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HomeMy WebLinkAbout2025-02-25 Planning PACKET Planning Commission Meeting Agenda ASHLAND PLANNING COMMISSION AGENDA Tuesday, February 25, 2025 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 the public testimony may be limited by the Chair. I. CALL TO ORDER 7:00 p.m., Civic Center Council Chambers, 1175 E. Main Street II.ANNOUNCEMENTS 1.Staff Announcements 2.Advisory Committee Liaison Reports III.PUBLIC FORUM Note: To speak to an agenda item in person you must fill out a speaker request form at the meeting and will then be recognized by the Chair to provide your public testimony. Written testimony can be submitted in advance or in person at the meeting. If you wish to discuss an agenda item electronically, please contact PC-public-testimony@ashland.or.us by February 25, 2025 to register to participate via Zoom. If you are interested in watching the meeting via Zoom, please utilize the following link: https://zoom.us/j/98750295983 IV.UNFINISHED BUSINESS 1.Approval of Findings for PA-T1-2024-00255, 110 Terrace Street V. DISCUSSION ITEMS 1. ClimateFriend Area 3J Consulting VI.OPEN DISCUSSION Space Space VII.ADJOURNMENT Next Meeting Date: March 11, 2025 In compliance with the Americans with Disabilities Act, if you need special assistance to participate in this meeting, please email planning@ashlandoregon.gov. Notification 72 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 Page 1 of 1 Total Page Number: 1 Total Page Number: 2 FINDINGS _________________________________ Approvalof Findings Total Page Number: 3 Total Page Number: 4 THE CITY OF ASHLAND BEFORE THE PLANNING COMMISSION February 25, 2025 IN THE MATTER OF PLANNING ACTION #PA-T1-2024-00255, A) REQUESTFOR A FORMALINTERPRETATIONOFTHEASHLAND) LANDUSEORDINANCEASITAPPLIESTOHOW A PEERRESPITE) HOME(ASDEFINEDATORS 430.626) AREREGULATED.THE) INTERPRETATIONREQUESTSTHATTHEPROPOSEDPEERRESPITE) HOMEINTHEEXISTINGRESIDENCEAT110TERRACESTREETBE) CLASSIFIEDAS A SIMILARUSETOTYPESOFGROUPLIVINGTHAT) FINDINGS, AREPERMITTEDINALLRESIDENTIALZONES,ANDTHATSUCH) CONCLUSIONS, INTERPRETATIONWOULDPROVIDE A REASONABLE) AND ORDERS. ACCOMMODATIONCONSISTENTWITHTHEFAIRHOUSINGACT) ANDAMERICANSWITHDISABILITYACT.) ) SUBJECT PROPERTY:110 Terrace St. ) OWNER: Shirley D Patton Trust ) APPLICANT: Rogue Planning & Development ) ___________________________________________________________ RECITALS: 1)The applicant requested a formal interpretation under the Ashland Land Use Ordinance (ALUO) to determine which land use category in the Ashland Municipal Code most closely aligns with the proposed Peer Respite Center at 110 Terrace Street. 2)The Ashland Land Use Ordinance (AMC 18.1.5.020) provides a process for interpretations when a proposed use is not explicitly listed or the ordinance is unclear regarding whether the use is permitted in a particular zone. Under this provision, the Planning Commission is tasked with making a determination regarding which use category the proposed Peer Respite Center most closely aligns with based on the definitions and intent of the zoning code. 3)The applicant requested that the Planning Commission evaluate whether the proposed use qualifies as a Group Living use, such as a Residential Care Home. Total Page Number: 5 4)Following a review of the evidence and arguments submitted, the Planning Commission evaluated whether the Fair Housing Act (FHA) reasonable accommodation provisions applied to the applicant’s request and whether allowing a Peer Respite Center in the RR- .5 zone would constitute a fundamental alteration of the zoning scheme. 5)The Planning Commission held a public hearing on January 14, 2025, to consider the applicant’s request. During this hearing, public testimony was received from multiple parties, including the applicant, members of the public, and legal representatives. 6)At the conclusion of the public hearing on January 14, 2025, the applicant requested that the record remain open for an additional 8 days in compliance with ORS 197.797(6), which states:“The applicant shall be allowed at least seven days after the record is closed to all other parties to submit final written arguments in support of the application. The applicant’s final submittal may not include new evidence.” a.The Planning Commission granted this request and established the following open record periods: 1.First 8-Day Period (January 15, 2025 – January 22, 2025): The record remained open to the public, allowing for the submission of additional written evidence and testimony. 2.Second 8-Day Period (January 23, 2025 – January 30, 2025): The record was open to all parties of record, allowing them to respond in writing to the testimony and evidence received during the first period. 3.Final 8-Day Period (January 31, 2025 – February 7, 2025): The applicant was granted a final period to provide rebuttal to any testimony or written materials submitted during the previous phases. 7)The Planning Commission officially closed the public hearing on January 14, 2025, but allowed the public record to remain open in accordance with ORS 197.797(6) and as requested by the applicant. Now, therefore, the Planning Commission of the City of Ashland finds, concludes, and recommends as follows: SECTION 1. EXHIBITS For the purposes of reference to these Findings, the attached index of exhibits, data, and testimony will be used. Staff Exhibits lettered with an "S" Proponent's Exhibits, lettered with a "P" Total Page Number: 6 Opponent's Exhibits, lettered with an "O" Hearing Minutes, Notices, and Miscellaneous Exhibits lettered with an "M" SECTION 2. CONCLUSORY FINDINGS OF FACT 2.1The Planning Commission notes that chapter 18 of the Ashland Municipal Code (AMC) is the City’s Land Use Ordinance (LUO). The LUO regulates the development pattern envisioned by the Comprehensive Plan and encourages efficient use of land resources among other goals. The Planning Commission notes that when considering the decision to approve or deny an application the Planning Commission considers the application materials against the relevant approval criteria in the AMC. 2.2The Planning Commission finds that it has received all information necessary to render a th decision based on the application itself, the January 14, 2025Staff memo, the applicant’s testimony, the exhibits received and public testimony received at the public hearing. 2.3The Planning Commission notes that the application was deemed complete and that the notice for the public hearing was both posted at the frontage of the subject property and mailed to all property owners within 200-feet of the subject property on December 20, 2024 (26 days prior to the January 14, 2025 hearing). 2.4On February 11, 2025, the Ashland Planning Commission reviewed all evidence and testimony submitted before and during the open record periods. After deliberation, the Commission made the following decisions regarding the settlement of the record: a.Letters Accepted into the Record: The Planning Commission accepted letters submitted by non-parties of record that were received between January 15, 2025, and January 22, 2025, as the record was open to the public during this period. These letters received from non-parties of record which were accepted into the record include: Ryan Hartman Josh Hedge Sam Inada Aki Robinson Mike Workman Regina Ayars Danielle Garten Mark Chirgwin Peggy Chirgwin Total Page Number: 7 Kathleen L. White, Board Member, Housing Land Advocates The Planning Commission finds that these letters were submitted within the legally open period for new evidence and testimony and, therefore, must be included in the record for consideration. As the record was open to the public during this time, there is no procedural basis for exclusion. b.Letters Excluded from the Record:The Planning Commission excluded letters received after the public record was closed by non-parties of record between January 23, 2025, and January 30, 2025, determining that they were untimely and did not comply with the record deadlines. The excluded letters include: Susan and Frank Semelka (January 24, 2025) Susan and Frank Semelka (January 30, 2025) Christie Riggins and Karl Knudsen Oliver Harkola The Planning Commission finds that these letters were submitted after the record had closed for new evidence from non-participants and, therefore, do not comply with the procedural deadlines. As the record was no longer open to non-parties after January 22, 2025, including these letters would be inconsistent with the City's land use procedures and ORS 197.797(6). c.Redacted Evidence: The Planning Commission redacted the following evidence from the record, as it was determined to be new evidence submitted after the January 22, 2025, deadline for new evidence and, therefore, inadmissible: Portions of January 29, 2025, letter from Sydnee Dreyer, O’Connor West LLC, which included new attachments containing new evidence. Attachment to January 29, 2025, letter from Maylee Oddo and Brock Dumont. Portions of January 30, 2025, letter from Rob Patridge which included new evidence in material received from the Oregon Health Authority on January 24, 2025. The January 30, 2025, memorandum of City of Ashland Planning Staff which contained new evidence relating to enforcement of travelers’ accommodations and is redacted in its entirety. The Planning Commission finds that these submissions constituted new evidence introduced after the January 22, 2025, deadline for inclusion in the record. The Commission further finds that the late submission of these materials would unfairly introduce new factual content without providing all parties with a reasonable opportunity for response. As such, the new evidentiary content has Total Page Number: 8 been deemed inadmissible and redacted from the final record of proceedings in accordance with the City's procedural rules and the requirements of ORS 197.763(6). 