HomeMy WebLinkAbout2016-08-23_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
AUGUST 23, 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. DISCUSSION ITEMS
A.Cottage Housing Ordinance.
VI. 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).
Memo
DATE: August 23, 2016
TO: Ashland Planning Commission
FROM: Brandon Goldman, Senior Planner
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.
At a study session on n April 26, 2016 the Planning Commission reviewed the prior draft of the
ordinance and discussed land availability, applicable zones, unit sizes, and density allowances relating to
the development of cottage housing developments.
BACKGROUND
The attached draft includes amendments to the cottage housing ordinance originally drafted in 2014 and
presented to the Commission in April of this year.
In review of the available buildable lands Staff determined that there is limited opportunity for
cottage housing developments in R-1-10 zones. Additionally the existing densities permitted in
multi-family (R-2, R-3) and suburban residential zones (R-1-3.5) would already permit a cottage
housing development. As such the proposed cottage housing development standards would only
apply within the R-1-5, NN-1-5, and R-1-7.5 single family zones,
The prior draft proposed a density bonus allowing two cottage units in place of each single-family
unit allowed if the development meets a set of site and building design standards. In lieu of a density
bonus approach, the revised version now provides a Cottage Housing development density table that
stipulates the minimum lot size needed for 4, 5 & 6 unit developments, and establishes a new base
density for projects that are 7 units or larger. This clarified density table provides for developments
on small lots, and ensures cottage housing projects could be developed consistent with the
performance standards chapter for larger properties.
The prior draft stipulated that cottage housing development be at least 1,000 feet from any other
cottage housing developments. In reviewing the Buildable Lands Inventory for R-1 zones (map
attached) it appears that with the exception of lands outside the city limits, the existing distribution
of developable lots sizable enough for a cottage housing developments of 4 cottage units or more
largely addresses the intent to avoid clustering such developments. In the case of lands outside the
Page2 of 3
city limits annexation approval would be necessitated, and this review process will afford a higher
level of discretion in evaluating a proposed cottage housing residential development.
Consistent with the original draft, developments must include a minimum of four and a maximum of
16 cottages.
The prior draft proposed a maximum gross floor area for a cottage as 800 square feet. As currently
proposed the ordinance would stipulate that at least 75% of the units be less than 800sq.ft., but
would allow larger units provided the total average unit size of all units on the property not exceed
1000 square feet. This provision allows greater flexibility to let a developer decide how to divide up
the building area into a mix of some larger and smaller units, yet retaining the overall scale of a
cottage housing development.
Consistent with the original draft the maximum height remains 18’, with a maximum roof peak of
25’, and a 1.5 story limit.
Up to two cottages can be attached.
Lot coverage must meet the requirements of the underlying zone.
The parking provisions have been amended from the original draft to require:
1 parking space for units of less than 500 square feet,
o
1.25 parking space for units greater than 500 square feet but less than 800.
o
1.5 parking space for units greater than 800 square feet but less than 1000.
o
Parking is consolidated in a surface parking or common structure.
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 200 square feet of usable private cottage space.
The original draft included a number of specific design standards relating to the aesthetics and
orientation of the cottage housing units. The draft currently proposed retains the street facing
façade, separation, and orientation standards, but eliminates the design standards relating to covered
porches, exterior trim elements, and minimum eave sizes. Eliminating these design standards will
provide for greater design flexibility within a cottage housing development.
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)
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
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.
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 is generally considered more affordable because of small unit
and lot sizes.
ATTACHMENTS
Cottage housing ordinance, August 2016 draft
BLI Map for R-1 properties with 2 unit or greater development potential.
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
18.2.3.090 Cottage Housing in R-1 and NN-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-1-5 and R-1-7.5 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-1-3.5, R-2 and, R-3 Zones. In the R-1-3.5, 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.
3. NN -1 Zones. In the NN-1-5 zone cottage housing developments are subject to review
through chapter 18.3.9 Performance Standards and chapter 18.3.4 Normal
Neighborhood Plan, and shall meet the requirements of subsection 18.2.3.090.C, below.
4. NN -1-3.5 and NN-2 Zones. In the NN -1-3.5 and NN-2 zones cottage housing
developments are subject to review through chapter 18.5.2 Site Design Review and
chapter 18.3.4 Normal Neighborhood Plan, 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 and NN-1 zones shall meet all of the following
requirements.
1. Cottage Housing Density. In cottage housing developments, the permitted number of
units and minimum lot areas shall be as follows.
