyclists with an alley or multi-use path connecting the public street to adjoining properties. c. Driveways and parking areas shall meet the vehicle area design standards of section 18-4.3.080. d. Parking shall be located on the cottage housing development property. e. Parking areas shall not be located between the buildings and the street, and shall be located and designed to be less visible from frontage streets than the cottages themselves. f. Parking areas shall be landscaped to screen parking from adjacent properties and street rights of way and shall meet applicable landscape standards of chapter 18-4.4. g. Parking Ratios: Cottage Floor Area of 800 sq. ft. or less: 1.25 parking spaces per unit. Existing nonconforming single family residence: 2 parking spaces per unit. h. Off-street parking may be located in or under a non-cottage parking structure (such as a single or multi-auto carport or garage), but such structures shall not be attached to individual cottages. Uncovered parking is also permitted provided that off street parking is screened from direct street view. i. Cottage housing developments are exempt from the on-street parking requirements of section 18-3.9.060. j.Exterior lighting and heating/cooling equipment noise. Cottage housing developments to be designed to minimize light impacts both within the development and to adjacent properties. Where provided, exterior lighting shall be mounted as low as possible, pointed downward, and the light source shall be shielded from direct observation from above, adjacent properties, and public rights of way. k.Fences. Notwithstanding the provisions of section 18-4.4.060, fence height is limited to three feet adjacent to the common open space and to four feet in other interior areas within the development, except as allowed for deer fencing in subsection 18- 4.4.060.B.6. Fences in the front and side yards abutting a public street, and on the Cottage housing ordinance, August 2014 draft Page 4 perimeter of the development shall meet the fence standards of section 18-4.4.060. Chain link fences are prohibited. 5. Common Open Space. Open space that is commonly owned by all members of a cottage housing development is an important feature of any site design. It is intended that the open space be adequately sized and centrally located with individual cottage entrances oriented toward the open space. The common open space shall meet all of the following standards: a. For the purpose of cottage housing, common open space shall be the central space that may be used by all occupants of the cottage complex surrounded by grouped cottages. b. Common open space shall be for recreational use by residents of the development, and provide a suitable surface for human use. Physically constrained areas such as wetlands or steep slopes cannot be counted towards the common open space requirement. c. A minimum of 20 percent of the total lot area is required as common open space. Common open space shall have no dimension that is less than 20 feet. d. At least 50 percent of the cottage units shall abut a common open space. e. The common open space shall not be across a street or parking area. f. Common open space shall be a contiguous area located in front or behind the cottages. g. The common open space shall have cottages abutting at least two sides grouped around the common open space. h. The common open space shall be distinguished from the private open space with a walkway, fencing, landscaping, berm, or similar method to provide a visual boundary around the perimeter of the common area. i. Parking areas, yard setbacks, spaces between buildings, areas under power lines, and private open space and driveways do not qualify as common open space. Figure 18-2.3.090 Cottage Housing Conceptual Site Plan Cottage housing ordinance, August 2014 draft Page 5 6. Private Open Space. Each residential unit in a cottage housing development shall have a private open space (i.e., private yard area). The private open space shall be separate from the common open space to create a sense of privacy and shall be oriented to take advantage of solar orientation and other natural features. The private open space shall be separated from the common open space with a small hedge, picket fence, or other similar visual separation to create a sense of separate ownership. a. Each cottage unit shall be provided with a minimum of 300 square feet of usable private open space. b. No dimension of the private open space shall be less than 15 feet. 7. Common Buildings, Existing Nonconforming Structures and Accessory Residential Units. a.Common Buildings. Up to 25 percent of the required common open space, but no greater than 1,500 square feet, may be utilized for a community building for the sole use of the cottage housing residents. Common buildings shall not be attached to individual cottages or other structures. Consolidated carports or garage structures are not subject to the area limitations of this section. b.Nonconforming Dwelling Units. On a lot to be used for a cottage housing development, an existing single-family residential structure, which may be nonconforming with respect to the standards of this chapter, shall be permitted to remain, but the extent of the nonconformity may not be increased. Such nonconforming dwelling units shall be included in the maximum permitted cottage density. c.Accessory Residential Units. New accessory residential units (ARUs) are not permitted in cottage housing developments, except that an existing attached or detached ARU that is accessory to an existing nonconforming single-family structure may be counted as a cottage unit if the property is developed subject to the provisions of this chapter. 