2.5The Planning Commission finds that a Peer Respite Center is most similar to a Traveler’s Accommodation, as defined in AMC 18.6.1.030, due to its short-term stay structure. The individuals served at a Peer Respite Center do not establish residency or tenancy but instead occupy the facility on a transient basis as a sojourn or respite, rather than as a housing use. Given that ORS 430.275 imposes a maximum stay of 14 days or less, the use aligns more closely with temporary lodging for transients rather than a Group Living or Residential Care Home classification intended for long-term residential accommodations. 2.6The Planning Commission finds that a Peer Respite Center does not meet the definition of Group Living under AMC 18.6.1.030 but instead falls within the Traveler’s Accommodation land use category, as it provides temporary lodging for transients for a period less than 30 consecutive days. As a result, a Peer Respite Center shallbe regulated as a Traveler’s Accommodation under the Ashland Land Use Ordinance (ALUO). 2.7The Planning Commission finds that a Peer Respite Center as established under ORS 430.275 does not qualify as a residence or dwelling, as it does not provide long-term living accommodations and does not meet the definitions of "dwelling" or "residential use" under AMC 18.6.1.030. The Planning Commission finds clients served at a Peer Respite Center have no expectation that the facility serves as a home or housing, as their stays are temporary, limited to a maximum of 14 days, and intended as a short-term respite rather than a permanent or semi-permanent living arrangement. Under AMC 18.6.1.030, Residential Use is defined as follows: Residential or Residential Use. Long-term occupancy of a dwelling unit, which may be owner-occupied or rented. Occupancy of a dwelling unit for shorter periods (i.e., less than 30 days) of time is considered an overnight accommodation for transient individuals. See also, definitions of Accessory Travelers’ Accommodation, Hotel/Motel, and Travelers’ Accommodation. Under AMC 18.6.1.030 Group Living and a Residential Care Home are defined as follows: Group Living. Group living is characterized by the long-term residential occupancy of a structure by a group of people. The size of the group typically is larger than the average size of a household. Group Living structures do not include self-contained units but rather have common facilities for residents including those for dining, social and Total Page Number: 9 recreational, and laundry. Residential Care Homes, Residential Care Facilities, and Room and Board Facilities are types of Group Living. - Residential Care Home: A residential treatment or training or adult foster home licensed by or under the authority of the department, as defined in ORS 443.400, under ORS 443.400to443.825, a residential facility registered under ORS443.480to443.500 or an adult foster home licensed under ORS443.705to443.825 that provides residential care alone or in conjunction with treatment or training or a combination thereof for five or fewer individuals who need not be related. (See also, ORS 197.660). 2.8The Planning Commission determinedthat a Peer Respite Center does not meet the definition of a residence or dwelling and therefore finds that the Fair Housing Act (FHA) does not apply. Reasonable accommodation under the FHA is required only when a zoning restriction limits access to housing for households or individuals within a protected class. As a Peer Respite Center does not function as housing or serve as a residence, the Commission determines that a reasonable accommodation is not warranted. 2.9The Planning Commission finds that Traveler’s Accommodations are expressly prohibited in the RR-.5 zone under AMC 18.2.2.030. As the Peer Respite Center has been determined to be most similar to a Traveler’s Accommodation, the Planning Commission determines that it cannot be located at 110 Terrace Street. 2.10The Planning Commission finds that allowing a Peer Respite Center, which has been determined to be most similar to a Traveler’s Accommodation, in the RR-.5 zone would significantly deviate from the allowable uses under the zoning ordinance. As Traveler’s Accommodations are expressly prohibited in this zone, the Commission determines that permitting such a use would fundamentally alter the zoning scheme, thereby failing the second part of the reasonable accommodation test. 2.11The Planning Commission finds that the prohibition of transient lodging in single-family residential zones, including RR-.5, is uniformly applied to all properties within these zones. This restriction is not based on the characteristics of any individual or group and does not create a disparate impact on any protected class. As the zoning regulations consistently prohibit transient lodging uses in these areas, the Commission determines that granting an exception in this case would be inconsistent with the established intent and structure of Ashland’s zoning regulations. SECTION 3. DECISION Total Page Number: 10 3.1 Based on the record of the Public Hearings on this matter, the Planning Commission affirms its interpretation that a Peer Respite Center is most similar to a Traveler’s Accommodation under AMC 18.6.1.030. As Traveler’s Accommodations are expressly prohibited in the RR- .5 zoning district, the Commission determines that a Peer Respite Center is not a permitted use at 110 Terrace Street. 3.2 The Planning Commission concludes that a reasonable accommodation is not warranted under the Fair Housing Act (FHA), as the proposed Peer Respite Center does not constitute a residence or provide long-term living accommodations as defined by the ALUO 3.3. The Planning Commission concludes that the request for aninterpretationthat the proposed PeerRespiteHomein the existingresidenceat110TerraceStreet be classifiedas a similar use to types of Group Living is not supported by evidence contained within the whole record and is hereby denied. February 25, 2025 Planning Commission Approval Date Total Page Number: 11 Total Page Number: 12 _________________________________ Total Page Number: 13 Total Page Number: 14 Memo DATE: February 25, 2025 TO: Planning Commissioners FROM: Derek Severson, Planning Manager RE: Climate Friendly Area & Walkable Design Standards Code Update Discussion Climate Friendly Areas (CFAs) The state’s Climate Friendly & Equitable Communities (CFEC) rulemaking requires cities to select and rezone Climate Friendly Areas (CFAs) capable of accommodating 30 percent of future population in pedestrian friendly, mixed-use areas as a key strategy for reducing greenhouse gas emissions statewide. Cities are required to formally designate CFAs as a “post acknowledgement plan amendment” and adopt updated maps and zoning ordinances. Ashland’s deadline for the completion of the CFA adoption has been extended to June 30, 2025. Elizabeth Decker of JET Planning, working with lead consultant 3J Consulting, has completed a code audit of Ashland’s land use ordinance identifying items necessary to comply with the CFEC requirements as well as some additional items that could be better addressed in response to requirements that residential projects, including mixed-use projects in non-residential zones, be subject only to clear and objective standards. Ms. Decker will be available for tonight’s study session to discuss her findings and take input from Planning Commissioners on the direction of the codework necessary to adopt CFAs and develop new land use rules and standards consistent with CFEC requirements. Walkable Design Standards In addition to the identification and rezoning of CFAs, the CFEC rules also require that cities adopt new walkable design standards which will apply citywide. Walkable design standards will need to be developed and applied to the new CFAs as they are re-zoned, and applied more broadly citywide no later than completion of the next update of the Transportation System Plan (TSP), which is just getting underway. Cascadia Partners has been working with the Department of Land Conservation & Development (DLCD) to create a Walkable Design Standards Guidebook which includes a model code to comply with the CFEC rules (OAR 660-012-0330 and OAR 660-012-0405). Cascadia Partners has also been enlisted by the City of Ashland, through a grant from DLCD, to complete a code audit of the Ashland Land Use Ordinance and recommend changes necessary to comply with the walkable design standards requirement which would apply city-wide. Cascadia’s team is available at tonight’s Total Page Number: 15 meeting both to discuss the findings and recommendation of their audit and to seek direction from the Commission in terms of those items necessary to comply with the state’s new rules and some other related areas where the city may wish to consider additional code changes. Based on tonight’s feedback, the 3J Consulting/JET Planning and Cascadia Partners teams will bring back a package of code amendments for Planning Commission consideration as we move toward adoption by the end of June. REFERENCES & ATTACHMENTS Attachment #1: Jet Planning: Climate-Friendly Area Code Updates Draft memo dated 2/17/2025 Attachment #2: Cascadia Partners: Code Audit and Concept Findings dated 2/14/2025 Total Page Number: 16 ! NFNP! ! ! Gfcsvbsz!28-!3136!! EBUF;! Djuz!pg!Btimboe!Qmboojoh!Dpnnjttjpo! UP;! Csboepo!Hpmenbo!boe!Efsfl!Tfwfstpo-!Djuz!pg!Btimboe! DD;! Fmj{bcfui!Efdlfs-!KFU!Qmboojoh! GSPN;! Dmjnbuf.Gsjfoemz!Bsfb!Dpef!Vqebuft!Esbgu! 