Cottage housing ordinance, August 2016 draft
Page 1
ğĬƌĻЊБ͵Ћ͵Ќ͵ЉВЉΑ/ƚƷƷğŭĻŷƚǒƭźƓŭķĻǝĻƌƚƦƒĻƓƷķĻƓƭźƷǤ
MinimumMaximumMaximum
number of number of Minimum lot Minimum lot Minimum lot number of units
cottages per cottages per size to size to size to per acre for a 7
Zones
cottagecottageaccommodate accommodate accommodate to 16 unit
housing housing 4 cottages 5 cottages 6 cottages cottage housing
development developmentdevelopment
ЊЏЊЎЉЉЉƭƨŅƷЊБАЎЉƭƨŅƷЋЋЎЉЉƭƨŅƷА͵ЋǒƓźƷƭƦĻƩğĭƩĻ
R-1-7.5 4
ЊЏЊЉЉЉЉƭƨŅƷЊЋЎЉЉƭƨŅƷЊЎЉЉЉƭƨŅƷВǒƓźƷƭƦĻƩğĭƩĻ
R-1-5 4
3. Building and Site Design.
Maximum Floor Area.The maximum gross floor area for at least 75 percent of the
a.
cottages shall not exceed 800 square feet, and the cumulataverage gross floor
ive
area for all units in a cottage housing development shall not exceed 1000 square
feetFor 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
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 zones. See Table 18.2.5.030.A.
d.Lot Coverage. Lot coverage shall meet the requirements of the underlying zone. See
Table 18.2.5.030.A.
e.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.
f.Street Facing Facades.
i. The main entries of cottages visible from the adjacent streets shall provide a
visual pedestrian connection with the surrounding neighborhood.
ii. 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.
(B). Windows which may include bay windows.
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.
Cottage housing ordinance, August 2016 draft
Page 2
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, 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, shared street, 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 consolidated to minimize the number of parking areas, and 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 500 square feet or less: 1 parking spaces per unit.
Cottage Floor Area of greater than 500 square feet and less than 800 square feet:
1.25 parking spaces per unit.
Cottage Floor Area greater than 800 square feet and less than 1000 square feet: 1.5
parking spaces per unit.
h. Off-street parking may be located within an accessory structure such as a 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. Exterior lighting shall meet the requirements of 18.4.4.050 Outdoor
Lighting.
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 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 shall meet all of the following standards.
a. For the purpose of cottage housing, common open space shall be the central space
Cottage housing ordinance, August 2016 draft
Page 3
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 yard areas 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 yards and driveways do not qualify as common open space.
Figure 18.2.3.090
Cottage Housing Conceptual Site Plan
6. Private Yards. Each residential unit in a cottage housing development shall have a
private yard area. The private yard shall be separate from the common open space to
Cottage housing ordinance, August 2016 draft
Page 4
create a sense of privacy. 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 200 square feet of usable
private yard area.
b. No dimension of the private yard area shall be less than 10 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
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.
Cottage housing ordinance, August 2016 draft
Page 5
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
The base density for cottage housing developments,for purposes of determining density
2.
bonuses, allowed under this section is as provided in Table 18.3.9.055
Table 18.3.9.055 Base Densities for Determining Allowable Density Bonus with Performance Standards Option
MinimumMaximum
Maximum number
number of number of Minimum lot Minimum lot Minimum lot
of units per acre
cottages per cottages per size to size to size to
Zones
for a 7 to 16 unit
cottagecottageaccommodate accommodate accommodate
cottage housing
housing housing 4 cottages 5 cottages 6 cottages
development
development development
R-1-7.5
416 15000 sq ft18750 sq ft22500 sq ft7.2 units per acre
R-1-5
416 10000 sq ft12500 sq ft15000 sq ft9 units per acre
3. 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
Cottage housing ordinance, August 2016 draft
Page 6
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
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. 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. Cottage housing developments of 7 units or greater, meeting
the standards of section 18.2.3.090 Cottage Housing, are eligible for conservation
housing density bonuses per the requirements of 18.3.9.050.B.1, and the
affordable housing density bonuses per the requirements of 18.3.9.050.B.4, but
are not eligible for additional density for the provision of common open space or
the provision of major recreational facilities.
Cottage housing ordinance, August 2016 draft
Page 7
TOLMA
N CREEK RD
N. MOUNTA
IN AVE
KAO
TS