8. Storm Water and Low-Impact Development. a. Cottage housing developments shall be designed to take advantage of open space and landscaped features to utilize storm water low impact development techniques including natural filtration and on-site infiltration of storm water. b. Low impact development techniques for storm water management shall be used wherever possible. Such techniques may include the use of porous solid surfaces in parking areas and walkways, directing roof drains and parking lot runoff to landscape beds, green or living roofs, and rain barrels. c. Cottages shall be located to maximize natural storm water functions. In this zone, cottages shall be grouped and parking areas shall be located to preserve as much contiguous, permanently undeveloped open space and native vegetation as possible. 9. Restrictions. a. The size of a cottage dwelling may not be increased beyond the maximum floor area Cottage housing ordinance, August 2014 draft Page 6 in subsection 18-2.3.090.B.a. A deed restriction shall be placed on the property notifying future property owners of the size restriction. 18-3.9.050 Performance Standards for Residential Developments The density of the development shall not exceed the density established by A. Base Densities. this section. The density shall be computed by dividing the total number of dwelling units by the acreage of the project, including land dedicated to the public. Fractional portions of the final answer, after bonus point calculations, shall not apply towards the total density. 1. The base density, for purposes of determining density bonuses allowed under this section, is as provided in Table 18-3.9.050. Table 18-3.9.050 Base Densities for Determining Allowable Density Bonus with Performance Standards Option Zone Allowable Density (dwelling units per acre) WR-2 0.30 du/acre WR-2.5 0.24 du/acre WR-5 0.12 du/acre WR-10 0.06 du/acre WR-20 0.03 du/acre RR-1 0.60 du/acre RR-.5 1.2 du/acre R-1-10 2.40 du/acre R-1-7.5 3.60 du/acre R-1-5 4.50 du/acre R-1-3.5 7.2 du/acre R-2 13.5 du/acre R-3 20 du/acre 2. Open Space Required. All developments with a base density of ten units or greater shall be required to provide a minimum of five percent of the total lot area in Open Space; that area is not subject to bonus point calculations, however, density bonuses shall be awarded to open space areas in excess of the five percent required by this subsection. The permitted base density shall be increased by the B. Density Bonus Point Calculations. percentage gained through bonus points. In no case shall the density exceed that allowed under the Comprehensive Plan. The maximum density bonus permitted shall be 60 percent (base density x 1.6), pursuant to the following criteria. 1. Conservation Housing. A maximum 15 percent bonus is allowed. One-hundred percent of the homes or residential units approved for development, after bonus point calculations, shall meet the minimum requirements for certification as a Earth Advantage home, as approved by the Ashland Conservation Division under the City’ s Earth Advantage program as adopted by resolution 2006-06. 2. Provision of Common Open Space. A maximum ten percent bonus is allowed, pursuant to the following. a.Purpose. Common open spaces may be provided in the form of natural areas, wetlands, playgrounds, active or passive recreational areas, and similar areas in Cottage housing ordinance, August 2014 draft Page 7 common ownership. All areas set aside for common open space may be counted for base density, unless otherwise excluded by subsection 18-3.9.050.A.2. However, for the purposes of awarding density bonus points, the Planning Commission shall consider whether or not the common open space is a significant amenity to project residents, and whether project residents will realistically interact with the open space on a day-to-day basis. The purpose of the density bonus for common open space is to permit areas, which could otherwise be developed, or sold as individual lots, to be retained in their natural state or to be developed as a recreational amenity. It is not the purpose of this provision to permit density bonuses for incidental open spaces that have no realistic use by project residents on a day-to-day basis. b.Standard. Except as required for cottage housing developments in subsection 18- 3.9.050.B.5, below, developments with fewer than ten units that provide more than two percent of the project area for common open space, or for developments of ten units or greater that provide more than five percent open space, a one percent bonus shall be awarded for each one percent of the total project area in common open space. 3. Provision of Major Recreational Facilities. A maximum ten percent bonus is allowed, pursuant to the following. a.Purpose. Points may be awarded for the provision of major recreational facilities such as tennis courts, swimming pools, playgrounds, or similar facilities. b.Standard. For each percent of total project cost devoted to recreational facilities, a six percent density bonus may be awarded up to a maximum of ten percent bonus. Total project cost shall be defined as the estimated sale price or value of each residential unit times the total number of units in the project. Estimated value shall include the total market value for the structure and land. A qualified architect or engineer shall prepare the cost of the recreational facility using current costs of recreational facilities. 4. Affordable Housing. A maximum bonus of 35 percent is allowed. Developments shall receive a density bonus of two units for each affordable housing unit provided. Affordable housing bonus shall be for residential units that are guaranteed affordable in accordance with the standards of section 18-2.5.050 Affordable Housing Standards. 5. Cottage Housing. a. In the R-1 zone, developments meeting the standards of section 18-2.3.090 Cottage Housing shall receive a density bonus of two cottage house units for each single- family home allowed by the base density of the district. The maximum cottage housing density bonus is established by the standards in section 18-2.3.090 Cottage Housing and exempt from the maximum bonus in subsection 18-3.9.050.B. b. All residential units in a cottage housing development count towards the maximum permitted density. Cottage housing ordinance, August 2014 draft Page 8