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Total Page Number: 82 _________________________________ Total Page Number: 83 Total Page Number: 84 MEMORANDUM Derek Severson, Brandon Goldman, Planning Commission (City of Ashland), Cody TO: Meyer, Josh Lebombard (DLCD) FROM: Jamin Kimmell, Pauline Ruegg, Tara Sorrels (CP) DATE: 14 February, 2025 PROJECT: Ashland CFEC Implementation RE: DRAFT Task 2.3 Code Audit and Concept Findings The City of Ashland (City) is working with Cascadia Partners (CP) to review and identify all existing land use regulations that may need to be amended to be consistent with Oregon Administrative Rules related to the Climate Friendly and Equitable Communities program (OAR 660-012-0330). CP conducted a detailed audit of all relevant portions of Title 18, including standards found in zone districts, plan districts and overlay zones, site development and design standards, off-street parking standards, and related public works design standards. This memo provides city staff with a concise summary of the findings from the CFEC Code Audit. The memo addresses: Overview of the CFEC program and a discussion of the relevant state policy framework, including Oregon Administrative Rules (rule 0330) and the Walkable Design Model Code (Model Code) Executive summary of code audit findings Detailed code audit findings Based on our analysis of the existing code, we drafted conceptual recommended amendments to the code (code concepts). These concepts are identified in this memo in grey call-out boxes. Each concept is presented as an alternative for the City to consider to resolve gaps in the existing code and address inconsistencies with rule 0330 and the Model Code. Draft code concepts include general approaches or options and are offered as points of consideration for the City. As part of Task 3, CP will facilitate a discussion with city staff and the Planning Commission to determine which code concepts to pursue as part of a package of tailored code amendments. The City will adopt these code amendments to update Title 18 and other related city policies and regulations to address the issues identified in this code audit. Stakeholder outreach will take place during Task 3 after code concepts are refined to provide input as draft code amendments are developed. Total Page Number: 85 CFEC Overview State Policy Framework The Climate Friendly and Equitable Communities (CFEC) program requires the eight most populous regions in Oregon to update their codes to: Reduce climate pollution; Provide more transportation and housing choices; and Improve walkable design outcomes by encouraging more compact and vibrant places. In 2022, the Department of Land Conservation and Development (DLCD) updated Oregon Administrative Rules (OARs) to implement CFEC. Updated rules require local governments to coordinate land use and transportation planning to advance the state’s climate and equity objectives. The OARs related to land use regulations relevant to the scope of this project are OAR 660-012-0330 and OAR 660-012-405(4) (rule 0330 and rule 0405). Jurisdictions must adopt land use regulations consistent with rule 0330 and rule 0405 concurrent with or before a major update to their Transportation System Plans (TSP). The City anticipates beginning its TSP update in Spring of this year (2025) through Fall of 2027. To support cities, DLCD developed the Walkable Design Standards Guidebook (Guidebook). The Guidebook interprets the intent of OARs and presents a Model Cod for cities’ consideration. The Model Code represents one example of a set of specific design and development standards that are consistent with the OARs. The Guidebook also includes guidance on key considerations when reviewing land use regulations and resources to help planners consider possible modifications to existing standards that better support walkable design outcomes. Following is a discussion of the relevant aspects of the administrative rules and Model Code. Administrative Rules While local governments must comply with rule 0330, the rules are written to allow broad latitude as to how to calibrate development and design standards to achieve the intent of the rules. Given the wide range of contexts that exist from city to city, and even within each city across zones and different developments, there are a variety of effective approaches to achieve more walkable outcomes. The findings from this code audit represent an evaluation of Ashland’s current standards to identify potential ways in which the City could consider modifications to achieve greater consistency with rule 0330. Land use regulations required by rule 0330 apply to the entire area of a jurisdiction within the urban growth boundary. This includes all commercial and residential zone districts. Cities are not required to update site design regulations in zones with a predominantly industrial or rural character (OAR 660-012- 0330(4)(h)). Many cities have taken the first steps required by the CFEC program and have designated infill growth areas known as Climate-Friendly-Areas (CFAs). The requirements in rule 0330 are intended to strengthen walkability in those designated CFA areas, while also enhancing the design standards required for areas outside of CFAs. There will be some overlap between code amendments related to rule 0330 and those related to land use requirements in CFAs as required by 660-012-0320. This memo does not address code amendments required for compliance with CFA rules; however, it does evaluate the land use regulations that would apply within proposed CFA boundaries for compliance with rule 0330. Ashland anticipates Total Page Number: 86 adopting any code amendments required to be consistent with rule 0330 in June of 2025 in tandem with code amendments required for CFAs. Amended land use regulations will apply to new development and not impact existing development, therefore, the impact of code changes will be incremental over time. The focus of rule 0330 is land use regulations related to the private lot. While regulations governing the public right-of-way are highly consequential to the ability of cities to meet their walkability and transportation goals, the code audit did not review regulations related to the public right-of-way. This is not to say that some land use regulations are not highly interrelated with transportation regulations; for example, street design standards, access 1 standards, and driveway standards are addressed in Title 18 but reflect TSP policies. Model Code The Walkable Design Standards Model Code serves as a benchmark against which local land use regulations can be compared to when evaluating consistency with rule 0330 and rule 0405. The Model Code represents the essential elements of rules 0330 and 0405; the code translates the intent of the rules into specific design standards that seek to regulate development with more walkable outcomes (see Figure 1 for a summary of which Model Code standards implement each section of rule 0030 and 0405). While jurisdictions are required to comply with administrative rules, they are not required to adopt the Model Code; rather they can use it as a tool to evaluate their local regulations and identify potential updates to improve walkable outcomes. 1 Also not addressed in the code audit were OAR 660-012-0330(7) Low-Car Districts and OAR 660- 012-0330(8) related to transportation facilities, corridors, and sites. Total Page Number: 87 Figure 1. Model Code Standards that implement OARs Summary of Findings This memo evaluates Ashland’s existing land use regulations against the OARs and the Model Code to determine how well current standards and approaches are meeting the objectives of rule 0330 and 0405. Following is a summary of methodology and findings. Total Page Number: 88 Code Audit Methodology CP identified and reviewed relevant standards in Title 18 to determine if they were consistent with both the OARs and Model Code. This review included a detailed look at the intent statements for priority topics identified in the Walkable Design Standards Guidebook and for each design standard within the Model Code. For each relevant standard, CP made a determination if existing standards were generally consistent with these benchmarks. CP reviewed each relevant standard for its applicability (to certain uses or zones), review procedures, and key related definitions. To support our technical analysis, CP facilitated a meeting with city planning staff to better understand and identify existing barriers and issues in the code to achieving compact, pedestrian-friendly development in Ashland. This input is incorporated into audit findings throughout this memo. CP’s code audit also assessed whether existing relevant design and development standards meet the state requirement that the City only apply “clear and objective standards” to housing development applications (ORS 197A.400). This requirement extends to mixed-use developments that include housing. This requirement does not apply to non-residential development; however, applying clear and objective standards to non-residential development can yield benefits to the City and may align with other policy goals – these include a more predictable development review process; reduced administrative burden of interpreting the code; and consistent application of the code over time to different development projects. Therefore this memo indicates when a standard is not “clear and objective” for both residential developments and non-residential developments, but the City is not statutorily required to apply clear and objective standards to non-residential development. It is important to note that the Model Code identifies a range of numeric values for many standards. We noted this in the code audit and, where applicable, made findings related to these numeric values, identifying the value that may be most relevant given the local context of Ashland. Summary of Code Audit Findings and Code Concepts The requirements in rule 0330 allow local governments to decide how exactly to calibrate their development and site design standards to achieve walkability. Given the wide range of contexts that exist from city to city and even within each city, there are not one size fits all answers to how to achieve walkable outcomes. This memo provides findings the City of Ashland can use to determine potential code updates to improve consistency with rule 0330 and continue to make progress toward climate, transportation, housing, and equity goals. Provisions that are related to walkable design are located throughout Title 18, including special use standards, standards for residential and non-residential zones, and basic site design standards. Detailed site design standards are applied through several defined overlay zones (Detailed Site Design, Historic District, Downtown, Pedestrian Place, and Transit Triangle) and special districts (Croman Mill, Normal Neighborhood, North Mountain). Generally, Title 18 is consistent with rule 0330 and rule 0405 across all base zones, overlay zones, and special districts and relevant universal standards. However, there are many standards within Title 18 that, while consistent, are not as clear and objective or as detailed as the Model Code. Code updates could target improving these key aspects of existing standards to enhance the clarity and predictability of the code and ensure consistency with Oregon Administrative Rules. Total Page Number: 89 Several opportunities exist for the City of Ashland to consider updating Title 18 to be more consistent with the OARs and the Model Code. Below is a summary of the concepts for the City of Ashland to consider. While the City will need to make these changes in tandem with any major updates to the TSP, there remains flexibility in how the City chooses to improve consistency with the OARs. The concepts below take this into account. Note that some of these changes are related to land use regulations whereas others are more closely related to transportation elements and make sense to amend as part of the updates identified through the TSP. Inconsistent with OARs Below are summarized portions of Title 18 that the consultant team recommends be updated in order to be consistent with rule 0330 and rule 0405. Limit the maximum width of driveways and garages and prohibit garage entrances that are closer to the street lot line than the building façade in residential zones. Apply entry location and orientation design standards to single detached dwellings and duplexes. Both changes will promote more sociable development patterns and slow, comfortable streets as required in the OARs. Inconsistent with Model Code Below are summarized portions of Title 18 that the City may choose to update to improve clarity and/or walkable design outcomes, but generally these regulations are consistent with the OARs. Changes could include amending existing code with additional design standards that reflect aspects of the Model Code and/or converting discretionary standards to more clear and objective standards. Consider amending basic site review standards for nonresidential uses to improve their specificity and advance pedestrian-oriented design with clear and objective standards. Change the applicability of any standards that are not clear and objective so that they do not apply to mixed use developments that include residential uses. Consider updating existing residential design standards to further support pedestrian-oriented frontage design with clear and objective standards for residential uses within 20 feet from the front lot line. Consider updating drive-through special use standards to be more clear and objective and incorporate additional design standards from the Model Code, as long as they are proportional to the redevelopment of existing permitted sites. Consider minor updates to pedestrian and access circulation standards to better connect main entrances within a certain proximity to the street with walkways, require wider pathways through sites and parking lots, and require pedestrian connections to bicycle parking and recreation areas on- and off-site. Consider updating its connectivity standards to be more clear and objective and allowing the current multi-use path cross section to be used in lieu of a full street connection to meet maximum block length standards beyond current exceptions related to topography and natural features. Consider expanding the threshold for developments required to orient to and provide transit facilities beyond non-residential, large-scale projects over 10,000 square feet. The threshold could require development sites located on an existing or planned transit route, within 100 feet of an existing or planned transit stop, and residential developments with more than 25 dwelling Total Page Number: 90 units to provide additional transit facilities if substantial evidence of projected transit ridership or other transit impacts is presented by the transit provider. Code Audit This section of the memo includes detailed code audit findings organized by the priority topics identified in the Walkable Design Standards Guidebook. Within each priority topic, CP has noted the intent and applicability of standards in the Model Code and the relevant standards as found in Title 18. CP has evaluated how consistent the standards are with rule 0330, rule 0405, and the Model Code intent and applicability. We have also noted if standards are or are not clear and objective standards. 1.Pedestrian-Oriented Site Design A pedestrian oriented environment prioritizes the experience and safety of those on foot by creating an engaging, accessible, and walkable public space. There are five sets of related design standards relevant to this priority topic. They include Building Orientation and Frontage Design; Ground-Floor Design of Non- Residential + Mixed-Use Buildings; Ground-Floor Design of Non-Residential + Mixed-Use Buildings; Driveways and Garages; and Drive-Through Facilities. Building Orientation and Frontage Design Intent: Individual buildings are oriented toward the street and engage people walking and rolling by through human-scale design details including building entries, storefront windows, open spaces, and stoop, porches, or other semi-public spaces. Applicability: The standards apply to nonresidential and mixed-use developments and all residential developments except accessory dwelling units. Relevant standards include: Maximum setback Building orientation/parking location Frontage design Building entrances Title 18 applies different sets of design standards based on land use type, e.g. there are different entrance standards required of residential vs. commercial or mixed-use development types. In contrast, the Model Code requires different uses to meet similar standards; a distinction is made not based on use but given the level of pedestrian and transit activity, e.g., sites adjacent to streets with transit lines or along key corridors, in downtowns, or in designated CFAs are required to provide additional frontage design elements to support increased pedestrian activity. To better assess the consistency of Ashland’s design standards, our audit reviewed all relevant standards for building orientation and frontage design by use type. Non-Residential Development Maximum Setback/Frontage Design There are no minimum or maximum setbacks applied to non-residential uses in commercial or employment zones in the Unified Standards for Non-Residential Zones (Table 18.2.6.030). These are the Total Page Number: 91 zones subject to rule 0330, along with residential zones discussed in the following section. The one exception is when non-residential buildings abut residential zones – in this case there is a minimum required front setback of 10 feet, but no maximum setback. This is generally consistent with rule 0330 as the lack of minimum setbacks means a building is not precluded from fronting the street. It is important to note that the vast majority of the relevant commercial and employment zones are subject to Overlay Zones that do apply a maximum setback consistent with rule 0330 and the Model Code. Basic Site Design Standards for non-residential development require building façades to occupy “a large majority of a project’s street frontage and avoid “extensive gaps between building frontages” (18.4.2.040.B). While consistent with rule 0330 and the Model Code, this standard is not clear and objective. The Model Code requires 50-75% of the length of ground-level street-facing façades to meet a maximum setback standard. The intent of this standard is to limit how far buildings can be setback from the street to encourage pedestrian activity. While Basic Site Design Standards have a similar intent, the standard applied is not clear and objective and, lacking a maximum setback, does not prevent buildings from being set further back from the public ROW. Detailed Site Design Review Standards for non-residential development prohibit any building being set back more than 5 feet from a public sidewalk unless the area is used for pedestrian activities or required utility easements (18.4.2.040.C). If there is more than one structure on a site, a minimum of 65% of the aggregate building frontage must be within 5 feet of the sidewalk. This is consistent with rule 0330 and the Model Code. The City may want to consider more clear and objective standards. For example, requiring buildings to “incorporate lighting and changes in mass, surface or finish to give emphasis to entrances” is not as clear and objective as the Model Code. Additional Standards for Large Scale Projects (18.4.2.040.D) are consistent with rule 0330 and the Model Code and require pedestrian amenities by way 2 of plazas that must meet design standards. Building Orientation/Parking Location Basic Site Review Standards prohibit off-street parking and vehicle circulation areas between the building and the street (18.4.2.040.B). This is consistent with rule 0330 and above and beyond the Model Code; the Model Code prohibits these auto-oriented spaces only in front of the portion of the building required to meet a maximum setback, except for sites adjacent to transit corridors or along main streets or in downtowns. However, the City’s Basic Site Review Standards are not as clear and objective as the Model Code standard that specifically limits vehicle parking and circulation areas within 20 feet of the street to no more than 50% of the length of the street lot line and provides clear and objective dimensions and design elements required for pedestrian amenity spaces. Title 18 merely requires that “spaces between buildings consist of landscaping and hard durable surface materials to highlight pedestrian areas.” The City may want to consider more clear and objective standards. Parking Location and Design Standards (18.4.3.080.E.6) require parking areas adjacent to the sidewalk or residential zones to screen parking with landscaping. This is consistent with rule 0330 and the Model Code. Building Entrances Basic Site Design Standards require building entrances for non-residential uses to be located within 20 feet of the public right-of-way to which they are oriented (18.4.2.040. B). When a building is located on a corner lot, its entrance must be oriented to the higher order street or to the corner. Building entrances 2 Apply to projects greater than 10,000 square feet or longer than 100 feet in length or width. Total Page Number: 92 are required to be open to the public during business hours. This is consistent with rule 0330 and the Model Code. Residential Development Maximum Setback Minimum setbacks are applied to residential uses in all base zones via Unified Standards for Residential Zones (18.2.5.030). Residential uses in non-residential zones are subject to the same setback standards for permitted uses in the underlying zone (18.2.3.130) - see the relevant discussion for these standards in the prior section. While there are no maximum setbacks in residential zones, the minimum setbacks are relatively consistent with the intent of rule 0330 and the Model Code. In particular, the code allows for an unenclosed porch to have a reduced minimum front setback of 8 feet. Similar setback standards apply to residential uses in Plan Districts and Overlay Zones. Several of these zones apply maximum setbacks to residential uses instead of minimums (Croman Mill, North Mountain, Pedestrian Place Overlay, Transit Triangle Overlay). These are consistent with rule 0330 and the Model Code. Frontage Design Any residential use in any zone subject to Site Design Review must meet the Building Placement, Orientation, and Design Standards in Section 18.4.2.030. This includes any residential use of 3 or more units on a lot, including attached (common wall) single-unit dwellings such as townhomes or condominiums, and multi-family dwellings. These standards do not apply to single-family units, duplexes, or accessory residential units. Applicable residential uses are required to meet a limited set of design standards including crime prevention and defensible space, building orientation, building materials, common open space, landscaping, and street tree standards (among others). These standards address basic design aspects including building placement and orientation, but do not address aspects covered in the Model Code related to the design of an interesting and engaging street frontage such as pedestrian amenity spaces or ground floor dwelling entrances. This is particularly relevant for residential uses located close to the front lot line. While there are limited higher density ground floor residential uses in Ashland today, the City expects an increasing number of these types of development, especially given the designation of CFAs. The City could see residential-only developments, as opposed to mixed-use developments with commercial uses on the ground floor, in the Railroad Property and Transit Triangle CFAs. These types of residential development are also permitted in the NM- C Overlay in the North Mountain Neighborhood. The majority of Section 18.4.2.030 standards, while consistent with the intent of rule 0330, are not entirely consistent with the Model Code. Some of these standards are also not clear and objective and, therefore, may not be applied to any housing development. The City may consider amendments to these standards for residential uses to further support pedestrian-oriented frontage design. Residential uses in Special Districts and Overlay Zones are subject to different site design standards. For example, a residential use located in any Special District is subject to the site design standards of that district. This includes the Croman Mill, Normal Neighborhood, and North Mountain Neighborhood Districts. Any residential use within the Detail Site Review, Downtown, Historic District, Pedestrian Place, or Transit Triangle Overlay are subject to additional design standards. Our audit reviewed these additional design standards and found them consistent with rule 0330 and the Model Code. The City may want to consider more clear and objective standards in the Downtown and Historic District overlays. Total Page Number: 93 3 Residential uses that are part of a mixed-use development are defined as a “non-residential use” in Title 18. As such, mixed-use development is subject to Basic and Detailed Site Design Standards for non- residential development. The majority of Site Design Standards within Sec. 18.4.2.040 are not clear and objective and, therefore, cannot be applied to any mixed use development that includes housing. Residential uses in Non-Residential Zones are subject to the Residential Overlay (18.3.13), but this overlay does not apply additional design standards. It limits the percentage of the ground floor in a mixed-use development that can be designated for residential, as opposed to commercial uses, and applies a maximum residential density limitation. This is consistent with rule 0330. Permitted uses and development standards are not addressed in the Model Code. Building Orientation/Parking Location The location and total area of parking spaces and circulation areas are limited in residential zones through Building Placement, Orientation, and Design Standards (18.4.2.030.A.1.a). Parking areas are discouraged immediately abutting dwelling units. While these standards are consistent with the intent of rule 0330, they are not consistent with the Model Code in terms of the level of detail and lack of clear and objective standards. Further design standards related to parking location are applied through the Parking Location and Design Standards (18.4.3.080.A). These standards limit parking in front and side yard setbacks abutting the street and limit the total size of the vehicle-serving areas on a lot. These standards are consistent with rule 0330 and the Model Code. Building Entrances Residential uses are subject to Building Placement, Orientation, and Design Standards (18.4.2.030). These standards require dwelling units to have their primary orientation to a street, with any building located within 20 feet of a street being required to have a primary entrance opening toward the street and connected to the right-of-way with a walkway. These standards are consistent with rule 0330 and the Model Code; standards meet the intent to avoid entrances set further back from the street or on another building face other than the street-facing façade, e.g. the side or rear façade. However, the Model Code requires that all residential uses meet entry orientation standards, including single-detached houses and duplexes. Some design standards apply to single-detached houses and duplexes (18.2.5.090), but the intent of those standards is to “provide visual relief,” which is not directly related to providing a pedestrian-oriented frontage. Currently Ashland only applies these requirements to residential building types with 3 or more units on a lot. This is not consistent with rule 0330 or the Model Code. The City could consider requiring an entry orientation/location requirement for single-detached and duplex residential uses. Code Concepts: The City may consider the following updates to Title 18 related to building orientation and frontage design: Consider amending the Building Placement, Orientation, and Design standards for residential uses to improve their specificity and ensure they are clear and objective. Consider amending the Basic Site Review standards to improve their specificity and ensure they are clear and objective. Change the applicability of any standards that are not clear and objective so that they do not apply to mixed use developments that include residential uses. Consider adding an entry location and orientation standard for single-family dwellings and 3 Mixed-use is defined as a use that includes “any combination of residential uses with commercial, civic, or light industrial uses.” Total Page Number: 94 duplexes. Ground-Floor Design of Non-Residential + Mixed-Use Buildings Intent: The ground floor is where people interact and experience a building. Required ground floor design elements promote an engaging and comfortable sidewalk experience, making walking more comfortable and interesting. Applicability: The standards apply to nonresidential uses on the ground floor of a nonresidential or mixed-use building. The standards apply to ground-level, street-facing façades that are within 20 feet of a street lot line or a pedestrian amenity space. Relevant standards include: Transparency Weather protection Following are code audit findings related to each of these sets of relevant standards: Transparency Ashland has transparency standards that apply to non-residential uses within its Site Design Standards (18.4.2.040.C.1 ) and in the design standards for Croman Mill Plan District (18.3.2.060.B) and Downtown (18.4.2.060.C.4). Basic Site Design Standards do not include any transparency requirements. Detailed Site Design Standards require any wall within 30 feet of the street, a plaza, or other public or common open space have at least 20% of the wall area be transparent. While these standards are consistent with rule 0330, they are not consistent with the Model Code. The existing requirement falls far outside the range cited in the Model Code for minimum transparency on the ground floor (20% vs. 50-75%) nor is it clear and objective. While Ashland’s standards apply to both the ground floor and upper floor of the building, the Model Code provides more flexibility and recognition of multiple street frontages on a lot and only applies standards to the ground level. The Model Code defines an area between 2 and 8 feet above sidewalk grade and defines “transparent” as meeting a minimum visible transmittance of at least 60%. Within the Croman Mill Plan District the transparency requirement is higher (50%) and applies to the ground floor of the building. This is consistent with rule 0330 and the Model Code. Ashland may choose to update the standard to be more clear and objective as indicated above. Downtown design standards are structured differently and do not cite a specific transparency percentage but rather a rhythm and scale of windows and doors. This is consistent with the unique historic character of Downtown and consistent with rule 0330. Weather Protection There are limited code standards requiring weather protection in the code. Within the Croman Mill Plan District there is a requirement to incorporate building features that protect pedestrians from the weather (18.3.2.060.B. 2), but no specific standards are established for the dimensions of the weather protection. There is a similar requirement in the Downtown Design Standards Overlay to provide awnings and other similar features (18.4.2.060.C.9). Total Page Number: 95 There are no weather protection requirements in the Basic Site Standards or Detailed Site Design Standards for Non-Residential Development. This is not consistent with the Model Code. Code Concept: The City may consider the following updates to Title 18 related to transparency and weather protection: Convert discretionary transparency standards for non-residential uses to more clear and objective standards and consider updating the percentage of transparency required to be more aligned with the range in the Model Code. Consider clear and objective standards requiring weather protection for a certain percentage of the length of the ground-floor façade to provide coverage for pedestrians and encourage walking. Ground-Floor Design of Residential Buildings Intent: To encourage walking and sociable development patterns by promoting an interesting and engaging and human-scale sidewalk experience while preserving the privacy of residents. Spaces such as porches, stoops, and other semi-public spaces support social interaction and provide a transition from public to private spaces. Applicability: The standards apply to residential uses on the ground floor of a mixed-use building and all residential buildings except accessory dwelling units and manufactured dwellings. Relevant standards include: Transparency Transition to Residential Entrances Title 18 has design standards for residential uses in several areas of the code. Following are code audit findings related to each of these sets of relevant standards. Standards for Residential Zones There are limited design standards applied to single-family dwellings and duplexes (18.2.5.090). These standards primarily address the design of the façade, rather than the massing, location, or other aspects of the residential development. These standards are consistent with rule 0330 and generally consistent with the Model Code. However, the Model Code does apply a minimum 15-20% transparency standard to any street-facing façade within 20 feet of a street lot line for any residential use except accessory dwelling units and manufactured dwellings. These standards are intended to strengthen the connection between private spaces and the public realm, fostering safe and sociable spaces and streetscapes. Unified Standards for Residential Zones (18.2.5.030) set a minimum front setback of 15 feet, so in some limited instances, there may be homes located close enough to the street that the Model Code would regulate the required percentage of transparency. The City may want to consider extending transparency requirements to dwellings closer to the street lot line. The Model Code requires any dwelling units closer than 10 feet to a street lot line to provide transitions to residential entrances, but this is not applicable as the minimum front setback in Title 18 is 15 feet. Total Page Number: 96 Special Use Standards In Chapter 18.2.3 there are special-use design standards for ADUs (18.2.3.040), cottage housing (18.2.3.090), duplexes (18.2.3.110), and residential uses in non-residential zones (18.2.3.130). These standards are primarily development standards related to the massing and location of buildings on a lot and do not address aspects covered in the Model Code. Therefore, they are not relevant to this code audit’s findings. Site Development and Design Standards Basic Site Design Standards do not include any transparency standards or require a transition to residential entrances. There is a requirement that windows be “located so that vulnerable areas can be easily surveyed by residents” (18.4.2.030.A.1.b). There are also relevant private open space standards that include a clear and objective standard for the minimum dimensions of private open spaces for ground- floor dwelling units (18.4.4.070.D.2). While these standards meet the intent of rule 0330, they are not consistent with the Model Code. The City may want to consider applying transparency and transition standards as part of its Basic Site Design Standards. Detailed Site Development and Design Standards Properties within the Detailed Site Review Overlay (18.3.12) are subject to design standards; this includes the Downtown Design Standards Overlay, Historic District Overlay, Pedestrian Place Overlay, and Transit Triangle Overlay. Detailed Site Review Standards within these Overlays are generally consistent with the intent of rule 0330 and the Model Code. There are development standards in the Residential Overlay (18.3.13.010) that limit the overall percent of the ground floor area in mixed-use developments that can be designated for residential uses and sets a maximum residential density of 15 dua. Allowing residential uses on the ground floor and requiring them to be in close proximity to the street and designed for pedestrian-orientation is consistent with rule 0330. Code Concept: The City may consider the following updates to Title 18 related to ground-floor design of residential buildings: Change the applicability of standards for residential uses to include residential uses within 20 feet from the front lot line. These standards could include required clear and objective transparency and transition to residential entrance standards. Driveways and Garages Intent: The visual prominence of garages, parking, and vehicle circulation areas is minimized and points of conflict between pedestrians and bicycles and vehicles are reduced. The planting strip along the street is maximized to buffer people using the sidewalk, increase the supply of on-street parking, and support planting street trees. Applicability: The standards apply to residential, nonresidential (except for industrial), and mixed-use developments. Relevant standards include: Total Page Number: 97 Driveway Location Driveway Separation / Width Garage Width/Setback Following are code audit findings related to each of these sets of relevant standards. Driveway Location The City requires properties with alley access in its Base Zones and Plan Districts to take vehicle access only from the alley. Driveway approaches and curb cuts onto adjacent streets are not permitted (18.4.3.080.C.5). This is consistent with rule 0330 and the Model Code. For single-detached unit lots and multi-unit developments, the number of driveway approaches and curb cuts is limited to one per frontage. This is not consistent with the Model Code. For sites with more than one frontage that is not on an alley, the Model Code limits driveway approaches for lots with frontages on two streets to only one driveway approach. The City may want to revisit this as part of the TSP update. Driveway Separation Vehicle Area Design Standards (18.4.3.080.C) stipulate the design requirements for vehicular access and circulation on-site. According to the TSP, the minimum permitted width between driveways on neighborhood streets is: 24 feet between driveways for two units or fewer per lot 50 feet between driveways for three or more units per lot These minimum distances between driveways are consistent with rule 0330 and the Model Code. Driveway Width Vehicular Access and Circulation standards (18.4.3.080.D) regulate the minimum width of driveways. This does not support the intent of rule 0330, specifically the desire to promote sociable development patterns, and is not consistent with Model Code. The Model Code regulates a maximum overall width of the driveway to reduce its impact on the pedestrian environment. The Model Code regulates the maximum width of driveways according to the number of vehicles being served, e.g., a single-width vehicle parking area is a driveway serving either one parking space or one-car garage, etc. The North Mountain Neighborhood Plan District does regulate the maximum width of driveways (18.3.5.100.A.7). The dimension, however, is below that recommended in the Model Code (9 feet vs 10 to 4 12 feet) and conflicts with current public works standards. The City may want to revisit this as part of the TSP update. The City does permit the use of shared driveways in its Vehicular Access and Circulation Standards (18.4.3.080.C.4), but does not have established maximum widths for shared driveways, except in the North Mountain Neighborhood Plan District (18.3.5.100.7). Nor is there specific mention of the permitted use of tapered driveways. 4 Note that where no alley is present and garages for multiple dwellings share a common wall (e.g., townhomes), a 12 foot wide common driveway may be used to serve for paired garages. Total Page Number: 98 Garage Width/Setback There is no limitation on the width of garages in Title 18, except in the North Mountain Plan District. Section 18.3.5.100.A.4(e) limits the width of garage openings to 22 feet. This does not support the intent of rule 0330, specifically the desire to promote sociable development patterns, and is not aligned with Model Code. The Model Code limits the total garage width as a percentage of overall street-facing façade and can include exceptions for narrow lots. According to Standards for Urban Residential Zones (Table 18.2.5.030.A), garages must be set back a total of 20 feet. This complies with the Model Code in two ways. First, garages must be set back a sufficient depth to allow for a parked car to park in the driveway space in front of a garage without blocking the sidewalk. Secondly, the garage setback of 20 feet is greater than the front setback of 15 feet required for the lot. To be more consistent with the intent of rule 0330 and the Model Code, the City could consider more explicitly not permitting a garage entrance to be closer to the street lot line than a building façade. The City currently has this limitation in the North Mountain Plan District, where garages must be setback 15 feet from the primary façade, and this code provision has resulted in built outcomes that are pedestrian-oriented. Code Concept: The City may consider the following updates to Title 18 related to driveways and garages: As part of its TSP update, the City may want to consider limiting the number of curb cuts to one per lot rather than one per frontage for single-detached units and multi-unit developments. Apply maximum widths for driveways that are consistent with public works standards. This could include regulating the overall driveway width in correlation to the number of vehicles being served, e.g., 1 vs 2-car and/or more clearly regulating the use of shared and tapered driveways to reduce the number of total curb cuts and maximize the curb for on-street parking and street trees. Apply limitations to the total width of garages in residential zones as a percentage of overall street-facing façade and prohibit the garage entrances closer to the street lot line than the building façade. This could include exceptions and/or different standards for narrower lots. Drive-Through Facilities Intent: To support pedestrian-oriented site design for drive-through facilities. Buildings are oriented to the sidewalk and offer points of entry and service that can be accessed on foot. Following are code audit findings related to relevant design standards for drive-through facilities. Applicability: The standards apply to new developments with drive-through facilities, the addition of drive-through facilities to existing developments, and the relocation of an existing drive-through facility. Drive-Through Facility Design Standards OAR 660-012-0330(6) directs jurisdictions to ensure that auto-oriented uses provide safe and convenient access opportunities for people walking, using a mobility device, or riding a bicycle. Other portions of rule 0330 also apply to the impact auto-oriented uses have on pedestrian-orientation and connected neighborhoods. There is no requirement to prohibit auto-oriented uses per rule 0330, however the Model Code recommendation is to limit the zones where these uses are permitted and adopt design standards to address their impacts on the pedestrian environment. Total Page Number: 99 Ashland’s regulations are consistent with both rule 0330 and the Model Code. Auto-oriented uses are limited to the C-1, C-1-D, E-1, and M-1 zones but further regulated via Special-Use Standards or only permitted as Conditional Uses. Drive-throughs, or “drive-up uses” as defined in Title 18, are further limited than the broader category of auto-oriented uses. The City has a long-standing cap on the total number of drive-throughs permitted in 5 Ashland.Drive-up Uses are a permitted use only in C-1 and C-1-D within a geographically-defined area 6 and prohibited within the Historic District Overlay. Special Use Standards (18.2.3.100) are applied including: limitations on average waiting time in line for vehicles; waiting areas to accommodate customers requiring excessive waiting time; a way for customers to leave the waiting line; flat grade for stacking areas; design to allow natural ventilation; sufficient stacking area to not obstruct public-right-of-way; and limitations on the sound level of the communications system. Drive-through rights may be transferred via a transfer permit, but any drive-up use discontinued for six months will no longer be permitted. If a drive-through use is transferred to another user and the drive-up use remains, then the new use would be subject to Site Design Standards via Site Review or a Conditional Use Permit. While these standards are consistent with the Model Code, the City may want to consider a few additional provisions in the Model Code: Definitions: Title 18 defines “drive-up uses” broadly but does exclude automobile fuel stations. The Model Code, in contrast, defines these types of uses as “vehicle servicing uses” and exempts these uses from many design standards. For example vehicle servicing uses do not need to provide pedestrian service areas or locate stacking or service areas behind the building, but they are required to limit the maximum length of stacking lanes. Special Use standards (18.2.3.100) attempts to limit the amount of time vehicles spend idling while queued and to reduce the impact of stacked vehicles on the right-of-way. The Model Code 7 has more clear and objective standards to address this, including limitations on stacking lanes. Current Special Use Standards do not include a requirement to provide pedestrian connections on-site between entrances and the adjacent sidewalk. Nor is there a requirement to provide a walk-up service area dedicated to use for pedestrians or bicyclists. This walk-up service area is required to be connected to the sidewalk and include a pedestrian-amenity space. Code Concept: The City may consider the following updates to Title 18 related to drive-through uses: Convert some, or all, design standards applied to drive-up uses to more clear and objective standards. Consider if Special Use Standards could require additional standards that emphasize the pedestrian-orientation of drive-up uses as long as they are proportional to redevelopment of existing permitted drive-up sites. 5 All drive-through uses were capped at the twelve existing uses in 1984. 6 There is an exception for four existing drive-throughs associated with banks. These existing uses are subject to existing standards in Section 18.2.3.100.C. 7 In addition the Model Code requires stacking lanes to be located behind the building. This standard, however, is likely to be too restrictive given that it would only be applied to redevelopment of existing properties. This requirement would not be proportional. Total Page Number: 100 2.Connectivity + Access Well connected street networks, pedestrian paths, bike lanes, and public transit options enhance the ease with which people can move between key destinations and encourage people to travel not by personal vehicle. There are three sets of related design standards relevant to this priority topic. They include Street Connectivity, Blocks, and Accessways; Pedestrian and Bicycle Circulation; and Transit Facilities. Street Connectivity, Blocks, and Accessways Intent: Complete and interconnected network of public and private streets and accessways provide direct and convenient routes between key destinations. Smaller block sizes reduce walking distances and out-of- direction travel and promote route and mode choice. Applicability: The standards apply to nonresidential or mixed-use developments and all residential developments that meet the thresholds for site design review where transportation improvements are required. The standards also apply to any land division application where transportation improvements are required. Relevant standards include: Required street connections Maximum block lengths Pedestrian and bicycle accessways Following are code audit findings related to each of these sets of relevant standards: Required Street Connections Special Plan Districts (Croman Mill and Normal Neighborhood) must comply with any relevant street plans and street design standards (18.3.2.060.A and 18.3.4.060.A.1). These Plans and Standards are consistent with rule 0330 and the Model Code. In other base zones across Ashland, Street Design Standards (18.4.6.040) apply to all street improvements, including new streets, alleys, pathways, and the extension or widening of existing streets. Ashland’s Street Design and Connectivity Standards and required Street Layout and Design Principles go above and beyond the Model Code and meet the intent of rule 0330 to an exemplary degree. These 8 aspects of the code are highly integrated with the City’s TSP. Dead end streets are not permitted to exceed 500 feet in length and are generally discouraged except in areas where topographic, environmental, or physical features preclude a connection. Cul-de-sacs are similarly discouraged. Title 18 permits the use of multi-use paths or trails in conditions where a street connection is not feasible. This is consistent with the intent of rule 030 and the Model Code. Connectivity Standards (18.4.6.040.E) require that streets be interconnected to reduce travel distance; promote the use of alternative modes; and provide for efficient delivery of services and multiple travel routes. These connections are required unless prevented by environmental or topographical constraints or existing development patterns. This is consistent with the intent of rule 030 and the Model Code. 8 It is worth noting that all streets serving four units or greater that are in an R-1, RR, or WR zone must be dedicated to the public and developed to meet these street standards. Public Works has raised concerns with this code standard and the responsibility to maintain a public street limited in scale. This may be worth revisiting during the City’s TSP update. Total Page Number: 101 Hillside Streets and Natural Area Standards (18.4.6.040.I) go above and beyond the Model Code in terms of limiting the conditions where alternatives may be sought for meeting connectivity requirements. Guidance is provided in this section of the code as to required street connections. Connections should be made where: planned streets are noted on the Street Dedication Map; when development abuts a vacant, redevelopable, or future development phase; and integrated with existing circulation systems and land development patterns. These standards are consistent with rule 0330 and the Model Code; however, many of the standards in this section are not clear and objective. Connectivity Standards related to alleys (18.4.6.040.E.5) recommend the use of alleys where possible given their positive contribution to the form of the street and neighborhood spaces. Several Plan Districts also encourage and/or require the use of alleys according to a street network plan. This is consistent with rule 0330. Cities do not need to require the use of alleys to increase connectivity. Maximum Block Lengths Walkable Neighborhood Standards within the Street Connectivity Standards (18.4.6.040.E.9) require that all street improvements promote a walkable pattern by meeting maximum block lengths. Block lengths must be a maximum of 300 to 400 feet. Block perimeters must be a maximum of 1,200 to 1,600 feet. Exceptions may be made given physical conditions of a site that preclude meeting these standards. When block lengths exceed this maximum length, Title 18 indicates other measures that may be used to provide connections and route options to reduce trips. This section of Title 18 is consistent with rule 0330 and the Model Code. Pedestrian and Bicycle Accessways Required Street Layout and Design Principles (18.4.6.040.D.6) allow for multi-use paths or trails to be used to meet connectivity standards but only where extreme conditions prevent a required street connection. This is consistent with the intent of rule 0330. However, it is worth noting that the Model Code does provide an alternative approach to allow the use of accessways to meet minimum block length standards. This type of change would need to be balanced with concerns related to reducing vehicular connectivity and reducing the amount of space for on-street parking. The current multi-use path cross section is consistent with the Model Code design standards and would allow for comfortable pedestrian and bicycle connections. Code Concept: The Citymay consider the following updates to Title 18 related to street connectivity, blocks, and accessways: As part of its TSP update, the City may want to consider updating its Connectivity Standards to be more clear and objective. As part of its TSP update, the City may want to consider if the current multi-use path cross section could be used in lieu of a full street connection to meet street connectivity and maximum block length standards beyond just in exceptions related to topography and natural features. Pedestrian and Bicycle Circulation Intent: Safe connections to and through sites reduce the scale of larger sites and provide convenient and comfortable access to key destinations. Total Page Number: 102 Applicability: The standards apply to nonresidential and mixed-use developments and all residential developments except single-unit dwellings, accessory dwelling units, middle housing dwellings, manufactured dwellings, residential training homes and residential treatment homes. Relevant standards include: Connections to the street Connections to abutting properties Internal connections Walkway design Following are code audit findings related to each of these sets of relevant standards. Connections to the Street/Abutting Properties According to Pedestrian Access and Circulation (18.4.3.090), all parking, access, and circulation facilities in all zones, except single-family dwellings on individual lots, accessory residential units, duplexes, and associated accessory structures, must provide a connected system of walkways. These standards are applied whenever any building is erected or enlarged, parking, access or circulation is expanded or reconfigured, or the use is changed. While the uses these standards are applied to are consistent with the Model Code, the City applies a lower threshold of applicability, specifically to a change in use or enlargement or reconfigured parking and access or circulation. This goes above and beyond the Model Code and is consistent with rule 0330. A continuous system of walkways throughout the site must connect all development to all future phases of development, and to existing or planned off-site adjacent sidewalks, trails, parks, and common open spaces to the greatest extent practicable and calls for stubbing walkways. This is consistent with rule 0330 and the Model Code. The City may also want to consider requiring connections to bicycle parking and recreational areas. Safe, reasonably direct, and convenient walkway connections must be provided between primary building entrances and all adjacent streets (18.4.3.090.B.2). While the intent of these sections of Title 18 are consistent with rule 0330, the Model Code language is more clear and objective. For example, all primary buildings located within 100 feet of a street lot line must provide a connection between main entrances and the adjacent street. The connection may not be more than 120 percent of the straight line distance between the entrance and the street. This is more clear and objective than the Title 18 requirement that the path be “reasonably direct” and “safe and convenient.” Internal Connections Within a development, Pedestrian Access and Circulation Standards (18.4.3.090.B.3) require that all building entrances be connected to one another to the extent practicable, and all on-site parking areas, common and public open spaces, and common areas be connected. While this is consistent with rule 0330 and the Model Code, the Model Code has more clear and specific language the City may want to consider. For example, all main entrances on the site that are more than 20 feet from the street must be connected with a continuous walkway system. Per 18.4.3.090.B.3.c a protected raised walkway is required through parking areas of 50 or more spaces and where pedestrians must traverse more than 150 feet of parking areas. This is consistent with rule 0330 and rule 0405 and goes above and beyond the Model Code design standards. Total Page Number: 103 Walkway Design Walkway Design and Construction Standards within the Pedestrian and Access and Circulation Standards (18.4.3.090.B.4) establish design standards for continuous walkway on a site. The City requires a 5 foot wide walkway that is raised and curbed or distinguished by surface treatments and materials to separate walkways from vehicle-manuvering areas. These standards are consistent with rule 0330 and the Model Code with one exception. The minimum defined walkway width is slightly below the recommended minimum walkway width. The Model Code identifies a range between 6 feet and 8 feet with a recommendation to use the wider minimum width for walkways that abut parking spaces, unless the spaces are equipped with wheel stops. The Walkable Design Guidebook suggests that cities may want to consider wider walkways for commercial land uses where customers frequently use shopping carts. Code Concept: The City may consider the following updates to Title 18 related to pedestrian and bicycle circulation: Amend the definition of Main Entrance within Pedestrian and Access Circulation Standards so that main entrances within a certain proximity to the street are connected with pedestrian walkways. Consider additions to the on- and off-site project elements that a project must provide connections to such as bicycle parking and recreation areas. Consider if exemptions could be made for deviations in the route of pedestrian circulation pathways to preserve trees. Apply wider minimum walkway widths to certain use types and/or include details related to the use of wheel stops. Transit Facilities Intent: Buildings and entries are oriented to transit routes, and there are safe and convenient pedestrian connections to encourage different modes of travel. Even if the public realm is undersized or not yet developed, development of a certain scale is required to provide facilities and amenities to support transit use. Applicability: The standards apply to projects on or within 100 feet of an existing or planned transit route; residential developments with more than 25 dwelling units (residential building types including but not limited to single detached subdivisions, middle housing development, and multi-unit dwellings ) development; commercial, office, and institutional development with greater than 50,000 square feet of gross floor area; and industrial developments with more than 100,000 square feet of gross floor area. Following are code audit findings related to relevant transit facility standards. Transit Facility Standards Ashland requires large scale non-residential projects to provide transit amenities as part of site design review (18.4.2.040.D). This applies to developments greater than 10,000 square feet in gross floor area, more than 100 feet of building frontage, or projects in the Ashland Street Corridor. This is consistent with rule 0330. This is not consistent with the Model Code. The Model Code requires projects of all types that are located on an existing or planned transit route or within 100 feet of an existing or planned transit to be reviewed to determine if transit facilities will be required. Total Page Number: 104 Amenities may include bus shelters, pullouts, and designated bus lanes in accordance with the Ashland Transportation System Plan and guidelines established by the Rogue Valley Transportation Districts. Ashland’s Street Design Standards (18.4.6.040.D.21). This is consistent with rule 0330 and the Model Code. The City may want to consider applying the standards for non-residential development to other project types, but amending the standards to ensure they are more detailed, clear, and objective. Code Concept: The City may consider the following updates related to transit facilities: Consider if the threshold for applicability should extend to include: projects on development sites located on an existing/planned transit route or within 100 feet of an existing /planned transit stop; and residential developments with more than 25 dwelling units. Convert discretionary standards for transit amenities for both residential and non-residential uses to more clear and objective standards. Total Page Number: 105 Total Page Number: 106 _________________________________ Total Page Number: 107 Total Page Number: 108 Total Page Number: 109 Total Page Number: 110